closed, a general review of the work done and a condensed report of the results attained seem to be called for. Previous to the establishment of this Bureau, and early in the progress of the war, it was seen by intelligent military officers, and by statesmen in Washington, that the condition of the colored people set free by the army demanded earnest attention and wise consideration. In February, 1862, General T. W. Sherman issued an order* appealing to the benevolent and philanthropic people of the land in behalf of the helpless blacks of South Carolina within the limits of his command. He not only begs for contributions of clothing and other necessaries of life, but says: "To relieve the government of a burden that may hereafter become insupportable, and to enable the blacks to support and govern themselves in the absence and abandonment of their disloyal guardians, a suitable system of culture and instruction must be combined with one providing for their physical wants." Similar urgent appeals were made by Commodore Du Pont and others, the demands for help increasing, as the territory occupied by our forces was enlarged. A deep interest was aroused in the northern States, and very soon several relief associations were organized for the purpose of collecting and forwarding supplies and supporting teachers, preachers, and superintend ents of labor. The President and the Secretaries of War and of the Treasury heartily approved these efforts, and gave such aid as their limited powers would permit. The first important expedition was the sailing of about sixty (60) volunteer laborers, among whom were Mrs. Senator Harlan and fifteen (15) other ladies, on the 3d of March, 1862, upon the steamer Atlantic, laden with army stores for our troops at Port Royal, S. C. This company of teachers and superintendents of labor, under charge of E. L. Pierce, esq., of Boston, and Rev. Mansfield French, accomplished a very good work on the islands along the coast of South Carolina. They distributed food and clothing, nursed the sick, systematized labor, and organized schools. During the first year they furnished ninety-one thousand eight hundred and thirty-four (91,834) garments, thirty-five thousand eight hundred and twenty-nine (35,829) books and pamphlets, five thousand eight hundred and ninetyfive (5,895) yards of cloth, three thousand dollars ($3,000) worth of farming implements and seeds, and had about three thousand (3,000) scholars under instruction. Similar efforts were made in 1862 along the Atlantic coast from the District of Columbia to Florida. In 1863 General Grant appointed Rev. A. S. Fiske, chaplain, superintendent of contrabands in his department, and ordered him north to obtain relief for more than fifty thousand (50,000) starving refugees on the banks of the Mississippi. A quick response was given to his appeals, and generous gifts of clothing and money were placed at his disposal. But it was evident to thinking men that these noble, benevolent efforts could not fully meet the demands of the times. The numerous societies organized were local and acted independently of each other. general plan was needed, and unity of action, with a central directing power, and larger means than could be furnished by private charities. On the 12th of January, 1863, a bill was presented in the House of Representatives to establish "a Bureau of Emancipation." It met with much opposition, but finally a substitute for the original bill, entitled "An Act to establish a Bureau for the relief of Freedmen and Refugees," was passed, and became a law on the 3d of March, 1865. I was * General Orders No. 9, Department of the South. assigned to duty as Commissioner of this Bureau May 12, 1865,* and on the 15th entered upon my duties and began the work of organization. The law establishing the Bureau committed to it "the control of all subjects relating to refugees and freedmen from rebel States, under such rules and regulations as may be prescribed by the head of the Bureau and approved by the President." This almost unlimited authority gave me great scope and liberty of action, but at the same time it imposed upon me very perplexing and responsible duties. Legislative, judicial, and executive powers were combined in my commission, reaching all the interests of four millions of people, scattered over a vast territory, living in the midst of another people claiming to be superior, and known to be not altogether friendly. It was impossible at the outset to do more than lay down a few general principles to guide the officers assigned as assistant commissioners in the several States. These officers were men of well-tried character, and to them was committed to a considerable extent the task of working out the details of organization in accordance with the different states of affairs in their respective districts. No one minute system of rules could have been rigidly adhered to and applied in every part of the southern country. I therefore set forth clearly the objects to be attained and the powers which the Bureau could legally exercise, and left it to my subordinates to devise suitable measures for effecting these objects. The first reports received from these officers present a sad picture of want and misery. Though large sums of money had been contributed by generous northern people; though many noble-hearted men and wo men, with the spirit of true Christian missionaries, had engaged zeal ously in the work of relief and instruction; though the heads of depart ments in Washington, and military commanders in the field, had done all in their power; yet the great mass of the colored people, just freed from slavery, had not been reached. In every State many thousands were found without employment, without homes, without means of subsistence, crowding into towns and about military posts, where they hoped to find protection and supplies. The sudden collapse of the rebellion, making emancipation an actual, universal fact, was like an earthquake. It shook and shattered the whole social system. It broke up the old industries and threatened a reign of anarchy. Even the well-disposed and humane land owners were at a loss what to do, or how to begin the work of reorganizing society, and of rebuilding their ruined fortunes. Very few had any knowledge of free labor, or any hope that their former slaves would serve them faithfully for wages. On the other hand, the freed people were in a state of great excitement and uncertainty. They could hardly believe that the liberty proclaimed was real and permanent. Many were afraid to remain on the same soil that they had tilled as slaves, lest by some trick they might find themselves again in bondage. Others supposed that the government would either take the entire supervision of their labor and support, or divide among them the lands of conquered rebels, and furnish them with all that might be necessary to begin life as independent farmers. In such an unsettled state of affairs it was no ordinary task to inspire hostile races with mutual confidence, to supply the immediate wants of the sick and starving, to restore social order, and to set in motion all the wheels of industry. *General Orders No. 91, War Department, A. G. O., May 12, 1855. + See circular No. 2, War Department, Bureau R. F. and A. L., May 19, 1865. Circular No. 5, War Department, Bureau R. F. and A. L., Washington, D. C., May 30, 1865. It was necessary at the outset to attend to the physical wants of those who were actually suffering. The sick, infirm old men and women, forsaken by their former owners, and helpless orphans, too young to earn their support, formed the most pitiable class. I found some hospitals and asylums already in existence, and in the valley of the Mississippi a systematic plan of relief for the destitute sick had been adopted, conformed mainly to the hospital system of the army, by which assistance was given to over seventeen thousand (17,000) persons. In this district also a complete relief system was in operation, which had furnished, in 1864, medical attendance and medicines to six thousand nine hundred and twenty-nine (6,929) patients. It was only necessary, therefore, to increase the number and capacity of these hospitals and asylums, so as to meet the necessities of refugees and freedmen in all parts of the country. The Surgeon General cordially aided by detailing surgeons and furnishing medical supplies, and during the first year of the operations of the Bureau the death rate among freedmen was reduced from thirty per cent. to less than four per cent. During the first three months after the organization of this relief system, the number of refugees and freedmen receiving medical treatment was forty-eight thousand four hundred and twenty-nine, (48,429.) In the next ten months, i. e., up to August 31, 1866, the number of patients was one hundred and sixty-six thousand five hundred and twenty-one, (166,521.) The number of hospitals existing during that period was fifty-six, (56,) and of orphan asylums five, (5.) During the ten months ending June, 1867, the number of patients was one hundred and forty-four thousand one hundred and forty-nine, (144,149.) In the next year, ending June 30, 1868, the number treated was one hundred and fifty-nine thousand one hundred and forty-nine, (159,149,) and in the last year, ending June 30, 1869, the number was sixty-five thousand nine hundred and thirty, (65,930.) Thus it will be seen that since its organization the Bureau has had under its care no less than five hundred and eighty-four thousand one hundred and seventy-eight (584,178) sick and infirm persons, for whom no provision was made by local authorities, and who had no means themselves of procuring the attendance and comforts necessary to health and life. It has not been possible to provide for the proper treatment of the nsane. For some of this unfortunate class admission has been gained to the State asylums, but the majority have been of necessity retained in the Bureau hospitals, and all that could be done for them was to supply them with food and clothing and prevent them from doing injury. For more than a year the great aim has been to relieve the government by transferring to the civil authorities all these dependent classes for future care and treatment. To this end medicines and hospital stores have been furnished as an outfit, where State or municipal governments have consented to assume charge of destitute sick and disabled freedmen within their own borders. By means of this aid, and by patient and persistent effort, the hospitals, at one time numbering fifty-six, (56,) have been reduced to two, (2,) and one (1) of these is about being closed.* There will then remain one (1) freedmen's hospital in this district, which cannot at present be dispensed with, and whose continuance for some years humanity and necessity will require. In addition to the sick, many others were destitute and required aid. To relieve this destitution without encouraging pauperism and idleness was a difficult problem. I found, when I took charge of this work, that very large issues of rations and clothing were being made by military ** For tabular statement of commissary supplies issued, see Appendix B. commanders. The number of persons relieved by the Commissary department in the month of August, 1865, was one hundred and fortyeight thousand one hundred and twenty, (148,120,) and many freedmen and poor whites seemed to expect permanent support from this source. But in the succeeding month, when the Bureau had been sufficiently organized to take the entire supervision of this gratuitous relief, by a rigid examination of every applicant, and by the rejection of all who could support themselves by labor, the number assisted was reduced to seventy-four thousand nine hundred and fifty-one, (74,951.) And from that date a constant reduction was made, so that the average number of rations issued per day during the year ending September 1, 1866, was twenty-nine thousand eight hundred and nineteen, (29,819,) and during the year ending September 1, 1867, eleven thousand six hundred and fiftyeight (11,658) in this district and throughout all the southern States. These supplies were given to none but the helpless destitute classes of refugees and freedmen, the sick, the very old, and orphans too young to earn their own support. I did not feel authorized to furnish relief to other classes. And when, early in 1867, very urgent appeals for help came up from many industrious laborers who were reduced to the verge of starvation, the subject was laid before Congress, and by joint resolu tion approved March 30, 1867, the Secretary of War was "directed to issue, through this Bureau, supplies of food sufficient to prevent starvation and extreme want, to any and all classes of destitute or helpless persons in those southern and southwestern States where failure of the crops and other causes have occasioned widespread destitution.” In accordance with this resolution five hundred thousand ($500,000) dollars were set apart as a special relief fund,* and food was given to fiftyeight thousand three hundred and forty-three (58,343) persons daily for a period of four months, no distinction being made between whites and blacks, loyal and disloyal. Adding these to the number of refugees and freedmen before given, the average number of persons daily assisted in the year ending September 1, 1867, was thirty-one thousand one hundred and five, (31,105.) During the next year, ending September 1, 1868, the average number assisted was sixteen thousand eight hundred and four, (16,804;) and during the last year, ending September 1, 1869, the average number has beent one thousand nine hundred and eighty-three, (1,983,) many of whom were children receiving half rations only. Dur ing the same period clothing has been purchased and distributed among the destitute at a cost of two hundred and fifty-two thousand five hundred and forty-seven dollars and thirty-five cents, ($252,547 35.) In addition to this, a large amount of army clothing, condemned as unfit for issue to troops, was transferred to this Bureau by the Quartermaster's Department and given to the poor and needy. This exhibit of rations and clothing furnished shows that the Bureau has not been a pauperizing agency. It has not encouraged idleness and vagrancy. It has not existed for the benefit of able-bodied beggars. The wonder is not that so many, but that so few, have needed help; that of the four millions of people thrown suddenly upon their own resources only one in about two hundred has been an object of public charity; and nearly all who have received aid have been persons who, by reason of age, infirmity, or disease, would be objects of charity in any State and at any time. It would have been impossible to reach such satisfactory results, and reduce the issue of supplies to so small proportions, had not employment For report of the chief medical officer, and tabular statement, see Appendix A. + See Circular No. 11, War Department, Bureau of Refugees, Freedmen and Abandoned Lands, April 3, 1867. been found for a great multitude of able-bodied men and women, who, when first set free, knew not where to look for remunerative labor. I believed that the demand for labor was sufficient, and that the freedmen were willing to work. The majority of planters were anxious to cultivate their lands, and their former slaves were equally anxious to earn an honest living. But each class naturally distrusted the other. The one feared to incur the risk and expense of planting without some secu rity stronger than the stimulus of promised wages, that hired labo could be depended upon as permanent. The other very naturally feared to trust the intentions and promises of men who had always reaped the fruits of unpaid toil. I was appealed to for a settlement of this great labor question. Letters from all parts of the country besought me and my assistant commissioners to enforce a specific rate of wages, and to exercise power in one way or another over the laborer to compel him to work. All such appeals were resisted. Officers and agents of the Bureau were instructed* to do all in their power to remove prejudice, to restore mutual confidence, and to quicken and direct the industry of the people. At the same time they were cautioned against giving countenance to any substitute for slavery. "Negroes must be free to choose their employers." "No fixed rate of wages will be prescribed, but the law of supply and demand must govern." "No substitute for slavery, like apprenticeship, without proper consent, or peonage, will be tolerated."t While the rights of the freedmen were thus proclaimed in printed circulars and public addresses, care was also taken to instruct them in respect to their duties. They were assisted in finding good places and in making fair bargains. To secure fairness and inspire confidence on both sides, the system of written contracts was adopted. No compulsion was used, but all were advised to enter into written agreements and submit them to an officer of the Bureau for approval. The nature and obligations of these contracts were carefully explained to the freedmen, and a copy filed in the office of the agent approving it, for their use in case any difficulty should arise between them and their employers. The labor imposed upon my officers and agents by this system was very great, as is evinced by the fact that in a single State not less than fifty thousand (50,000) such contracts were drawn in duplicate and filled up with the names of all the parties. But the result has been highly satisfactory. To the freedman, the Bureau office in this way became a school in which he learned the first practical business lessons of life, and from year to year he has made rapid progress in this important branch of education. Nor can it be doubted that much litigation and strife were prevented. It could not be expected that such vast and complicated machinery would work without friction. The interests of capital and labor very often clash in all communities. The South has not been entirely exempt from troubles of this kind. Some employers have been dishonest and have attempted to defraud the freedmen of just wages. Some laborers have been unfaithful and unreasonable in their demands. But in the great majority of cases brought before the Bureau for settlement, the trouble and misunderstanding have arisen from vague verbal bargains and a want of specific written contracts. A few quotations from the reports of assistant commissioners will show that even in such an unfavorable condition of affairs as the late rebel States presented, free labor under the contract plan has proved a success. "In those districts where good wages have been paid no difficulty has been found in See Circular No. 5, War Department, Bureau Refugees, Freedmen and Abandoned Lands, May 30, 1865. + See Circi lar No. 11, War Department, Bureau Refugees Freedmen and Abandoned Lands, July 12, 1865. |