Lincoln’s Plan For Reconstruction


A careful study of these matters reveals a problem as to top executive leadership locally applied—that is, the difficulty of achieving effectiveness in a particular area in terms of policy developed in Washington. Lincoln was President; he was the Chief; he made the appointments and formed decisions; presumably he would choose men to put his policies into operation. Yet so unpredictable were events and so complicated was the situation as to politicians’ maneuvers that those who supposedly should have carried out Lincoln’s purposes promoted their own factional and contrary schemes in such manner as to jeopardize the President’s best laid plans.

George F. Shepley was a case in point. He had been a Maine Democrat, an appointee of Pierce and later of Buchanan as district attorney, and a supporter of Douglas in 1860. These factors in his background did not militate against him in Lincoln’s view—the President often appointed Democrats—nor should they have been a drawback to successful service in Louisiana’s reconstruction. There was, however, the further fact that Shepley became a Butlerite and a Radical; remaining after Butler’s removal, he played the Radical game at a time when it was hoped that a more Lincolnian policy would be inaugurated. Thus Shepley stood as an obstacle to Lincoln’s efforts to allay factionalism and to promote speedy and liberal restoration.

Toward the end of the Butler-Shepley period an election was held within the Union lines on December 3, 1862, for members of Congress from Louisiana. Two men of different outlook were elected: B. F. Flanders from New Hampshire, who was to become an instrument of the Radical faction; and Michael Hahn, a citizen of Louisiana born in Bavaria, who was more in tune with Lincoln’s purposes. When the question of admitting these gentlemen as members of the House of Representatives was brought before that body (February 9, 1863) a species of dog fight ensued, a forerunner of the rough treatment in store for Lincoln’s whole reunion program. Few were ready for frontal attack and sidestepping was more in evidence; the result was confusion, unrelated motions, and postponement. Finally, on February 17, 1863, the House voted, 92 to 44, to seat Flanders and Hahn. By that time that particular Congress, the Thirty-seventh, was about to pass out of existence.

Second Phase: Shepley and Durant versus Banks . In the next phase, while Banks was in top command in Louisiana with Shepley as military governor—i. e., governor as to civil affairs under military authority—certain groups in the state got to work, though at cross purposes, to seize control of the process of state remaking. It turned out to be a period of bickering and futility, a time of bitter disappointment to the President. Taking over the rebuilding task and attempting to do it in his own way, Governor Shepley proceeded to make a registry of voters, appointing T. J. Durant, a Radical like himself, as commissioner of registration. An oath of allegiance was required (this was before the presidentially prescribed oath of December 8, 1863) and the registration of whites who would take the oath was ordered. It was Durant’s idea that ten loyal men in a parish, if no more could be registered, would be a sufficient basis for an election. This was a period when Banks was preoccupied with military command in the Port Hudson and Texas areas, while Shepley was also absent from Louisiana, spending a large part of the summer of 1863 in Washington. Lincoln approved the Shepley-Durant registration and wanted it pushed.

The President was trying to keep himself in the background, to avoid seeming to dictate, and to let things work themselves out as a Louisiana movement. Yet he soon found that a jurisdictional dispute or confusion as to control was spoiling everything. Shepley as military governor and Durant, his appointee, were claiming “that they were exclusively charged with the work of reconstruction in Louisiana,” while Banks had “not felt authorized to interfere” with them. In a letter of December 16, 1863, Banks advised the President that he was “only in partial command,” adding: “There are not less than four distinct governments here claiming . . . independent powers based upon instructions received directly from Washington, and recognizing no other authority than their own.”

Though this unfortunate situation was due in large part to the activities of Radical groups, another factor may have been a bit of inadvertence on the part of the burdened President: he had supposed all the time that Banks was in chief command but had not made that point sufficiently clear. He now wrote a strong letter to Banks (December 24, 1863) with a fourfold repetition of the main theme: You are master. The President was seriously annoyed at the frustration and delay. Shepley, he wrote, was to “assist” Banks, not to “thwart” him. The desirable object, of course, was to have unity among pro-Union men and leaders, but a serious obstacle to such unity was the attitude of Shepley and his considerable faction. It became increasingly apparent that these Radicals were unwilling to co-operate with the man whom Lincoln had placed in chief authority and whom he had plainly designated as “master.” Treating delay and factionalism as if things of the past, Lincoln wrote to Banks: “Give us a free State reorganization of Louisiana in the shortest possible time.”