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the King； in whose political policy he gradually became more and more involved。
James was a Roman Catholic and soon perfected his plans for making both Church and State a papal appendage and securing for the Crown the right to suspend acts of Parliament。 Penn at first protested； but finally supported the King in the belief that he would in the end establish liberty。 In his earlier years； however； Penn had written pamphlets arguing strenuously against the same sort of despotic schemes that James was now undertaking； and this contradiction of his former position seriously injured his reputation even among his own people。
Part of the policy of James was to grant many favors to the Quakers and to all other dissenting bodies in England； to release them from prison； to give them perfect freedom of worship； and to remove the test laws which prevented them from holding office。 He thus hoped to unite them with the Roman Catholics in extirpating the Church of England and establishing the Papacy in its place。 But the dissenters and nonconformists； though promised relief from sufferings severer than it is possible perhaps now to appreciate； refused almost to a man this tempting bait。 Even the Quakers； who had suffered probably more than the others； rejected the offer with indignation and mourned the fatal mistake of their leader Penn。 All Protestant England united in condemning him； accused him of being a secret Papist and a Jesuit in disguise； and believed him guilty of acts and intentions of which he was probably entirely innocent。 This extreme feeling against Penn is reflected in Macaulay's 〃History of England；〃 which strongly espouses the Whig side； and in those vivid pages Penn is represented； and very unfairly； as nothing less than a scoundrel。
In spite of the attempts which James made to secure his position； the dissenters； the Church of England； and Penn's own Quakers all joined heart and soul in the Revolution of 1688； which quickly dethroned the King； drove him from England； and placed the Prince of Orange on the throne as William III。 Penn was now for many years in a very unfortunate； if not dangerous； position； and was continually suspected of plotting to restore James。 For three years he was in hiding to escape arrest or worse； and he largely lost the good will and affection of the Quakers。
Meantime； since his departure from Pennsylvania in the summer of 1684； that province went on increasing in population and in pioneer prosperity。 But Penn's quitrents and money from sales of land were far in arrears； and he had been and still was at great expense in starting the colony and in keeping up the plantation and country seat he had established on the Delaware River above Philadelphia。 Troublesome political disputes also arose。 The Council of eighteen members which he had authorized to act as governor in his absence neglected to send the new laws to him； slighted his letters； and published laws in their own name without mentioning him or the King。 These irregularities were much exaggerated by enemies of the Quakers in England。 The Council was not a popular body and was frequently at odds with the Assembly。
Penn thought he could improve the government by appointing five commissioners to act as governor instead of the whole Council。 Thomas Lloyd； an excellent Quaker who had been President of the Council and who had done much to allay hard feeling； was fortunately the president of these commissioners。 Penn instructed them to act as if he himself were present； and at the next meeting of the Assembly to annul all the laws and reenact only such as seemed proper。 This course reminds us of the absolutism of his friend； King James； and； indeed； the date of these instructions （1686） is that when his intimacy with that bigoted monarch reached its highest point。 Penn's theory of his power was that the frame or constitution of government he had given the province was a contract； that； the Council and Assembly having violated some of its provisions； it was annulled and he was free； at least for a time； to govern as he pleased。 Fortunately his commissioners never attempted to carry out these instructions。 There would have been a rebellion and some very unpleasant history if they had undertaken to enforce such oriental despotism in Pennsylvania。 The five commissioners with Thomas Lloyd at their head seem to have governed without seriously troublesome incidents for the short term of two years during which they were in power。 But in 1687 Thomas Lloyd； becoming weary of directing them； asked to be relieved and is supposed to have advised Penn to appoint a single executive instead of commissioners。 Penn accordingly appointed Captain John Blackwell； formerly an officer in Cromwell's army。 Blackwell was not a Quaker but a 〃grave； sober； wise man；〃 as Penn wrote to a friend； who would 〃bear down with a visible authority vice and faction。〃 It was hoped that he would vigorously check all irregularities and bring Penn better returns from quitrents and sales of land。
But this new governor clashed almost at once with the Assembly； tried to make them pass a militia law； suggested that the province's trade to foreign countries was illegal； persecuted and arrested members of the Assembly； refused to submit new laws to it； and irritated the people by suggesting the invalidity of their favorite laws。 The Quaker Assembly withstood and resisted him until they wore him out。 After a year and one month in office he resigned at Penn's request or； according to some accounts； at his own request。 At any rate； he expressed himself as delighted to be relieved。 As a Puritan soldier he found himself no match for a peaceable Quaker Assembly。
Penn again made the Council the executive with Thomas Lloyd as its President。 But to the old causes of unrest a new one was now added。 One George Keith； a Quaker； turned heretic and carried a number of Pennsylvania Quakers over to the Church of England； thereby causing great scandal。 The 〃Lower Counties〃 or Territories； as the present State of Delaware was then called； became mutinous； withdrew their representatives from the Council； and made William Markham their Governor。 This action together with the Keithian controversy； the disturbances over Blackwell； and the clamors of Church of England people that Penn was absent and neglecting his province； that the Quakers would make no military defense； and that the province might at any time fall into the hands of France； came to the ears of King William； who was already ill disposed toward Penn and distrusted him as a Jacobite。 It seemed hardly advisable to allow a Jacobite to rule a British colony。 Accordingly a royal order suspended Penn's governmental authority and placed the province under Benjamin Fletcher； Governor of New York。 He undertook to rule in dictatorial fashion； threatening to annex the province to New York； and as a consequence the Assembly had plenty of trouble with him。 But two years later； 1694； the province was returned to Penn； who now appointed as Governor William Markham； who had served as lieutenant…governor under Fletcher。
Markham proceeded to be high…handed with the Assembly and to administer the government in the imperialistic style of Fletcher。 But the Assembly soon tamed him and in 1696 actually worried out of him a new constitution； which became known as Markham's Frame； proved much more popular than the one Penn had given； and allowed the Assembly much more power。 Markham had no conceivable right to assent to it and Penn never agreed to it； but it was lived under for the next four years until Penn returned to the province。 While it naturally had opponents； it was largely regarded as entirely valid； and apparently with the understanding that it was to last until Penn objected to it。
Penn had always been longing to return to Pennsylvania and live there for the rest of his life； but the terrible times of the Revolution of 1688 in England and its consequences had held him back。 Those difficulties had now passed。 Moreover； William III had established free government and religious liberty。 No more Quakers were imprisoned and Penn's old occupation of securing their protection and release was gone。
In the autumn of 1699 he sailed for Pennsylvania with his family and； arriving after a tedious three months' voyage； was well received。 His political scrapes and mistakes in England seemed to be buried in the past。 He was soon at his old enjoyable life again； traveling actively about the country； preaching to the Quakers； and enlarging and beautifying his country seat； Pennsbury； on the Delaware； twenty miles above Philadelphia。 As roads and trails were few and bad he usually traveled to and from the town in a barge which was rowed by six oarsmen and which seemed to give him great pride and pleasure。
Two happy years passed away in this manner； during which Penn seems to have settled； not however without difficulty； a great deal of business with his people； the Assembly； and the Indian tribes。 Unfortunately he got word from England of a bill in Parliament for the revocation of colonial charters and for the establishment of royal governments in their place。 He must needs return to England to fight it。 Shortly before he sailed the Assembly presented him with