"The other faction, most rightly indeed to be called a faction, is the papists; men whose spirits are full of anguish; some being infested by others whom they accounted damnable; some having their ambition stopped because they are not in the way of advancement; some in prison and disgrace; some whose best friends are banished practisers; many thinking you an usurper; many thinking also you had disannulled your right because of the pope's excommunication; all burthened with the weight of their consciences. Men of great numbers, of great riches (because the affairs of state have not lain on them), of united minds, as all men that deem themselves oppressed naturally are."
A further commentary on the hardships of their condition may be extracted from an apology for the measures of the English government towards both papists and puritans, addressed by Walsingham to M. Critoy the French secretary of state.
"Sir,
"Whereas you desire to be advertised touching the proceedings here in ecclesiastical causes, because you seem to note in them some inconstancy and variation, as if we sometimes inclined to one side, sometimes to another, as if that clemency and lenity were not used of late that was used in the beginning, all which you impute to your own superficial understanding of the affairs of this state, having notwithstanding her majesty's doing in singular reverence, as the real pledges which she hath given unto the world of her sincerity in religion and her wisdom in government well meriteth; I am glad of this occasion to impart that little I know in that matter to you, both for your own satisfaction, and to the end you may make use thereof towards any that shall not be so modestly and so reasonably minded as you are. I find therefore her majesty's proceedings to have been grounded upon two principles.
"1. The one, that consciences are not to be forced, but to be won and reduced by the force of truth, with the aid of time, and use of all good means of instruction and persuasion.
"2. The other, that the causes of conscience, wherein they exceed their bounds, and grow to be matter of faction, lose their nature; and that sovereign princes ought distinctly to punish the practice in contempt, though coloured under the pretence of conscience and religion.
"According to these principles, her majesty, at her coming to the crown, utterly disliking the tyranny of Rome, which had used by terror and rigor to settle commandments of men's faiths and consciences; though, as a prince of great wisdom and magnanimity, she suffered but the exercise of one religion, yet her proceedings towards the papists was with great lenity, expecting the good effects which time might work in them. And therefore her majesty revived not the laws made in the 28 and 35 of her father's reign, whereby the oath of supremacy might have been offered at the king's pleasure to any subject, though he kept his conscience never so modestly to himself; and the refusal to take the same oath without further circumstance was made treason. But contrariwise her majesty, not liking to make windows into men's hearts and secret thoughts, except the abundance of them did overflow into overt or express acts or affirmations, tempered her laws so as it restraineth every manifest disobedience in impugning and impeaching advisedly and maliciously her majesty's supreme power, maintaining and extolling a foreign jurisdiction. And as for the oath, it was altered by her majesty into a more grateful form; the hardness of the name and appellation of supreme head was removed; and the penalty of the refusal thereof turned only into disablement to take any promotion, or to exercise any charge, and yet with liberty of being reinvested therein if any man should accept thereof during his life. But when, after Pius Quintus had excommunicated her majesty, and the bills of excommunication were published in London, whereby her majesty was in a sort proscribed; and that thereupon, as a principal motive or preparative, followed the rebellion in the North; yet because the ill-humors of the realm were by that rebellion partly purged, and that she feared at that time no foreign invasion, and much less the attempt of any within the realm not backed by some potent succour from without, she contented herself to make a law against that special case of bringing and publishing any bulls, or the like instruments; whereunto was added a prohibition, upon pain, not of treason, but of an inferior degree of punishment, against the bringing in of agnus Dei, hallowed bread, and such other merchandise of Rome, as are well known not to be any essential part of the Romish religion, but only to be used in practice as love-tokens to inchant the people's affections from their allegiance to their natural sovereign. In all other points her majesty continued her former lenity: but when, about the twentieth year of her reign, she had discovered in the king of Spain an intention to invade her dominions, and that a principal part of the plot was, to prepare a party within the realm that might adhere to the foreigner; and after that the seminaries began to blossom, and to send forth daily priests and professed men, who should by vow taken at shrift reconcile her subjects from their obedience, yea, and bind many of them to attempt against her majesty's sacred person; and that, by the poison which they spread, the humors of papists were altered, and that they were no more papists in conscience, and of softness, but papists in faction; then were there new laws made for the punishment of such as should submit themselves to such reconcilements, or renunciations of obedience. And because it was a treason carried in the clouds, and in wonderful secresy, and came seldom to light, and that there was no presupposition thereof so great, as the recusants to come to divine service, because it was set down by their decrees, that to come to church before reconcilement was absolutely heretical and damnable. Therefore there were laws added containing punishment pecuniary against such recusants, not to enforce conscience, but to enfeeble and impoverish the means of those of whom it resteth indifferent and ambiguous whether they were reconciled or no. And when, notwithstanding all this provision, this poison was dispersed so secretly, as that there were no means to stay it but by restraining the merchants that brought it in; then, lastly, there was added another law, whereby such seditious priests of new erection were exiled, and those that were at that time within the land shipped over, and so commanded to keep hence on pain of treason.
"This hath been the proceeding, though intermingled not only with sundry examples of her majesty's grace towards such as she knew to be papists in conscience, and not in faction and singularity, but also with an ordinary mitigation towards offenders in the highest degree committed by law, if they would but protest, that in case the realm should be invaded with a foreign army, by the Pope's authority, for the catholic cause, as they term it, they would take part with her majesty and not adhere to her enemies." &c.
The country sustained a heavy loss in 1589 by the death of sir Walter Mildmay chancellor of the exchequer, one of the most irreproachable public characters and best patriots of the age. He was old enough to have received his introduction to business in the time of Henry VIII., under whom he enjoyed a gainful office in the court of augmentations. During the reign of Edward he was warden of the mint. Under Mary, he shrowded himself in that profound obscurity in which alone he could make safety accord with honor and conscience. Elizabeth, on the death of sir Richard Sackville in 1568, advanced Mildmay to the important post of chancellor of the exchequer, which he held to the end of his life; but not so, it should appear, the favor of her majesty, some of his back friends, or secret enemies, having whispered in her ear, that he was a better patriot than subject, and over-popular in parliament, where he had gone so far as to complain that many subsidies were granted and few grievances redressed. Another strong ground of royal displeasure existed in the imputation of puritanism under which he labored.
Generously sacrificing to higher considerations the aggrandizement of his children, Mildmay devoted a large share of the wealth which he had gained in the public service to the erection and endowment of a college;—that of Emanuel at Cambridge,—an action little agreeable it seems to her majesty,—for, on his coming to court after the completion of this noble undertaking, she said tartly to him; "Sir Walter, I hear you have erected a puritan foundation." "No, Madam," replied he; "far be it from me to countenance any thing contrary to your established laws; but I have set an acorn, which, when it comes to be an oak, God alone knows what will be the fruit of it." That this fruit however proved to be of the flavor so much distasted by her majesty, there is good evidence.