who had migrated from the
South, were not as a rule of the slave-holding class. Those who
possessed slaves shrank from risking their property in Kansas, until
its future were settled.[545] Eventually, the climate was to prove an
even greater obstacle to the transplantation of the slave-labor system
into Kansas.

Foiled in their hope of winning the territorial legislature, the
free-State settlers in Kansas resolved upon a hazardous course.
Believing the legislature an illegal body, they called a convention to
draft a constitution with which they proposed to apply for admission
to the Union as a free State. Robinson, the leader of the free-State
party, was wise in such matters by reason of his experience in
California. Reeder, who had been displaced as governor and had gone
over to the opposition, lent his aid to the project; and
ex-Congressman Lane, formerly of Indiana, gave liberally of his
vehement energy to the cause. After successive conventions in which
the various free-State elements were worked into a fairly consistent
mixture, the Topeka convention launched a constitution and a
free-State government. Unofficially the supporters of the new
government took measures for its defense. In the following spring,
Governor Robinson sent his first message to the State legislature in
session at Topeka; and Reeder and Lane were chosen senators for the
inchoate Commonwealth.[546]

Meantime Governor Shannon had succeeded Reeder as executive of the
territorial government at Shawnee Mission. The aspect of affairs was
ominous. Popular sovereignty had ended in a dangerous dualism. Two
governments confronted each other in bitter hostility. There were
untamed individuals in either camp, who were not averse to a decision
by wager of battle.[547]

Such was the situation in Kansas, when Douglas reached Washington in
February, after a protracted illness.[548] The President had already
discussed the Kansas imbroglio in a special message; but the
Democratic majority in the Senate showed some reluctance to follow the
lead of the administration. From the Democrats in the House not much
could be expected, because of the strength of the Republicans. The
party awaited its leader. Upon his appearance, all matters relating to
Kansas were referred to the Committee on Territories. The situation
called for unusual qualities of leadership. How would the author of
the Kansas-Nebraska Act face the palpable breakdown of his policy?

With his cust