Chapter 3

When we consider the public domain from the point of view of the sale and disposal of the public lands we are again brought face to face with the frontier. The policy of the United States in dealing with its lands is in sharp contrast with the European system of scientific administration. Efforts to make this domain a source of revenue, and to withhold it from emigrants in order that settlement might be compact, were in vain. The jealousy and the fears of the East were powerless in the face of the demands of the frontiersmen. John Quincy Adams was obliged to confess: "My own system of administration, which was to make the national domain the inexhaustible fund for progressive and unceasing internal improvement, has failed." The reason is obvious; a system of administration was not what the West demanded; it wanted land. Adams states the situation as follows: "The slaveholders of the South have bought the coöperation of the western country by the bribe of the western lands, abandoning to the new Western States their own proportion of the public property and aiding them in the design of grasping all the lands into their own hands." Thomas H. Benton was the author of this system, which he brought forward as a substitute for the American system of Mr. Clay, and to supplant him as the leading statesman of the West. Mr. Clay, by his tariff compromise with Mr. Calhoun, abandoned his own American system. At the same time he brought forward a plan for distributing among all the States of the Union the proceeds of the sales of the public lands. His bill for that purpose passed both Houses of Congress, but was vetoed by President Jackson, who, in his annual message of December, 1832, formally recommended that all public lands should be gratuitously given away to individual adventurers and to the States in which the lands are situated.[26:1]

"No subject," said Henry Clay, "which has presented itself to the present, or perhaps any preceding, Congress, is of greater magnitude than that of the public lands." When we consider the far-reaching effects of the government's land policy upon political, economic, and social aspects of American life, we are disposed to agree with him. But this legislation was framed under frontier influences, and under the lead of Western statesmen like Benton and Jackson. Said Senator Scott of Indiana in 1841: "I consider the preëmption law merely declaratory of the custom or common law of the settlers."

It is safe to say that the legislation with regard to land, tariff, and internal improvements--the American system of the nationalizing Whig party--was conditioned on frontier ideas and needs. But it was not merely in legislative action that the frontier worked against the sectionalism of the coast. The economic and social characteristics of the frontier worked against sectionalism. The men of the frontier had closer resemblances to the Middle region than to either of the other sections. Pennsylvania had been the seed-plot of frontier emigration, and, although she passed on her settlers along the Great Valley into the west of Virginia and the Carolinas, yet the industrial society of these Southern frontiersmen was always more like that of the Middle region than like that of the tide-water portion of the South, which later came to spread its industrial type throughout the South.

The Middle region, entered by New York harbor, was an open door to all Europe. The tide-water part of the South represented typical Englishmen, modified by a warm climate and servile labor, and living in baronial fashion on great plantations; New England stood for a special English movement--Puritanism. The Middle region was less English than the other sections. It had a wide mixture of nationalities, a varied society, the mixed town and county system of local government, a varied economic life, many religious sects. In short, it was a region mediating between New England and the South, and the East and the West. It represented that composite nationality which the contemporary United States exhibits, that juxtaposition of non-English groups, occupying a valley or a little settlement, and presenting reflections of the map of Europe in their variety. It was democratic and nonsectional, if not national; "easy, tolerant, and contented;" rooted strongly in material prosperity. It was typical of the modern United States. It was least sectional, not only because it lay between North and South, but also because with no barriers to shut out its frontiers from its settled region, and with a system of connecting waterways, the Middle region mediated between East and West as well as between North and South. Thus it became the typically American region. Even the New Englander, who was shut out from the frontier by the Middle region, tarrying in New York or Pennsylvania on his westward march, lost the acuteness of his sectionalism on the way.[28:1]

The spread of cotton culture into the interior of the South finally broke down the contrast between the "tide-water" region and the rest of the State, and based Southern interests on slavery. Before this process revealed its results the western portion of the South, which was akin to Pennsylvania in stock, society, and industry, showed tendencies to fall away from the faith of the fathers into internal improvement legislation and nationalism. In the Virginia convention of 1829-30, called to revise the constitution, Mr. Leigh, of Chesterfield, one of the tide-water counties, declared:

One of the main causes of discontent which led to this convention, that which had the strongest influence in overcoming our veneration for the work of our fathers, which taught us to contemn the sentiments of Henry and Mason and Pendleton, which weaned us from our reverence for the constituted authorities of the State, was an overweening passion for internal improvement. I say this with perfect knowledge, for it has been avowed to me by gentlemen from the West over and over again. And let me tell the gentleman from Albemarle (Mr. Gordon) that it has been another principal object of those who set this ball of revolution in motion, to overturn the doctrine of State rights, of which Virginia has been the very pillar, and to remove the barrier she has interposed to the interference of the Federal Government in that same work of internal improvement, by so reorganizing the legislature that Virginia, too, may be hitched to the Federal car.

It was this nationalizing tendency of the West that transformed the democracy of Jefferson into the national republicanism of Monroe and the democracy of Andrew Jackson. The West of the War of 1812, the West of Clay, and Benton and Harrison, and Andrew Jackson, shut off by the Middle States and the mountains from the coast sections, had a solidarity of its own with national tendencies.[29:1] On the tide of the Father of Waters, North and South met and mingled into a nation. Interstate migration went steadily on--a process of cross-fertilization of ideas and institutions. The fierce struggle of the sections over slavery on the western frontier does not diminish the truth of this statement; it proves the truth of it. Slavery was a sectional trait that would not down, but in the West it could not remain sectional. It was the greatest of frontiersmen who declared: "I believe this Government can not endure permanently half slave and half free. It will become all of one thing or all of the other." Nothing works for nationalism like intercourse within the nation. Mobility of population is death to localism, and the western frontier worked irresistibly in unsettling population. The effect reached back from the frontier and affected profoundly the Atlantic coast and even the Old World.

But the most important effect of the frontier has been in the promotion of democracy here and in Europe. As has been indicated, the frontier is productive of individualism. Complex society is precipitated by the wilderness into a kind of primitive organization based on the family. The tendency is anti-social. It produces antipathy to control, and particularly to any direct control. The tax-gatherer is viewed as a representative of oppression. Prof. Osgood, in an able article,[30:1] has pointed out that the frontier conditions prevalent in the colonies are important factors in the explanation of the American Revolution, where individual liberty was sometimes confused with absence of all effective government. The same conditions aid in explaining the difficulty of instituting a strong government in the period of the confederacy. The frontier individualism has from the beginning promoted democracy.

The frontier States that came into the Union in the first quarter of a century of its existence came in with democratic suffrage provisions, and had reactive effects of the highest importance upon the older States whose peoples were being attracted there. An extension of the franchise became essential. It was _western_ New York that forced an extension of suffrage in the constitutional convention of that State in 1821; and it was _western_ Virginia that compelled the tide-water region to put a more liberal suffrage provision in the constitution framed in 1830, and to give to the frontier region a more nearly proportionate representation with the tide-water aristocracy. The rise of democracy as an effective force in the nation came in with western preponderance under Jackson and William Henry Harrison, and it meant the triumph of the frontier--with all of its good and with all of its evil elements.[31:1] An interesting illustration of the tone of frontier democracy in 1830 comes from the same debates in the Virginia convention already referred to. A representative from western Virginia declared:

But, sir, it is not the increase of population in the West which this gentleman ought to fear. It is the energy which the mountain breeze and western habits impart to those emigrants. They are regenerated, politically I mean, sir. They soon become _working politicians_; and the difference, sir, between a _talking_ and a _working_ politician is immense. The Old Dominion has long been celebrated for producing great orators; the ablest metaphysicians in policy; men that can split hairs in all abstruse questions of political economy. But at home, or when they return from Congress, they have negroes to fan them asleep. But a Pennsylvania, a New York, an Ohio, or a western Virginia statesman, though far inferior in logic, metaphysics, and rhetoric to an old Virginia statesman, has this advantage, that when he returns home he takes off his coat and takes hold of the plow. This gives him bone and muscle, sir, and preserves his republican principles pure and uncontaminated.

So long as free land exists, the opportunity for a competency exists, and economic power secures political power. But the democracy born of free land, strong in selfishness and individualism, intolerant of administrative experience and education, and pressing individual liberty beyond its proper bounds, has its dangers as well as its benefits. Individualism in America has allowed a laxity in regard to governmental affairs which has rendered possible the spoils system and all the manifest evils that follow from the lack of a highly developed civic spirit. In this connection may be noted also the influence of frontier conditions in permitting lax business honor, inflated paper currency and wild-cat banking. The colonial and revolutionary frontier was the region whence emanated many of the worst forms of an evil currency.[32:1] The West in the War of 1812 repeated the phenomenon on the frontier of that day, while the speculation and wild-cat banking of the period of the crisis of 1837 occurred on the new frontier belt of the next tier of States. Thus each one of the periods of lax financial integrity coincides with periods when a new set of frontier communities had arisen, and coincides in area with these successive frontiers, for the most part. The recent Populist agitation is a case in point. Many a State that now declines any connection with the tenets of the Populists, itself adhered to such ideas in an earlier stage of the development of the State. A primitive society can hardly be expected to show the intelligent appreciation of the complexity of business interests in a developed society. The continual recurrence of these areas of paper-money agitation is another evidence that the frontier can be isolated and studied as a factor in American history of the highest importance.[32:2]

The East has always feared the result of an unregulated advance of the frontier, and has tried to check and guide it. The English authorities would have checked settlement at the headwaters of the Atlantic tributaries and allowed the "savages to enjoy their deserts in quiet lest the peltry trade should decrease." This called out Burke's splendid protest:

If you stopped your grants, what would be the consequence? The people would occupy without grants. They have already so occupied in many places. You can not station garrisons in every part of these deserts. If you drive the people from one place, they will carry on their annual tillage and remove with their flocks and herds to another. Many of the people in the back settlements are already little attached to particular situations. Already they have topped the Appalachian Mountains. From thence they behold before them an immense plain, one vast, rich, level meadow; a square of five hundred miles. Over this they would wander without a possibility of restraint; they would change their manners with their habits of life; would soon forget a government by which they were disowned; would become hordes of English Tartars; and, pouring down upon your unfortified frontiers a fierce and irresistible cavalry, become masters of your governors and your counselers, your collectors and comptrollers, and of all the slaves that adhered to them. Such would, and in no long time must, be the effect of attempting to forbid as a crime and to suppress as an evil the command and blessing of Providence, "Increase and multiply." Such would be the happy result of an endeavor to keep as a lair of wild beasts that earth which God, by an express charter, has given to the children of men.

But the English Government was not alone in its desire to limit the advance of the frontier and guide its destinies. Tidewater Virginia[34:1] and South Carolina[34:2] gerrymandered those colonies to insure the dominance of the coast in their legislatures. Washington desired to settle a State at a time in the Northwest; Jefferson would reserve from settlement the territory of his Louisiana Purchase north of the thirty-second parallel, in order to offer it to the Indians in exchange for their settlements east of the Mississippi. "When we shall be full on this side," he writes, "we may lay off a range of States on the western bank from the head to the mouth, and so range after range, advancing compactly as we multiply." Madison went so far as to argue to the French minister that the United States had no interest in seeing population extend itself on the right bank of the Mississippi, but should rather fear it. When the Oregon question was under debate, in 1824, Smyth, of Virginia, would draw an unchangeable line for the limits of the United States at the outer limit of two tiers of States beyond the Mississippi, complaining that the seaboard States were being drained of the flower of their population by the bringing of too much land into market. Even Thomas Benton, the man of widest views of the destiny of the West, at this stage of his career declared that along the ridge of the Rocky mountains "the western limits of the Republic should be drawn, and the statue of the fabled god Terminus should be raised upon its highest peak, never to be thrown down."[35:1] But the attempts to limit the boundaries, to restrict land sales and settlement, and to deprive the West of its share of political power were all in vain. Steadily the frontier of settlement advanced and carried with it individualism, democracy, and nationalism, and powerfully affected the East and the Old World.

The most effective efforts of the East to regulate the frontier came through its educational and religious activity, exerted by interstate migration and by organized societies. Speaking in 1835, Dr. Lyman Beecher declared: "It is equally plain that the religious and political destiny of our nation is to be decided in the West," and he pointed out that the population of the West "is assembled from all the States of the Union and from all the nations of Europe, and is rushing in like the waters of the flood, demanding for its moral preservation the immediate and universal action of those institutions which discipline the mind and arm the conscience and the heart. And so various are the opinions and habits, and so recent and imperfect is the acquaintance, and so sparse are the settlements of the West, that no homogeneous public sentiment can be formed to legislate immediately into being the requisite institutions. And yet they are all needed immediately in their utmost perfection and power. A nation is being 'born in a day.' . . . But what will become of the West if her prosperity rushes up to such a majesty of power, while those great institutions linger which are necessary to form the mind and the conscience and the heart of that vast world. It must not be permitted. . . . Let no man at the East quiet himself and dream of liberty, whatever may become of the West. . . . Her destiny is our destiny."[36:1]

With the appeal to the conscience of New England, he adds appeals to her fears lest other religious sects anticipate her own. The New England preacher and school-teacher left their mark on the West. The dread of Western emancipation from New England's political and economic control was paralleled by her fears lest the West cut loose from her religion. Commenting in 1850 on reports that settlement was rapidly extending northward in Wisconsin, the editor of the _Home Missionary_ writes: "We scarcely know whether to rejoice or mourn over this extension of our settlements. While we sympathize in whatever tends to increase the physical resources and prosperity of our country, we can not forget that with all these dispersions into remote and still remoter corners of the land the supply of the means of grace is becoming relatively less and less." Acting in accordance with such ideas, home missions were established and Western colleges were erected. As seaboard cities like Philadelphia, New York, and Baltimore strove for the mastery of Western trade, so the various denominations strove for the possession of the West. Thus an intellectual stream from New England sources fertilized the West. Other sections sent their missionaries; but the real struggle was between sects. The contest for power and the expansive tendency furnished to the various sects by the existence of a moving frontier must have had important results on the character of religious organization in the United States. The multiplication of rival churches in the little frontier towns had deep and lasting social effects. The religious aspects of the frontier make a chapter in our history which needs study.

From the conditions of frontier life came intellectual traits of profound importance. The works of travelers along each frontier from colonial days onward describe certain common traits, and these traits have, while softening down, still persisted as survivals in the place of their origin, even when a higher social organization succeeded. The result is that to the frontier the American intellect owes its striking characteristics. That coarseness and strength combined with acuteness and inquisitiveness; that practical, inventive turn of mind, quick to find expedients; that masterful grasp of material things, lacking in the artistic but powerful to effect great ends; that restless, nervous energy;[37:1] that dominant individualism, working for good and for evil, and withal that buoyancy and exuberance which comes with freedom--these are traits of the frontier, or traits called out elsewhere because of the existence of the frontier. Since the days when the fleet of Columbus sailed into the waters of the New World, America has been another name for opportunity, and the people of the United States have taken their tone from the incessant expansion which has not only been open but has even been forced upon them. He would be a rash prophet who should assert that the expansive character of American life has now entirely ceased. Movement has been its dominant fact, and, unless this training has no effect upon a people, the American energy will continually demand a wider field for its exercise. But never again will such gifts of free land offer themselves. For a moment, at the frontier, the bonds of custom are broken and unrestraint is triumphant. There is not _tabula rasa_. The stubborn American environment is there with its imperious summons to accept its conditions; the inherited ways of doing things are also there; and yet, in spite of environment, and in spite of custom, each frontier did indeed furnish a new field of opportunity, a gate of escape from the bondage of the past; and freshness, and confidence, and scorn of older society, impatience of its restraints and its ideas, and indifference to its lessons, have accompanied the frontier. What the Mediterranean Sea was to the Greeks, breaking the bond of custom, offering new experiences, calling out new institutions and activities, that, and more, the ever retreating frontier has been to the United States directly, and to the nations of Europe more remotely. And now, four centuries from the discovery of America, at the end of a hundred years of life under the Constitution, the frontier has gone, and with its going has closed the first period of American history.

FOOTNOTES:

[1:1] A paper read at the meeting of the American Historical Association in Chicago, July 12, 1893. It first appeared in the Proceedings of the State Historical Society of Wisconsin, December 14, 1893, with the following note: "The foundation of this paper is my article entitled 'Problems in American History,' which appeared in _The Ægis_, a publication of the students of the University of Wisconsin, November 4, 1892. . . . It is gratifying to find that Professor Woodrow Wilson--whose volume on 'Division and Reunion' in the Epochs of American History Series, has an appreciative estimate of the importance of the West as a factor in American history--accepts some of the views set forth in the papers above mentioned, and enhances their value by his lucid and suggestive treatment of them in his article in _The Forum_, December, 1893, reviewing Goldwin Smith's 'History of the United States.'" The present text is that of the _Report of the American Historical Association_ for 1893, 199-227. It was printed with additions in the _Fifth Year Book of the National Herbart Society_, and in various other publications.

[2:1] "Abridgment of Debates of Congress," v, p. 706.

[5:1] Bancroft (1860 ed.), iii, pp. 344, 345, citing Logan MSS.; [Mitchell] "Contest in America," etc. (1752), p. 237.

[5:2] Kercheval, "History of the Valley"; Bernheim, "German Settlements in the Carolinas"; Winsor, "Narrative and Critical History of America," v, p. 304; Colonial Records of North Carolina, iv, p. xx; Weston, "Documents Connected with the History of South Carolina," p. 82; Ellis and Evans, "History of Lancaster County, Pa.," chs. iii, xxvi.