d. Trade with the
Plantations
One of the principal
reasons for Scottish discontent with her English connection during
the latter part of the seventeenth century, was her exclusion from
the Plantation trade by successive Navigation Acts. Partly excluded
as she was from both English and foreign markets, she was anxious to
find some demand for her linen and cloth, and her newly-established
manufactures. This could only exist in a colonial market, where
there were no already established manufactures, and Scotland had no
colonies of her own. Her exclusion from the Plantation trade was
therefore the most disastrous result of her commercial separation
from England after the Restoration. The Act for the Encouraging and
increasing of Shipping and Navigation of 1660 declared that no goods
should be imported into or exported from his Majesty's dominions in
Asia, Africa or America, except in ships belonging to England,
Ireland, Wales, Berwick-upon-Tweed, or the Plantations, of which the
master and three-fourths of the crew were to be English. No goods of
the growth or manufacture of Asia, Africa, or America were to be
imported into England, except in English or colonial ships. No
foreign goods were to be brought into England, except in English
ships or in ships belonging to the country where the goods were
produced. Aliens were excluded from the English coasting trade.
Certain Plantation commodities, sugar, tobacco, etc., were not to be
shipped to any place except England, or the English Plantations.
The Scots merchants
at once remonstrated, and threatened to "take the lyk cours with
thame," if they were not allowed to retain those privileges which
they had had since James VI's accession. No change was made in the
English Act, and the Scots Parliament in 1661 passed the Act for
Encouraging of Shipping and Navigation, which enjoined the use of
Scots vessels, or vessels of the country where the goods were
produced, and no others, in import trade. All goods exported in
foreign ships were to pay double customs. English and Irish ships
were excepted, "Provyding alwayes that Scots vessells enjoy the lyke
benefite of trade within the Kingdomes and dominions of England and
Ireland." This Act did not cause any concessions to be made, and a
few months later the Earls of Glencairne and Rothes, Chancellor and
President of the Council in Scotland, petitioned the King that the
Act should be declared "not to extend to Yr Maties subjects in
Scotland as being aliens and strangers." They declared that the
enforcement of the Act would ruin all trade in Scotland. As a result
the Act was suspended as regards Scotland, and the question was
referred to a committee consisting of the Lord High Treasurer of
England, Lauderdale, Ashley, and others. The Customs Commissioners
were requested to make a report to this committee. In this they
declared that the admission of the Scots to the trade would be "
destructive to ye English Interest prejudicial! to His Matie in his
Customes and duties and absolutely pernicious to the Act of
Navigation." Their reasons for this decision were given. They feared
that the customs would suffer by the Scots paying native customs,
which were only half the rate of the aliens' customs they would
otherwise pay. They would be able to trade with the Plantations,
which "are absolute English." This would enable them to supply
continental countries, and to make Scotland a magazine for colonial
produce, "and leave us to our home Consumption." They feared also
that the Dutch, "against which the Act principally aymes at," would
be able to trade under cover of the Scots. Then, if the Scots were
allowed to trade as English, they could give no valid security for
obeying the regulations of the Act, as the English officials had no
control over their property. "They in one word overthrow the very
essence and designe of the Act of Navigation." The Committee, upon
hearing this report, and also interviewing some merchants and
members of the House of Commons, came to the conclusion that the
freedom demanded was "contrary to the main End of the Act of
Parliament." The order suspending the Act was therefore revoked.
This occasioned much complaint from the Burghs, who lamented that
the Act was "totallie destructive to the tread and navigation of
this Kingdome." They said that "a great pairt of our stockis which
wee most send abroad, consistis of English manufactures which wee
most buy for our money." One difficulty "exceidinglie stood upon" by
the English was " in respect of the great tread at present with the
Barbadoes, and hopes of dryving a richer tread heirefter with all
the Illandis, they intending to plant synomen, nutmegis cleues and
peper, for they have sent to the East Indies for all these plantis,
and they conceauve that if wee sail have any tread wee willbe
able...to undir-sell thame and furnisch many places of Europe with
the commodities of these plantations." As matters stood, Scottish
exclusion from the English commercial system was the inevitable
result of the stricter development of that system after the
Restoration. Scotland had her own Parliament, and the English
Parliament bad no control over it nor over Scottish commercial
regulations. Her admission to a share in English trade, therefore,
could be of no direct benefit and might prove injurious to England.
Therefore Scotland was not included in the English system.
In 1663 another Act
was passed which forbade the import of any goods of the growth,
production or manufacture of Europe to the Plantations, except in
English ships and shipped in England. Scottish servants, victuals,
horses, and also salt were excepted, and might be taken from
Scotland, but in English ships. Penalties for infringements were
made more severe. The aims of the Navigation Acts were set forth in
the preamble. "And in regard His Majesties Plantations beyond the
Seas are inhabited and peopled by His subjects of this his Kingdome
of England, For the maintaining a greater correspondence and
kindnesse betweene them and keepinge them in a firmer dependance
upon it, and rendering them yet more beneficiall and advantagious
unto it in the farther Imployment and Encrease of English shipping
and seamen, Vent of English Woollen and other Manufactures and
Commodities...and making this Kingdom a Staple not only of the
Commodities of those Plantations but alsoe of the Commodities of
other Countryes and Places for the supplying of them." A letter sent
from the Treasury to the Governors of the Plantations in 1677,
ordering them to enforce the Act, recited this preamble, adding the
words, "And for the farther and more peculiar appropriating the
trade of these Plantations to the Kingdom of England exclusive from
all other His Majesty's dominions." The Plantations were clearly not
intended to be "advantagious" to his Majesty's ancient kingdom of
Scotland.
The Scots endeavoured
to force concessions from England by enforcing their Act of
Navigation, and by laying heavy duties on English imports into
Scotland. These were to be removed as soon as trade with England was
"restored to the condition it was in during the reigne of his
Maiesties father and Grandfather of blessed memorie." English
merchants trading to Scotland were seriously affected by this Act,
and they too petitioned that the drawbacks on Scottish trade might
be removed, but without any effect. The Council and planters in Bar-badoes
were also very anxious that the Scots should be allowed to trade
thither. They had supplied the colony with "braue Seruants and
faithfull subiects," who "kept the Collonys in so formidable a
posture, that they neither feared the Insurrection of their Slaves
nor any invasion from a forreigne Enemy, but are now by the Act of
Navigation forbidden to have trade with Scotland; whereby they can
have no servants from thence, and those Scots now wander into Poland
and Germany to serve other princes which heretofore by their
transporting to the Collonyes did increase the wealth and defend the
Dominions of his Matie."
Charles himself
wished the Scots to be allowed to trade. In 1664 he granted a
licence to a certain John Brown, who had set up sugar-works in
Scotland, to trade to the Plantations with four Scottish ships, as
the Scots "seeme to be excluded" from trading with these parts. To
his initiative must be ascribed the negotiations for a commercial
treaty between the two countries which began in 1668. The Scots
insisted that they should consider "that first and great obstruction
of the freedome and liberty of trade between the two kingdomes, the
Act of Navigation," before any other subjects were discussed. On
this subject the English were obdurate. The Plantations " were found
out, possessed planted and built by the labour, blood and vast
expences of his Matyes subiects of the kingdome of England and doe
belong to the Crowne of England and therefore it cannot be
reasonably expected that Scotland should reape the benefit
thereof....And therefore we cannot allow that the Ships and vessells
of Scotland be permitted this trade." The negotiations therefore
were fruitless, as were those of 1670-1 for a complete union. It
took forty years more to convince the English that to obtain control
of Scottish trade, it was worth their while to admit the Scots to
the English commercial system.
The Scots seemed now
to realise that they could not hope for any concessions from
England, and that if they wished to have any trade with America it
must be carried on despite the prohibitions. One more licence was
granted (1669), by the influence of the Duke of York. He "did
propose to His Majesty in Councell that hee would bee pleased to
give liberty that such of His Majesty's Subjects in Scotland as
shall bee induced to take condicons as Planters at New Yorke may bee
permitted to transport themselves thither in vessells from Scotland
and bee allowed to make their voyages and returne in a way of
Trade." Licences were given to two Scots ships to trade between
Scotland and New York. The Commissioners of the Customs remonstrated
at once. They said they had "cause to believe that tho' their
pretensions be very Smooth and innocent yet the end thereof is to
settle a Trade betwixt ye Plantations and Scotland." Even by the
trade of two ships His Majesty's revenue would lose "above £7000 per
annum."
Some illicit trade
had already been carried on by the Scots, and from about the year
1670 onwards it gradually increased and became of quite a
considerable volume by the end of the century. The Clyde ports were
of course the most conveniently situated for voyages to America, but
vessels also sailed from Aberdeen and Leith. The cargoes were
chiefly coarse cloth and linen, stockings, hats, and beef, often
brought to Scotland from Ireland, and then re-exported. The
Collector of the Customs in Carolina wrote in 1687 that the Scots
"are evidently able to undersell ye English, their Goods being
either much Courser or slighter, wch will Serve for Servants weare
and will be sure to go off, they being cheap so that an Englishman
must go away unfreighted or sell to vast Disadvantage." From the
Plantations were received principally tobacco, sugar (for the sugar
manufactories at Glasgow and Leith), and furs and skins. Colonial
ships too came to Scotland, often no doubt the property of Scots
settled in the Plantations.
In Scotland this
trade was countenanced by the authorities. In the colonies it was
not so in theory, though in reality the Customs officials,
especially in the Proprietary colonies, seem to have been very lax.
Public opinion was generally in favour of the illicit traders, at
any rate the officials who were sent out by the home government at
different times, had great difficulty in obtaining convictions in
the courts against those who infringed the Acts. There were many
complaints of this kind, from both Randolph and Quary, who were sent
from England to look after the collection of the King's customs. The
Governor of Maryland, writing to the Committee of Trade and
Plantations in 1695, says: "I have found by experience that it is a
difficult thing to get Judges and Jurys to try and condemn illegal
traders." One or two of the colonies declared that the Acts of
Navigation did not bind them and that the English Commissioners of
the Customs had no authority there. Randolph wrote from New England
in 1690, that he was "alwaies opposed in open Court by the
Magistrates and my Seizures and prosecutions (tho made upon very
plain Evidence) were ended ineffectual, for the Juries found for the
Defendant against His Majesty all agreeing that the Power of the
Commissioners of the Customes in matters of Trade did not extend to
their Colony." In Carolina the settlers declared that, as they
received their charter after the Navigation Acts were passed, they
were not in force in that colony. The Collector wrote that some
cases were given against him in the courts there. The evidence was
not very clear, but "it was declared that, if it had been never so
clear they would have pleaded the benefit of their charter...which
was granted after the act was passed." Most of the Customs officials
were not above reproach: the "Illegal Trade So caryed on...is
Connived at and Encouraged by divers of their Majties Collectors of
ye Customes in Virginia etc who are (Underhand) interested and
Concerned therein."
As the American
coastline is so long it was of course comparatively easy to evade
the authorities altogether, unload in a retired creek, dispose of
the goods and obtain a cargo of tobacco, etc. "The inhabitants of
the Eastern shore of Virginia, Maryland and Delaware River,
Scotchmen and others have great stocks lying by them, to purchase
tobacco and to prepare a loading ready to be put on board upon the
Arrivall of any Vessell from New England etc, who assist with boats
and sloops to get the goods ashoar before the Vessell is Entred, wch
they dispose of amongst their goods in the Store, the Vessell lying
in some obscure creek 40 or 50 Miles distance from the Collectors
office and in a Short time loaded and sailes out of the Capes
undiscovered." There were, too, many ways of deceiving the
officials. False certificates were much used by the merchants. Some
of the collectors " Receive their goods by falce Cocketts wch they
know to be made in Glascow and the seales of their Majtie8
Commissioners for ye Customs of London and those of several of the
outports of England Counterfeited and affixed thereto. Particularly
those of Newcastle Berwick Bristoll Beau-morrice Beddeford
Whitehaven Liverpoole and Plimouth." The manoeuvres of colonial
vessels coming from Scotland are described by the Carolina
Collector. "The Scotch Trade by the like Legerdemain jugles is
driven. A ship at Newcastle Berwick Poole etc toucheth, taketh in
coals or some other slight goods, goes for Scotland and there
receives great quantities of Linen and other Scotish goods...and
coming here by her English clearings at the Ports etc abovesaid
passeth for current without further inquisition." Randolph, in one
of his many letters, gives an account of his experiences in trying
to get a conviction for an offence of this nature. He seized two
ships which had certificates saying that they had loaded their
cargoes of Scots goods at Berwick. He declared that they had been
taken on board at Leith and Glasgow, and demanded a court for a
trial. "A Scotch Irishman summoned a Jury and returned a Jury of
known Scotch and their friends....I proceeded against Makay's Ship
for Importing goods not legally shipt in England and proved in Court
by the oath of Hugh Moore a Scotch minister passenger in Makay's
Ship from Leith to Maryland that they sailed thence towards Berwick.
There a Scotchman and master of the ship brought a so-called Customs
officer on board who gave a Coquet. One of the Judges told the Court
and Jury that they were not to stand upon such Nicetyes ...and the
jury brought in verdict for the defendant."
Proposals were made
at different times with a view to putting a stop to the illicit
trade. It was ordered that more care should be taken in examining
certificates and coquets, and in taking bond for observing the Acts,
and also that some of the collectors should be removed and "men of
integrity" appointed. It was also suggested that several small boats
should be chartered to cruise about and discover those ships which
unloaded and loaded in secluded bays and creeks. One or two small
boats were equipped in accordance with these instructions. One of
these was put in command of one Thomas Much, who in 1692 was "an old
offender," but in 1694 is found "humbly acknowledging the Unhappy
part himself had been unwarily Seduced to act in these
misdemeanours," and to shew his remorse "faithfully discovering
divers fraudulent and Illegal practise of Severall Scotch
merchants." But "notices were given and the Alarm taken on ye Scotch
coast," though even so, Much succeeded in taking two ships.
On this side, too,
efforts were made to stop the trade. English privateers were sent to
cruise about the Scottish coast, especially on the Clyde, to arrest
ships trading to America. The Scots merchants naturally objected
very strongly to this practice. They were backed up by the Privy
Council, which several times wrote to the King complaining of this
encroachment on the sovereign rights of Scotland. In 1694 they
declared that "both in our East and west Seas and in the ports and
harbours therof our merchant ships have been seized...and furder we
are Informed that severall other merchant English shipps have taken
out Commissions of Mart from the Admiralty against unlawful Traders
which we see they mostly make use of against our ships Coming from
the plantations. Albeit be certane that before this late warr none
of our ships could be attacqued or mollested on that account at sea
But onely in the ports and harbours of America.... Our merchants are
soe much discouradged and prejudged by these attempts that many of
them already hes given over trade."
The trade with the
Plantations must have been of little importance for the first ten or
fifteen years after the Restoration, until the country had had time
to recover from the poverty caused by the Civil Wars. What trade
there was during these years was chiefly with Barbadoes, but from
about the year 1676 until the Union, there are many complaints about
the Scots trade with the Plantations. A considerable number had
settled in different colonies and they naturally kept up
communication with Scotland, and assisted their countrymen in trade.
In 1682 an Admiralty official in New Hampshire wrote, "There are
severall Scotsmen that inhabit here, and are great Interlopers, and
bring in quantities of goods underhand from Scotland." Again:
"Somerset county in Maryland is pestered with Scotch and Irish."
Some of the Council are Scots, and "support ye Interlopers and buy
up all their loading upon first arrivall and govern ye whole trade
on ye Eastern shore so that whereas 7 or 8 good ships from England
did yearly Trade and load ye Tobb0 of that Colony I find that in
these 3 years past there has not been above 5 ships trading legally
in all these Rivers" (Delaware and other Maryland rivers) "and nigh
30 sayle of Scotch Irish and New England Men." The Custom House
officials had agents in Scotland from whom they received notice as
to trade. In "Commercial Orders to Governor Andros" they write
(1687), "We are frequently informed from our agents in Scotland of
several ships coming thither with the innumerated Plantation
commodities without touching to clear in any port of England Wales
or Berwick." Boston was a great centre for illegal trade and Boston
ships often went to Scotland. In October 1689 three were said to be
in Scotland while three others had just left.
During William's wars
with France illegal trade with America seems to have increased.
Davenant says that " during this war, the colonists have
presumed...to set up for themselves, and to load their effects in
ships belonging to foreigners and to trade directly with other
nations, sending them their commodities and receiving from thence
manufactures not of our growth to the great damage of this kingdom."
The number of English ships trading to the colonies decreased. The
Governor of Virginia in 1695 begged that "a good number of ships be
permitted to come to these parts for when few come then goods are
very dear and tobacco very cheap." Scottish ships took advantage of
the opportunity given by English difficulties and colonial
necessities, and their trade during the years 1690-1695 increased
considerably. But they did not wholly escape the French privateers.
In 1694 a Glasgow merchant wrote that he had for "several years
bypast driven ane considerable trade to the West Indies by exporting
the native product of this Kingdom and Importing from thence Tobacco
Suggar and other Commodities of these Countries Bot since the
present wars with ffrance, the petitioner hes sustained great Loss
by the privateers of that natione viz. £1300 sterling in the Mary of
St Marys laden with tobacco and sugar taken within 48 hours of New
Port Glasgow, £600 tobacco in Plain Dealing of Coleraine £306 dry
goods in Success of Boston outwards bound £780 in Mary of Boston
homewards bound £39. 10. 6 in Mary of Bo'ness outward with dry goods
Total £3013. 10." He also lost a ship laden with tobacco, which was
seized by the English privateers. In the year 1693-1694 thirteen
ships loaded by Scots merchants arrived in Virginia and Maryland.
Their cargoes were rum, sugar, linen, and "Scotch Goods," and they
loaded there with tobacco, nine sailing to Scotland, and one to
Holland. The destination of the other three was doubtful. A list of
fourteen Glasgow merchants who traded with the Plantations was given
by Much in 1695, and he said there were several others whose names
he had forgotten. The agent of the English Customs Commissioners in
Scotland gave a list of the ships trading between Scotland and the
Plantations between 15 April 1695 and 29 December 1696, twenty-seven
in all. They were chiefly Scottish ships, bringing tobacco from
Virginia and Maryland, and taking out "Scotch Goods." Scots
merchants also traded between the English colonies and the Dutch
possessions of Surinam and Curasoa. "Severall Scotch merchants in
Pennsilvania...cary the Tobacco of Maryland to Surenham and
Carressoe in bread Casks covered with flower at each end"
About this time
merchants in England began to complain very much of the Scottish
trade. The Customs House officers of Liverpool wrote in 1692 that
they had received many complaints from merchants and masters of
ships, that "not only their Majesties Revenue is much lessened but
themselves and all others both Merchants and Masters of Ships who
Lawfully Trade to the said Plantacofls much discouraged and almost
ruined by reason their Majesties officers in the
Plantations...do...Corruptly or unfairly comply with Persons
treading from Scotland...as also others from New England who Sail
directly to Scotland with their Plantation goods and discharge
there." The London merchants also declared that "their Trade is in a
great Measure destroyed and ruined by many ships Trading directly
from Scotland and Ireland to Virginia Maryland and Pennsylvania And
from thence back to the said Places." The Bristol traders sent a
petition to the House of Commons complaining of the same prejudice
to their trade in 1694.
The feeling against
Scotland and Scottish interlopers was strengthened by the Act of
1695, constituting the "Company of Scotland, Trading to Africa and
the West Indies." The officials in America regarded it as an attempt
to legalise and extend that illicit trade with Scotland which they
had been endeavouring to suppress. The Commissioners of the Customs
declared themselves "humbly apprehensive of this growing mischief,
for ye Trade between Scotland and the Plantations is now about to be
more openly carried on under Colour of a Law lately passed in
Scotland." Until 1696 the administration of the Acts had been
comparatively lax, but after that date it became far more stringent,
as did the supervision of the colonial officials. A new Board of
Trade and Plantations was erected, and Admiralty courts were set up
in the colonies. This general tightening up of the code was the
result of the Act of 1696. This was passed partly to guard against
any danger that might arise from the Scots Act of 1695, but chiefly
in consequence of the many petitions, complaints and remonstrances
regarding the Plantation trade. The "Act for preventing Frauds and
regulating Abuses in the Plantation Trade" recited all the
provisions of Charles IPs statutes relating to colonial trade,
asserted their validity in all the Plantations, ordered the
governors and officers to take oaths for the proper performance of
their duties, and made the administration of the Acts generally far
more stringent. Special reference was made to the Scottish trade:
"And whereas great Frauds and Abuses have beene committed by Scotch
men and others in the Plantation Trade by obtruding false and
counterfeite Certificates upon the Governors and Officers in the
Plantations...whereof they may carry the Goods of Scotland and other
Places of Europe without Shipping or lading the same in England
...to His Majesty's Plantations and also carry the Goods of the
Plantations directly to Scotland, or to any Market in Europe without
bringing the same to England." Greater care was therefore to be
taken in examining certificates, accepting security, etc.
Notwithstanding the
provisions of this new Act, and the fact that a great deal of the
capital of the Scottish nation was engaged in the Darien scheme, the
trade with the Plantations still continued. In 1701 Quary wrote from
Pennsylvania, that "Four times the Quantity of tobacco was made
there that year than had been made there before, and all of it
engrossed by the Scotch as almost all other trade there was." Two or
three years later there was a good deal of discussion about the
advisability of allowing the export of Irish linen to the
Plantations. There was some fear that it might lead also to a free
export of Scots linen: "when the Linnen of Ireland should have so
direct a Current to ye Plantacons I believe it will be impossible to
hinder an Indraught of Scotch Linnen too into Ireland, from whence
It may be carried directly to America." The Customs Commissioners
were against permission being given for the export, but it was
finally allowed. At the same time however the export of Scots linen
into Ireland was prohibited. The spirit of this Act was shewn in the
negotiations for union, in the reluctance of England to grant
freedom of trade to the Plantations. But that concession was of the
greatest importance to the Scots, and it was finally granted. At the
same time England obtained the power of parliamentary regulation of
that trade to the west which the Scots merchants had built up in
spite of prohibitions, restraints, and many difficulties.