against the Government. Accumulations of the public revenue lying within
them had been seized for the same object. The Navy was scattered in
distant seas, leaving but a very small part of it within the immediate
reach of the Government. Officers of the Federal Army and Navy had
resigned in great numbers, and of those resigning a large proportion had
taken up arms against the Government. Simultaneously and in connection
with all this the purpose to sever the Federal Union was openly avowed.
In accordance with this purpose, an ordinance had been adopted in each
of these States declaring the States respectively to be separated from
the National Union. A formula for instituting a combined government of
these States had been promulgated, and this illegal organization, in the
character of Confederate States, was already invoking recognition, aid,
and intervention from foreign powers.

Finding this condition of things and believing it to be an imperative
duty upon the incoming Executive to prevent, if possible, the
consummation of such attempt to destroy the Federal Union, a choice of
means to that end became indispensable. This choice was made, and was
declared in the inaugural address. The policy chosen looked to the
exhaustion of all peaceful measures before a resort to any stronger
ones. It sought only to hold the public places and property not already
wrested from the Government and to collect the revenue, relying for the
rest on time, discussion, and the ballot box. It promised a continuance
of the mails at Government expense to the very people who were resisting
the Government, and it gave repeated pledges against any disturbance to
any of the people or any of their rights. Of all that which a President
might constitutionally and justifiably do in such a case, everything was
forborne without which it was believed possible to keep the Government
on foot.