with regard."[i-255] It is difficult to see how Franklin's passion for order and provincial union,[i-256] obviously necessary, could have been considered so illiberally subversive of the government. By 1747 Franklin had read in _Telemachus_ that kings exist for the people, not the people for the kings; he must have read Locke's justification of the "Glorious Revolution" and have become aware of the impetus it gave to the British authority of consent in its subsequent constitutional history. After his first political pamphlet, he widened his horizon from provincial to colonial affairs. Two years before the London Board of Trade demanded that colonial governors hold a conference with the Iroquois, Franklin seems to have devised plans for uniting the several colonies. He was aware of the narrow particularism shown by the provinces; he knew also that since "Governors are often on ill Terms with their Assemblies," no concerted military efforts could be achieved without a military federation.[i-257] One remembers that as soon as he could think politically he was an imperialist, a lesser William Pitt, and in his _Increase of Mankind_ (1751) could gloat over an envisioned thickly populated America--"What an Accession of Power to the _British_ Empire by Sea as well as Land!"[i-258] When the Board of Trade, after British efforts to bring the colonies together had failed, demanded that something be done, Franklin was appointed one of the commissioners to meet at Albany in 1754. Like Franklin, Governor Glen had admitted that the colonies were "a Rope of Sand ... loose and inconnected."[i-259] Franklin's plan, adopted by the commissioners, called for a Governor-General "appointed by the king" and a Grand Council made up of members chosen by the Assembly of each of the colonies, the Governor "to have a negation on all acts of the Grand Council, and carry into execution whatever is agreed on by him and that Council."[i-260] Surely not a very auspicious beginning for one who later was to favor the legislative over the executive functions of state. The plan included the powers of making Indian treaties of peace and war, of regulating Indian trade and Indian purchases, of stimulating the settling of new lands, of making laws to govern new areas, of raising soldiers, of laying general duties, et cetera.[i-261] But Franklin did not minimize the lack of cohesion of the colonies. We recollect that "in 1755, at a time when their very existence was threatened by the French, Massachusetts and New York engaged in a bitter boundary controversy leading to riot and bloodshed."[i-262] The colonies refused to ratify the plan--"their weak Noddles are perfectly distracted,"[i-263] wrote Franklin. He was probably right when he observed in 1789 that had the plan been adopted "the subsequent Separation of the Colonies from the Mother Country might not so soon have happened."[i-264] The sending of British regulars to