The Breach with Bollan

    843. From William Bollan, 15 April 1771

    Hutchinson himself was so clearly convinced of the unconstitutionality of the House and Council maintaining separate agents unapproved by the governor that he assumed his old friend William Bollan would understand his reasons for vetoing the grant for Bollan’s salary, especially since the payment to Bollan was attached to a similar grant for Dennys DeBerdt. Hutchinson also argued that the Council, for whom Bollan was acting as agent, had recently been meeting unconstitutionally when the legislature was out of session and without the governor present. Thus, he could not in conscience authorize the use of public funds on behalf of a group of private individuals. Hutchinson’s letter of 10 January explained these reasons and indicated a willingness to consider a separate £300 grant based on Bollan’s earlier services to the province in 1769 and 1770, but it drew an angry and lengthy response, which amounted almost to a legal brief. For Bollan, who suspected Hutchinson of not doing enough to prevent his dismissal as agent in favor of Richard Jackson in 1764, Hutchinson’s veto destroyed what remained of their friendship, and Bollan moved more clearly into the patriot camp.

    843. From William Bollan

    Nassau Street, Soho, April 15th: 1771

    Dear Sir, Having received your favour of the 10th: of Jany. I must confess that your reasons assign’d for your refusal of your consent to the grant made me by the Genl Court have not reconciled me to it; on the contrary, saving in the great point of mutual desire that justice may in time take place, we differ more in Sentiment than I ever expected: this difference I attribute in a great measure to your not knowing wholly, or not considering the natural grounds and reasons of my demand. The censure past by the Lords & comons upon the Council, without first hearing them, a state proceeding, render’d their defence necessary to prevent their or the Provinces future suffering, with my consequent employment for that service, and the demand of a reasonable recompense for it, being founded in natural justice, in my opinion, the King, his ministers or Governors cannot fully obstruct a payment but ought rather to promote it; and for your better understanding my sense of the matter you receive inclosed a copy of a letter to Ld: Hillsboro; written with intent to facilitate future payments. Upon attending his Lordship the next day he spoke to this effect; that the matter & prayer of my application did not appertain to his office; but after disclaiming all official consideration he proposed his ent’ring into conversation upon the Subject, if desired, and, upon my assenting, he said among other things that the appearance of Agents for the Colonies had been attended with great uncertainty and irregularity, so that it sometimes could not be known who had good right to appear, that is by their deed made in their corporate name, under their corporate Seal, & that th’ affixing of the great Seal of the Province compleated the deed containing th’ authority to appear for it, all the prior & preparatory proceedings being merged therein. To this his Lordship seem’d ready to assent. I agreed that the appearance under an Act wou’d be good and valid, observing that the twofold assignment of the several branches of the legislature made their Act, altho’ it was not cast into the form of a law, of whose nature th’ appearance of the Province before the government here did no ways partake, but that, in my opinion it was best for the province to conform to the mode of proceeding of the corporations here established by common law & common usage. I need not say this related to future proceedings, or that I have been heretofore appointed by votes of the general Assembly, with th’ assent of the commander in chief, without any Act made in form for that purpose. I observ’d to his Lordship that the service of the crown required that the freedom of defence shou’d take place, for without it in certain cases the colonies cou’d not justly be bound, & cited the proceedings respecting your partition line with N Hampshire—among other things, his lordship, for want of better argument; or otherwise, to my great surprize, said he considered the council as private persons, who might have an Agent if they pleased, & pay him themselves, whereas they are plainly an order of Men instituted by charter, & were censured in their public capacity. Modern politics are enow to make a Man of common sense & justice sick. The lords & commons influenced by ministers or their representatives censure a provincial Council without hearing, a proceeding, I conceive wholly irreconcileable with the principles of natural justice, which are no more in the power of parliament than the principles of mathematics. This Council, in their defence & prevention of subsequent sufferings by them & the corporation of which they are a constituent part, employ a person to appear and act for them; and when the corporate body by their delegates offer payment in discharge of his demand, founded in natural justice, this payment is prevented by a rule made by these Ministers or by a Governor proceeding according to their sentiments without promulgation, which is absolutely necessary to every positive law, tho’ pass’d in all the forms provided. In case the ministers were inclined to regulate the future appearance of the colonies, provided they did not trespass on the right or freedom of defence, I had no objection to it, but justice & candour in that case plainly required notice to be given to the parties concern’d, so that the constituents or their department might not suffer in their interest; but a retrospective order subversive of a demand founded on the principles of the common law is, as I told his Lordship wholly, in my opinion, out of their and your power, & in the present case a particular charge being made upon the council their only authorisation was questionless proper to answer it.

    When attending his Lordship on a different business a week before, in the course of a long conference, wherein his Sentiments did not in some points coincide with mine, I told him that, in my opinion common justice was a common debt due to & from all persons, & the common cause of all honest men; to this he said nothing, but pass’d on directly, as his manner some times is, to other matters, & upon the whole he gave me, I thought, sufficient occasion to say that I wou’d try the justice of the King & kingdom. This seem’d much to affect him; however we parted with due respect on my part, & civility in his; and when I attended him on this agency business I observed that altho’ a small object in value it might be attended with considerable difficulty if not prevented, which I desired to do as far as lay in my power; & upon his afterwards speaking handsomely of you I avowed that we had served many years together with good agreement, & advancement of the public welfare, and that I shou’d be very sorry to have any contest with you or others respecting any part of your conduct.

    Your reasonings, you are sensible, are exclusive of future direct & explicit payment for my late services. On mature consideration they appear to me clearly inconclusive, & to deal plainly with you, as an old friend ought to do, I shou’d think you infected with modern politics, happy in a dexterity at assigning reasons for wrong things, if I was not prevented by your appearing a stranger to the primary cause of my employment, & persuaded that a thoro’ knowledge & consideration of the nature of my demand wou’d have been attended with different sentiments, & I need not say I shall be glad to receive what is justly due to me in any Shape.

    My demand resting on the preceding solid grounds I need not for my own sake to proceed to the consideration of other matters; but your letter appearing to me to be written in more haste than is common with you, I shall briefly observe that I cannot comprehend the force of what you say relative to the tacking another grant to mine, whereon you do not indeed rest the services, sums & grants are distinct, tho’ the grants were made, I suppose, at the same time, & put together on one piece of paper, which cannot change their severance by their nature; and your consenting to two grants of two different sums to two different persons of monies respectively due to them from the grantors, cannot, in my opinion, possibly make any precedent obliging you to consent to two grants whereof one is unjust, in case that similar union subsisted which you suppose, contrary to my conception. As to my Services, I never acted in conjunction with Mr. De Berdt in any one matter; I proposed his joining with me in a petition to the H of Commons, & he declined it, saying he wou’d back mine, which he never did. You tell me that the Councils appointment of an Agent has been deem’d unconstitutional by the Ministry. After observing to you that what I have wrote to the secretary of H.1 is founded on plain facts & proceedings asserted by the proper Records and plain law & justice resulting thence; the governing facts you appear to me unacquainted with: how far the Ministers, too apt to carry their Candle & lanthorn behind them in American affairs, considered the matter I know not, but every man of sense knows that nothing can be duly determined that was not duly considered, which cannot be without hearing of the parties; and a contrary proceeding, so repugnant to the immutable nature of Justice, has chiefly occasioned the American confusions, & I believe the present Ministers are in part at least now sensible of it, for since my seeing Ld Hillsboro’, a noble lord who stands higher up in Administration & influence said to me that affairs in America had been mistaken:2 how far he design’d this declaration should extend I know not but if the Ministry deeming or determining you [illegible] be pleaded in subversion of my demand I shall totis viribus oppose it, in justice to the Province & my self.3 You object irregularity in the Councils proceedings with exclusion of the Governors knowledge. The rights of the people are to be held, I presume, in equal esteem with the rights of the rulers, & pray, do not instructions applications & other communications take place between the Governor who is the Kings Agent, and his Ministers exclusive of the Councils knowledge; and pray, have not you in my Case communicated with them, & have not they & you, without hearing & knowledge of the Council & my self, form’d resolutions prejudicial to the Council & province as well as to me; and have not you in like manner put them in execution. As to the Provinces interest in the councils defence it was, & still continues, as I observed to Ld Hillsboro to be as necessary for the good of the body politic as the care & preservation of an essential part is to the body natural. Irregularities have abounded in America, and are you or I not to be paid for our services by reason of them. Qui faciunt per alios fact per se, & have not ministers changed the condition of a distant free people without representation or hearing, & consequently without understanding aright what they were doing?4 Have they not, contrary to the capital right of free Britons began to take from their fellow subjects the first shilling out of their pockets by a Rule according to which they may go on to take the last without their Consent, or even hearing; &, not to be tedious, have they not at length broke up the entirety of your office, contrary, in my sense, at least, to the general condition of the colony under the Kings immediate Government, & particular constitution of the province; for no point of common law appears to me more certain than that the King cannot by the privy Seal, his Signet, sign manual, or other signification of his pleasure control th’ operation of the great Seal, and that an attempt to do it is minus caute at least in th’ advisors & others acting under this supposed authority, & this irregular proceeding being of far greater importance & attended with much greater danger than any irregularities objected to the council.5 I heartily wish to see you restored to the exercise of the proper & complete authority of your office, which the King cannot divide, in my opinion founded on great authority. In the course of those grievous errors difficulties & distresses that have so long unhappily subsisted I have done my utmost for the benefit of the colonies, & the province in particular & my service has been distinguished in several respects with success: no petitions, save those which I presented have, according to my information been received in Parliament,6 & that which I presented as still belonging to the Province, no Man losing his domicil by going abroad in public service, to check the strange & injurious attempt made to extend to the colonies the Statute of Hen. 8, for trial of foreign treasons, was supported by a greater Minority, as a Member of the first Character told me, than had appear’d upon any opposition to Ministry upon general principles.7 The genl Court seem to have no sense of any just demand arising thence, or from any service perform’d at the desire of the Major part of the Council when they could not regularly Assemble, altho’ attended with great difficulty, and no small expence; but, whatever you or they may think of the matter, any service done for, and approved by the Province makes the same chargeable to pay what is reasonable for it. What was done at the desire of the Members of the Council in the distress’d state of the Province I presume was approved by it, & several intelligent worthy persons having preserved, I understand, copies of my own petitions, as a lasting Monument of the injuries & grievious designs of ministers, and of my endeavors to oppose them when no other person in publick or private capacity made the like attempt in behalf of the Colonies, I presume this proceeding was approved by the Province. These things I have stated for illustration, still & ever insisting that the irregularities you mention, and wherein I had no concern, can by no means invalidate my demand.

    Exabundanti I desire to observe that the House of Burgesses in Virginia had their separate Agent several Years, who received £500 per Annum without difficulty.8 The Agent for Pensylva as I am inform’d was never approved by the Governor, nor the Agent for the Jersies, & yet the Governor never attempted to prevent their payment & I am sorry to find myself unable to approve of your conduct or that of the Ministers, who seem to consider you & others rather as official officers under their direction, than as officers of the Crown, & at some times to forget that the King, or they or you have no authority but what the Law gives, & that no just demand is in the power of the King or any of you, and to be plain, I cannot reconcile my self to your application in order to know the sense of the Ministers respecting my Service. If you had wrote to me at the same time, I doubt not I should have been able to prevent any retrospective order, direction or intimation subversive of my demand for past services; whereas you & they suffered me to go on without the least notice, expending my time and my Money, & then, in consequence of a strange if not unwarrantable private proceeding between you & the Ministers, or of your own errors, arising in a good measure from ignorance of material facts, when payment comes to be made you are ready to frustrate the offer: by your mode of applying to Ministers you laid yourself under a necessity in my opinion of following their Sentiments, whereas by writing to me also I should have prevented any difficulty being laid in the way of satisfying my demands, or you would have received a positive instruction thereupon, in which case I should have combated th’ instruction, the King having certainly no authority to give any that is contrary to common law, natural Justice, or the province Charter; Whereas my complaint, were it now made must be against you, which be assured I have no inclination to move.

    Having written thus fully & freely for illustration sake I have not the least doubt you will do me justice as far as lies in your power, which is all that I desire.

    With respect to the general difference of the Provinces rights & interests let me observe that the right of defence is given by law, & not by Charter, that is, when the King creates a body politic this compound politic person is by law entitled to defence in like manner with a natural person.

    After censuring the trespass on the entirely of your office, I desire to add that in Case you had acted otherwise than you did the Province would probably have had a worse Governor, without being benefited in any other respect.9

    I heartily wish you success in your Administration, and that after so long & hard service I may obtain justice without delay, or the least embarrassment of public affairs, & am, &c.,

    W. Bollan

    AC (Massachusetts Historical Society, Bowdoin-Temple Papers, 2:89); at foot of letter, “Govr. Hutchinson.”