A 4th cause of superfluous expense to the crown, was to be found in the employment of the convicts to perform the public service by task-work, which was completed by nine or ten o'clock in the morning, and thus left the hands free to assist in the cultivation of those tracts of land which had been granted to different descriptions of persons. Thus was the government labour protracted in a most shameful degree; the labour of little more than a week requiring the lapse of a month to complete it; and thus, also, several were induced, by their attention to their individual interests, to neglect the service of the colony. The consequence of this innovation was, the rapid clearing and cultivation of such persons' estates, and the erection of comfortable residences and the acquisition of further accommodations, which they must otherwise have waited some time to obtain; while the buildings which were required to be raised for the security of the stores, and for other purposes of equal necessity, were greatly retarded. I am confident also that this conduct tended to relax the discipline which ought to have been rigidly preserved amongst the convicts, and produced a general carelessness of the general interest; and it was not without some difficulty that Governor Hunter succeeded in the adoption of a contrary line of behaviour. Habits of dissipation and indolence resulted from this pernicious mode of bartering the public for individual interest, which had taken such deep root, as to render their complete eradication matter of the most extreme difficulty: The encroachments on the hours of labour for the crown has, however, been done away by Governor Hunter, and a a more regular system has been adopted in the allowance of convicts and other indulgences to settlers, &c. by order of the Secretary of State, since his excellency's departure.
The custom of imprisoning for debt those persons who are employed in the public service, constitutes the 5th article of notice; and this practice had been carried to such a pitch, that dealers would readily give credit to convicts, or any servants of the crown, under the idea that they might sue the debtors for the amount, and imprison them, or obtain the benefit of their labour until the debt was liquidated. The necessities of the convicts frequently compelled them to seek for credit, and thus to throw themselves into the power of those iniquitous designers. In consequence of the prevalence of this practice many of the convicts were immured continually, and thus the public was deprived of their services; since they preferred remaining indolently in confinement to making those complaints to the governor, which would have led to their release, and reinstation in their former situations of labour. Governor Hunter no sooner made himself acquainted with the mischievous extent to which this conduct was carried, than he published an order, in which he prohibited every person in trade from " crediting the servants of the crown, under the plea of their being at liberty to imprison their persons; if such credit was given, it was to be understood as being done at the risk of the creditor, on the good faith he entertained of the integrity of the persons he so entrusted, but that the public should not be deprived of the labour of its servants for the partial accommodation of individuals." This order was dated the 4th of October, 1798, three years after the return of Governor Hunter to the administration of his high and responsible office; and the regulation was justified by the situation of the colony, and the abuses which had sprung out of the custom. After the publication of this order, however, I saw many persons committed to prison for debt, whose situation, as convicts, exempted them from incarceration; but this apparent breach of the regulation was entirely attributable to the ignorance of the court which had thus decided, that the person against whom their warrant was directed, was at the time a bond-servant, and, consequently, within the reach of this clause. Whenever a commitment of this description came to the governor's knowledge (which was always the case in a few days, when the report of the prisoners for debt was delivered to him), the delinquent was immediately enlarged, since his confinement was illegal, as contrary to the order which had been published on the subject.
Another cause of expense, comprising the 6th in this enumeration, arose out of the number of orphan children in the settlement, who were allowed full ration and clothing at the charge of government. This evil has, however, experienced a very natural reduction, from the judicious measures adopted by Governor Hunter, who laid the foundation of a fund for the benefit of these orphans; the consequence of which has been, the completion of a school for the education and maintenance of female children of that description, and which is now supported by various imposts upon merchandize, and other taxations or fines for certain offences against the general orders. The children embraced by this charity are not simply the offspring of deceased parents, but such other children, also, as have been left unprovided for, by the desertion of those whose duty it was to foster them, or from the circumstance of their being found to be worthless and profligate characters, or by their having betrayed a carelessness and indifference as to the moral improvement of their children; where such a disposition displayed itself, the offspring were taken from them, and their subsequent progress was made the care of this institution, which provided for their support and improvement; and I am happy to say, that there is every appearance of a great good arising from this foundation, by rescuing from infamy and shame, and bringing up to a life of virtue and industry, a number of fine young girls, whom it is earnestly hoped will strive to repay the paternal care that has been taken of them in their juvenile days, by a strict adherence to every pure inclination as they rise in age, and a grateful remembrance of those from whom their happiness has sprung.
7thly, The establishment of a most injurious monopoly amongst the inhabitants of the settlement, which has tended to the ruin of fair trade.--The commencement of this baleful system is traced back to the administration of Governor Phillip, at which time I was not in the settlement. In a very scarce period, when all classes were labouring under every kind of privation, the officers prayed leave of the governor to charter the ship Britannia for the Cape of Good Hope, to bring back cattle and other articles on their account, for which speculation a considerable sum was subscribed, in equal shares. The governor assented to the proposition, in consequence of the peculiar state of the colony at that time; but scarcely had the Britannia sailed upon her voyage, when the governor, having received leave of absence, left the settlement, and the government immediately changed its form, from a naval to a military system. In consequence of this variation, permission was readily obtained for the disposal of the cargo thus imported on its arrival, and after its passing through the hands of the importers, the chief part of the merchandize produced from 1000l. to 2000l. per cent. to the private retailer. These extraordinary advantages could but be attended with evil and destructive consequences to the settlement at large; nor does the system of monopoly, which was so early introduced in the colony, cease to spread its baleful influence; by which means the settlers, who were deserving of the most marked encouragement and indulgence, still remain in far less affluent circumstances than they otherwise might have been. This topic deserves serious attention, and the mild hand of legislative authority, to check its further pernicious effects.
Having spoken thus on the subject of monopoly, which I shall at a future period fully establish, and which has occasioned the sacrifice of the public, to individual interest, I shall proceed to advert, 8thly, to the loss which the government has sustained in the dereliction of some of its most valuable servants, who have been allured, by the rapid fortunes made by several individuals, to quit the service of the public, and to embark in traffic. The inferior officers of the settlement, and the non-commissioned officers and privates of the regiment, have been infected with the itch for dealing; and many of the settlers themselves have either disposed of their farms or deserted them, to obtain the means or the leisure to devote themselves to a species of dealing which never failed to turn to good account. Many who had also served their terms of transportation, instead of remaining to aid the public service, withdrew themselves from the stores, and turned their thoughts to trade. The consequence of this universal inclination to one object, and that of such an evil nature, being chiefly confined to the sale of spirits, soon became obvious in the desertion of those farms which had been previously tilled with so much advantage, and in the neglect of all duties, whether of a public or private nature. The immense profits made by this pursuit served as a new stimulus to its continuance: One dealer was known to have cleared twelve hundred pounds sterling in four weeks, and chiefly by the sale of spirits; and an inhabitant of the lowest order, who commenced dealing with five pounds, has been known to realize five hundred pounds in the course of six months. It must naturally be inferred, that the most base imposition must have been practised to render this business so extremely lucrative, and the article itself must have been diluted away to excessive weakness; but while the temptation remained so strong, it is not to be wondered at that such numbers of persons, in a colony of this or any other description, should be found to quit every other object for a free and full pursuit of one so full of attraction. Many of the convicts soon acquired property in this way, and some of those who had been in that unfortunate situation, by their good conduct are now considered as respectable characters, and are in possession of horses, carriages, and servants, with a sufficiency to secure their independence during the remainder of their lives. The military have also made considerable wealth by the same course, and the consequence was the instilment into every bosom of a consciousness of independence, which was fatal to that strict subordination which ought to be maintained and enforced. Non-commissioned officers were the principal actors in this department, and being connected by the ties of common interest, they formed a combination which interfered with the middle class of inhabitants, since they could get on board any vessels on account of their rank, which gave them the privilege of doing so, without being under the necessity of obtaining a written pass for that purpose. The principle of allowing a servant to enter into traffic, is fraught with the most serious mischief; since he is not only led to neglect the duties he has undertaken to perform, but gradually becomes independent in his feelings and opinions, and substitutes insolence of conduct for the respect which ought to mark his behaviour. The value of an article also becomes greatly enhanced to the consumer, when it is permitted to pass through so many hands, each individual of whom must place upon it a profit which he deems adequate to his labour or his ingenuity. Allowing liberty to a prisoner to pursue this kind of avocation is productive of another evil; it leads him, by gradual steps, from becoming careless of his proper duty, to the assumption of a degree of importance and independence which induces him to place himself above his master, and thus controverts the natural and necessary distinctions of society. This traffic has also originated numerous frauds of a pecuniary description, amongst which may be mentioned, as the most notorious, the custom of indorsing notes of hand over to persons, without receiving any consideration for the same, and thus making them the plaintiffs in the suits which they were permitted to institute. From all these practices it has resulted, that numerous settlers have been induced to neglect or quit their farms, which, with industrious management, were competent to the supply of all their necessary wants, and thus to diminish the means of procuring subsistence for the colony; and they have become dissatisfied with a country, which is capable of being made the most lovely and prolific in the world. Amongst the inhabitants, also, was introduced the vice of gaming--a natural consequence of the astonishing increase of wealth in men of little principle and no economy; drunkenness was the ready way to this crime, and so addicted were many of every class of society to it, that they scrupled not, after losing the property which they possessed, to stake that which they did not possess. Some persons, however, either favoured by fortune, or possessing more prudence than their unfortunate companions, contrived to retain the property they had gained, and by applying it to traffic are now in a state of affluence of which few persons can form an accurate conception.
The 9th item of expense is to be found in the provisions and spirits issued to parties on command; a custom which has been esteemed proper and necessary in cases where such parties have been employed in particular services for the public benefit, and in no other cases have they been issued during the administrations of governors Phillip and Hunter. These services were of various descriptions, parties being frequently detached in pursuit of those who had absconded, either into the woods, or had carried off boats, and endeavoured to escape over the ocean; others were oftentimes employed in excursions into the interior, to obtain a more perfect and comprehensive acquaintance with the nature and productions of the country; others again were sent, at times, to reconnoitre the herds of wild cattle, to remark their progress, and see that no attempts were made to destroy such an useful resource; the inspection of the various settlements also occupied some detachments; small divisions were dispatched to cruize and survey the coast; and the crews of colonial vessels, which were engaged in going to and from the Hawkesbury, as well as to the more distant settlements, were in the habit of receiving these extra supplies, as they had no other means of increasing their common allowance, when such augmentation was necessary: Certain customary rations were also given to the settlers while they were employed in making and repairing the different roads which led to the settlements, and at which periods they received allowances in proportion to the number of days during which their services were required. It had also been usual to give one pint of spirits weekly to each of the clerks employed in the offices of the governor, secretary, commissary, and judge advocate; a similar portion was also issued to the constables of the crown and the overseers; and also to such constables of districts as were chosen out of the inhabitants who were not prisoners, and who, with their families, were victualled from the public stores; but some of these have been subsequently done away with, being considered by Governor King as a superfluous addition to the already excessive expenses of the colony. There are also many other occasional duties, the persons employed in which would be entitled to the extra allowances, from a sense of their indispensable necessity, since it is sufficiently evident that men who are called upon and expected to perform services of more than common exertion, must receive additional means of increasing their physical strength, and of enabling them to execute the task assigned to them.
A 10th cause of loss to the crown, and of the expenses of the colony, resulted from the abuses formerly practised in the medical department of the colony; amongst which it was customary to screen the convalescent labourers in the Hospital, and to employ them for individual benefit, so that the patients were thus kept under the hands of medical men longer than was requisite for the establishment of their health: An imposition of this nature called for immediate steps on the part of the governor, but unfortunately his excellency Governor Hunter did not receive information of this iniquitous practice until he had delivered up his executive power and was embarked, or otherwise he expressed his determination to have put a stop to the disgraceful proceeding; it has, however, subsequently been done away with. At one time, it was ascertained, there were forty or fifty convicts who were thus kept in the Hospital, and were employed by a medical man in the furtherance of his private interests, and such other occupations as he marked out for them, to the loss of eleven pounds five shillings a day to the crown. Such a circumstance as this, from a quarter so totally unexpected, afforded an additional proof of the general disposition which prevailed amongst almost every class of society to push their individual interests, to the detriment of the public service; and, instead of giving their full assistance to promote the prosperity of the colony, to retard its progress, and make its necessities the source of their profit.
The 11th cause of loss to the crown, and of the expenses of the colony, arises from the dependent settlements within the limits of that territory; and although the governments at the River Derwent and Port Dalrymple are allowed to draw separate Treasury bills for their internal expenses, yet, the great quantity of wheat, maize, salt provisions, slop clothing, and other stores, it is absolutely necessary to send from the principal seat of government to those places, added to the conveyance and other unavoidable charges, enhances the expenses at Sydney to an amount that no person would believe but such as have had an opportunity of being an eye-witness to the mode in which such immense sums are disposed of, or upon strictly investigating the voluminous official documents which are transmitted from that colony. As the accounts of the expense of the settlement at Newcastle are wholly included in those at Port Jackson, I shall forbear to make any regular estimate thereupon; but it must be evident, that where the subsistence of such distant places chiefly depend upon a settlement but a short time colonized, the expenses must be very considerable, and the supplies must be given out and used with the greatest caution, to prevent the necessity of applying to a market where their charges are generally exorbitant, and in most cases optional.
The last source of expense to the government which I shall mention, and which, although now also done away, has been the means of an astonishing increase in the expenditure of the colony. From the fertility of its soil, Norfolk Island was for some time considered a great acquisition to the principal settlement; but subsequent experience has proved the futility of this idea, since the price of grain, instead of lowering in proportion to the additional trouble bestowed on the cultivation of the soil, remained the same just before its evacuation as it had been eight years before. As a place for raising swine this island, indeed, might have proved of much utility, if the establishment there had been almost entirely reduced, and the attention of the colony had been confined to this subject, and to the curing of pork for the consumption of all the other settlements; but as this method was not adopted, it proved, from the time of its establishment, a continual check upon the prosperity of the principal colony, draining those resources which ought to have been applied to different purposes, where the hope and probability of some recompense, adequate to the expense, might have been more sanguine, and less unlikely. Norfolk Island, so far from returning any proportionate recompense for those supplies, had not, in the course of thirteen years, sent to New South Wales property of any description exceeding in value 2000l.; during which period all the expenses of that island were included in the general account of the whole country with the Lords Commissioners of his Majesty's Treasury. So far from being in itself a flourishing colony. Governor Hunter, who called there in his way to England in 1800, found that the whole of the public, and numbers of private erections, were in a most miserable condition; and his excellency declared that he had scarcely seen a negro town in the West Indies with half such a wretched appearance. The grain here and there displayed a promising appearance, and swine were in some considerable numbers; but the coast was dangerous, Governor Hunter being himself once wrecked upon it in the Sirius, and nearly lost with all his ship's crew; and this circumstance is calculated to deter vessels from touching at the island in quest of wood and water, which are both plentiful, but which may be procured in equal abundance in any of the other islands of the Pacific ocean where there are fewer rocks and breakers to contend with, and where the acquiescence of the natives might easily be purchased. In addition to the above obstacles and inauspicious appearances, vessels at this place have no anchorage, but are obliged always to keep under sail; and I have known them to be blown off the island for several weeks together, with very little provision on board, whilst a part of the crew have been on shore; and by those means not only a considerable loss has accrued to the merchants or owners, but the lives of a number of fellow-creatures have been exposed to the most imminent danger.
To the existence of these, with other subsequent causes, it may be attributed that the colony of New South Wales has not made a more rapid progress towards independence, but has so long hung, as it were, upon the breast, and derived its sole nourishment from the food, of the mother country. To raise the settlement from this state of dependence; to expunge from its early page that stain which must be affixed to it by remoter ages; to stimulate its growth, and impel it along the path which leads to greatness, must be the object, the desire, and the hope, of every one who feels an interest in its prosperity; and if a long residence in the colony, a full consciousness of its capacity, and an unshaken affection for the country, can entitle any one to a rank amongst the friends of this infant empire, I flatter myself that my claim must be allowed; and I shall therefore proceed to suggest those further ideas of improvement which are founded in a thorough knowledge of the subject from experience.