'well-ordered' monarchy was divinely mandated, but they disagreed on what 'well-ordered' meant, particularly with regards to the balance of power between king and Parliament, and on the question of where ultimate authority in clerical affairs lay. Royalists generally supported a Church of England governed by bishops, appointed by, and answerable to, the king; Parliamentarians believed he ought to be answerable to the leaders of the church, who should be appointed by their congregations. The relationship between Charles and his English Parliament eventually broke down entirely, resulting in the outbreak of the First English Civil War in 1642. In England Charles's supporters, the Royalists, were opposed by the combined forces of the Parliamentarians and the Scots. In 1643 the latter pair formed an alliance bound by the Solemn League and Covenant, in which the English Parliament agreed to reform the English church along similar lines to the Scottish Kirk in return for the Scots' military assistance. After four years of war the Royalists were defeated and Charles surrendered to the Scots on 5 May 1646. The Scots agreed with the English Parliament on a peace settlement which would be put before the king. Known as the Newcastle Propositions, it would have required all the king's subjects in Scotland, England and Ireland to sign the Solemn League and Covenant, brought the church in each kingdom into accordance with the Covenant and with Presbyterianism, and ceded much of Charles's secular authority as king of England to the English Parliament. The Scots spent some months trying to persuade Charles to agree to these terms, but he refused to do so. Under pressure from the English to withdraw their forces now the war was over, the Scots handed Charles over to the English Parliamentary forces in exchange for a financial settlement and left England on 3 February 1647. In England, Parliament was struggling with the economic cost of the war, a poor 1646 harvest, and a recurrence of the plague. The moderate Presbyterian faction led by Denzil Holles dominated Parliament and was supported by the London Trained Bands, the Army of the Western Association, leaders like Rowland Laugharne in Wales, and elements of the English navy. By March 1647, the New Model Army was owed more than £3 million in unpaid wages; Parliament ordered it to Ireland, stating only those who agreed to go would be paid. When their representatives demanded full payment for all