The Broad Base of the Massachusetts Provincial Congress

The main point I make about the Massachusetts Provincial Congress, convened 250 years ago this month, is that it had more support and participation from the men of Massachusetts than the colony’s chartered legislature.

The provincial census of 1765 listed 186 towns and districts, and more were formed in the following decade. Here’s what I wrote in The Road to Concord about how those towns usually made up the legislature:

Under Massachusetts’s official charter, most towns were invited to send two representatives to each General Court. Very small towns, with fewer than 120 voters, could send only one and did not have to send any. In many places, especially those farthest from Boston, the inhabitants might have trouble convincing a gentleman to leave his farm, or balk at paying that gentleman’s expenses.

Most towns therefore sent a single representative. If a town of moderate size sent no one at all, it was supposed to pay a fine, but that penalty was never levied. As a result, only about two-thirds of the towns participated in a typical General Court before the Revolutionary turmoil.

In contrast, over 180 Massachusetts towns were represented at the first meeting of the Provincial Congress in Salem on October 7, 1774, with only 21 towns listing as having sent no delegate. There was no cap on the number of men who might represent a town in the Provincial Congress, so several towns sent three or more delegates. All told, there were 293 men at the first congress, about twice the legislature’s usual number.

In other words, even though towns had been legally obligated to represent themselves in the General Court, many chose not to. Even though towns had no legal obligation to this new Provincial Congress, many more chose to participate, in defiance of the law, the general, and Parliament. The Provincial Congress was thus a more representative, broader-based body than the preceding legislatures.

Looking back, I’d revise that passage to say that we don’t know how many towns had elected representatives in Salem on 7 October. The newspapers of the time said there were ninety men in all, so the count of towns must have been lower.

However, after the Provincial Congress got down to business in Concord four days later, its official record listed 180 towns. It’s likely that not all elected representatives made it to that start of that session, so that list could have grown a bit over time to that number. Nonetheless, it’s obvious that the congress had a broad popular base and thus, for democrats, more legitimacy.