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time of the election； had suffered a shock。 Foreign affairs were
not progressing satisfactorily。 Though England had accorded to
the Confederacy the status of a belligerent； this was poor
consolation for her refusal to make full recognition of the new
Government as an independent power。 Dread of internal distress
was increasing。 Gold commanded a premium of fifty percent。
Disorder was a feature of the life in the cities。 It was known
that several recent military events had been victories for the
Federals。 A rumor was abroad that some great disaster had taken
place in Tennessee。 The crowd listened anxiously to hear the
rumor denied by the President。 But it was not denied。 The tense
listeners noted two sentences which formed an admission that the
situation was grave： 〃A million men； it is estimated； are now
standing in hostile array and waging war along a frontier of
thousands of miles。 Battles have been fought； sieges have been
conducted； and although the contest is not ended； and the tide
for the moment is against us； the final result in our favor is
not doubtful。〃
Behind these carefully guarded words lay serious alarm； not only
with regard to the operations at the front but as to the
composition of the army。 It had been raised under various laws
and its portions were subject to conflicting classifications； it
was partly a group of state armies； partly a single Confederate
army。 None of its members had enlisted for long terms。 Many
enlistments would expire early in 1862。 The fears of the
Confederate Administration with regard to this matter； together
with its alarm about the events at the front； were expressed by
Davis in a frank message to the Southern Congress； three days
later。 〃I have hoped；〃 said he； 〃for several days to receive
official reports in relation to our discomfiture at Roanoke
Island and the fall of Fort Donelson。 They have not yet reached
Me。。。。 The hope is still entertained that our reported losses
at Fort Donelson have been greatly exaggerated。。。。〃 He went
on to condemn the policy of enlistments for short terms； 〃against
which；〃 said he； 〃I have steadily contended〃； and he enlarged
upon the danger that even patriotic men； who intended to
reenlist； might go home to put their affairs in order and that
thus； at a critical moment； the army might be seriously reduced。
The accompanying report of the Confederate Secretary of War
showed a total in the army of 340；250 men。 This was an inadequate
force with which to meet the great hosts which were being
organized against it in the North。 To permit the slightest
reduction of the army at that moment seemed to the Southern
President suicidal。
But Davis waited some time longer before proposing to the
Confederate Congress the adoption of conscription。 Meanwhile； the
details of two great reverses； the loss of Roanoke Island and the
loss of Fort Donelson； became generally known。 Apprehension
gathered strength。 Newspapers began to discuss conscription as
something inevitable。 At last； on March 28； 1862； Davis sent a
message to the Confederate Congress advising the conscription of
all white males between the ages of eighteen and thirty…five。 For
this suggestion Congress was ripe； and the first Conscription Act
of the Confederacy was signed by the President on the 16th of
April。 The age of eligibility was fixed as Davis had advised； the
term of service was to be three years； every one then in service
was to be retained in service during three years from the date of
his original enlistment。
This statute may be thought of as a great victory on the part of
the Administration。 It was the climax of a policy of
centralization in the military establishment to which Davis had
committed himself by the veto； in January； of 〃A bill to
authorize the Secretary of War to receive into the service of the
Confederate States a regiment of volunteers for the protection of
the frontier of Texas。〃 This regiment was to be under the control
of the Governor of the State。 In refusing to accept such troops；
Davis laid down the main proposition upon which he stood as
military executive to the end of the war； a proposition which
immediately set debate raging： 〃Unity and cooperation by the
troops of all the States are indispensable to success； and I must
view with regret this as well as all other indications of a
purpose to divide the power of States by dividing the means to be
employed in efforts to carry on separate operations。〃
In these military measures of the early months of 1862 Davis's
purpose became clear。 He was bent upon instituting a strong
government； able to push the war through； and careless of the
niceties of constitutional law or of the exact prerogatives of
the States。 His position was expressed in the course of the year
by a Virginia newspaper： 〃It will be time enough to distract the
councils of the State about imaginary violations of
constitutional law by the supreme government when our
independence is achieved； established； and acknowledged。 It will
not be until then that the sovereignty of the States will be a
reality。〃 But there were many Southerners who could not accept
this point of view。 The Mercury was sharply critical of the veto
of the Texas Regiment Bill。 In the interval between the Texas
veto and the passing of the Conscription Act； the state
convention of North Carolina demanded the return of North
Carolina volunteers for the defense of their own State。 No sooner
was the Conscription Act passed than its constitutionality was
attacked。 As the Confederacy had no Supreme Court； the question
came up before state courts。 One after another； several state
supreme courts pronounced the act constitutional and in most of
the States the constitutional issue was gradually allowed to
lapse。
Nevertheless； Davis had opened Pandora's box。 The clash between
State and Confederate authority had begun。 An opposition party
began to form。 In this first stage of its definite existence； the
opposition made an interesting attempt to control the Cabinet。
Secretary Benjamin； though greatly trusted by the President；
seems never to have been a popular minister。 Congress attempted
to load upon Benjamin the blame for Roanoke Island and Fort
Donelson。 In the House a motion was introduced to the effect that
Benjamin had 〃not the confidence of the people of the Confederate
States nor of the army。。。and that we most respectfully
request his retirement〃 from the office of Secretary of War。
Friends of the Administration tabled the motion。 Davis extricated
his friend by taking advantage of Hunter's retirement and
promoting Benjamin to the State Department。 A month later a
congressional committee appointed to investigate the affair of
Roanoke Island exonerated the officer in command and laid the
blame on his superiors； including 〃the late Secretary of War。〃
With Benjamin safe in the Department of State； with the majority
in the Confederate Congress still fairly manageable； with the
Conscription Act in force； Davis seemed to be strong enough in
the spring of 1862 to ignore the gathering opposition。 And yet
there was another measure； second only in the President's eyes to
the Conscription Act； th