Given the power to determine the colony’s form of government, Penn established an appointed council to originate legislation and an assembly elected by male taxpayers and “freemen” (owners of 100 acres of land for free immigrants and 50 acres for former indentured servants). These rules made a majority of the male population eligible to vote. Penn owned all the colony’s land and sold it to settlers at low prices rather than granting it outright. Like other proprietors, he expected to turn a profit, and like most of them, he never really did. But if Penn did not prosper, Pennsylvania did. A majority of the early settlers were Quakers from the British Isles. But Pennsylvania’s religious toleration, healthy climate, and inexpensive land, along with Penn’s aggressive efforts to publicize the colony’s advantages, soon attracted immigrants from all over western Europe.
Ironically, the freedoms Pennsylvania offered to European immigrants contributed to the deterioration of freedom for others. The colony’s successful efforts to attract settlers would eventually come into conflict with Penn’s benevolent Indian policy. And the opening of Pennsylvania led to an immediate decline in the number of indentured servants choosing to sail for Virginia and Maryland, a development that did much to shift those colonies toward reliance on slave labor.