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The Freedmen's Bureau
by W. E. Burghardt Du Bois

The online version of this article appears in two parts. Click here to go to part two.

THE problem of the twentieth century is the problem of the color line; the relation of the darker to the lighter races of men in Asia and Africa, in America and the islands of the sea. It was a phase of this problem that caused the Civil War; and however much they who marched south and north in 1861 may have fixed on the technical points of union and local autonomy as a shibboleth, all nevertheless knew, as we know, that the question of Negro slavery was the deeper cause of the conflict. Curious it was, too, how this deeper question ever forced itself to the surface, despite effort and disclaimer. No sooner had Northern armies touched Southern soil than this old question, newly guised, sprang from the earth, -- What shall be done with slaves? Peremptory military commands, this way and that, could not answer the query; the Emancipation Proclamation seemed but to broaden and intensify the difficulties; and so at last there arose in the South a government of men called the Freedmen's Bureau, which lasted, legally, from 1865 to 1872, but in a sense from 1861 to 1876, and which sought to settle the Negro problems in the United States of America.

It is the aim of this essay to study the Freedmen's Bureau, -- the occasion of its rise, the character of its work, and its final success and failure, -- not only as a part of American history, but above all as one of the most singular and interesting of the attempts made by a great nation to grapple with vast problems of race and social condition.
From the archives:

"Strivings of the Negro People," by W.E.B. Du Bois (August, 1897)
"Then it dawned upon me with a certain suddenness that I was different from the others; or like, mayhap, in heart and life and longing, but shut out from their world by a vast veil."

"A Negro Schoolmaster in the New South," by W.E.B. Du Bois (January, 1899)
"Once upon a time I taught school in the hills of Tennessee, where the broad dark vale of the Mississippi begins to roll and crumple to greet the Alleghanies."

"W.E.B. Du Bois," by Ralph McGill (November, 1965)
An interview with the ninety-five-year-old Du Bois.

No sooner had the armies, east and west, penetrated Virginia and Tennessee than fugitive slaves appeared within their lines. They came at night, when the flickering camp fires of the blue hosts shone like vast unsteady stars along the black horizon: old men, and thin, with gray and tufted hair; women with frightened eyes, dragging whimpering, hungry children; men and girls, stalwart and gaunt, -- a horde of starving vagabonds, homeless, helpless, and pitiable in their dark distress. Two methods of treating these newcomers seemed equally logical to opposite sorts of minds. Said some, "We have nothing to do with slaves." " Hereafter," commanded Halleck, "no slaves should be allowed to come into your lines at all; if any come without your knowledge, when owners call for them, deliver them." But others said, "We take grain and fowl; why not slaves?" Whereupon Fremont, as early as August, 1861, declared the slaves of Missouri rebels free. Such radical action was quickly countermanded, but at the same time the opposite policy could not be enforced; some of the black refugees declared themselves freemen, others showed their masters had deserted them, and still others were captured with forts and plantations. Evidently, too, slaves were a source of strength to the Confederacy, and were being used as laborers and producers. "They constitute a military resource," wrote the Secretary of War, late in 1861; "and being such, that they should not be turned over to the enemy is too plain to discuss." So the tone of the army chiefs changed, Congress forbade the rendition of fugitives, and Butler's "contrabands" were welcomed as military laborers. This complicated rather than solved the problem, for now the scattering fugitives became a steady stream, which flowed faster as the armies marched.

Then the long-headed man, with care-chiseled face, who sat in the White House, saw the inevitable, and emancipated the slaves of rebels on New Year's, 1863. A month later Congress called earnestly for the Negro soldiers whom the act of July, 1862, had half grudgingly allowed to enlist. Thus the barriers were leveled, and the deed was done. The stream of fugitives swelled to a flood, and anxious officers kept inquiring: "What must be done with slaves arriving almost daily? Am I to find food and shelter for women and children?"

It was a Pierce of Boston who pointed out the way, and thus became in a sense the founder of the Freedmen's Bureau. Being specially detailed from the ranks to care for the freedmen at Fortress Monroe, he afterward founded the celebrated Port Royal experiment and started the Freedmen's Aid Societies. Thus, under the timid Treasury officials and bold army officers, Pierce's plan widened and developed. At first, the able-bodied men were enlisted as soldiers or hired as laborers, the women and children were herded into central camps under guard, and "superintendents of contrabands " multiplied here and there. Centres of massed freedmen arose at Fortress Monroe, Va., Washington, D. C., Beaufort and Port Royal, S. C., New Orleans, La., Vicksburg and Corinth, Miss., Colombus, Ky., Cairo, Ill., and elsewhere, and the army chaplains found here new and fruitful fields.

Then came the Freedmen's Aid Societies, born of the touching appeals for relief and help from these centres of distress. There was the American Missionary Association, sprung from the Amistad, and now full grown for work, the various church organizations, the National Freedmen's Relief Association, the American Freedmen's Union, the Western Freedmen's Aid Commission, -- in all fifty or more active organizations, which sent clothes, money, schoolbooks, and teachers southward. All they did was needed, for the destitution of freedmen was often reported as "too appalling for belief," and the situation was growing daily worse rather than better. And daily, too, it seemed more plain that this was no ordinary matter of temporary relief, but a national crisis; for there loomed a labor problem of vast dimensions. Masses of Negroes stood idle, or, if they worked spasmodically, were never sure of pay; and if perchance they received pay, squandered the new thing thoughtlessly. In these and in other ways were camp life and the new liberty demoralizing the freedmen. The broader economic organization thus clearly demanded sprang up here and there as accident and local conditions determined. Here again Pierce's Port Royal plan of leased plantations and guided workmen pointed out the rough way. In Washington, the military governor, at the urgent appeal of the superintendent, opened confiscated estates to the cultivation of the fugitives, and there in the shadow of the dome gathered black farm villages. General Dix gave over estates to the freedmen of Fortress Monroe, and so on through the South. The government and the benevolent societies furnished the means of cultivation, and the Negro turned again slowly to work. The systems of control, thus started, rapidly grew, here and there, into strange little governments, like that of General Banks in Louisiana, with its 90,000 black subjects, its 50,000 guided laborers, and its annual budget of $100,000 and more. It made out 4000 pay rolls, registered all freedmen, inquired into grievances and redressed them, laid and collected taxes, and established a system of public schools. So too Colonel Eaton, the superintendent of Tennessee and Arkansas, ruled over 100,000, leased and cultivated 7000 acres of cotton land, and furnished food for 10,000 paupers. In South Carolina was General Saxton, with his deep interest in black folk. He succeeded Pierce and the Treasury officials, and sold forfeited estates, leased abandoned plantations, encouraged schools, and received from Sherman, after the terribly picturesque march to the sea, thousands of the wretched camp followers.

Three characteristic things one might have seen in Sherman's raid through Georgia, which threw the new situation in deep and shadowy relief: the Conqueror, the Conquered, and the Negro. Some see all significance in the grim front of the destroyer, and some in the bitter sufferers of the lost cause. But to me neither soldier nor fugitive speaks with so deep a meaning as that dark and human cloud that clung like remorse on the rear of those swift columns, swelling at times to half their size, almost engulfing and choking them. In vain were they ordered back, in vain were bridges hewn from beneath their feet; on they trudged and writhed and surged, until they rolled into Savannah, a starved and naked horde of tens of thousands. There too came the characteristic military remedy: "The islands from Charleston south, the abandoned rice fields along the rivers for thirty miles back from the sea, and the country bordering the St. John's River, Florida, are reserved and set apart for the settlement of Negroes now made free by act of war." So read the celebrated field order.

All these experiments, orders, and systems were bound to attract and perplex the government and the nation. Directly after the Emancipation Proclamation, Representative Eliot had introduced a bill creating a Bureau of Emancipation, but it was never reported. The following June, a committee of inquiry, appointed by the Secretary of War, reported in favor of a temporary bureau for the "improvement, protection, and employment of refugee freedmen," on much the same lines as were afterward followed. Petitions came in to President Lincoln from distinguished citizens and organizations, strongly urging a comprehensive and unified plan of dealing with the freedmen, under a bureau which should be "charged with the study of plans and execution of measures for easily guiding, and in every way judiciously and humanely aiding, the passage of our emancipated and yet to be emancipated blacks from the old condition of forced labor to their new state of voluntary industry."

Some half-hearted steps were early taken by the government to put both freedmen and abandoned estates under the supervision of the Treasury officials. Laws of 1863 and 1864 directed them to take charge of and lease abandoned lands for periods not exceeding twelve months, and to "provide in such leases or otherwise for the employment and general welfare" of the freedmen. Most of the army officers looked upon this as a welcome relief from perplexing "Negro affairs"; but the Treasury hesitated and blundered, and although it leased large quantities of land and employed many Negroes, especially along the Mississippi, yet it left the virtual control of the laborers and their relations to their neighbors in the hands of the army.

In March, 1864, Congress at last turned its attention to the subject, and the House passed a bill, by a majority of two, establishing a Bureau for Freedmen in the War Department. Senator Sumner, who had charge of the bill in the Senate, argued that freedmen and abandoned lands ought to be under the same department, and reported a substitute for the House bill, attaching the Bureau to the Treasury Department. This bill passed, but too late for action in the House. The debates wandered over the whole policy of the administration and the general question of slavery, without touching very closely the specific merits of the measure in hand.

Meantime the election took place, and the administration, returning from the country with a vote of renewed confidence, addressed itself to the matter more seriously. A conference between the houses agreed upon a carefully drawn measure which contained the chief provisions of Charles Sumner's bill, but made the proposed organization a department independent of both the War and Treasury officials. The bill was conservative, giving the new department "general superintendence of all freedmen." It was to "establish regulations" for them, protect them, lease them lands, adjust their wages, and appear in civil and military courts as their "next friend." There were many limitations attached to the powers thus granted, and the organization was made permanent. Nevertheless, the Senate defeated the bill, and a new conference committee was appointed. This committee reported a new bill, February 28, which was whirled through just as the session closed, and which became the act of 1865 establishing in the War Department a "Bureau of Refugees, Freedmen, and Abandoned Lands." This last compromise was a hasty bit of legislation, vague and uncertain in outline. A Bureau was created, "to continue during the present War of Rebellion, and for one year thereafter," to which was given "the supervision and management of all abandoned lands, and the control of all subjects relating to refugees and freedmen," under "such rules and regulations as may be presented by the head of the Bureau and approved by the President." A commissioner, appointed by the President and Senate, was to control the Bureau, with an office force not exceeding ten clerks. The President might also appoint assistant commissioners in the seceded states, and to all these offices military officials might be detailed at regular pay. The Secretary of War could issue rations, clothing, and fuel to the destitute, and all abandoned property was placed in the hands of the Bureau for eventual lease and sale to ex-slaves in forty-acre parcels.

Thus did the United States government definitely assume charge of the emancipated Negro as the ward of the nation. It was a tremendous undertaking. Here, at a stroke of the pen, was erected a government of millions of men, -- and not ordinary men, either, but black men emasculated by a peculiarly complete system of slavery, centuries old; and now, suddenly, violently, they come into a new birthright, at a time of war and passion, in the midst of the stricken, embittered population of their former masters. Any man might well have hesitated to assume charge of such a work, with vast responsibilities, indefinite powers, and limited resources. Probably no one but a soldier would have answered such a call promptly; and indeed no one but a soldier could be called, for Congress had appropriated no money for salaries and expenses.

Less than a month after the weary emancipator passed to his rest, his successor assigned Major General Oliver O. Howard to duty as commissioner of the new Bureau. He was a Maine man, then only thirty-five years of age. He had marched with Sherman to the sea, had fought well at Gettysburg, and had but a year before been assigned to the command of the Department of Tennessee. An honest and sincere man, with rather too much faith in human nature, little aptitude for systematic business and intricate detail, he was nevertheless conservative, hard-working, and, above all, acquainted at first-hand with much of the work before him. And of that work it has been truly said, "No approximately correct history of civilization can ever be written which does not throw out in bold relief, as one of the great landmarks of political and social progress, the organization and administration of the Freedmen's Bureau."

On May 12, 1865, Howard was appointed, and he assumed the duties of his office promptly on the 15th, and began examining the field of work. A curious mess he looked upon: little despotisms, communistic experiments, slavery, peonage, business speculations, organized charity, unorganized almsgiving, -- all reeling on under the guise of helping the freedman, and all enshrined in the smoke and blood of war and the cursing and silence of angry men. On May 19 the new government -- for a government it really was -- issued its constitution; commissioners were to be appointed in each of the seceded states, who were to take charge of "all subjects relating to refugees and freedman," and all relief and rations were to be given by their consent alone. The Bureau invited continued cooperation with benevolent societies, and declared, "It will be the object of all commissioners to introduce practicable systems of compensated labor," and to establish schools. Forthwith nine assistant commissioners were appointed. They were to hasten to their fields of work; seek gradually to close relief establishments, and make the destitute self- supporting; act as courts of law where there were no courts, or where Negroes were not recognized in them as free; establish the institution of marriage among ex- slaves, and keep records; see that freedmen were free to choose their employers, and help in making fair contracts for them; and finally, the circular said, "Simple good faith, for which we hope on all hands for those concerned in the passing away of slavery, will especially relieve the assistant commissioners in the discharge of their duties toward the freedmen, as well as promote the general welfare."

No sooner was the work thus started, and the general system and local organization in some measure begun, than two grave difficulties appeared which changed largely the theory and outcome of Bureau work. First, there were the abandoned lands of the South. It had long been the more or less definitely expressed theory of the North that all the chief problems of emancipation might be settled by establishing the slaves on the forfeited lands of their masters, -- a sort of poetic justice, said some. But this poetry done into solemn prose meant either wholesale confiscation of private property in the South, or vast appropriations. Now Congress had not appropriated a cent, and no sooner did the proclamations of general amnesty appear than the 800,000 acres of abandoned lands in the hands of the Freedmen's Bureau melted quickly away. The second difficulty lay in perfecting the local organization of the Bureau throughout the wide field of work. Making a new machine and sending out officials of duly ascertained fitness for a great work of social reform is no child's task; but this task was even harder, for a new central organization had to be fitted on a heterogeneous and confused but already existing system of relief and control of ex- slaves; and the agents available for this work must be sought for in an army still busy with war operations, -- men in the very nature of the case ill fitted for delicate social work, -- or among the questionable camp followers of an invading host. Thus, after a year's work, vigorously as it was pushed, the problem looked even more difficult to grasp and solve than at the beginning. Nevertheless, three things that year's work did, well worth the doing: it relieved a vast amount of physical suffering; it transported 7000 fugitives from congested centres back to the farm; and, best of all, it inaugurated the crusade of the New England schoolma'am.

The annals of this Ninth Crusade are yet to be written, the tale of a mission that seemed to our age far more quixotic than the quest of St. Louis seemed to his. Behind the mists of ruin and rapine waved the calico dresses of women who dared, and after the hoarse mouthings of the field gangs rang the rhythm of the alphabet. Rich and poor they were, serious and curious. Bereaved now of a father, now of a brother, now of more than these, they came seeking a life work in planting New England schoolhouses among the white and black of the South. They did their work well. In that first year they taught 100,000 souls, and more.

The online version of this article appears in two parts. Click here to go to part two.

The Atlantic Monthly; March 1901; The Freedmen's Bureau; Volume 87, No. 519; pages 354 - 365.
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