The Confederate government of Kentucky was a shadow government established for the Commonwealth of Kentucky by a self-constituted group of Confederate sympathizers and delegates sent by Kentucky counties, during the American Civil War. The shadow government never replaced the elected government in Frankfort, in which the state legislature had strong Union sympathies while the governor was pro-Confederate. Neither was it able to gain the whole support of Kentucky's citizens; its jurisdiction extended only as far as Confederate battle lines in the Commonwealth, which at its greatest extent in 1861 and early 1862 encompassed over half the state. Nevertheless, the provisional government was recognized by the Confederate States of America, and Kentucky was admitted to the Confederacy on December 10, 1861. Kentucky, the final state admitted to the Confederacy, was represented by the 13th (central) star on the Confederate battle flag.
Bowling Green, Kentucky, was designated the Confederate capital of Kentucky at a convention in nearby Russellville. Due to the military situation in the state, the provisional government was exiled and traveled with the Army of Tennessee for most of its existence. For a short time in the autumn of 1862, the Confederate Army controlled Frankfort, the only time a Union capital was captured by Confederate forces. During this occupation, General Braxton Bragg attempted to install the provisional government as the permanent authority in the Commonwealth. However, Union General Don Carlos Buell ambushed the inauguration ceremony and drove the provisional government from the state for the final time. From that point forward, the government existed primarily on paper and was dissolved at the end of the war.
The provisional government elected two governors. George W. Johnson was elected at the Russellville Convention and served until his death at the Battle of Shiloh. Richard Hawes was elected to replace Johnson and served through the remainder of the war.
Background
Kentucky's citizens were split regarding the issues central to the Civil War. The state had strong economic ties with Ohio River cities such as Pittsburgh and Cincinnati while at the same time sharing many cultural, social, and economic links with the South. Unionist traditions were strong throughout the Commonwealth's history, especially in the east. With economic ties to both the North and the South, Kentucky had little to gain and much to lose from a war between the states. Additionally, many slaveholders felt that the best protection for slavery was within the Union.
The presidential election of 1860 showed Kentucky's mixed sentiments when the state gave John Bell 45% of the popular vote, John C. Breckinridge 36%, Stephen Douglas 18%, and Abraham Lincoln less than 1%. Historian Allan Nevins interpreted the election results to mean that Kentuckians strongly opposed both secession and coercion against the secessionists. The majority coalition of Bell and Douglas supporters was seen as a solid moderate Unionist position that opposed precipitate action by extremists on either side.Nevins, pp. 129–130
The majority of Kentucky's citizens believed the state should be a mediator between the North and South. On December 9, 1860, Kentucky Governor Beriah Magoffin sent a letter to the other slave state governors, suggesting that they come to an agreement with the North that would include strict enforcement of the Fugitive Slave Act, a division of common territories at the 37th parallel, a guarantee of free use of the Mississippi River, and a Southern veto over slave legislation. Magoffin proposed a conference of slave states, followed by a conference of all the states to secure the concessions. Because of the escalating pace of events, neither conference was held.Harrison in The Civil War in Kentucky, pp. 6–7
Governor Magoffin called a special session of the Kentucky General Assembly on December 27, 1860, to ask the legislators for a convention to decide the Commonwealth's course in the sectional conflict.Harrison in The Civil War in Kentucky, p. 7 The Louisville Morning Courier on January 25, 1861, articulated the position that the secessionists faced in the legislature, "Too much time has already been wasted. The historic moment once past, never returns. For us and for Kentucky, the time to act is NOW OR NEVER."Shortridge, p. 290 The Unionists, on the other hand, were unwilling to surrender the fate of the state to a convention that might "in a moment of excitement, adopt the extreme remedy of secession."Heck, p. 333 The Unionist position carried after many of the states rights' legislators, opposing the idea of immediate secession, voted against the convention.Shortridge, pp. 290–291 The assembly did, however, send six delegates to a February 4 Peace Conference in Washington, D.C., and asked Congress to call a national convention to consider potential resolutions to the secession crisis, including the Crittenden Compromise, proposed by Kentuckian John J. Crittenden.Harrison in The Civil War in Kentucky, p. 8
As a result of the firing on Fort Sumter, President Lincoln sent a telegram to Governor Magoffin requesting that the Commonwealth supply four regiments as its share of the overall request of 75,000 troops for the war.Harrison in Kentucky Governors, pp. 82–84 Magoffin, a Confederate sympathizer, replied, "President Lincoln, Washington, D.C. I will send not a man nor a dollar for the wicked purpose of subduing my sister Southern states. B. Magoffin."Powell, p. 52 Both houses of the General Assembly met on May 7 and passed declarations of neutrality in the war, a position officially declared by Governor Magoffin on May 20.Harrison in The Civil War in Kentucky, p. 9
In a special congressional election held June 20, Unionist candidates won nine of Kentucky's ten congressional seats.Harrison in Kentucky's Civil War 1861–1865, pp. 63–65 Confederate sympathizers won only the Jackson Purchase region, which was economically linked to Tennessee by the Cumberland and Tennessee Rivers.Kleber, p. 193 Believing defeat at the polls was certain, many Southern Rightists had boycotted the election; of the 125,000 votes cast, Unionists captured close to 90,000.Harrison in The Civil War in Kentucky, p. 11 Confederate sympathizers were dealt a further blow in the August 5 election for state legislators. This election resulted in veto-proof Unionist majorities of 75–25 in the House and 27–11 in the Senate. From then on, most of Magoffin's vetoes to protect southern interests were overridden in the General Assembly.
Historian Wilson Porter Shortridge made the following analysis:
With secession no longer considered a viable option, the pro-Confederate forces became the strongest supporters for neutrality. Unionists dismissed this as a front for a secessionist agenda. Unionists, on the other hand, struggled to find a way to move the large, moderate middle to a "definite and unqualified stand with the Washington government." The maneuvering between the two reached a decisive point on September 3 when Confederate forces were ordered from Tennessee to the Kentucky towns of Hickman and Columbus. Union forces responded by occupying Paducah.Shortridge, pp. 298–300
On September 11, the legislature passed a resolution instructing Magoffin to order the Confederate forces (but not the Union forces) to leave the state. The Governor vetoed the resolution, but the General Assembly overrode his veto, and Magoffin gave the order. The next week, the assembly officially requested the assistance of the Union and asked the governor to call out the state militia to join the Federal forces. Magoffin also vetoed this request. Again the assembly overrode his veto and Magoffin acquiesced.Shortridge, p. 300
Formation A pro-Confederate peace meeting, with Breckinridge as a speaker, was scheduled for September 21. Unionists feared the meeting would lead to actual military resistance, and dispatched troops from Camp Dick Robinson to disband the meeting and arrest Breckinridge.Heck, p. 343 Breckinridge, as well as many other state leaders identified with the secessionists, fled the state. These leaders eventually served as the nucleus for a group that would create a shadow government for Kentucky. In his October 8 "Address to the People of Kentucky," Breckinridge declared, "The United States no longer exists. The Union is dissolved."Brown, p. 80
On October 29, 1861, 63 delegates representing 34 counties met at Russellville to discuss the formation of a Confederate government for the Commonwealth.Brown, p. 83 Despite its defeats at the polls, this group believed that the Unionist government in Frankfort did not represent the will of the majority of Kentucky's citizens. Trigg County's Henry Burnett was elected chairman of the proceedings. Scott County farmer George W. Johnson chaired the committee that wrote the convention's final report and introduced some of its key resolutions. The report called for a sovereignty convention to sever ties with the Federal government. Both Breckinridge and Johnson served on the Committee of Ten that arranged the convention.
On November 18, 116 delegates from 68 counties met at the William Forst House in Russellville.Kleber, p. 222 Burnett was elected presiding officer. Fearing for the safety of the delegates, he first proposed postponing proceedings until January 8, 1862.Harrison in Register, p. 13 Johnson convinced the majority of the delegates to continue. By the third day, the military situation was so tenuous that the entire convention had to be moved to a tower on the campus of Bethel Female College, a now-defunct institution in Hopkinsville.
The first item was ratification of an ordinance of secession, which proceeded in short order. Next, being unable to flesh out a complete constitution and system of laws, the delegates voted that "the Constitution and laws of Kentucky, not inconsistent with the acts of this Convention, and the establishment of this Government, and the laws which may be enacted by the Governor and Council, shall be the laws of this state."Harrison in Register, p. 14 The delegates proposed a provisional government to consist of a legislative council of ten members (one from each Kentucky congressional district); a governor, who had the power to appoint judicial and other officials; a treasurer; and an auditor.Brown, p. 84 The delegates designated Bowling Green (then under the control of Confederate general Albert Sidney Johnston) as the Confederate State capital, but had the foresight to provide for the government to meet anywhere deemed appropriate by the council and governor. The convention adopted a new state seal, an arm wearing mail with a star, extended from a circle of twelve other stars.
+Officials of the Confederate government of KentuckyPowell, p. 114 Position Officeholder GovernorGeorge W. Johnson Lieutenant GovernorHoratio F. Simrall Secretary of StateRobert McKee TreasurerTheodore Legrand Burnett AuditorJosiah Pillsbury
The convention unanimously elected Johnson as governor. Horatio F. Simrall was elected lieutenant governor, but soon fled to Mississippi to escape Federal authorities.Powell, p. 116 Robert McKee, who had served as secretary of both conventions, was appointed secretary of state.Brown, p. 85 Theodore Legrand Burnett was elected treasurer, but resigned on December 17 to accept a position in the Confederate Congress. He was replaced by Warren County native John Quincy Burnham. The position of auditor was first offered to former Congressman Richard Hawes, but Hawes declined to continue his military service under Humphrey Marshall.Kleber, pp. 418–419 In his stead, the convention elected Josiah Pillsbury, also of Warren County. The legislative council elected Willis Benson Machen as its president.