emancipation by purchase in the border states, thus cutting off all hope on the part of the South that those states would ever secede, and at the same time in some degree satisfying the clamor of the abolitionists. He called the border-state Congressmen about him and earnestly, even passionately urged them to vote in Congress for an act pledging the Government to pay to every state that should decree emancipation the full value of all the slaves held in such state at the time the census of 1860 was taken. He especially besought these representatives of border slave states to persuade their constituents to a willing acceptance of these terms.
Nothing of any practical value came of this effort. It resulted only in stimulating on the part of the Abolitionists that aggressive insistence upon universal emancipation by military force which was so sorely embarrassing to the President.
It was soon afterwards (August 19, 1862), that Horace Greeley published his open letter entitled "The Prayer of Twenty Millions" to which Mr. Lincoln replied, setting forth his policy and purpose, in words already quoted in this chapter: "My paramount object is to save the Union, and not either to save or destroy slavery. If I could save the Union without freeing any slave, I would do it. If I could save it by freeing all the slaves, I would do it. And if I could do it by freeing some and leaving others alone, I would also do that."
But all this while Mr. Lincoln contemplated the emancipation of the slaves by executive proclamation as a war measure to be resorted to whenever it should seem to him likely to be effective. In the preceding month of July he had drawn up a proclamation of emancipation, and had read it to his cabinet. But he had laid it aside, believing that the time was not yet ripe. The Confederates seemed at that time at high tide of military success. Their armies, victorious and aggressive, were overthrowing one Federal force after another, and putting Washington itself upon an uncertain defense. It was the conviction both of Mr. Lincoln and of Mr. Seward, that to issue an emancipation proclamation under such circumstances would not only seem ridiculous in the eyes of the world but would be everywhere interpreted as a despairing manifestation of conscious weakness, the futile outcry of failure. He must wait for victories before taking this step.
But when after Antietam, Lee withdrew from Maryland and abandoned his campaign against the national capital, Mr. Lincoln decided to assume the rôle of a victor, dictating terms which he held himself strong enough to enforce.
Accordingly on September 22, 1862, he issued a proclamation declaring that on the first of January, 1863, all slaves held in those states or parts of states which should at that time be still in rebellion should be then and forever afterwards free.
This was at once a threat and a promise.
It is a matter of curious speculation to consider what would have been the situation if the Southern States had submitted themselves before the beginning of 1863. In that event the proclamation of freedom to slaves within their borders would have been of no effect, inasmuch as it applied only to states remaining at war. A second executive proclamation of emancipation would have had no war necessity to justify or even to excuse it. For the Constitution conferred upon the President no power to emancipate slaves. It was only on the plea of war necessity that this power could be remotely and speculatively inferred, and that war necessity would have passed completely away had the war itself come to an end before the date set for the enforcement of the threat.
Perhaps it was in view of this very remote contingency that Mr. Lincoln at that time urged upon Congress the adoption of a constitutional amendment forbidding slavery anywhere within the borders of the Union.
Congress did not act upon the recommendation at that time, and on the first of January, 1863, Mr. Lincoln issued his final proclamation of emancipation, naming the states and parts of states in which rebellion was held then to exist, and declaring free all the slaves within those states and parts of states. It did not apply to those slave states which had not joined the Confederacy, and, except that Maryland voluntarily freed her slaves near the end of the war, the institution remained lawful in such states as had not seceded, and actually continued to exist there until December 18, 1865, when the ratification of the thirteenth amendment to the Constitution was officially proclaimed by Mr. Lincoln's successor.
So far as securing actual liberty to slaves within the Confederate lines was concerned, the emancipation proclamations had no effect whatever. They were probably not expected to have any. But they had an important bearing upon the conduct of the war and the state of the public mind. They made an end of all doubt about what Federal commanders in the field should do with slaves escaping to their lines. They satisfied the strong and growing abolitionist sentiment at the North, and they had some effect in alienating war Democrats and a considerable number of Republicans from the Federal cause, thus checking enlistments in some quarters, and impairing the administration's support.
This effect was far less marked than it would have been had Mr. Lincoln issued an emancipation proclamation earlier in the war when he was first urged to do so. Nevertheless the political effect was notable.
In the autumn elections there was a heavy falling off in Republican majorities, while in some important states Democrats relentlessly opposed to the administration and all its policies were elected to replace Republicans in office. This was notably the case in New York, where Horatio Seymour succeeded the Republican governor, E. D. Morgan, and a sentiment in hostility to the administration and to the war itself grew up, which was afterwards reflected in bloody riots when the time came for a draft of men for the army.
In Europe and particularly in England, the emancipation proclamation went far to change a former friendship for the Confederacy, which had at times threatened danger, into a strong moral support for the Federal cause.
But whatever moral and political results, for or against the Lincoln administration, this act may have produced, it had no perceptible effect upon the actual conduct of the war. That was still to be fought out at the cost of millions of treasure and multitudes of lives. Many of its greatest battles were still to come and its most important campaigns were yet to be fought out.
CHAPTER XXXII
Burnside's Fredericksburg Campaign
It has already been related that at the end of the battle of Sharpsburg, or Antietam, neither army cared to renew the contest. The two confronted each other within deadly firing distance for the space of twenty-four hours, doing nothing whatever. Apparently each had so far had enough of such fighting that neither cared to take the initiative for its renewal, yet each was ready enough to meet the other should that other care to assail it.
At the end of this waiting time Lee slowly retired towards the Potomac, McClellan not caring to pursue, and finally crossing the river the Confederates went into camp near Winchester.
So far from planning either to press Lee or to move by some other route upon Richmond, McClellan seems to have thought that he had done quite all that could be expected of him, in turning back the Confederate invasion of the region north of the Potomac. It appears from his dispatches to Mr. Lincoln that he purposed with his enormously superior army to take the defensive, post himself on the Potomac and stand ready to meet any second attempt that Lee might make to invade the North or to strike at Washington. Even for such a service he did not deem his army large enough, though it greatly outnumbered Lee's, or sufficiently well equipped, though its equipment was notably superior to any that its adversary ever had, either before or after that time.
Instead of planning a campaign McClellan devoted himself to the making of multitudinous requisitions and ceaseless complaints.
Precious weeks of perfect campaigning weather were thus wasted, McClellan lying idly upon the north bank of the Potomac while Lee rested and reinforced his army near Winchester.
But if McClellan did nothing Lee was not so supine. He did not indeed begin a new campaign or bring on a battle, but he again awakened apprehension of invasion at
