ple.By the very nature of government as government, the rights and privileges guaranteed to citizens are guaranteed to loyal citizens; the rights and privileges guaranteed to States are guaranteed to loyal States; and loyal citizens and loyal States are not such as profess a willingness to be loyal after having been utterly worsted in an enterprise of gigantic disloyalty. The organic unity and continuity of the government would be broken by the return of disloyal citizens and Rebel States without their going through the process of being restored by the action of the government they had attempted to subvert; and the power to restore carries with it the power to decide on the terms of restoration. And when we speak of the government, we are not courtly enough to mean by the expression simply its executive branch. The question of admitting and implicitly of restoring States, and of deciding whether or not States have a republican form of government, are matters left by the Constitution to the discretion of Congress. As to the Rebel States now claiming representation, they have succumbed, thoroughly exhausted, in one of the costliest and bloodiest wars in the history of the world,—a war which tasked the resources of the United States more than they would have been tasked by a war with all the great powers of Europe combined,—a war which, in 1862, had assumed such proportions, that the Supreme Court decided that it gave the United States the same rights and privileges which the government might exercise in the case of a national and foreign war. The inhabitants of the insurgent States being thus judicially declared public enemies as well as Rebels, there would seem to be no doubt at all that the victorious close of actual hostilities could not deprive the government of the power of deciding on the terms of peace with public enemies. The government of the United States found the insurgent States thoroughly revolutionized and disorganized, with no State governments which could be recognized without recognizing the validity of treason, and without the power or right to take even the initial steps for State reorganization. They were practically out of the Union as States; their State governments had lapsed; their population was composed of Rebels and public enemies, by the decision of the Supreme Court. Under such circumstances, how the Commander-in-Chief, under Congress, of the forces of the United States could re-create these defunct States, and make it mandatory on Congress to receive their delegates, has always appeared to us one of those mysteries of unreason which require faculties either above or below humanity to accept. In addition to this fundamental objection, there was the further one, that almost all of the delegates were Rebels presidentially pardoned into "loyal men," were elected with the idea of forcing Congress to repeal the test oath, and were incapacitated to be legislators even if they had been sent from loyal States. The few who were loyal men in the sense that they had not served the Rebel government, were still palpably elected by constituents who had; and the character of the constituency is as legitimate a subject of Congressional inquiry as the character of the representative.
It not being true, then, that the twenty-two hundred thousand loyal voters who placed Mr. Johnson in office, and whom he betrayed, have no means by their representatives in Congress to exert a controlling power in the reconstruction of the Rebel communities, the question comes up as to the conditions which Congress has imposed. It always appeared to us that the true measure of conciliation, of security, of mercy, of justice, was one which would combine the principle of universal amnesty, or an amnesty nearly universal, with that of universal, or at least of impartial suffrage. In regard to amnesty, the amendment to the Constitution which Congress has passed disqualifies no Rebels from voting, and only disqualifies them from holding office when they have hap-
