Townshend proposed new taxes in the old form of a navigation act. Officially called the Revenue Act of 1767, it established new duties on tea, glass, lead, paper, and painters’ colors imported into the colonies, to be paid by the importer but passed on to consumers in the retail price. A recent further reduction in the duty on French molasses had persuaded some American shippers to quit smuggling, and finally Britain was deriving a moderate revenue stream from its colonies. Townshend naively concluded that Americans accepted external taxes.

The Townshend duties were not especially burdensome, but the principle they embodied—taxation through trade duties—looked different to the colonists in the wake of the Stamp Act crisis. Although Americans once distinguished between external and internal taxes, accepting external duties as a means to direct the flow of trade, that distinction was wiped out by an external tax meant only to raise money. John Dickinson, a Philadelphia lawyer, articulated this view in an essay titled Letters from a Farmer in Pennsylvania, widely circulated in late 1767. “We are taxed without our consent. . . . We are therefore—SLAVES,” Dickinson wrote, calling for “a total denial of the power of Parliament to lay upon these colonies any ‘tax’ whatever.”

A controversial provision of the Townshend duties directed that some of the revenue generated would pay the salaries of royal governors. Before 1767, local assemblies set the salaries of their own officials, giving them significant influence over crown-appointed officeholders. Through his new provision, Townshend aimed to strengthen the governors’ position as well as to curb what he perceived to be the growing independence of the assemblies.

Massachusetts again took the lead in protesting the Townshend duties. Samuel Adams, now an elected member of the provincial assembly, argued that any form of parliamentary taxation was unjust because Americans were not represented in Parliament. Further, he argued that the new way to pay governors’ salaries subverted the proper relationship between the people and their rulers. The assembly circulated a letter with Adams’s arguments to other colonial assemblies for their endorsement. As with the Stamp Act Congress of 1765, colonial assemblies were starting to coordinate their protests.

In response to Adams’s letter, Lord Hillsborough, the new man in charge of colonial affairs in Britain, instructed Massachusetts governor Bernard to dissolve the assembly if it refused to repudiate the letter. The assembly refused, by a vote of 92 to 17, and Bernard carried out his instruction. In the summer of 1768, Boston was in an uproar.