The Republican majority in Congress as well as the President was thus pledged to the policy of compensated abolishment, both by the promise of the joint resolution and the fulfilment carried out in the District bill. If the representatives and senators of the border slave States had shown a willingness to accept the generosity of the government, they could have avoided the pecuniary sacrifice which overtook the slave owners in those States not quite three years later. On April 14, in the House of Representatives, the subject was taken up by Mr. White of Indiana, at whose instance a select committee on emanc.i.p.ation, consisting of nine members, a majority of whom were from border slave States, was appointed; and this committee on July 16 reported a comprehensive bill authorizing the President to give compensation at the rate of three hundred dollars for each slave to any one of the States of Delaware, Maryland, Virginia, Kentucky, Tennessee and Missouri, that might adopt immediate or gradual emanc.i.p.ation. Some subsequent proceedings on this subject occurred in Congress in the case of Missouri; but as to the other States named in the bill, either the neglect or open opposition of their people and representatives and senators prevented any further action from the committee.
Meanwhile a new incident once more brought the question of military emanc.i.p.ation into sharp public discussion. On May 9, General David Hunter, commanding the Department of the South, which consisted mainly of some sixty or seventy miles of the South Carolina coast between North Edisto River and Warsaw Sound, embracing the famous Sea Island cotton region which fell into Union hands by the capture of Port Royal in 1861, issued a military order which declared:
"Slavery and martial law in a free country are altogether incompatible; the persons in these three States--Georgia, Florida, and South Carolina--heretofore held as slaves are therefore declared forever free."
The news of this order, coming by the slow course of ocean mails, greatly surprised Mr. Lincoln, and his first comment upon it was positive and emphatic. "No commanding general shall do such a thing, upon my responsibility, without consulting me," he wrote to Secretary Chase. Three days later, May 19, 1862, he published a proclamation declaring Hunter"s order entirely unauthorized and void, and adding:
"I further make known that whether it be competent for me, as commander-in-chief of the army and navy, to declare the slaves of any State or States free, and whether, at any time, in any case, it shall have become a necessity indispensable to the maintenance of the government to exercise such supposed power, are questions which, under my responsibility, I reserve to myself, and which I cannot feel justified in leaving to the decision of commanders in the field. These are totally different questions from those of police regulations in armies and camps."
This distinct reservation of executive power, and equally plain announcement of the contingency which would justify its exercise, was coupled with a renewed recital of his plan and offer of compensated abolishment and reinforced by a powerful appeal to the public opinion of the border slave States.
"I do not argue," continued the proclamation, "I beseech you to make the arguments for yourselves. You cannot, if you would, be blind to the signs of the times. I beg of you a calm and enlarged consideration of them, ranging, if it may be, far above personal and partizan politics.
This proposal makes common cause for a common object, casting no reproaches upon any. It acts not the Pharisee. The change it contemplates would come gently as the dews of heaven, not rending or wrecking anything. Will you not embrace it? So much good has not been done, by one effort, in all past time, as in the providence of G.o.d it is now your high privilege to do. May the vast future not have to lament that you have neglected it."
This proclamation of President Lincoln"s naturally created considerable and very diverse comment, but much less than would have occurred had not military events intervened which served in a great degree to absorb public attention. At the date of the proclamation McClellan, with the Army of the Potomac, was just reaching the Chickahominy in his campaign toward Richmond; Stonewall Jackson was about beginning his startling raid into the Shenandoah valley; and Halleck was pursuing his somewhat leisurely campaign against Corinth. On the day following the proclamation the victorious fleet of Farragut reached Vicksburg in its first ascent of the Mississippi. Congress was busy with the multifarious work that crowded the closing weeks of the long session; and among this congressional work the debates and proceedings upon several measures of positive and immediate antislavery legislation were significant "signs of the times." During the session, and before it ended, acts or amendments were pa.s.sed prohibiting the army from returning fugitive slaves; recognizing the independence and sovereignty of Haiti and Liberia; providing for carrying into effect the treaty with England to suppress the African slave trade; restoring the Missouri Compromise and extending its provisions to all United States Territories; greatly increasing the scope of the confiscation act in freeing slaves actually employed in hostile military service; and giving the President authority, if not in express terms, at least by easy implication, to organize and arm negro regiments for the war.
But between the President"s proclamation and the adjournment of Congress military affairs underwent a most discouraging change. McClellan"s advance upon Richmond became a retreat to Harrison"s Landing Halleck captured nothing but empty forts at Corinth. Farragut found no cooperation at Vicksburg, and returned to New Orleans, leaving its hostile guns still barring the commerce of the great river. Still worse, the country was plunged into gloomy forebodings by the President"s call for three hundred thousand new troops.
About a week before the adjournment of Congress the President again called together the delegations from the border slave States, and read to them, in a carefully prepared paper, a second and most urgent appeal to adopt his plan of compensated abolishment.
"Let the States which are in rebellion see definitely and certainly that in no event will the States you represent ever join their proposed confederacy, and they cannot much longer maintain the contest. But you cannot divest them of their hope to ultimately have you with them so long as you show a determination to perpetuate the inst.i.tution within your own States. Beat them at elections, as you have overwhelmingly done, and, nothing daunted, they still claim you as their own. You and I know what the lever of their power is. Break that lever before their faces, and they can shake you no more forever.... If the war continues long, as it must if the object be not sooner attained, the inst.i.tution in your States will be extinguished by mere friction and abrasion--by the mere incidents of the war. It will be gone, and you will have nothing valuable in lieu of it. Much of its value is gone already. How much better for you and for your people to take the step which at once shortens the war and secures substantial compensation for that which is sure to be wholly lost in any other event. How much better to thus save the money which else we sink forever in the war.... Our common country is in great peril, demanding the loftiest views and boldest action to bring it speedy relief. Once relieved, its form of government is saved to the world, its beloved history and cherished memories are vindicated, and its happy future fully a.s.sured and rendered inconceivably grand. To you, more than to any others, the privilege is given to a.s.sure that happiness and swell that grandeur, and to link your own names therewith forever."
Even while the delegations listened, Mr. Lincoln could see that events had not yet ripened their minds to the acceptance of his proposition. In their written replies, submitted a few days afterward, two thirds of them united in a qualified refusal, which, while recognizing the President"s patriotism and reiterating their own loyalty, urged a number of rather unsubstantial excuses. The minority replies promised to submit the proposal fairly to the people of their States, but could of course give no a.s.surance that it would be welcomed by their const.i.tuents. The interview itself only served to confirm the President in an alternative course of action upon which his mind had doubtless dwelt for a considerable time with intense solicitude, and which is best presented in the words of his own recital.
"It had got to be," said he, in a conversation with the artist F.B.
Carpenter, "midsummer, 1862. Things had gone on from bad to worse, until I felt that we had reached the end of our rope on the plan of operations we had been pursuing; that we had about played our last card, and must change our tactics, or lose the game. I now determined upon the adoption of the emanc.i.p.ation policy; and, without consultation with, or the knowledge of, the cabinet, I prepared the original draft of the proclamation, and after much anxious thought called a cabinet meeting upon the subject.... All were present excepting Mr. Blair, the Postmaster-General, who was absent at the opening of the discussion, but came in subsequently. I said to the cabinet that I had resolved upon this step, and had not called them together to ask their advice, but to lay the subject-matter of a proclamation before them, suggestions as to which would be in order after they had heard it read."
It was on July 22 that the President read to his cabinet the draft of this first emanc.i.p.ation proclamation, which, after a formal warning against continuing the rebellion, was in the following words:
"And I hereby make known that it is my purpose, upon the next meeting of Congress, to again recommend the adoption of a practical measure for tendering pecuniary aid to the free choice or rejection of any and all States which may then be recognizing and practically sustaining the authority of the United States, and which may then have voluntarily adopted, or thereafter may voluntarily adopt, gradual abolishment of slavery within such State or States; that the object is to practically restore, thenceforward to be maintained, the const.i.tutional relation between the general government and each and all the States wherein that relation is now suspended or disturbed; and that for this object the war, as it has been, will be prosecuted. And as a fit and necessary military measure for effecting this object, I, as commander-in-chief of the army and navy of the United States, do order and declare that on the first day of January, in the year of our Lord one thousand eight hundred and sixty-three, all persons held as slaves within any State or States wherein the const.i.tutional authority of the United States shall not then be practically recognized, submitted to, and maintained, shall then, thenceforward, and forever be free."
Mr. Lincoln had given a confidential intimation of this step to Mr.
Seward and Mr. Welles on the day following the border State interview, but to all the other members of the cabinet it came as a complete surprise. Blair thought it would cost the administration the fall elections. Chase preferred that emanc.i.p.ation should be proclaimed by commanders in the several military districts. Seward, approving the measure, suggested that it be postponed until it could be given to the country supported by military success, instead of issuing it, as would be the case then, upon the greatest disasters of the war. Mr. Lincoln"s recital continues:
"The wisdom of the view of the Secretary of State struck me with very great force. It was an aspect of the case that, in all my thought upon the subject, I had entirely overlooked. The result was that I put the draft of the proclamation aside, as you do your sketch for a picture, waiting for a victory."
XXIV
Criticism of the President for his Action on Slavery--Lincoln"s Letters to Louisiana Friends--Greeley"s Open Letter--Mr. Lincoln"s Reply--Chicago Clergymen Urge Emanc.i.p.ation--Lincoln"s Answer--Lincoln Issues Preliminary Proclamation--President Proposes Const.i.tutional Amendment--Cabinet Considers Final Proclamation--Cabinet Discusses Admission of West Virginia--Lincoln Signs Edict of Freedom--Lincoln"s Letter to Hodges
The secrets of the government were so well kept that no hint whatever came to the public that the President had submitted to the cabinet the draft of an emanc.i.p.ation proclamation. Between that date and the battle of the second Bull Run intervened the period of a full month, during which, in the absence of military movements or congressional proceedings to furnish exciting news, both private individuals and public journals turned a new and somewhat vindictive fire of criticism upon the administration. For this they seized upon the ever-ready text of the ubiquitous slavery question. Upon this issue the conservatives protested indignantly that the President had been too fast, while, contrarywise, the radicals clamored loudly that he had been altogether too slow. We have seen how his decision was unalterably taken and his course distinctly marked out, but that he was not yet ready publicly to announce it. Therefore, during this period of waiting for victory, he underwent the difficult task of restraining the impatience of both sides, which he did in very positive language. Thus, under date of July 26, 1862, he wrote to a friend in Louisiana:
"Yours of the sixteenth, by the hand of Governor Shepley, is received.
It seems the Union feeling in Louisiana is being crushed out by the course of General Phelps. Please pardon me for believing that is a false pretense. The people of Louisiana--all intelligent people everywhere--know full well that I never had a wish to touch the foundations of their society, or any right of theirs. With perfect knowledge of this, they forced a necessity upon me to send armies among them, and it is their own fault, not mine, that they are annoyed by the presence of General Phelps. They also know the remedy--know how to be cured of General Phelps. Remove the necessity of his presence.... I am a patient man--always willing to forgive on the Christian terms of repentance, and also to give ample time for repentance. Still, I must save this government if possible. What I cannot do, of course I will not do; but it may as well be understood, once for all, that I shall not surrender this game leaving any available card unplayed."
Two days later he answered another Louisiana critic:
"Mr. Durant complains that, in various ways, the relation of master and slave is disturbed by the presence of our army, and he considers it particularly vexatious that this, in part, is done under cover of an act of Congress, while const.i.tutional guarantees are suspended on the plea of military necessity. The truth is that what is done and omitted about slaves is done and omitted on the same military necessity. It is a military necessity to have men and money; and we can get neither in sufficient numbers or amounts if we keep from or drive from our lines slaves coming to them. Mr. Durant cannot be ignorant of the pressure in this direction, nor of my efforts to hold it within bounds till he and such as he shall have time to help themselves.... What would you do in my position? Would you drop the war where it is? Or would you prosecute it in future with elder-stalk squirts charged with rose-water? Would you deal lighter blows rather than heavier ones? Would you give up the contest, leaving any available means unapplied? I am in no boastful mood. I shall not do more than I can, and I shall do all I can, to save the government, which is my sworn duty as well as my personal inclination. I shall do nothing in malice. What I deal with is too vast for malicious dealing."
The President could afford to overlook the misrepresentations and invective of the professedly opposition newspapers, but he had also to meet the over-zeal of influential Republican editors of strong antislavery bias. Horace Greeley printed, in the New York "Tribune" of August 20, a long "open letter" ostentatiously addressed to Mr. Lincoln, full of unjust censure all based on the general accusation that the President and many army officers as well, were neglecting their duty under pro-slavery influences and sentiments. The open letter which Mr.
Lincoln wrote in reply is remarkable not alone for the skill with which it separated the true from the false issue of the moment, but also for the equipoise and dignity with which it maintained his authority as moral arbiter between the contending factions.
"EXECUTIVE MANSION, WASHINGTON, August 22, 1862.
"HON. HORACE GREELEY.
"DEAR SIR: I have just read yours of the nineteenth, addressed to myself through the New York "Tribune." If there be in it any statements or a.s.sumptions of fact which I may know to be erroneous, I do not, now and here, controvert them. If there be in it any inferences which I may believe to be falsely drawn, I do not, now and here, argue against them.
If there be perceptible in it an impatient and dictatorial tone, I waive it in deference to an old friend whose heart I have always supposed to be right.
"As to the policy I "seem to be pursuing," as you say, I have not meant to leave any one in doubt.
"I would save the Union. I would save it the shortest way under the Const.i.tution. The sooner the national authority can be restored, the nearer the Union will be "the Union as it was." If there be those who would not save the Union unless they could at the same time save slavery, I do not agree with them. If there be those who would not save the Union unless they could, at the same time, destroy slavery, I do not agree with them. My paramount object in this struggle is to save the Union, and is not either to save or to destroy slavery. If I could save the Union without freeing any slave, I would do it; and if I could save it by freeing all the slaves, I would do it; and if I could save it by freeing some and leaving others alone, I would also do that. What I do about slavery and the colored race, I do because I believe it helps to save the Union; and what I forbear, I forbear because I do not believe it would help to save the Union. I shall do less whenever I shall believe what I am doing hurts the cause, and I shall do more whenever I shall believe doing more will help the cause. I shall try to correct errors when shown to be errors, and I shall adopt new views so fast as they shall appear to be true views.
"I have here stated my purpose according to my view of official duty; and I intend no modification of my oft-expressed personal wish that all men everywhere could be free.
"Yours,
"A. LINCOLN."
It can hardly be doubted that President Lincoln, when he wrote this letter, intended that it should have a twofold effect upon public opinion: first, that it should curb extreme antislavery sentiment to greater patience; secondly, that it should rouse dogged pro-slavery conservatism, and prepare it for the announcement which he had resolved to make at the first fitting opportunity. At the date of the letter, he very well knew that a serious conflict of arms was soon likely to occur in Virginia; and he had strong reason to hope that the junction of the armies of McClellan and Pope which had been ordered, and was then in progress, could be successfully effected, and would result in a decisive Union victory. This hope, however, was sadly disappointed. The second battle of Bull Run, which occurred one week after the Greeley letter, proved a serious defeat, and necessitated a further postponement of his contemplated action.
As a secondary effect of the new disaster, there came upon him once more an increased pressure to make reprisal upon what was a.s.sumed to be the really vulnerable side of the rebellion. On September 13, he was visited by an influential deputation from the religious denominations of Chicago, urging him to issue at once a proclamation of universal emanc.i.p.ation. His reply to them, made in the language of the most perfect courtesy nevertheless has in it a tone of rebuke that indicates the state of irritation and high sensitiveness under which he was living from day to day. In the actual condition of things, he could neither safely satisfy them nor deny them. As any answer he could make would be liable to misconstruction, he devoted the larger part of it to pointing out the unreasonableness of their dogmatic insistence:
"I am approached with the most opposite opinions and advice, and that by religious men, who are equally certain that they represent the divine will. I am sure that either the one or the other cla.s.s is mistaken in that belief, and perhaps, in some respects, both. I hope it will not be irreverent for me to say that if it is probable that G.o.d would reveal his will to others, on a point so connected with my duty, it might be supposed he would reveal it directly to me.... What good would a proclamation of emanc.i.p.ation from me do, especially as we are now situated? I do not want to issue a doc.u.ment that the whole world will see must necessarily be inoperative, like the Pope"s bull against the comet.... Understand, I raise no objections against it on legal or const.i.tutional grounds, for, as commander-in-chief of the army and navy in time of war, I suppose I have a right to take any measure which may best subdue the enemy; nor do I urge objections of a moral nature, in view of possible consequences of insurrection and ma.s.sacre at the South.
I view this matter as a practical war measure, to be decided on according to the advantages or disadvantages it may offer to the suppression of the rebellion.... Do not misunderstand me because I have mentioned these objections. They indicate the difficulties that have thus far prevented my action in some such way as you desire. I have not decided against a proclamation of liberty to the slaves, but hold the matter under advis.e.m.e.nt. And I can a.s.sure you that the subject is on my mind, by day and night, more than any other. Whatever shall appear to be G.o.d"s will, I will do."
Four days after this interview the battle of Antietam was fought, and when, after a few days of uncertainty it was ascertained that it could be reasonably claimed as a Union victory, the President resolved to carry out his long-matured purpose. The diary of Secretary Chase has recorded a very full report of the interesting transaction. On this ever memorable September 22, 1862, after some playful preliminary talk, Mr.
Lincoln said to his cabinet:
"GENTLEMEN: I have, as you are aware, thought a great deal about the relation of this war to slavery; and you all remember that, several weeks ago, I read to you an order I had prepared on this subject, which, on account of objections made by some of you, was not issued. Ever since then my mind has been much occupied with this subject, and I have thought, all along, that the time for acting on it might probably come.
I think the time has come now. I wish it was a better time. I wish that we were in a better condition. The action of the army against the rebels has not been quite what I should have best liked. But they have been driven out of Maryland, and Pennsylvania is no longer in danger of invasion. When the rebel army was at Frederick, I determined, as soon as it should be driven out of Maryland, to issue a proclamation of emanc.i.p.ation, such as I thought most likely to be useful. I said nothing to any one, but I made the promise to myself and [hesitating a little]
to my Maker. The rebel army is now driven out, and I am going to fulfil that promise. I have got you together to hear what I have written down.
I do not wish your advice about the main matter, for that I have determined for myself. This I say without intending anything but respect for any one of you. But I already know the views of each on this question. They have been heretofore expressed, and I have considered them as thoroughly and carefully as I can. What I have written is that which my reflections have determined me to say. If there is anything in the expressions I use, or in any minor matter which any one of you thinks had best be changed, I shall be glad to receive the suggestions.
One other observation I will make. I know very well that many others might, in this matter as in others, do better than I can; and if I was satisfied that the public confidence was more fully possessed by any one of them than by me, and knew of any const.i.tutional way in which he could be put in my place, he should have it. I would gladly yield it to him.
But, though I believe that I have not so much of the confidence of the people as I had some time since, I do not know that, all things considered any other person has more; and, however this may be, there is no way in which I can have any other man put where I am. I am here; I must do the best I can, and bear the responsibility of taking the course which I feel I ought to take."
The members of the cabinet all approved the policy of the measure; Mr.
Blair only objecting that he thought the time inopportune, while others suggested some slight amendments. In the new form in which it was printed on the following morning, the doc.u.ment announced a renewal of the plan of compensated abolishment, a continuance of the effort at voluntary colonization, a promise to recommend ultimate compensation to loyal owners, and--
"That on the first day of January, in the year of our Lord one thousand eight hundred and sixty-three, all persons held as slaves within any State, or designated part of a State, the people whereof shall then be in rebellion against the United States, shall be then, thenceforward, and forever free; and the executive government of the United States, including the military and naval authorities thereof, will recognize and maintain the freedom of such persons, and will do no act or acts to repress such persons, or any of them, in any efforts they may make for their actual freedom."
Pursuant to these announcements, the President"s annual message of December 1, 1862, recommended to Congress the pa.s.sage of a joint resolution proposing to the legislatures of the several States a const.i.tutional amendment consisting of three articles, namely: One providing compensation in bonds for every State which should abolish slavery before the year 1900; another securing freedom to all slaves who, during the rebellion, had enjoyed actual freedom by the chances of war--also providing compensation to legal owners; the third authorizing Congress to provide for colonization. The long and practical argument in which he renewed this plan, "not in exclusion of, but additional to, all others for restoring and preserving the national authority throughout the Union," concluded with the following eloquent sentences:
"We can succeed only by concert. It is not, "Can any of us imagine better?" but, "Can we all do better?" Object whatsoever is possible, still the question recurs, "Can we do better?" The dogmas of the quiet past are inadequate to the stormy present. The occasion is piled high with difficulty, and we must rise with the occasion. As our case is new, so we must think anew and act anew. We must disenthrall ourselves, and then we shall save our country.