We are so accustomed to think of that country as the great trading nation and mistress of the seas, that it is hard to conceive of a time when she had not even faintly dreamed that her destiny was to be upon the water, when her trade was still mainly in the hands of foreigners, and she herself was merely a producer of raw materials for the manufacturers on the continent. Such, however, was the situation at the opening of the sixteenth century. Men, indeed, began to talk of the new discoveries, which were even introduced into the rude theatre of the time; but, in the main, they stuck to their last, and fished and grew wool like their fathers. As yet, there was not the vaguest thought of a colonial empire—only dreams of gold and spices, and the silent fishermen catching cod.
The accession of Elizabeth opened the door to imperial ambition. Spain was, indeed, at the height of her power, whereas England's day was yet to come. Elizabeth's resources needed careful husbanding, and no open breach between the two countries could be allowed; but political interests were still European in the minds of statesmen, and peace, though many times in jeopardy, was not to be broken lightly for what English seamen might do “beyond the line.” America was a means to European ends for Spain, and, until the depredations of the English became so great as to threaten those ends, murder, robbery, and the looting of cities passed with no action beyond protests, which Elizabeth met and parried.
We must pass by the doings of Hawkins, Drake, and the other sea-dogs, the whole pack of whom were soon in full cry after the hated Spaniards in their slow-moving galleons, laden with the treasure upon which their European power was nourished. This latter fact was now recognized, and wild and, perhaps, unlawful as were these English seamen, we must remember that, unlike common pirates, their depredations were not alone for private ends, but were blows struck for their religion, their country, and their queen. Had it not been for them, the Armada might indeed have been invincible, and the civilization of North America have been Latin instead of Anglo-Saxon.[[57]]
One of the outstanding characteristics of the later Tudor period was the remarkable development of individual initiative. Men were no longer content “ever like sheepe to haunte one trade,” but in every field of human endeavor were striking across new paths. It was, moreover, an age of glorious amateurs. As in the best days of Greece, the bars that bound the individual within narrow limits of professionalism were broken asunder. It was as if to the nation's mature powers had suddenly been added the gift of youth. It was a cry of youth which Thorne uttered when he swept away all objections to the dangers of the Northwest Passage with his “there is no land unhabitable nor sea innavigable.” Elizabeth's well-known methods, which perhaps temperament, necessity, and policy all had their share in fashioning, were admirably adapted to bring out, and to use to the utmost, these qualities in her subjects. Personal loyalty and individual initiative were largely fostered in place of taxation and governmental enterprise, and the patriotism of a united nation rose to new levels. “He is not worthy to live at all,” wrote Sir Humphrey Gilbert, in 1576, “that for feare, or danger of death, shunneth his countries service, and his owne honour.”[[58]]
This growing national feeling was strengthened by religious motives. The persecutions under Mary, and the tortures of the Inquisition, to which English sailors were so often subjected in the ports of Spain, both played their part in the drama now being enacted. Five thousand English volunteered for service against the Spaniard in the Netherlands, and the Queen's hand was being forced by the national feeling that she herself had aroused. The conquest of Portugal by Spain, in 1580, nominally transferred to the latter all the colonial possessions of the entire world she did not already possess, leaving no room open for other nations, according to Spanish pretensions. The English government at last spoke, however, and in the same year, in answer to Spain's demand for the return of Drake's plunder, announced that Spain “by the law of nations could not hinder other princes from freely navigating those seas and transporting colonies to those parts where the Spaniards do not inhabit; that prescription without possession availed nothing.”[[59]] The rights of other nations were definitely settled by the defeat of the Armada eight years later.
Business was beginning to improve somewhat after its long decline. The Muscovy Company had been chartered in 1555, and trade was seeking those new outlets which Sebastian Cabot had been recalled from Spain to find; but England felt the effects of the vast injection of American bullion into the currency system of Europe later than the continental countries. After the recoinage of the debased money in 1559, however, the advance in prices, which had already begun, was very rapid, with effects upon the country gentry and other classes, which were to have a marked influence upon American colonization.
In the meantime, while Drake was hastening home from the Pacific in the Pelican, loaded to the gunwales with the spoils of Spanish treasure-ships, another voyage, the first, except those of fishermen, since the ill-fated escapade of a London lawyer in 1536, was being made to the shores of Newfoundland. The motive was the old continuing one of a passage to the Orient by the northwest, although little is known of its details. The Queen, however, granted to its leader, Sir Humphrey Gilbert, a patent to colonize and rule such lands as he might choose from his new discoveries. This patent, which was issued in 1578, and marked a new epoch in England's American policy, followed in many respects the charters of the trading companies granted by the Crown both previously and subsequently.[[60]] It had, however, a wholly novel feature in the clause which permitted Gilbert to transport a colony to his new possessions. It is probable that this first attempt to plant an English community beyond the seas was largely based upon the experience being gained at this very time in the efforts to colonize Ireland. Sir Humphrey himself, with other west-country gentlemen, had undertaken to plant colonies on the Crown lands in Ulster, eleven years before, and various plans and essays had been made, though unsuccessfully.[[61]] These colonizing schemes in Ireland were being considered and carried out during the whole period of the early efforts to plant colonies in America, and many individuals and city companies were interested in Irish and American lands at the same time. Both were almost equally wild and uncivilized, and both were rich and undeveloped.[[62]] The Irish Plantation Society, formed in 1613, was a serious rival to the Virginia Company, and diverted both funds and colonists at a critical time for the American scheme.[[63]]
The beginnings of the continental American colonies, indeed, are too apt to be considered as isolated events. Their unique importance from the standpoint of American history has tended to obscure their real nature. From that standpoint, they are naturally viewed as the founding of a great nation; but if they are considered solely in that relation, not only the planting of the colonies themselves, but the subsequent history of their relations with the mother-country, and the whole course of England's old colonial policy, are bound to be misunderstood. The American colonies, in their inception, were largely business ventures of groups of individuals or joint-stock companies, and, as such, were but episodes in the expansion of English commerce.
The patents and charters issued to companies for trade and discovery, prior to that of Gilbert, contained the germs of most of the provisions which subsequently found their way into the charters of American colonies, and the ideas of colonial administration. Monopoly of trade for a definite time was naturally granted, as recompense for the great expense and risk involved in opening new channels. The trades, moreover, were also justly regulated for the benefit of England rather than of the few individuals who were shareholders in the enterprises. Hence, we find stipulations such as that in the Cabot charter of 1496, requiring all business done under it to pass through the port of Bristol only; or that in the charter of 1566, to the Fellowship of English Merchants, requiring that all goods must be carried solely in English ships, manned for the most part with English sailors.[[64]] These and other restrictions were the germs of a domestic economic policy which, although reasonable enough in its inception, was to be pregnant with such fatal results when pursued consistently, and without taking into consideration the altered conditions brought about by the unexpectedly tremendous growth and political needs of those particular colonies planted by certain trading companies or individuals in America.
Under the system of international intercourse prevailing in the fifteenth and sixteenth centuries, it was found necessary to provide some sort of government and authority for the groups of English merchants, and their clerks, residing in foreign countries. The problem was met, in 1404, by Henry IV, who granted a charter to those resident in the Teutonic countries of northern Europe, permitting them to meet together to elect their own governors, and to make their own laws, the king ratifying and requiring obedience to such legislation in advance.[[65]] In 1462, Edward IV, in a charter to those resident in the Netherlands, appointed the governor, but allowed the merchants to elect twelve “Justiciers,” who were to sit with him as a court. The merchants were also to make their own laws, which, however, had to be approved by the royal governor. When it was no longer a question of trading in a civilized country, but of discovering new ones, unoccupied, or occupied only by heathen, the discoverer was naturally allowed to take possession in the name of the king, and was enfeoffed with the new land, the condition of tenure usually being a fifth of the precious metals found.