bottom of the Puritan's refusal to recognize
the doctrine of private inspiration, or to tolerate indiscriminately all
sorts of opinions, there may not have been a grain of shrewd political
sense not ill adapted to the social condition of the seventeenth
century. In 1644 and again in 1648 the Narragansett settlers asked leave
to join the Confederacy; but the request was refused on the ground
that they had no stable government of their own. They were offered
the alternative of voluntary annexation either to Massachusetts or to
Plymouth, or of staying out in the cold; and they chose the latter
course. Early in 1643 they had sent Roger Williams over to England to
obtain a charter for Rhode Island. In that year Parliament created a
Board of Commissioners, with the Earl of Warwick at its head, for the
superintendence of colonial affairs; and nothing could better illustrate
the loose and reckless manner in which American questions were treated
in England than the first proceedings of this board. It gave an early
instance of British carelessness in matters of American geography. In
December, 1643, it granted to Massachusetts all the territory on the
mainland of Narragansett bay; and in the following March it incorporated
the townships of Newport and Portsmouth, which stood on the island,
together with Providence, which stood on the mainland, into an
independent colony empowered to frame a government and make laws for
itself. With this second document Williams returned to Providence in the
autumn of 1644. Just how far it was intended to cancel the first one,
nobody could tell, but it plainly afforded an occasion for a conflict of
claims. [Sidenote: Turbulence of dissent in Rhode Island] [Sidenote: The
Earl of Warwick and his Board of Commissioners]

The league of the four colonies is interesting as the first American
experiment in federation. By the articles it was agreed that each colony
should retain full independence so far as concerned the management of
its internal affairs, but that the confederate government should have
entire control over all dealings with the Indians or with foreign
powers. The administration of the league was put into the hands of
a board of eight Federal Commissioners, two from each colony. The
commissioners were required to be church-members in good standing. They
could choose for themselves a president or chairman out of their own
number, but such a president was to have no more power than the other