The twenty-one years over which it extended may be conveniently divided into three periods, of which the first began in July, 1656, when Mary Fisher and Anne Austin came to Boston, and lasted till December, 1661, when Charles II. interfered by commanding Endicott to send those under arrest to England for trial. Hitherto John Norton had been preeminent, but in that same December he was appointed on a mission to London, and as he died soon after his return, his direct influence on affairs then probably ceased. He had been chiefly responsible for the hangings of 1659 and 1660, but under no circumstances could they have been continued, for after four heretics had perished, it was found impossible to execute Wenlock Christison, who had been condemned, because of popular indignation. Nevertheless, the respite was brief. In June, 1662, the king, in a letter confirming the charter, excluded the Quakers from the general toleration which he demanded for other sects, and the old legislation was forthwith revived; only as it was found impossible to kill the schismatics openly, the inference, from what occurred subsequently, is unavoidable, that the elders sought to attain their purpose by what their reverend historians call “a humaner policy,” [Footnote: _As to Roger Williams_, p. 134.] or, in plain English, by murdering them by flogging and starvation. Nor was the device new, for the same stratagem had already been resorted to by the East India Company, in Hindostan, before they were granted full criminal jurisdiction. [Footnote: Mill’s _British India_, i. 48, note.] The Vagabond Act was too well contrived for compassing such an end, to have been an accident, and portions of it strongly suggest the hand of Norton. It was passed in May, 1661, when it was becoming evident that hanging must be abandoned, and its provisions can only be explained on the supposition that it was the intention to make the infliction of death discretionary with each magistrate. It provided that any foreign Quaker, or any native upon a second conviction, might be ordered to receive an unlimited number of stripes. It is important also to observe that the whip was a two-handed implement, armed with lashes made of twisted and knotted cord or catgut. [Footnote: _New England Judged_, ed. 1703, p. 357, note.] There can be no doubt, moreover, that sundry of the judgments afterward pronounced would have resulted fatally had the people permitted their execution. During the autumn following its enactment this statute was suspended, but it was revived in about ten months. Endicott’s death in 1665 marks the close of the second epoch, and ten comparatively tranquil years followed. Bellingham’s moderation may have been in part due to the interference of the royal commissioners, but a more potent reason was the popular disgust, which had become so strong that the penal laws could not be enforced.