RICHARD WOLTERS, Dutch author of the memorandum reproduced below, was one of the most important and interesting figures in the European political underworld of the eighteenth century. He is discreetly listed in contemporary editions of the annual British Court and city register as His Majesty's Agent at Rotterdam, a post which he inherited from his father in 1730, when only sixteen years old. The chief duties of the post were the organization of the rudimentary British secret service of the time in western Europe and the transmission of his agents' reports to the northern secretary of state, and reporting to the British Treasury on financial matters, especially the state of the French and Dutch public finances. These were heavy responsibilities for a boy of sixteen, but he was helped in his early years by his mother, who was a formidably competent woman. So also was Wolters' own wife, who, to complete the extraordinary record of service of this family, succeeded Wolters after his death in February 1771.1 Wolters, as good an Englishman as his birth and love for hi's native city of Rotterdam would permit, served his London masters faithfully and, from his viewpoint, as an advocate of close Anglo-Dutch political connections with advantage to Dutch interests -he was a convinced adherent of William III's system of foreign policy.2 In addition to his able conduct of his main tasks, he managed to find time for reporting on, and seeking to foster, the branch of the German emigration to the American mainland colonies which was conducted under the brutal auspices of some of the Rotterdam merchants. He genuinely detested the treatment of these emigrants by the merchants, who exploited the passionate desire of the Newlanders to begin a fresh and free life in America, and he was well acquainted with their ghastly traffic in human souls. However, his motives in suggesting ways of improving the emigrants' conditions were not entirely altruistic-he sought also to serve his British masters and himself. When toward the end of 1762 he first sent this memorandum to Lord Halifax, then northern secretary of state, it was with the hope that if its proposals were adopted the control of the
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