sk to turn to the results of
this experiment, since elsewhere repeated, of what nations can inflict,
and man can suffer: excusable, had the Rhadamanthus of those regions
been always just, and those subject to his lash always the worst of
criminals.[152]

The improvement of the assigned service, by raising the qualifications
of the masters, and increasing the dependance of the men, was another
great project of the Commissioner. There were, indeed, no employers,
except those who had been convicts, or officers of government; and the
first and larger class, possessed neither capital nor discretion. They
were rather patrons than masters. There were but two changes
practicable: the vast establishments projected at Moreton Bay, and
introduction of a class of settlers, who might exercise the authority
requisite to restrain the vagrant indolence of the men; and whose
capital might give them constant employment and proper sustenance.
Several military settlers, such as Macarthur, had large establishments,
chiefly for cattle and sheep; and their management exemplified the
superior facilities of control, where the men were both dispersed and
guarded--divided in their occupations, but subject to a vigilant
supervision.

It was the opinion of the Commissioner that none, having small estates
and trivial resources, should be placed in the responsible position of
masters; but that the inducements offered in former times should be
renewed and extended. He calculated, that the employers of convict
laborers, for each, relieved the treasury of England to the extent of
L24 10s. per annum. Thus every consideration commended the system of
assignment beyond any other. To attract the attention of settlers, he
advised that the emigrant should be entitled to a grant, to purchase an
addition at a low price, and to receive a bonus in land, for the stock
he might rear, or according to the industry and skill he might otherwise
exhibit.

It has been stated, that the ministers who founded these colonies,
intended that free emigration should accompany transportation with equal
steps. The despatches of Governor Phillip, addressed to the secretary of
state[153] in 1790, proved that he felt the want, and perceived the
value, of such auxiliaries; but the early determination to raise
expirees to the condition of landholders, seems to imply the form the
settlement at Port Jackson was expected to assume. It is obvious that
the immediate design of the Governo