any of them, within the same, giving to him or them aid or comfort, were guilty of treason against such colony."
From motives of policy as well as propriety, there was not much disposition to resort to extremities on the part of those having in charge the popular governments; and, notwithstanding some were in favor of stringent measures, it was wisely concluded for the present to admonish delinquents, put them under recognizances, etc.
The necessity of some terms of confederation between the states was plainly evident, and Congress took steps immediately for considering the subject. As early as July, 1775, Dr. Franklin had submitted to Congress a sketch of articles of confederation between the colonies; but his plan does not appear to have been discussed at all. On the 7th of June, a committee was appointed, consisting of one member from each colony, to prepare and digest a form of confederation. The report of this committee, made on the 12th of July, eight days after the Declaration of Independence, was debated almost daily, to the 20th of August, in a committee of the whole house, when a new draft was reported. The articles thus reported were laid aside until April of the following year. The subject was a very difficult one to agree upon in the then position of affairs, the great variety of interests involved, and especially the tenacious regard entertained for state rights and state sovereignty.
Washington was, not unreasonably, anxious as to the position and probable means of defending the city of New York. Its importance, in every point of view, the strong Tory influence in it and its vicinity, the almost certainty that the British commander would make it the central point of operations against the Americans, and the like considerations, urged him to put forth every exertion to meet the emergency. Under Putnam's direction, obstructions were sunk in the Hudson and East Rivers, and forts and batteries were hastily erected, to guard the narrowest passages. Fort Washington and Fort Lee were the strongest of these works; but the commander-in-chief found it no easy matter to place the city in what might be considered a tolerable state of defence.
Just at the end of June, General Howe, who had found his quarters at Halifax not comfortable, arrived at New York, and landed his troops on Staten Island, which Washington had not felt himself able to occupy. He was received with exultation by the Tory inhabitants, and was encouraged by Tryon to look for an extensive rising of the loyalist party in various directions.
On the 12th of July, Admiral Lord Howe arrived from England with large reinforcements. He and his brother were empowered to act as Commissioners for restoring peace, by receiving the submissions of such individuals and communities, as might desire to return to their allegiance, and throw themselves upon the king's mercy. A circular letter to the late royal governors, dated off the coast of Massachusetts, containing offers of pardon to all who would submit, was sent on shore under a flag, and it was requested of
