the American loyalist James Matra in July 1783. Under Banks' guidance, Matra rapidly produced "A Proposal for Establishing a Settlement in New South Wales" (24 August 1783), with a fully developed set of reasons for a colony composed of American loyalists, Chinese, and South Sea Islanders (but not convicts). Thomas Townshend, Lord Sydney, as Secretary of State for the Home Office and minister in charge, decided to establish the proposed colony in Australia. This decision was taken for two reasons: the ending of the option to transport criminals to North America following the American Revolution, and the need for a base in the Pacific to counter French expansion. In September 1786, Phillip was appointed commodore of the fleet, which came to be known as the First Fleet. His assignment was to transport convicts and soldiers to establish a colony at Botany Bay. Upon arriving there, Phillip was to assume the powers of captain general and governor in chief of the new colony. A subsidiary colony was to be founded on Norfolk Island, as recommended by Sir John Call and Sir George Young, to take advantage of that island's native flax (harakeke) and timber for naval purposes. Voyage to Colony of New South Wales On 25 October 1786, the 20-gun , lying in the dock at Deptford, was commissioned, with the command given to Phillip. The armed tender , under the command of Lieutenant Henry Lidgbird Ball, was also commissioned to join the expedition. On 15 December, Captain John Hunter was assigned as second captain to Sirius to command in the absence of Phillip, who as governor of the colony, would be where the seat of government was to be fixed. Phillip had a difficult time assembling the fleet, which was to make an eight-month sea voyage and then establish a colony. Everything a new colony might need had to be taken, since Phillip had no real idea of what he might find when he got there. There were few funds available for equipping the expedition. His suggestion that people with experience in farming, building, and crafts be included was rejected by the Home Office. Most of the 772 convicts were petty thieves from the London slums. A contingent of marines and a handful of other officers who were to administer the colony accompanied Phillip. The fleet of 11 ships and about 1,500 people, under Phillip's command, sailed from Portsmouth, England,