The policy adopted by the early Stuart kings and adhered to with but minor changes throughout the colonial period consisted of four essential features. First, the tobacco raised in the plantations should be sent only to England; second, upon entering the mother country it must pay a duty to the Crown; third, Spanish tobacco should be excluded or its importation strictly limited; lastly, the cultivation of the plant in England itself was forbidden.
In the years when the colony was still weak and dependent upon the mother country this program was not unfair. The prohibition of tobacco growing in England, however unnecessary it would have been under conditions of free trade, was felt by the planters to be a real concession, while the restrictions upon foreign importations saved them from dangerous competition at the very time when they were least able to combat it. Nor were they seriously injured by the imposition of the customs duties. The planters themselves imagined that the incidence of this tax fell upon their own shoulders and that they were impoverished to the full extent of the revenues derived from it. But in this they were mistaken. The duty, in the last resort, was paid not by the planters but by the British consumers. The colonists were affected adversely only in so far as the enhanced price of tobacco in England restricted the market.
On the other hand, the prohibition of foreign trade was a very real grievance and elicited frequent protests from the planters. Dutch merchants paid high prices for the Virginia tobacco and offered their manufactured goods in return at figures far below those of the British traders. The Virginians could not understand why they should not take advantage of this opportunity. "I humbly desire to be informed from your honors," wrote Governor Harvey to the Virginia Commissioners in 1632, "whether there be any obstacle why we may not have the same freedome of his Majesties other subjects to seek our best market."[4-33]
But Harvey was attacking what already had become a fixed policy of the Crown, a policy which was to remain the cornerstone of the British colonial system for centuries. The Government had, therefore, not the slightest intention of yielding, and from time to time issued strict orders that all colonial tobacco, whether of Virginia or the West Indies, be brought only to England or to English colonies. When Sir William Berkeley was appointed Governor in 1642 he was instructed to "bee verry careful that no ships or other vessels whatsoever depart from thence, freighted with tobacco or other commodities which that country shall afford, before bond with sufficient securities be taken to his Majesty's use, to bring the same directly into his Majesty's Dominions and not elsewhere."[4-34]