actics, admirable as they both were. But the government believed it
wisest to adopt a conciliatory and, in many respects, a temporizing
policy, and to rely more on weakening the secessionists in their
respective States than on strengthening the hands and hearts of its own
staunch and uncompromising supporters. It must strengthen the Union
party in the insurrectionary States, and as this party hoped to succeed
by political manipulation rather than by military force, the government
must rely rather on a show of military power than on gaining any
decisive battle. As it hoped, or affected to hope, to suppress the
rebellion in the States that seceded through their loyal citizens, it
was obliged to assume that secession was the work of a faction, of a
few ambitious and disappointed politicians, and that the States were
all in the Union, and continued in the loyal portion of their
inhabitants. Hence its aid to the loyal Virginians to organize as the
State of Virginia, and its subsequent efforts to organize the Union men
in Louisiana, Arkansas, and Tennessee, and its disposition to recognize
their organization in each of those States as the State itself, though
including only a small minority of the territorial people. Had the
facts been as assumed, the government might have treated the loyal
people of each State as the State itself, without any gross usurpation
of power; but, unhappily, the facts assumed were not facts, and it was
soon found that the Union party in all the States that seceded, except
the western part of Virginia and the eastern section of Tennessee,
after secession had been carried by the popular vote, went almost
unanimously with the secessionists; for they as well as the
secessionists held the doctrine of State sovereignty; and to treat the
handful of citizens that remained loyal in each State as the State
itself, became ridiculous, and the government should have seen and
acknowledged it.

The rebellion being really territorial, and not personal, the State
that seceded was no more continued in the loyal than in the disloyal
population. While the war lasted, both were public enemies of the
United States, and neither had or could have any rights as a State in
the Union. The law recognizes a solidarity of all the citizens of a
State, and assumes that, when a State is at war, all its citizens are
at war, whether approving the war or not. The loyal people in the
States that seceded incurred none of the pa