Читать книгу Thomas Mitchell: Surveyor General and Explorer - J H L Cumpston - Страница 7

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The first sixty-seven years of government in New South Wales provide a dramatic story of evolution in relations between the Home Government and the new colony of New South Wales.

For twenty-seven years the Home Government was preoccupied and distracted by the turmoil of the Napoleonic wars. In this period it was content to leave the control of the purely penal establishment (its status as a colony developed slowly) to a Governor vested with autocratic powers--powers which were vague, but absolute. Yet, though this was the nominal position, the Home Government encouraged patronage, and personal influence resulted often in arbitrary interference by the Colonial Office in London with the actions of the Governor in Sydney. Long delays in communications between Sydney and London, ignorance of conditions in New South Wales, and frequent inertia on the part of the Colonial Office were factors tending to increase confusion in administration.

The first Governor, Phillip, had only a guard of marines; but in the years 1790 and 1791 a military corps named the New South Wales Corps (afterwards the 102nd Regiment of the Line) was specially raised for military duties and guard service in the new colony. After the departure of Phillip an interval of almost three years elapsed before a new Governor, Hunter, was appointed and assumed office. During those three years the commanding officers of the New South Wales Corps administered government as Lieutenant Governors, first Grose and then Paterson. One of the lieutenants in the Corps was John Macarthur, whose influence in the colony became great.

The officers of the New South Wales Corps soon became interested in commercial ventures beyond the limits conventionally observed by army officers on duty. In this they were not discouraged by the Lieutenant Governors--their own commanding officers. Under the system of free grants of land with the assignment of convict servants, some of the officers acquired valuable properties; and, by the traffic in rum, they became so influential as to dominate the economic life of the colony. Their activities extended until they became a serious threat to the healthy growth of this young community, and under their influence a spirit of insurrection against constituted authority developed.

While this revolt against local authority was actively directed against the local Governor, those concerned were very careful to maintain friendly relations with influential members of the Home Government, even to the extent of securing the recall of some Governors. Bligh had arrived in Sydney, as Governor, in 1806 with explicit instructions to end the traffic in rum and to curtail the entrenched privileges of the officers of the New South Wales Corps. The result of his efforts in this field are familiar matters of history. After his illegal deposition following on the "rebellion", the Colonial Office realized that a new policy was necessary. The succession of naval officers as Governors was broken, and Macquarie, a soldier with considerable experience of active service in India, was appointed; he assumed duty in Sydney on New Year's Day, 1810.

Human communities do not stand still. Many of the transported convicts had died during those first twenty-two years: others had completed their term of transportation and chosen to remain as "emancipists" in the colony. These were free men: Macquarie took the stand that, sentence completed, they should be treated in all material respects as ordinary civilians.

Three months after Macquarie's arrival in Sydney the New South Wales Corps embarked for England; but some of the military and official autocracy had, by this time, acquired important vested interests in the colony. So early as 1802, thirty-four individuals in this group held estates to a total of eighteen thousand acres, all acquired under the system of free grants made by the Governors and Lieutenant Governors. In addition they had complete control of all official positions, and violently opposed all suggestions that the emancipists should receive any consideration. This group has become known as the "exclusives".

Macquarie, on the day of his arrival, declared his intention of treating all classes equally and appealed for harmony; although opposed by the unrelenting hostility of the exclusives he steadily advanced the interests of the emancipists and their children, receiving, for some years at least, the support of the Colonial Office in this policy. But at last, owing to prolonged intrigues against Macquarie by the exclusives, Commissioner Bigge was appointed to enquire into the actual circumstances of the colony under Macquarie's administration, and particularly to ascertain

how far in its present improved and increasing state it was susceptible of being made adequate to the object of its original institution.

The exclusives had, for the moment, been able to cast a shadow over Macquarie's humane policy.

Bigge arrived in Sydney in 1819 and his report, in some aspects critical of Macquarie's administration, was published in London in 1821: in that year Macquarie resigned as Governor, and in the following February he returned to England. Although Macquarie had made many land grants to emancipists, he had not encouraged the immigration of free settlers; nor had he favoured any move towards local self-government, even so elementary a step as the appointment of a Governor's Council. Indeed he "hoped that such a measure would never be resorted to in the colony".[1] At the end, after eleven years of successful administration, during which the population of the colony had increased from 10,096 to 29,665, wearied by the constant intrigues of his local enemies and their favourable reception by the ministers in England, he was glad to resign.

The next Governor was Sir Thomas Brisbane, whose period of administration was four years, from December 1821 to December 1825: during that period the only developments important for this present review were the first steps towards local autonomy--the decision to appoint a Legislative Council; and the beginning of immigration of free settlers with capital. These settlers arrived in considerable numbers during Brisbane's period, so that, with the continual arrival also of convicts, the population had, by 1825, increased to 38,313 persons. The immigrant settlers were given free grants of land, and convicts were assigned to them as servants. Brisbane did not continue Macquarie's policy of humane treatment of emancipists: nevertheless, as a result of the intrigues of the exclusives he was recalled.

The following extract from a farewell address presented to Brisbane illustrated the slowly changing position of the exclusives in the social balance:

Your Excellency has never, in the distribution of the patronage of the Crown, or in framing new Laws or Ordinances, allowed yourself to know the high from the low, the Emigrant from the Emancipist.[2]

Next came General Darling (Plate III) who was to serve as Governor from 1825 to 1831. He had the task of introducing reforms intended to increase the degree of local self-government.[3] The reforms had been prescribed by the Home Government, not by Darling himself. In giving effect to this policy he satisfied neither the obstinate conservative group who wished to retain their privileges, nor the aggressive radicals who desired more extensive reforms. The dissatisfaction developed into actual hostility. In the end, the intrigues of the exclusives against him were successful, and he was recalled. Later he had to face a committee of enquiry into his administration. Darling's bitter protest on the occasion of his recall is included in Appendix B.

Upon the arrival of his successor, Bourke, some citizens presented an address to the new Governor which contained this passage:

After nearly six years of public endurance arising partly from the visitations of Providence, but more from an inveterate system of misgovernment we hail Your Excellency's arrival among us as the dawn of a happier era.[4]

Darling had not deserved this. It was in Darling's period that the Legislative Council first became fully effective. At the beginning it was composed of official members, with one non-official nominee member.

Darling, like his immediate predecessors, gave many free grants of land; and, although he was severely criticized at that time, it may reasonably be said that, during his period, there was slow but steady progress towards a more stable social order. The population had increased from 38,313 to more than 48,000. This phase in our national evolution is notable for the appearance on the administrative stage of a new and vigorous group, the Australian-born. These, the children of all the different conflicting groups, were, although infected with the prejudices of their respective families, more concerned with finding a place for themselves in this new world.

It is appropriate to quote here the text of an address presented to Darling on his arrival (19 December 1825):

The growth of the Colony continues to outstrip the most sanguine expectations of the oldest inhabitants and we doubt not that Your Excellency will soon discover that the present code of Local laws is far behind the claims of a free wealthy and active community...

While we can justly boast of the loyalty and attachment to the Crown of England of all the inhabitants of the Colony who were born and educated in the United Kingdom, there exists nevertheless in the Territory a race of Men already arrived at an adult state who, scattered in the distant and silent woods of their country, unknown, unfelt, and unheard of as a political body, are yet destined to be the Fathers of the succeeding generation and the inheritors of our lands.

This class of colonists has been too much neglected, as well by His Majesty's Government as by the local administrators of the Colony, and unfortunately they deeply feel this neglect. The patronage of office they have always disregarded; but grants of land which they consider their own as it were by natural inheritance, and which they have seen of late years, through the recommendation of the late Commissioner of Enquiry lavishly bestowed upon strangers without capability of improving it...has had a baneful influence on their minds.[5]

Also to be noted are the terms in which Hamilton Hume had earlier addressed Earl Bathurst (20 April 1826) when seeking special recognition for his services in exploration:

Presuming myself (although an Australian) capable from experience of undertaking such an expedition I represented to His Excellency my willingness to explore those hitherto unexplored regions...[6]

and to note the phrasing of Brisbane's report to the Colonial Office (24 March 1825):

I have also to announce to you the discovery of a new and valuable country of great extent from Lake George to Western Port by two young men, Messrs Hovell and Hume, the latter Colonial.[7]

This cold announcement, without commendation, is in contrast with the "zeal and intelligence" displayed by Oxley on a far less arduous enterprise by sea. There is evidence that too much praise for discoveries of this value by explorers who were not on the survey staff should not be permitted as it would adversely influence Oxley's prestige.[8] Mitchell, at a later date, gave evidence of a similar attitude.

Darling was succeeded by Sir Richard Bourke, who was Governor from 1831 to 1837. Perhaps the best indication of the prosperity which marked his period is that during those six years the population increased from 48,000 to 86,842.

The system of free land grants had been discontinued about the time of Darling's recall and a new system of purchase instituted. Bourke's administration may have been wisely planned, or based on diplomatic expediency, opinions vary; but during this time progress towards social and economic stability was real and of permanent quality.

The citizens were moved to erect a statue to him. This statue now stands in front of the Mitchell Library in Sydney and carries the following inscription as a catalogue of his achievements:

This statue of Lieutenant General Sir Richard Bourke K.C.B. is erected by the people of New South Wales to record his able honest and benevolent administration from 1831 to 1837 Selected for the Government at a period of singular difficulty His judgment urbanity and firmness justified the choice Comprehending at once the vast resources Peculiar to this Colony He applied them for the first time Systematically to its benefit He voluntarily divested himself of the prodigious influence Arising from the assignment of penal labour and enacted Just and salutary laws, for the administration of penal discipline He was the first Governor who published satisfactory accounts Of public receipts and expenditure Without oppression or detriment to any interest He raised the revenue to a vast amount and from its surplus Realized extensive plans of immigration He established religious equality on a just and firm basis And sought to provide for all without distinction of sect A sound and adequate system of national education He constructed various public works of permanent utility He founded the flourishing settlement of Port Phillip And threw open the unlimited wilds of Australia To pastoral enterprise He established Savings Banks and was the patron of the first Mechanics' Institute He created an equitable tribunal for determining upon claims to grants of land He was the warm friend of the liberty of the press He extended trial by jury after its almost total suspension for many years By these and numerous other measures For the moral religious and general improvement of all classes He raised the Colony to unexampled prosperity And retired amid the reverent and affectionate regret of the people having won their confidence by his integrity Their gratitude by his services Their admiration by his public talents and Their esteem by his private worth.

Bourke was followed by Gipps (1838-46), Fitzroy (1846-55), and Denison (1855-61). During the period of office of these four Governors the old exclusives-emancipists-emigrants rivalries had been largely forgotten. The population at the end of Gipps' period had grown to 196,704: and, following the discovery of gold, the population had swollen, in New South Wales and Victoria together (Victoria had become a separate colony in 1851) to 897,126 at the end of Denison's period as Governor. This dramatic increase in population involved serious problems in administration.

It has finally to be recorded that local self-government was granted slowly. A Legislative Council, as stated above, had been formed in 1824: a representative (partly elected) legislature was established in 1842: and, in 1856, full self-government under a bi-cameral legislature was instituted.

EXPANSION OF THE COLONY

The formidable wall of sandstone ranges around Sydney was, at first, a feature favourable to administration: the majority of the population were convicts whose control was greatly facilitated by this natural barrier against escape. All settlement and development were limited to the narrow coastal strip: and, although there had been some extension to the Hunter and Shoal-haven districts, traffic thereto could only be by sea. To the west there could be no traffic.

It had been somewhat vaguely assumed in the Colonial Office that this new convict settlement would become self-supporting at least in respect of food: but the country around Sydney was found to be so unsuited to agriculture that this hope was soon, perhaps too soon, abandoned. Such food as was grown was, for the most part, grown on the farms of the exclusives who kept the price unduly high. There could be no competition as all the good land in this coastal strip had already passed into private possession under the system of free grants.

Soon after his arrival Macquarie had complained to Castlereagh that persons were coming out as settlers bringing orders from cabinet ministers in England for large grants of land in specified localities: these people were naturally disappointed when they found that no land was available in the districts they had selected.[9]

Sheep provided the determinant factor. From the initial twenty-nine sheep, all that were left, on 1 May 1788, of the original importation, and from small consignments imported later, the numbers steadily grew. In 1796 there were 2,457: in 1805, 16,501: in 1813, 50,000: and by 1821 they had multiplied until it was estimated that the flocks totalled 290,000.[10] Sheep, which are never still, walking as they eat, require room. Land in ever increasing quantities became urgently necessary. But all attempts to cross the confused sandstone ranges to the west failed until 1813: in that year Lawson and his companions found a practicable route over the Blue Mountains. In the same year Evans, sent by Macquarie, followed their route and extended their discoveries to the plains around Bathurst and the Macquarie River.

Macquarie had then instructed Cox to build a road over the mountains; and when this was completed, he himself with a suitable retinue, including Surveyor General Oxley, visited the Bathurst plains, fixing the site for the future town. From here he sent Evans on westward another 115 miles; Evans returned having discovered the upper reaches of the Lachlan not far from Cowra. From these excursions it was revealed that two great rivers, the Lachlan and the Macquarie, had their source quite close to each other in the Bathurst district.

In 1814, Hamilton Hume and his brother made a journey as far as Bong Bong and Berrima, and in 1818 Hume and Meehan discovered Lake Bathurst and the country round Goulburn. Earl Bathurst in England, stimulated by these discoveries, ordered further exploration of the western rivers.[11] The revelation of these great plains, with the possibility that growing pastoral and agricultural industries might contribute towards the economic independence of the colony, excited even the Colonial Office to faint enthusiasm.[12]

Oxley offered his services for further exploration. In 1817 he followed the Lachlan down as far as Booligal, and in 1818 he traced the Macquarie as far as the marshes north of Warren. On each river his further progress--he took boats--was stopped by apparently impenetrable marshes. He retired from each journey convinced that both rivers ended in one vast inland sea, and reported adversely upon the country traversed.

Locally, the reaction to these discoveries was immediate. Macquarie gave liberal grants of free land on these great western plains: and other sheep-owners, without right or title, moved their flocks south-westward to the Goulburn plains, and westward in the Bathurst-Wellington region.

After Oxley's journey down the Macquarie in 1818 there was a period of six years without any further exploration. In 1824 Hume and Hovell reached Port Phillip.

INADEQUACY OF SURVEYS

Even from the very early stages of settlement the definition by survey of the boundaries of individual properties was an administrative problem. At the very beginning a small, very small, number of persons in a continent of almost inconceivable vastness had at their disposal land which had no owner. It is true that it was the property of the Crown; but the Crown had already approved of the principle of free grants. Successive Governors had been generous in the use of this authority. Oxley reported (26 January 1826) that, up to the year 1810, the total of alienated land was more than 1,800,000 acres spread over an area of 35,000 square miles, comprising eight counties, the boundaries of which were undefined.[13] By 1831 the total area of land alienated under the system of free grants was 3,344,030 acres.[14]

While the exclusives were in actual or virtual control of all governmental functions any difficulties about boundaries could be settled by mutual agreement; but this could not possibly continue as settlement expanded. The alienation of Crown land was ill-controlled, surveys of the location and boundaries of the several grants were rarely made; and when made were inadequate in both quality and volume. Most of the land was actually occupied. Macquarie reported that surveyors had no incentive to keep pace with occupation since their profit was hardly two shillings and sixpence for each farm. There was no enthusiasm for routine and efficient surveying.

These problems were brought into practical focus by the appointment in July 1811 of Lieutenant John Oxley as Surveyor General. Oxley reached Sydney on 1 January 1812.[15] This was not his first association with New South Wales. He had been there on naval duties from 1802 to 1807, and again from 1808 till 1810. Two years after his arrival he reported to Macquarie (1814) upon the wide dispersion of grants and farms and the inadequacy, for the task of survey, of his resources.[16] Macquarie, transmitting this report to Bathurst in the same year, recorded his conviction that the duties of a land surveyor in the extended state of the settlement was much more than Oxley, unaided, was equal to; and Macquarie asked for the appointment of a deputy surveyor.[17] This appointment was refused by the Colonial Office, and Oxley was faced with a task officially recognized as beyond his power.

The growing friction between the free settlers, the emancipists, the insurgent Macarthur coterie, and the representatives of lawful civil government has already been mentioned and is repeated here only in relation to the Surveyor General and his work. The exclusives required more and more convict labour for their ever-expanding acres, they resented the granting of civil liberties to time-expired convicts, and generally opposed most vigorously any liberal policy intended for the benefit of any section of the community other than their own privileged group.

Oxley was of this group. Bligh, Macquarie, and Darling had, each in succession, reported to the Colonial Office that Oxley's association with the Macarthur coterie was a source of official embarrassment.[18] Although Macquarie had described Oxley as "intriguing and discontented", Darling had given him credit for being a "clever man and a useful officer".[19] In addition to his official responsibilities Oxley was also the owner of an estate of a thousand acres between Camden and Narellan: an estate which he had received, while still a naval officer (1808), as a free grant by direction of Lord Castlereagh: this estate was commended by Commissioner Bigge as being especially well managed .[20]

Bigge had reported that the business of the Survey Department had fallen seriously into arrears, either on account of the disproportion of the establishment to the increase of business in it, or the frequent interruptions occasioned by the long absences of Oxley, Meehan, and Evans on tours of discovery; and by the distances at which the operations of admeasurement were to be executed.[21] He had recommended that the Surveyor General should have three assistant surveyors: and that a general division of the whole territory of New South Wales into counties, hundreds, and parishes was a measure of the highest importance and must accompany or precede every other plan of general improvements.[22] His report was not presented to the House of Commons until July 1823, and Bathurst at once transmitted to the Governor at Sydney that portion of the report which dealt with the Survey Department.[23] In doing so he covered the recommendations with official instructions:

You will understand that the recommendations in the Commissioner's Report have my approbation and sanction; and that I draw your attention to them for the purpose of their being carried into effect.[24]

Oxley had, in the meantime, been moved to action. He wrote a minute to Macquarie (27 July 1821) stating that the great and increasing pressure of public business in the Survey Department induced him to request such assistance as would enable him to bring up the great arrears and prevent in future those serious inconveniences and delays which had unavoidably been experienced in the execution of this branch of the public service [25] How far this sudden activity may have resulted from Bigge's enquiries is speculative. Bigge had left Sydney on 14 February 1821: and although the contents of Bigge's report could not have been known by Oxley when he wrote the official minute just quoted, he might well have known Bigge's views: he was of that group which throughout was intimate with Bigge.[26] He could not, in any case, have failed to realize during the course of a searching enquiry, the lack of efficiency in the field of administration for which he was responsible.

Oxley had, as stated above, asked Macquarie in July 1821 for assistance to bring up the arrears in the survey. Then, after a long delay, he submitted to Brisbane a requisition for a complete set of surveying instruments. This requisition was dated 29 January 1822 and was forwarded to London by Brisbane on 1 February 1822 asking for early supply. Two years and seven months later, on 13 August 1824, Brisbane again forwarded this requisition to London with the comment that as they were much wanted he requested that they might be forwarded by the earliest opportunity.[27] But, still another six months later (1 February 1825), Brisbane again forwarded Oxley's requisition.[28] Oxley in writing to Brisbane referred to his previous letters of 29 January 1822 and 4 August 1824, and said:

I respectfully beg to enclose a quadruple of the requisition I then made and I am sorry to be obliged to represent to Your Excellency that the great delay which has attended the supply of instruments has been attended with very serious inconvenience to the public service.

Bathurst advised Brisbane, on 21 August 1824, that he had appointed two assistants to the Surveyor General: that these were men

whose education and rank in life will not only add to the respectability of the Department but tend to place it on that footing, with respect to its efficiency which Mr Commissioner Bigge in his Report so strongly recommended to be done as well as afford at the same time those additional facilities in the location of the settlers in the which so many inconvenient delays have...taken place.[29]

The two men were Mr Heneage Finch, who had taken a high degree in mathematics at Oxford, and Mr Rodd, who had been "highly recommended by Lord Harrowby".

In October 1823, Oxley had been again sent away from Sydney on exploration: this time by sea to examine Port Bowen, Port Curtis, and Moreton Bay.[30] He returned after an absence of three months, having discovered the Brisbane River. Brisbane, transmitting the report of this journey, commended Oxley's zeal and intelligence.

Events were moving slowly, but with an irresistible momentum. Brisbane reported (24 July 1824) that stock in the colony were increasing at a rate which rendered it quite impossible to suppose that the liberality of the Crown could keep pace in extending grants with the increase of stock.[31] This is surprising in view of the liberality of Brisbane who, during his term, granted more than one million acres according to Oxley's report already mentioned. Such generous disposition of free land inevitably brought multiplying difficulties of boundary surveys.

Ultimately the Home Government decided on more definite action. Bathurst wrote to Brisbane (1 January 1825) a long despatch "respecting the granting and settlement of the waste lands of the Crown" and communicated "the decisions which His Majesty's Government have formed on the questions thus brought under their notice"[32] These decisions proceeded to repeat, as an official order, Bigge's recommendation that the whole territory of New South Wales was to be divided into counties, hundreds, and parishes: declaring that this was a measure of the highest importance which must accompany or precede every other plan of general improvements; and "to give the greater solemnity to this measure, and to carry it into effect with the utmost possible accuracy" Brisbane was instructed to issue a commission under the great seal of New South Wales empowering three competent persons, of whom the Surveyor General was to be the First or Chief Commissioner, to make a survey of the whole colony.

The instructions then proceeded, without full realization of the difficulties or of the magnitude of this task, to order that

having thus distributed the Territory of New South Wales into the necessary political divisions the next object of attention is that of making a general valuation of the land throughout the Colony.

The first Commissioners were J. Oxley, W. Cordeaux, and J. Campbell.[33] Oxley received no special remuneration other than his salary, but the others received £1 per diem each.

Brisbane left, and Darling arrived, in December 1825: Darling's Commission contained similar instructions to the effect that a survey and valuation should be made of "our said Territory of New South Wales". These instructions were in the conventional form of such documents, and began with the usual "George R.", although they were in all respects instructions by the Government and not Royal commands. Although the Royal prerogative of independent decision had not, at this period, been entirely surrendered, it is hardly likely that George IV, being what he was, would have been personally greatly concerned about the survey of "Botany Bay".

The elements in this official episode have to be given their true value, because, as will be seen, Mitchell repeatedly invoked "the King's instructions" throughout his official career, although at the time these instructions were issued he was not in Australia.

Darling soon gave attention to this troublesome matter of surveys. The Survey Commissioners made their first report to him on 11 March 1826.[34] But before this Oxley had been moved to write a report to Darling (26 January 1826). In this report he referred to the Home Government's instructions as to the disposal of Crown lands and the division of the whole colony into counties, parishes, etc.; he said that every effort had been made to bring the surveys up-to-date, to prevent the disappointment of free settlers arriving from England. But, he pointed out, the area to be covered was 250 miles long, and 140 miles wide.* While there was no real difficulty in the proposed division into counties, etc., an extensive and detailed survey was necessary: and he added:

As soon as the necessary local arrangements can be made I shall submit the extent of practical assistance which may be required in field surveyors, draftsmen, etc.[35]

[* He was then referring only to the districts in which "settlement" and grants of land had been distributed.]

The Survey Commissioners considered this very comprehensive report, but pointed out that the great obstacle to any progress in the policy for disposal of Crown lands was the great lag in the work of the Survey Department, "owing to which a very considerable extent of the lands, already located and granted, remain to this day unsurveyed (11 March 1826)".[36] Then they recommended that every practicable means should be used to ensure that the survey should overtake, keep pace with, and precede, the demands for land by sale and by grant. They also endorsed Oxley's requests for more staff.

This period was one of rather leisurely action. Oxley had asked for more staff in January 1826; the Commissioners had supported his request in March:[37] Darling reported all this to Bathurst in July, stating that he had given instructions that the general survey must be commenced at once, but that Oxley was totally unprepared to commence the general survey or even to deal with arrears with his existing staff, and asked that half a dozen "respectable men, good practical surveyors", be sent out immediately; he added:

the remissness in this branch of the service appears highly culpable, it being about fourteen months since the Commissioners were appointed, and nothing has, in fact, been done. This, however, is only one proof of the relaxation which has prevailed generally.[38]

Darling followed this with another despatch in September 1826 in which he said:

Mr Oxley is a very clever man; but he has been too little controlled, and I am satisfied will never submit to the drudgery of carrying on the details of the Department. Besides there are many who doubt his impartiality.[39]

Darling had also in his despatch of July dealt with the staff of the department. There were then eight surveyors, and some clerks, but Darling pointed out that many of them had acquired free grants of land, The salary which they received, he added, was small and consequently they did not confine their attention to the service of the Government, but were concerned more with the obvious advantages of developing their own land.

Then Bathurst wrote (4 December 1826), in reply, that he would appoint four surveyors and two draftsmen, but that it would take some little time to find competent persons; he added:

Nothing perhaps will tend more to placing the Surveyor General's Department on a more efficient footing than it hitherto has been than assigning to the officers such remuneration for their services as to place them above temptation and thus to hold out sufficient encouragement for the zealous performance of their duties.[40]

To provide this "encouragement" two of the eight officers were to be retired, two were to remain on their present salary, one was to receive an additional £50 per annum, and two an additional £100 per annum each.

Comment is hardly necessary: but the incident does emphasize the conditions of Colonial Office administration under which it seemed desirable to senior officers in the colony to secure patronage and influence "at home" wherever possible.

In this chapter a very brief review has been made of the conditions preceding Mitchell's arrival in New South Wales. Against a background of patronage and influence, in an atmosphere of intrigue and disloyalty to the Governor, a spirit of self-reliance and Australianism was slowly developing; the geographical discoveries resulting from successive explorations had intensified administrative difficulties, and the chaotic state of detailed boundary surveys demanded urgently an orderly and progressive systematic survey according to established technical methods.