use of Representatives, in the Cabinet,
in the Federal courts; ministers and consuls returned from foreign
countries to enter the insurrectionary councils or land or naval forces;
commanding and other officers of the Army and in the Navy betrayed our
councils or deserted their posts for commands in the insurgent forces.
Treason was flagrant in the revenue and in the post-office service, as
well as in the Territorial governments and in the Indian reserves.

Not only governors, judges, legislators, and ministerial officers in the
States, but even whole States rushed one after another with apparent
unanimity into rebellion. The capital was besieged and its connection
with all the States cut off.

Even in the portions of the country which were most loyal political
combinations and secret societies were formed furthering the work of
disunion, while, from motives of disloyalty or cupidity or from excited
passions or perverted sympathies, individuals were found furnishing men,
money, and materials of war and supplies to the insurgents' military and
naval forces. Armies, ships, fortifications, navy-yards, arsenals,
military posts, and garrisons one after another were betrayed or
abandoned to the insurgents.

Congress had not anticipated, and so had not provided for, the
emergency. The municipal authorities were powerless and inactive. The
judicial machinery seemed as if it had been designed, not to sustain the
Government, but to embarrass and betray it.

Foreign intervention, openly invited and industriously instigated by the
abettors of the insurrection, became imminent, and has only been
prevented by the practice of strict and impartial justice, with the most
perfect moderation, in our intercourse with nations.

The public mind was alarmed and apprehensive, though fortunately not
distracted or disheartened. It seemed to be doubtful whether the Federal
Government, which one year before had been thought a model worthy of
universal acceptance, had indeed the ability to defend and maintain
itself.

Some reverses, which, perhaps, were unavoidable, suffered by newly
levied and inefficient forces, discouraged the loyal and gave new hopes
to the insurgents. Voluntary enlistments seemed about to cease and
desertions commenced. Parties speculated upon the question whether
conscription had not become necessary to fill up the armies of the
United States.

In this emergency the President felt it his duty to employ with energy
the