I | INTRODUCTION |
Reconstruction (U.S.
history), the process of rebuilding that followed the American Civil War
(1861-1865). Since the United States had never before experienced civil war, the
end of hostilities left Americans to grapple with a set of pressing questions
over what to do with the South after the defeat of the Confederacy and the
overthrow of slavery. These questions included:
1) What was the relationship between the
former Confederate states and the federal Union? What should be demanded of
those states before they were regarded as reconstructed?
2) Who was responsible for the Confederate
rebellion? Who, if anyone, should be punished for it?
3) What should be the position of the
newly-freed slaves? What responsibility did the government have to extend basic
rights to them? Which rights?
4) How should the Southern economy be
converted from one based on slave labor to one based on free labor?
Although the debate over these questions began
during the war and continued for decades, the time period traditionally assigned
to Reconstruction is 1865 to 1877. This period began with the onset of an
intense national struggle over the shape of society and government in the
postwar South; it ended with the collapse of the last Southern state governments
under Republican control and the tacit acknowledgment that the federal attempt
to remake the South was over.
II | DEBATE OVER RECONSTRUCTION |
Reconstruction emerged as an inevitable issue
early in the war, and attracted increased attention as Northern victory neared.
As Union forces gained control of large areas of the South, both Union
commanders and the federal government were forced to make decisions about how
those areas should be administered. These decisions were made first for the sea
islands off the coast of South Carolina and Georgia, for southern Louisiana, for
northern Virginia, and then for much of the South. Federal officials supervised
experiments in which Northern missionaries arrived to set up schools for blacks,
former slaves were employed as contract labor, and whites loyal to the Union
organized new state governments under federal control. By January 1, 1863, when
President Abraham Lincoln issued the Emancipation Proclamation that freed all
slaves in rebel-held areas, the North's war aims had shifted from preserving the
Union to remaking the South.
Central to this shift was the conviction of
increasing numbers of Northerners that the South should be remade into a society
based on free labor, equal rights, and the republican form of government
guaranteed by the Constitution of the United States. This view was especially
widespread within the Republican Party, which dominated national politics, in
part because the Southern states, where the Democratic Party was dominant, had
withdrawn their representatives from the Congress of the United States after
secession. Those Republicans who took the lead in pressing for a far-reaching
restructuring of the South came to be known as Radicals. Among the most
prominent Radical Republican leaders were Senators Charles Sumner of
Massachusetts and Benjamin F. Wade of Ohio, and Representatives Thaddeus Stevens
of Pennsylvania and George W. Julian of Indiana.
During the second half of the war, several
plans were proposed for the political organization of states captured from
Confederate control. A proposal that enjoyed considerable support among Radicals
was the Wade-Davis bill, which was proposed by Senator Wade and Representative
Henry Winter Davis of Maryland. It would have required one-half of a state's
white male citizens to swear loyalty to the Constitution before a new state
government could be formed; an alternative was President Lincoln's Ten Percent
Plan, which allowed a government to be based on the loyalty of one-tenth of the
white males. Although Lincoln vetoed the Wade-Davis bill in 1864, he regarded
his Ten Percent Plan as experimental, and as a Republican who opposed slavery,
he shared with Radicals the goal of establishing free labor in the South.
Early in 1865, before the war's end, three
developments hinted at the depth of this emerging Northern commitment. In
January Congress passed the 13th Amendment to the Constitution, which was
ratified in December of the same year. The 13th Amendment expanded the scope of
the Emancipation Proclamation by abolishing slavery throughout the United
States. Also in January, General William T. Sherman issued Special Field Order
No. 15, setting aside abandoned lands on the sea islands and coastal region of
South Carolina and Georgia for exclusive use of the region's freed population.
And in March, in order to help former slaves throughout the South in their
transition to freedom, Congress established a new federal agency, the Bureau of
Refugees, Freedmen, and Abandoned Lands, commonly known as the Freedmen's
Bureau. Designed as a relief agency for needy refugees, it provided food,
clothing, and fuel for both blacks and whites. Its primary services, however,
were for blacks; it established schools, supervised labor relations, and worked
to protect blacks from intimidation and violence.
A | Presidential Reconstruction |
Despite these measures, the precise nature
of the Reconstruction settlement remained undetermined when the war ended.
Complicating the situation was the assassination of Lincoln, whose death on
April 15, 1865, moved Vice President Andrew Johnson into the presidency. A
Tennessee Democrat, Johnson soon made it clear that he did not share the
Republican commitment to remaking the South. Blaming a small number of wealthy
aristocrats for the Confederate rebellion, Johnson pursued a policy of leniency
toward former rebels and one of neglect toward former slaves. He offered amnesty
to all who would take the oath of allegiance, except for those with a post-war
wealth valued at more than $20,000, who had to apply to him personally for
pardon, which he almost always gave. In conjunction with these pardons, he
abruptly reversed General Sherman's Special Field Order No. 15 and ordered that
abandoned plantations be returned to their former owners. Meanwhile, he sought
to restore political rights to the Southern states as quickly as possible. For
each state he appointed a provisional governor who was required to call a
constitutional convention that would draft a new constitution outlawing slavery
and disavowing secession. No further changes would be required.
Cheered by the unexpected presence of an
ally in the White House, Southern whites quickly reorganized their governments
according to Johnson's plan. The new state governments also passed a series of
acts known as black codes, which sharply restricted the rights of the newly
freed slaves. The codes varied somewhat from state to state, but they typically
included vagrancy laws, under which blacks who were viewed as unemployed could
be hired out as forced labor; apprenticing laws, under which children without
proper care, as defined by the courts, could be bound out to white employers;
and severe limitations on black occupations and property holding. Because they
seemed to represent an effort to provide blacks with a status in-between that of
slave and free, the codes aroused dismay in a Northern public already unhappy
with what increasingly appeared to be the president's sell-out of Union
victory.
B | Congressional Reconstruction |
When Congress convened from a long recess
in December 1865, President Johnson regarded his restoration policy as complete.
Republican leaders in Congress wasted little time in revealing their
disagreement. Determined that Union victory must stand for more than simply
restoration of the status quo, the Republican majority in Congress refused to
seat the representatives sent by the Southern states or to accept the legitimacy
of the Southern state governments formed under Johnson's requirements.
Instead, Congress began a lengthy debate
over Reconstruction policy. The program eventually enacted resulted from a
series of compromises among Republican factions; the Radicals were never
powerful enough to gain everything they sought. Still, fueled by anger at the
president's refusal to compromise and at the appearance of former Confederates
returning to power throughout the South, members of Congress moved increasingly
toward the Radicals. The key Reconstruction measures enacted aimed to produce
far more sweeping changes in the former Confederacy than had appeared likely at
the war's end.
Instrumental in convincing Republicans
that it was futile to seek a compromise with the president were his vetoes in
early 1866 of two measures that won overwhelming Republican support and were
eventually enacted over his vetoes. The first of these was the Freedmen's Bureau
Bill, which continued the agency's operations for another year. The second was
the Civil Rights Bill, which extended citizenship to blacks by defining all
persons born in the United States as citizens. In denouncing these measures as
illegal interference within the states by the federal government, Johnson clung
to basic Democratic beliefs rooted in a pre-Civil War vision of states' rights,
weak central government, and white supremacy.
The heart of the Reconstruction plan was
laid out in two measures: the 14th Amendment to the Constitution and the
Reconstruction Act. The 14th Amendment was passed in June 1866 and ratified in
1868. It was designed to protect the rights of Southern blacks and restrict the
political power of former Confederates. It added into the Constitution the
definition of U.S. citizenship that was enacted in the Civil Rights Bill; barred
states from abridging “the privileges or immunities of citizens” or depriving
“any person of life, liberty or property without due process of law”; encouraged
Southern states to allow blacks to vote, without actually requiring it, by
reducing the congressional representation of states that disfranchised male
citizens; barred former officials who had rebelled against the Union from
holding public office; and repudiated both Confederate war debts and claims of
former slaveholders to compensation for the loss of their slaves.
The Reconstruction Act was passed in March
1867 over President Johnson's veto and was strengthened by three supplemental
acts passed later the same year and in 1868. It provided for the organization of
loyal governments in all former Confederate states except Tennessee, which,
having ratified the 14th Amendment, was regarded as already reconstructed. The
ten remaining states were divided into five military districts, each headed by a
military commander. The military commander was responsible for seeing that each
state under his command wrote a new constitution that provided for voting rights
for all adult males, regardless of race. Only when the state had ratified its
new constitution and the 14th Amendment would the process of political
reorganization be complete.
Congressional Reconstruction activity
continued after 1867. Among the most important acts were the impeachment
proceedings against President Johnson, who in 1868 was spared conviction and
removal from office by one vote in the Senate. Republicans in Congress
disapproved of Johnson's dismissal of radical politicians and generals active in
Reconstruction, and felt that he was obstructing implementation of the
government's Reconstruction policy. In 1869 Congress passed the 15th Amendment
to the Constitution, which was ratified in 1870. It broadened the 14th
Amendment's protection of black suffrage by providing that no citizen could be
denied the right to vote on the basis of “race, color or previous condition of
servitude.” Another important act was the Civil Rights Act of 1875, which barred
discrimination by hotels, theaters, and railroads. In 1883, however, it was
declared unconstitutional by the Supreme Court of the United States. Despite
this continuing legislative activity, the basic course of Reconstruction was set
with the passage of the Reconstruction Act in March 1867. Although this course
constituted a major new departure for both the South and the country as a whole,
it represented a compromise carefully pieced together by competing factions in
Congress rather than a total Radical victory. Radical Republicans lacked the
political power to secure two of their most cherished goals: redistribution of
plantation lands to former slaves and poor whites, and a prolonged federal
supervision of the former Confederate states. According to the Reconstruction
compromise, those states would be required to provide equal civil and political
rights to blacks, but once they complied with those requirements, the states
would be free to govern themselves.
III | IMPLEMENTATION OF RECONSTRUCTION |
As Reconstruction was implemented, an
intense struggle was underway in the South over the nature of the new social
order. On opposite sides were the freed people (former slaves), who sought to
make sure that the freedom they now enjoyed included more than token benefits,
and their former owners, who sought to preserve as many of their old privileges
as possible. Many, although not all, whites who had not owned slaves also found
it difficult to imagine a society in which blacks had the same rights as they
did. Representatives of the federal government, including army officers and
Freedmen's Bureau officials, typically took a position between the two sides.
These representatives insisted that blacks be treated as free people with the
same legal rights as whites, but they often found it difficult to understand,
let alone endorse, all the aspirations of the freed people.
At the heart of these aspirations was the
desire to get as far from slavery as possible. Determined to make freedom real,
freed people resisted relationships reminiscent of slave-like dependence, for
example working under overseers, and struggled to maximize their social
autonomy. Well before the establishment of the new state governments mandated by
the Reconstruction Act, black Southerners made it clear that they were
determined not to accept the establishment of a system in which they would be
free in name but slave in fact.
Although they did not achieve all of their
goals, the freed people were successful in securing some of the independence
they sought. In the process, they also forced fundamental changes in Southern
social relations. In the crucial area of labor relations, these changes included
the speedy disappearance throughout most of the South of elements of supervised
control, such as slave quarters, gang labor, and overseers, that had
characterized life under slavery. Instead, many blacks became family farmers,
often working land they rented through various sharecropping arrangements.
Meanwhile, unwilling to be second-class members of white churches, most blacks
seceded from those institutions and set up their own black churches, headed by
black ministers. Throughout the South, blacks eagerly sought the educational
opportunities that had been denied to them as slaves, and enthusiastically
supported numerous freed people's schools opened by Northern philanthropic
organizations, often with Freedmen's Bureau assistance.
From 1865 to 1867, freed people struggled
for their rights in a hostile political environment. Beginning in 1867, that
environment changed substantially, as one state after another, in conformity
with the Reconstruction Act, rewrote its laws to provide for black suffrage. The
result was the establishment in the Southern states of new Reconstruction
governments dominated by the Republican Party.
A | Republican State Governments |
These Republican governments, which
varied from state to state in composition, accomplishments, and endurance, were
based on shaky coalitions of three main groups. The smallest, although its
members often occupied key government positions, were Northerners called
carpetbaggers; these were frequently, although not always, Freedmen's Bureau
officials or other army officers who entered Southern politics. More numerous
were the so-called scalawags, the minority of Southern whites who, whether out
of principle or pragmatism, supported the Reconstruction process. (Both
“carpetbaggers” and “scalawag” were originally terms of derision used by
political opponents, but are now widely used by historians in a neutral
sense.)
By far the most important participants in
the Republican coalitions, however, were Southern blacks. Firmly committed to
the party of Lincoln, blacks provided the bulk of Republican votes. They were
increasingly active in Republican Party politics, and served at almost every
level of government, from the U.S. Congress (two senators and 14
representatives) to state legislatures, city councils, and county commissions.
In general, black officeholders were more numerous in the Deep South than in the
upper South, and more prevalent in state and local than in national government.
The largest number of black officeholders was in South Carolina, where
throughout Reconstruction they formed a majority in the state house of
representatives. Although elsewhere in the South blacks did not hold political
office in numbers equal to their proportion of the population, the image of
blacks helping to govern states that had until recently held them in bondage was
an indication of the changes that had swept the South, and a powerful symbol to
both supporters and opponents of those changes.
Supporters of the new Reconstruction
administrations saw them as bringing to the South the kind of republican
government guaranteed by the Constitution. They typically enacted laws providing
civil and political rights regardless of race and sponsored economic
development, including the construction of new railroads, that would modernize a
region long degraded by slavery. Among the most important accomplishments of the
Republican governments in the South was the establishment of public school
systems (racially segregated, except in parts of Louisiana). Until
Reconstruction few Southerners, white or black, had access to public
schools.
B | Opposition to Reconstruction |
Despite these accomplishments,
Reconstruction aroused intense opposition. Former slaveholders were bitter over
the loss of their slaves, and former Confederates, slaveholders and
nonslaveholders alike, were equally bitter over the loss of their war. Angry and
humiliated, they lashed out at the Reconstruction imposed upon them and
denounced white Republicans as traitors to their race. Uniting most Southern
whites in opposition to the Reconstruction governments was not only shared
racism, but also hostility to the steep rise in taxation to pay for newly
enacted Reconstruction programs. This rise seemed doubly burdensome in the wake
of economic hardships caused by the war.
Most white Southerners were also
convinced that Reconstruction politicians were hopelessly corrupt. In fact, the
era's corruption was not limited to either a particular ideology or geographic
region: it was widespread among members of both parties and in both North and
South. Many white Southerners, however, came to associate this corruption with
Reconstruction itself and with black politicians. These Southerners argued that
overthrowing Reconstruction would bring an end to the tyranny, oppression, and
corruption and reestablish orderly, responsible government.
IV | THE END OF RECONSTRUCTION |
The process of overthrowing Reconstruction
governments varied. Everywhere, however, Reconstruction's opponents called for
white racial unity and denounced scalawags as traitors to their race and region,
and appealed to these scalawags to come home to the “white man's party.” In
states with substantial white majorities, mainly those in the upper South,
convincing most whites to vote Democratic was enough to defeat Reconstruction, a
process that white Southerners called redemption. By 1871 Republican governments
had yielded to conservative Democratic rule in the upper South states of
Tennessee, North Carolina, and Virginia, as well as in Georgia, where Republican
mismanagement undercut what should have been a more promising political
environment for Republicans, given the large black population.
In the lower South, however, even the
defection of virtually all scalawags was not enough to ensure Republican defeat;
there, conservatives could win only by convincing some blacks either to vote
Democratic or to stay home on election day. In those states black voters were
subjected to an unprecedented level of fraud, intimidation, and violence.
Terrorist organizations—the Ku Klux Klan, which was formally suppressed in 1871,
and other Klan-like bodies that emerged—played a major role in this campaign.
Most blacks continued to vote Republican, but in states where blacks formed
about half the population, the loss of even a small fraction of black voters,
combined with fraud at the ballot box, could be decisive. Throughout the lower
South, Democrats returned to power in the mid-1870s. In the last three states to
be redeemed, South Carolina, Florida, and Louisiana, Reconstruction ended as
part of an apparent political compromise. Both Democrats and Republicans claimed
victory in those states in the elections of 1876, but leaders of the national
Republican Party agreed to recognize Democratic claims to state offices after
receiving the electoral votes of those states for Republican presidential
candidate Rutherford B. Hayes, who thereby won the election.
As Republicans had feared, Democratic
victory in the South led to a massive scaling back of Reconstruction's
accomplishments. Taxes were slashed; so too was spending on education,
especially for black schools. Throughout the South, a campaign ensued to put
blacks in “their place,” which culminated around the turn of the century when
one state after another passed laws providing for the rigid segregation of the
races and for the disfranchisement of blacks through such devices as literacy
tests, poll taxes, and political primaries that were open only to whites. These
devices prevented almost all Southern blacks and some poor whites from voting or
choosing candidates. During the first half of the 20th century, the South became
a rigidly segregated society dominated by an all-white Democratic Party.
The Reconstruction effort to transform the
South and turn freed people into citizens, although not entirely successful, was
remarkable for its time. Even an unequal freedom was very different from
slavery; the free-labor South that emerged in the late 19th century was not the
South that blacks wanted, but it was not the South that their former masters
wanted either. Despite its overthrow, Reconstruction left an important legacy:
commitment to a republican society based on equality under the law, as
exemplified in the Reconstruction-era legislation that remained on the books
even when unenforced. A century later, during the civil rights movement,
Americans, both black and white, would build on that legacy, as they renewed
their struggle for equality.
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