Following the outbreak of the American Revolutionary War with the Battles of Lexington and Concord in April 1775, the Massachusetts Provincial Congress, which effectively controlled the Province of Massachusetts Bay, began discussing the need for naval defenses against raids and punitive actions by the British Royal Navy against coastal communities in the province.In the interim, the Provincial Congress was replaced by the Massachusetts Great and General Court as the province's legislative body, with a council acting as the executive.The legislature responded by officially adopting Machias Liberty and Diligence, appointing Jeremiah O'Brien their commander, with authorization to hire up to thirty seamen.[4] On November 1, the Massachusetts legislature enacted a law authorizing the issuance of letters of marque, as well as the creation of admiralty courts for judging naval disputes and the disposition of captured prize ships and cargo.While they were being built, additional legislation was enacted, establishing pay scales and rules for prize distribution, and in October a Board of War was created to oversee naval activities (military as well as economic) of the state.In 1777, the brigantine Hazard was built, and in 1778 a plan to construct two larger ships was entertained and eventually abandoned due to the cost.The expedition has been called the worst United States naval defeat prior to the Japanese attack on Pearl Harbor in World War II.