The Demise and Sale of the Pennsylvania Salt Works at Toms River

As discussed in prior articles, because of the British blockade of American ports, there was an acute salt shortage in the fledgling United States. Salt was critical for preserving foods—without it, people would starve each winter. In 1776 and 1777, approximately twenty salt works started up along the Jersey shore. The most ambitious of these was the Pennsylvania Salt Works at Toms River, financed by the Pennsylvania government. Though started in summer 1776, the Pennsylvania salt works were still not producing salt in 1777—as other salt works were at least modestly productive.

In fall 1777, the British Army defeated the Continental Army at Brandywine and Germantown, and occupied Philadelphia. The Continental Congress fled west to York, Pennsylvania and Washington’s army hunkered down for the winter at Valley Forge. The British navy patrolled the Delaware River. Given the crisis in Pennsylvania and the lack of production at its salt works, it is not surprising that the Pennsylvania government lost patience with its grandiose project at Toms River.

Pennsylvania Government Sours on Pennsylvania Salt Works

Thomas Savadge managed the salt works. His letter of November 11 to the state’s Council of Safety proved a tipping point. He detailed his continued labor shortage. Specifically, he lacked six carpenters, one smith, one bricklayer, one wheelwright, three cart men, laborers, and two guards who “must go on day and night; one must always be on duty that nothing be embezzled” by untrustworthy laborers. Savadge had further obligated the Pennsylvania government ($3,500) to harvest wood from James Mott's land. And he informed the Council that he sent Daniel Griggs of Toms River to Pennsylvania to collect the funds. Finally, Savadge called for fresh troops to protect the works: “Capt. Sutter's people's time will be up the first of January… should be glad to know whether they leave their arms and ammunition here or not.”

Before responding to Savadge, the Council asked Colonel John Cox of Gloucester County (stationed at Little Egg Harbor) to assist them: “We have at length employed the bearer, Mr. Davison, to visit the works and furnish us… with a distinct account of the matters there." James Davison was at Little Egg Harbor and would proceed up the shore to Toms River. Along the way, he could observe other works.

Davison’s November 19 orders told him that, upon reaching Toms River, if the Pennsylvania Salt Works lacked salt, he should "purchase [salt], if in his power, from other salt works, as will make up the deficiency." He should also report back to the Council on why the salt works remained unproductive. Finally, Davison was told to keep the mission secret "lest the forestallers should get notice of it."

That same day, Thomas Wharton, President (Governor) of Pennsylvania and Chair of its Council of Safety, informed Savadge of Davison's mission. Wharton said that Davison "has directions from the Council to inspect the books and papers relating to the works." Wharton put Savadge on notice:

We had reason to believe you would have furnished this State long since with considerable quantities of salt, we have however been most egregiously disappointed and are almost induced to give up the matter and pursue some other method to furnish this State with that article.

The Council of Safety next considered the Pennsylvania Salt Works in January 1778. Despite its misgivings, it ordered another detachment to protect its investment at Toms River. On January 16, Commodore John Hazelwood of the state navy was directed to send 30 men to the salt works.

The Council wrote Savadge on the same day. Despite "unaccountable delays… it is not the design of the Council to sell the salt works." The Council reminded Savadge of his prediction that the salt works would produce 30,000 bushels of salt a year. It informed Savadge that he would now report to Davison: "he is empowered and instructed to do everything that may be effectual in attaining the much desired end."

The Council sent corresponding orders to Davison, noting that the salt works have “not produced any salt, tho' a very considerable sum has been invested.” Davison should “go to the works, take up the management and direction of them as fully and amply as the Council would do were they present.”

On February 5, Savadge complained to the Council. Hazelwood's men had not arrived; the works were unguarded. Further, "such men as Commodore Hazelwood could furnish are not the men I want, neither will I pretend to carry on the works with such men."  Savadge threatened to quit, "I cannot think of carrying them on any longer, for it is only deceiving the public, myself and my family, and getting an ill name for what I have not deserved." And he was predictably unhappy with Davison:

The appointment of Mr. Davison as an agent here can be of no use to me or the works, it will be an additional expense on them and there is no use for such a person here; furnish me with proper men and I will take care of the rest... I think, agreeable to my contract, I can have no superintendent over me, but the Council themselves.

Savadge wrote again on April 4. He informed the Council that British-Loyalist raiders had just razed the Union Salt Works at Manasquan (the other large salt works on the Jersey shore). Savadge stated that the raiders were "expected here this morning, but am informed that ye are returned to the Hook, but intend these works a visit very soon." Savadge was still waiting on Hazelwood’s guard and noted that the "the militia under Col Forman [David Forman] were here today" but had left for Manasquan. He complained:

I have but a few men at the works, and them going to leave me on the above account -- I have heard nothing of Mr. Davison since he left about two months ago -- am without the cash to pay the people or purchase provisions of which I have no kind, other than the bread & pork -- am not able to make any salt for want of hands.

Savadge followed up two days later: "We learnt this morning that the enemy, after leaving Squan, went to Shark River and destroyed the salt works there." He pleaded for a guard: "I apprehend it should be done so immediately, as in all likelihood they will make an attempt to destroy them [the salt works] in a few days." The Council’s response was prompt and unsympathetic.

As [for] guards being sent to defend the salt works under your care, there does not appear to be any propriety in it -- these works have been greatly long in hand, and been altogether fruitless. This greatly discourages the Council from pursuing the business any further until they are satisfied that there is a reasonable prospect of something effectual being done.

The Council would send no additional money until "they are satisfied of the propriety of the disposal of that already issued for that purpose. You are hereby directed to lay your accounts before the Council as soon as may be." Davison was sent back to the salt works in May 1778, and it appears that 20 bushels of salt (a modest amount) were produced that month.

The End of the Pennsylvania Salt Works

After May, there is a gap in surviving documents until November 25, 1778. Savadge had left Toms River and was in Philadelphia. He offered a weak excuse for not providing the Council with the requested financial records of the salt works:

They were sent by a man who said he lived between Reading and Lancaster… [He] promised to deliver them with his own hand to the President [Wharton]. I do not recollect his name but have a copy of the letter I wrote him to the President, which I believe will give his name.

On December 7, Savadge wrote to see if the Council might again invest in the salt works or, alternatively, reimburse him for past outlays:

If the Council should think proper to carry the works into execution, it will be necessary that a further sum should be granted for that purpose... the sum of five hundred pounds should be sufficient to complete the five pans and carry them on so far as to satisfy your Honor... If on the other hand, the Council should decline carrying on the works any further, I beg they would inform me with whom I settle my accounts.

Savadge likely met with the Council. He was again asked for his books and his original contract with the State. Savadge apologized: “I must confess with shame that I have used [the Board] extremely ill by inadvertently imposing a falsehood, by saying I had a copy of articles from Mr. Biddle, I cannot but with the greatest shame account for [them].” Savadge was similarly unable to produce the contract to harvest wood from James Mott. He called on the Council to “appoint a committee of judicious men” to consider “my character, my conduct and my accounts, respecting the works."

On December 12, Savadge wrote the Council yet again:

I beg your pardon for interrupting you so often, but necessity has no law. I have family in town, and I have not one stick of wood for them to burn nor money to buy any; I have been for almost seven weeks waiting to know when I am able to settle the ration bill and sundry other matters... I beg to know when I am to settle for my family cannot be wanting the necessities of life.

It is not clear if Savadge’s account were ever settled; he was dead within the year. On November 5, 1779, the Council issued its last order respecting the Pennsylvania Salt Works:

Whereas the Salt works belonging to this State in the State of New Jersey have been attended with great expense and no advantage to the Public, and the manager [Thomas Savadge] being dead, Resolved--that the said works be sold at public vendue.

A few days later, the Pennsylvania Packet advertised: “To be sold at public vendue, the salt works belonging to the State of Pennsylvania on Barnegat Bay… These works have been erected on an extensive plan, calculated to produce a great quantity of salt.” They were purchased by John Thompson of Burlington for £15,000, and produced some salt until they were destroyed by Loyalist raiders in March 1782.

Some financial records of the Pennsylvania Salt Works survived. They list expenditures for land, equipment, foods, and labor. The records offer no evidence of incoming revenues from salt sales. There are at least two substantial accounting errors noted (credits to Daniel Wilson and James Randolph).

The Jersey shore salt works did not bring great wealth to investors. The two large scale works, the Pennsylvania and Union salt works, were less productive than hoped, and then destroyed by the enemy. Smaller salt works were more successful, but many of these were also destroyed. With the entry of France into the war in 1778, the British naval blockade weakened and salt returned to American ports. Salt prices fell; only a few salt works outlasted the war.

Related Historic Site: State Museum of Pennsylvania (Harrisburg, PA)

Sources: Arthur Pierce, Smugglers' Woods, (New Brunswick: Rutgers University Press, 1960) p 237; Samuel Hazard, Pennsylvania Archives (Harrisburg: State of Pennsylvania, 1902) First Series, vol. 5, p 763-4; Samuel Hazard, Pennsylvania Archives (Harrisburg: State of Pennsylvania, 1902) First Series, vol. 6, pp. 16-8; Samuel Hazard, Pennsylvania Archives (Harrisburg: State of Pennsylvania, 1902) First Series, vol. 6, p 236; Samuel Hazard, Pennsylvania Archives (Harrisburg: State of Pennsylvania, 1902) First Series, vol. 6, p 398; Samuel Hazard, Pennsylvania Archives (Harrisburg: State of Pennsylvania, 1902) First Series, vol. 6, p 417; Orders to James Davison, January 16, 1778, in Samuel Hazard, Pennsylvania Archives (Harrisburg: State of Pennsylvania, 1902) First Series, vol. 6, pp. 181-2, 186; Thomas Savadge to Vice President Bryan, Samuel Hazard, Pennsylvania Archives (Harrisburg: State of Pennsylvania, 1902) First Series, vol. 7, pp. 96-116; Thomas Savadge to PA Council of Safety, Samuel Hazard, Pennsylvania Archives (Harrisburg: State of Pennsylvania, 1902) First Series, vol. 7, pp. 96-116; Thomas Savadge to PA Council of Safety, Samuel Hazard, Pennsylvania Archives (Harrisburg: State of Pennsylvania, 1902) First Series, vol. 7, pp. 96-116; Pennsylvania Historical Society, Pennsylvania Salt Works Account Books; Arthur Pierce, Smugglers' Woods, (New Brunswick: Rutgers University Press, 1960) p 237; Pennsylvania Council of Safety, Instructions in Arthur Pierce, Smugglers' Woods, (New Brunswick: Rutgers University Press, 1960) p 237; Library Company, Minutes of the Pennsylvania Council of Safety, vol. 12, p160; Minutes of the Supreme Executive Council of Pennsylvania (Harrisburg: Theo. Fenn, 1853) vol. 12, pp. 160; The concurrent sale of the Union and Pennsylvania Salt works is in Arthur Pierce, Smugglers' Woods, (New Brunswick: Rutgers University Press, 1960) p 234 and 238; Charles Thomson purchase is discussed in Harry B. Weiss, The Revolutionary Saltworks of the New Jersey Coast (Trenton: Past Times Press, 1959) p 44.