Peace Conference at Hampton Roads

February 3, 1865 – President Abraham Lincoln and Secretary of State William H. Seward met with three Confederate envoys to discuss a possible end to the war.

On the morning of the 3rd, Lincoln and Seward met with Confederate Vice President Alexander Stephens, Senate President Robert M.T. Hunter, and Assistant Secretary of War John A. Campbell aboard the steamboat River Queen off Hampton Roads, Virginia. The men met in the saloon specially prepared for them.

The River Queen | Image Credit: public domain

Lincoln and Stephens were old friends, and they began the meeting by talking about mutual acquaintances. Seward described the new dome over the Capitol to the envoys, all of whom had once served in the U.S. Congress. The men agreed not to document the meeting, and nobody was allowed in the saloon except a steward who served refreshments. Stephens began the official talks by asking, “Is there no way to put an end to the present troubles and restore the good feelings that existed in those days between the different States and sections of the country?”

Lincoln said that the only way to stop the war was “for those who were resisting the laws of the Union to cease that resistance. All the trouble came from an armed resistance against the National Authority.” Stephens suggested uniting Federals and Confederates in a common cause to end the war, and Lincoln replied, “I suppose you refer to something that Mr. Blair has said. Now it is proper to state at the beginning, that whatever (Blair) said was of his own accord… and he had no authority to speak for me. When he returned and brought me Mr. Davis’s letter, I gave him” the letter dated January 18, making “the restoration of the Union a sine qua non with me, and hence my instructions that no conference was to be held except upon that basis.”

Lincoln stated that he “was always willing to hear propositions for peace on the conditions of this letter and on no other,” and he was led to understand that the envoys had accepted this term as part of their “application for leave to cross the lines” and meet with him.

After a brief silence, Campbell asked hypothetically how the southern states might return to the Union. Seward asked to defer that question so he could hear more about Stephens’s idea of Federals and Confederates joining forces. Stephens explained that France had violated the Monroe Doctrine by installing a puppet ruler over Mexico, and as such the two sides could call a ceasefire and join to oust the French from that country. During the armistice, a military convention could settle all differences between the two sides.

Stephens had cleverly turned the discussion into what the Confederates wanted: a ceasefire so they could negotiate on the basis of Confederate independence. But, according to Stephens, Lincoln “could entertain no proposition for ceasing active military operations, which was not based upon a pledge first given, for the ultimate restoration of the Union.”

Lincoln explained that “the settlement of our existing difficulties was a question now of supreme importance,” and the only way to settle them was the “recognition and re-establishment of the National Authority throughout the land.” Stephens later wrote: “These pointed and emphatic responses seemed to put an end to the Conference on the subject contemplated in our Mission, as we had no authority to give any such pledge, even if we had been inclined to do so, nor was it expected that any such would really be required to be given.”

Seward asked for more details on how invading Mexico would promote “permanent peace and harmony in all parts of the country,” but when Stephens shared them, Seward concluded that no “system of Government founded upon them could be successfully worked. The Union could never be restored or maintained on that basis.” Hunter conceded that “there was not unanimity in the South upon the subject… it was not probable that any arrangement could be made by which the Confederates would agree to join in sending any portion of their Army into Mexico.”

Lincoln repeated that he “could not entertain a proposition for an Armistice on any terms, while the great and vital question of reunion was indisposed of.” Stephens later wrote, “He could enter into no treaty, convention or stipulation, or agreement with the Confederate States, jointly or separately, upon that or any other subject, but upon the basis first settled, that the Union was to be restored. Any such agreement, or stipulation, would be a quasi recognition of the States then in arms against the National Government as a separate Power.”

Stephens suggested that Lincoln could, as commander-in-chief, approve a military convention to settle their differences. Lincoln agreed that he could, but he would not approve such a thing unless “it was first agreed that the National Authority was to be re-established throughout the country.”

This brought Campbell back to his original question of how the southern states might return to the Union. Lincoln answered, “By disbanding their armies, and permitting the National Authorities to resume their functions.” Seward backed him by telling the envoys that “Mr. Lincoln could not express himself more clearly or forcibly” on this matter than he did in his message to Congress last December. Seward then explained exactly what Lincoln had written in that message.

Campbell declared that numerous matters “required stipulation or agreement of some sort” before the South could rejoin the Union. Dissolving the Confederate military “was a delicate and difficult operation,” and a policy regarding confiscated property would need to be implemented. Seward suggested that property issues could be settled by the courts, and Congress would be “liberal in making restitution of confiscated property, or providing indemnity, after the excitement of the times had passed off.”

Stephens brought up slave emancipation. Lincoln conceded that his Emancipation Proclamation may not be legal, and the courts would decide this after the war. In the meantime, Seward estimated that about 200,000 slaves had been freed under the decree, and Lincoln would not retract or modify it in any way.

Seward informed the envoys that the Thirteenth Amendment abolishing slavery had just passed Congress. He then tried enticing the envoys by implying that if the southern states returned to the Union, they could kill the amendment by blocking ratification: “If the war were then to cease, it would probably not be adopted by a number of States, sufficient to make it a part of the Constitution.”

Lincoln then gave a long discourse on slavery, of which Stephens later wrote:

“He said it was not his intention in the beginning to interfere with Slavery in the States; that he never would have done it, if he had not been compelled by necessity to do it, to maintain the Union; that the subject presented many difficult and perplexing questions to him; that he had hesitated for some time, and had resorted to this measure only when driven to it by public necessity; that he had been in favor of the General Government prohibiting the extension of Slavery into the Territories, but did not think that the Government possessed power over the subject in the States, except as a war measure; and that he had always himself been in favor of emancipation, but not immediate emancipation, even by the States.”

Lincoln then advised Stephens on what he would do if he were Stephens:

“I would go home (to Georgia) and get the Governor of the State to call the Legislature together, and get them to recall all the State troops from the war; elect Senators and Members to Congress, and ratify this Constitutional Amendment prospectively, so as to take effect–say in five years. Such a ratification would be valid in my opinion… Whatever may have been the views of your people before the war, they must be convinced now that Slavery is doomed. It cannot last long in any event, and the best course, it seems to me, for your public men to pursue, would be to adopt such a policy as will avoid, as far as possible, the evils of immediate emancipation.”

Lincoln went on to voice his support for compensating slaveholders for the loss of their labor, but only if the southern states voluntarily abolished slavery and returned to the Union. Since the North was partly responsible for slavery, Lincoln stated that northerners would likely support “paying a fair indemnity for the loss to (slave) owners.” He said that Congress could appropriate up to 15 percent of the slaves’ 1860 value, amounting to about $400 million.

Seward objected to his plan, arguing, “The United States has already paid on that account.” Lincoln said, “Ah, Mr. Seward, you may talk so about slavery if you will, but if it was wrong in the South to hold slaves, it was wrong in the North to carry on the slave trade, and it would be wrong to hold onto that money that the North procured by selling slaves to the South without compensation, if the North took the slaves back again.” Lincoln reiterated his support for compensating slaveholders, but he also reiterated that Congress would have to approve the compensation.

The envoys then discussed “the evils of immediate emancipation,” such as the hardships that freedom would bring to those “who were unable to support themselves.” Lincoln responded with an anecdote about a farmer who told his neighbor about an efficient way to feed his hogs: “Why, it is to plant plenty of potatoes, and when they are mature, without either digging or housing them, turn the hogs in the field and let them get their own food as they want it.” His neighbor asked, “But how will they do when the winter comes and the ground is hard frozen?” The farmer answered, “Well, let ‘em root.”

As the discussion entered its fourth hour, Hunter said that it seemed Lincoln and Seward expected nothing less than “unconditional surrender” from the Confederacy. Seward said that neither he nor Lincoln had used those words, and that they merely insisted on the South “yielding to the execution of the laws under the constitution of the United States, with all its guarantees and securities for personal and political rights.” Such a thing could not “be properly considered as unconditional submission to conquerors, or as having anything humiliating in it.”

Lincoln added that as president, he had the power to pardon citizens, and he would do so “with the utmost liberality.” Only Congress could decide whether to seat senators and representatives from the southern states, but Lincoln said “they ought to be” seated. Hunter said that King Charles I of England had been willing to compromise with those rebelling against him, and Lincoln should do the same. Lincoln quipped, “I do not profess to be posted in history. On all such matters I will turn you over to Seward. All I distinctly recollect about the case of Charles I, is, that he lost his head in the end.”

Based on Lincoln’s conditions and terms, there would be no further negotiation until the southern states agreed to unconditional submission to U.S. rule. Hunter asked, “Mr. President, if we understand you correctly, you think that we of the Confederacy have committed treason; that we are traitors to your government; that we have forfeited our rights, and are proper subjects for the hangman. Is that not about what your words imply?” Lincoln replied, “Yes. You have stated the proposition better than I did. That is about the size of it.”

Hunter countered, “Well, Mr. President, we suppose that would necessarily be your view of our case, but we have about concluded that we will not be hanged as long as you are President – so long as we behave ourselves.” This broke the tension in the saloon. Then there was some talk about West Virginia, which Lincoln insisted would remain separate from Virginia.

The cordial four-hour meeting ended with no agreements made, mainly because the Confederates could not consent to Lincoln’s demand for “one common country.” As the meeting broke up, Lincoln agreed to release Stephens’s nephew, a captured lieutenant in the Lake Erie island prison camp. He also promised to suggest to Lieutenant General Ulysses S. Grant that he work with Confederate officials to set up a prisoner exchange system.

Lincoln and Seward left for Washington immediately after the meeting. Their departure left the Confederates to either voluntarily submit to terms they deemed unacceptable or continue fighting until forced to unconditionally submit. Nevertheless, the Federals hoped the Confederates would see that the war was lost and therefore voluntarily return to the Union.



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