Buchanan's Betrayal of Walker of Kansas. 51 PEESIDENT JAMES BUCHANAN'S BETEAYAL OF GOVEKNOK EOBEET J. WALKEE OF KANSAS. BY GEORGE D. HARMON, Assistant Professor History, Lehigh University. During the fifties the territorial government of Kansas and the possibility of that territory being ad- mitted into the Union either as a slave or free state, according to the principle of popular sovereignly, at- tracted wide attention throughout the United States. The excitement grew until the questions concerning Kansas took precedence over all others. The year 1857 marks a decided change in the affairs of Kansas. Active civil war ceased in the fall of 1856— thanks to Governor Geary's persistent and impartial efforts. On January 12, 1857, the pro-slavery party of the territory held a large political convention in which the leaders confessed that they were in a hope- less minority and that it was useless to try to form a slave state in Kansas. Accordingly, many of the active pro-slavery leaders abandoned the struggle. The Missourians, however, had no idea of surrender- ing. AsTKey~were entrenched in the various terri- torial and county offices, they held to their positions and designs; and their efforts began to assume a dif- ferent character. They denounced the Governor in no uncertain terms* in resolutions and devised legisla- tion to further their intrigues. In February, a bill passed the territorial legislature which provided for the calling of a convention to frame a state constitu- tion. Governor Geary sent a message to the legisla- ture stating that the Kansas-Nebraska act left the bona fide inhabitants of the territory "perfectly free to forffl and regulate their own domestic institutions 52 Buchanan9s Betrayal of Walker of Kansas. in their own way"; in this message he vetoed the bill because the legislature " failed to make any provision to submit the constitution when framed to the consid- eration of the people for their ratification or rejec- tion." The act, however, was passed over the Gov- ernor's veto. As the foundation of the territorial executive's authority was gradually undermined, Geary, therefore, resigned on the day of the inaugura- tion of President Buchanan. Three successive gov- ernors, in less than three years, had been resisted, overthrown, and disgraced. Kansas had truly become the "graveyard of governors." The Kansas embroglio was tainted with violence and corruption. The Democratic party, as a result of agitation over this issue, was on the verge of dis- ruption. A new party of immense power had risen like magic and almost defeated the Democratic party in the heated campaign of 1856. The slightest mistake on the part of the administration might cause the de- feat of the Democratic party in 1860, and, what was really ominous,—if a so-called Black Republican should be elected president, the southern states would doubt- less secede. The South naturally desired and sought to retain her former political supremacy. She de- manded, at least, political equality. The balance of power in the Senate had already been lost; new slave states must, therefore, be secured. There was much agitation for the annexation of Cuba, Porto Eico, and Northern Mexico.1 With the repeal of the Missouri Compromise, the Missouri invasion of Kansas, and the Dred Scott decision, the time was apparently oppor- tune for the South to take possession of Kansas. President-elect Buchanan had always contended that the South had been wronged and he was now deter- mined that the southern people should henceforth re- 1 This was a period when there was considerable demand for expansion northward and southward, not necessarily for slavery. Buchanan's Betrayal of Walker of Kansas. 53 ceive justice, although he also seemed determined to do justice to the people of Kansas. Apparently, he failed to perceive that a change of attitude had taken place within the South. Up to the time of the repeal of the Missouri Compromise the North was the ag- gressor, but with the disappearance of the historic line of 36° 30' the South became not only the aggressor, but was militantly so. With the resignation of Governor Geary, President Buchanan tendered the governorship of Kansas to Robert J. "Walker of Mississippi, an intimate personal and political friend. He and the President had served together in Polk's cabinet; the former as Secretary of the Treasury; the latter as Secretary of State. Walker had also served with distinction as United States Sen- ator. Realizing the responsibility and danger of the appointment, Walker declined more than once to ac- cept the proferred governship. Both the President and Cabinet urged him to consent; the Chief Executive even made a personal visit to Walker's home in order to get Mrs. Walker to withdraw her objection. Walker finally agreed to accept upon two conditions: first, that General Harney should be "put in special command in Kansas with a large body of troops," and retained there subject to his military directions until peace and harmony were restored; second, that he be unopposed by the Buchanan administration in his advocacy of "the submission of the constitution to the vote of the people for ratification."2 The President and 2 Walker's Testimony, Cavode Committee Report, 105-6. On his way- West, Walker stopped at Chicago and submitted his inaugural to Stephen A. Douglas who thoroughly endorsed it. The new Governor happily believed that he had removed every obstacle to success, "and every possibility of misunderstanding or disapproved by the adminis- tration, such as had befallen his predecessors." He doubtless had; "but President Buchanan either deceived him at the beginning, or betrayed him in the end." It should also be remembered that Walker was originally from Pennsylvania but emigrated to Mississippi, so it was thought he would please the North and South. 54 Buchanan's Betrayal of Walker of Kansas. entire Cabinet acquiesced in the condition without res- ervation. Before leaving Washington, Walker wrote the larger part of his inaugural address and submitted it to the President for criticism. In this address the Governor said: "I repeat then as my clear conviction that unless the convention submit the constitution to the vote of the actual resident settlers, and the elec- tion be fairly and justly conducted, the Constitution will be and ought to be rejected by Congress." The President approved the address and Secretary Cass wrote his official instructions in accordance with it. The question arises, How far did Buchanan act in harmony with his pledge to Walker and this endorse- ment of the latter's program? Governor Walker arrived in Kansas late in April. He was soon convinced that any idea of creating a slave state out of that territory was preposterous. Al- though popular sentiment and climatic conditions favored the cause of freedom, he nevertheless desired to make Kansas safe for the Democratic party; '' and the only plan to accomplish this was to unite the Iree- state Democrats with the pro-slavery party . .. against the more violent portion of the Republicans."3 Walker, therefore, entreated the free-state men to take part 8 Walker's Testimony, Cavode Committee Report > 107. Frederick P. Stanton of Tennessee, formerly a representative in Congress, a man of talent and courage, was made secretary. He pre- ceded Walker to the territory and began his labors at once. The new Governor and Secretary were from slave states, so the South doubtless believed the slavery question was safe in their hands. Walker favored the cause of the South first and the Democratic party second. He believed in the balance of power theory; he preferred Kansas to be admitted as a slave state in order to give the South a majority in the United States Senate, while the North would have a majority in the House. Both Walker and Stanton entered upon their duties with the feelings entertained by President Buchanan, the Cabinet, and a majority of the Democrats themselves, that the free-state men were a mischievous faction, willfully disturbing the peace and defying the laws. Gradually the Governor and Secretary, by personal observation, were convinced of their error. Buchanan's Betrayal of Walker of Kansas. 55 in the election of delegates to the constitutional con- vention; he promised them in his inaugural address, which was based upon the President's instructions, that such an election should be free from fraud and violence; the delegates should be protected in their deliberations; and if unsatisfactory, by a subsequent vote, the ratification of the work of the convention could be withheld.4 A few days after the inaugural the Governor pro- ceeded to Topeka, where a mass meeting of the free- state men was called to support the "insurrectionary" free-state legislature elected under the Topeka Con- stitution. After the adjournment of the mass meeting, its members called on Walker; he made a fervent speech to them in which he renewed the recommenda- tions and promises of his inaugural address.5 This appeal failed in its main objective: The free-state people remained firm in their resolve to have nothing to do with the proceedings under the bogus laws of the territorial legislature. Nevertheless Walker's promise of a fair vote on the constitution did produce a pro- found effect: It caused the free soilers "to vote down by a large majority the resolutions prepared by the more violent of their own party in favor of a complete state organization and the adoption of a code of state laws,''—but they did not abandon entirely the Topeka movement. On the 2nd and 3rd of July, the pro-slavery party of the territory met in convention at Lecompton. They acknowledged the utter hopelessness of making Kansas a slave state, indorsed the Governor's policy, and a resolution "against the submission of the constitution 4 Walker's Inaugural, May 27, 1857.