These vague expressions are remarkable, especially when it is remembered that the declaration, though published by Parliament, must have emanated from the Council of State. In reference to the doctrine of toleration, it lagged behind the "Agreement of the People of England," a document which is ascribed to General Ireton, and which was presented in the name of the army to the House of Commons in January, a few days before the King's execution. For that political and ecclesiastical manifesto, whilst it recognized the national profession of Christianity and the duty of publicly instructing the people, adds the significant words, "_so it be not compulsive_;" and also, whilst it excluded Popery and Prelacy from toleration, and approved of the maintenance of religious teachers out of the public treasury, it also protested against perpetuating tithes, enforcing religion by penalties, and the disturbing of those who "profess faith in God by Jesus Christ, however differing in judgment from the doctrine, worship, or discipline publicly held forth," provided they did not disturb the public peace.[6] [Sidenote: _Spoliation of the Church._] To such lengths Ireton and certain other officers wished to push the new government; but extreme men in the army were not then, as is often supposed, the rulers of the country, either in religious or in secular affairs. The statesmen possessed the supreme power, and of that power Cromwell exercised the largest share, simply because he possessed as much of the sagacity and wisdom required for the cabinet, as of the valour and generalship needed in the field. And hence it was, that although the army rushed forward towards extreme ecclesiastical measures, the government paused, and declined to adopt any plan for the abolition of tithes; and also maintained so much reticence in expressing what was designed in relation to the extent of religious liberty. The Presbyterians had become alarmed at the paper drawn up by the army, and the ministers of the county of Essex had plainly declared what were the evils which they apprehended in consequence.[7] In their worst apprehensions, many other clergymen throughout the country deeply shared; and the new rulers were not so firmly seated on their thrones that they could afford unnecessarily to provoke the anger of such a number of influential persons. To expound fully at that moment their ecclesiastical policy would inevitably have exasperated their opponents; and therefore they maintained a prudent reserve, and acted with extreme caution.