members of the Board. If any measure were to come up concerning
which the commissioners could not agree, it was to be referred for
consideration to the legislatures or general courts of the four
colonies. Expenses for war were to be charged to each colony in
proportion to the number of males in each between sixteen years of
age and sixty. A meeting of the Board might be summoned by any two
magistrates whenever the public safety might seem to require it; but a
regular meeting was to be held once every year.

In this scheme of confederacy all power of taxation was expressly left
to the several colonies. The scheme provided for a mere league, not for
a federal union. The government of the Commissioners acted only upon the
local governments, not upon individuals. The Board had thus but little
executive power, and was hardly more than a consulting body. Another
source of weakness in the confederacy was the overwhelming preponderance
of Massachusetts. Of the 24,000 people in the confederation, 15,000
belonged to Massachusetts, while the other three colonies had only about
3,000 each. Massachusetts accordingly had to carry the heaviest burden,
both in the furnishing of soldiers and in the payment of war expenses,
while in the direction of affairs she had no more authority than one of
the small colonies. As a natural consequence, Massachusetts tried
to exert more authority than she was entitled to by the articles of
confederation; and such conduct was not unnaturally resented by the
small colonies, as betokening an unfair and domineering spirit. In
spite of these drawbacks, however, the league was of great value to
New England. On many occasions it worked well as a high court of
jurisdiction, and it made the military strength of the colonies more
available than it would otherwise have been. But for the interference
of the British government, which brought it to an untimely end, the
Confederacy might have been gradually amended so as to become enduring.
After its downfall it was pleasantly remembered by the people of New
England; in times of trouble their thoughts reverted to it; and the
historian must in fairness assign it some share in preparing men's minds
for the greater work of federation which was achieved before the end of
the following century. [Sidenote: It was only a league, not a federal
union]

The formation of such a confederacy certainly involved something very
like a tacit assumption of sovereignty on the part o