The Anti-Slavery Examiner, Part 2 of 4 · Chapter 1The Anti-Slavery Examiner No. 5 the Power of Congress Over the District of Columbia. (1)
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ORIGINALLY PUBLISHED IN THE NEW-YORK EVENING POST, UNDER THE SIGNATURE OF "WYTHE."
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WITH ADDITIONS BY THE AUTHOR.
FOURTH EDITION.
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NEW YORK: PUBLISHED BY THE AMERICAN ANTI-SLAVERY SOCIETY, No. 143 NASSAU STREET. 1838.
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POWER OF CONGRESS OVER THE DISTRICT OF COLUMBIA.
A civilized community presupposes a government of law. If that government be a republic, its citizens are the sole sources, as well as the subjects of its power. Its constitution is their bill of directions to their own agents--a grant authorizing the exercise of certain powers, and prohibiting that of others. In the Constitution of the United States, whatever else may be obscure, the clause granting power to Congress over the Federal District may well defy misconstruction. Art. 1, Sec. 8, Clause 18: "The Congress shall have power to exercise exclusive legislation, in all cases whatsoever, over such District." Congress may make laws for the District "in all cases," not of all kinds. The grant respects the subjects of legislation, not the moral nature of the laws. The law-making power every where, is subject to moral restrictions, whether limited by constitutions or not. No legislature can authorize murder, nor make honesty penal, nor virtue a crime, nor exact impossibilities. In these and similar respects, the power of Congress is held in check by principles existing in the nature of things, not imposed by the Constitution, but presupposed and assumed by it. The power of Congress over the District is restricted only by those principles that limit ordinary legislation, and, in some respects, it has even wider scope.
In common with the legislatures of the States, Congress cannot constitutionally pass ex post facto laws in criminal cases, nor suspend the writ of habeas corpus, nor pass a bill of attainder, nor abridge the freedom of speech and of the press, nor invade the right of the people to be secure in their persons, houses, papers, and effects, nor enact laws respecting an establishment of religion. These are general limitations. Congress cannot do these things any where. The exact import, therefore, of the clause "in all cases whatsoever," is, on all subjects within the appropriate sphere of legislation. Some legislatures are restrained by constitutions from the exercise of powers strictly within the proper sphere of legislation. Congressional power over the District has no such restraint. It traverses the whole field of legitimate legislation. All the power which any legislature has within its own jurisdiction, Congress holds over the District of Columbia.
It has been asserted that the clause in question respects merely police regulations, and that its sole design was to enable Congress to protect itself against popular tumults. But if the framers of the Constitution aimed to provide for a single case only, why did they provide for "all cases whatsoever?" Besides, this clause was opposed in many of the state conventions, because the grant of power was not restricted to police regulations alone. In the Virginia Convention, George Mason, the father of the Virginia Constitution, said, "This clause gives an unlimited authority in every possible case within the District. He would willingly give them exclusive power as far as respected the police and good government of the place, but he would give them no more." Mr. Grayson said, that control over the police was all-sufficient, and that the "Continental Congress never had an idea of exclusive legislation in all cases." Patrick Henry said. "Is it consistent with any principle of prudence or good policy, to grant unlimited, unbounded authority?" Mr. Madison said in reply: "I did conceive that the clause under consideration was one of those parts which would speak its own praise. When any power is given, its delegation necessarily involves authority to make laws to execute it. * * * * The powers which are found necessary to be given, are therefore delegated generally, and particular and minute specification is left to the legislature. * * * It is not within the limits of human capacity to delineate on paper all those particular cases and circumstances, in which legislation by the general legislature would be necessary." Governor Randolph said: "Holland has no ten miles square, but she has the Hague where the deputies of the States assemble. But the influence which it has given the province of Holland, to have the seat of government within its territory, subject in some respects to its control, has been injurious to the other provinces. The wisdom of the Convention is therefore manifest in granting to Congress exclusive jurisdiction over the place of their session." [Deb. Va. Con., p. 320.] In the forty-third number of the "Federalist," Mr. Madison says: "The indispensable necessity of complete authority at the seat of government, carries its own evidence with it."
Finally, that the grant in question is to be interpreted according to the obvious import of its terms, is proved by the fact, that Virginia proposed an amendment to the United States' Constitution at the time of its adoption, providing that this clause "should be so construed as to give power only over the police and good government of said District," which amendment was rejected.
The former part of the clause under consideration, "Congress shall have power to exercise exclusive legislation," gives sole jurisdiction, and the latter part, "in all cases whatsoever," defines the extent of it. Since, then, Congress is the sole legislature within the District, and since its power is limited only by the checks common to all legislatures, it follows that what the law-making power is intrinsically competent to do any where, Congress is competent to do in the District of Columbia. Having disposed of preliminaries, we proceed to state and argue the real question at issue.
IS THE LAW-MAKING POWER COMPETENT TO ABOLISH SLAVERY WHEN NOT RESTRICTED IN THAT PARTICULAR BY CONSTITUTIONAL PROVISIONS--or, IS THE ABOLITION OF SLAVERY WITHIN THE APPROPRIATE SPHERE OF LEGISLATION?
1. In every government, absolute sovereignty exists somewhere. In the United States it exists primarily with the people, and ultimate sovereignty always exists with them. In each of the States, the legislature possesses a representative sovereignty, delegated by the people through the Constitution--the people thus committing to the legislature a portion of their sovereignty, and specifying in their constitutions the amount of the grant and its conditions. That the people in any state where slavery exists, have the power to abolish it, none will deny. If the legislature have not the power, it is because the people have reserved it to themselves. Had they lodged with the legislature "power to exercise exclusive legislation in all cases whatsoever," they would have parted with their sovereignty over the legislation of the State, and so far forth, the legislature would have become the people, clothed with all their functions, and as such competent, during the continuance of the grant, to do whatever the people might have done before the surrender of their power: consequently, they would have the power to abolish slavery. The sovereignty of the District of Columbia exists somewhere--where is it lodged? The citizens of the District have no legislature of their own, no representation in Congress, and no political power whatever. Maryland and Virginia have surrendered to the United States their "full and absolute right and entire sovereignty," and the people of the United States have committed to Congress by the Constitution, the power to "exercise exclusive legislation in all cases whatsoever over such District."
Thus, the sovereignty of the District of Columbia, is shown to reside solely in the Congress of the United States; and since the power of the people of a state to abolish slavery within their own limits, results from their entire sovereignty within that state, so the power of Congress to abolish slavery in the District, results from its entire sovereignty within the District. If it be objected that Congress can have no more power over the District, than was held by the legislatures of Maryland and Virginia, we ask what clause of the constitution graduates the power of Congress by the standard of those legislatures? Was the United States' constitution worked into its present shape under the measuring line and square of Virginia and Maryland? and is its power to be bevelled down till it can run in the grooves of state legislation? There is a deal of prating about constitutional power over the District, as though Congress were indebted for it to Maryland and Virginia. The powers of those states, whether prodigies or nullities, have nothing to do with the question. As well thrust in the powers of the Grand Lama to join issue upon, or twist papal bulls into constitutional tether, with which to curb congressional action. THE CONSTITUTION OF THE UNITED STATES gives power to Congress, and takes it away, and it alone. Maryland and Virginia adopted the Constitution before they ceded to the United States the territory of the District. By their acts of cession, they abdicated their own sovereignty over the District, and thus made room for that provided by the United States' constitution, which sovereignty was to commence as soon as a cession of territory by states, and its acceptance by Congress, furnished a sphere for its exercise. That the abolition of slavery is within the sphere of legislation, I argue.
2. FROM THE FACT, THAT SLAVERY, AS A LEGAL SYSTEM, IS THE CREATURE OF LEGISLATION. The law, by creating slavery, not only affirmed its existence to be within the sphere and under the control of legislation, but also, the conditions and terms of its existence, and the question whether or not it should exist. Of course legislation would not travel out of its sphere, in abolishing what is within it, and what had been recognized to be within it, by its own act. Cannot legislatures repeal their own laws? If law can take from a man his rights, it can give them back again. If it can say, "your body belongs to your neighbor," it can say, "it belongs to yourself." If it can annul a man's right to himself, held by express grant from his Maker, and can create for another an artificial title to him, can it not annul the artificial title, and leave the original owner to hold himself by his original title?
3. THE ABOLITION OF SLAVERY HAS ALWAYS BEEN CONSIDERED WITHIN THE APPROPRIATE SPHERE OF LEGISLATION. Almost every civilized nation has abolished slavery by law. The history of legislation since the revival of letters, is a record crowded with testimony to the universally admitted competency of the law-making power to abolish slavery. It is so manifestly an attribute not merely of absolute sovereignty, but even of ordinary legislation, that the competency of a legislature to exercise it, may well nigh be reckoned among the legal axioms of the civilized world. Even the night of the dark ages was not dark enough to make this invisible.
The Abolition decree of the great council of England was passed in 1102. The memorable Irish decree, "that all the English slaves in the whole of Ireland, be immediately emancipated and restored to their former liberty," was issued in 1171. Slavery in England was abolished by a general charter of emancipation in 1381. Passing over many instances of the abolition of slavery by law, both during the middle ages and since the reformation, we find them multiplying as we approach our own times. In 1776 slavery was abolished in Prussia by special edict. In St. Domingo, Cayenne, Guadaloupe, and Martinique, in 1794, where more than 600,000 slaves were emancipated by the French government. In Java, 1811; in Ceylon, 1815; in Buenos Ayres, 1816; in St. Helena, 1819; in Colombia, 1821; by the Congress of Chili in 1821; in Cape Colony, 1823; in Malacca, 1825; in the southern provinces of Birmah, 1826; in Bolivia, 1826; in Peru, Guatemala, and Monte Video, 1828; in Jamaica, Barbados, the Bermudas, the Bahamas, Anguilla, Mauritius, St. Christopers, Nevis, the Virgin Islands, (British), Antigua, Montserrat, Dominica, St. Vincents, Grenada, Berbice, Tobago, St. Lucia, Trinidad, Honduras, Demerara, Essequibo and the Cape of Good Hope, on the 1st of August, 1834. But waving details, suffice it to say, that England, France, Spain, Portugal, Denmark, Russia, Austria, Prussia, and Germany, have all and often given their testimony to the competency of the legislative power to abolish slavery. In our own country, the Legislature of Pennsylvania passed an act of abolition in 1780, Connecticut in 1784; Rhode Island, 1784; New-York, 1799; New-Jersey, in 1804; Vermont, by Constitution, in 1777; Massachusetts, in 1780; and New-Hampshire, in 1784.
When the competency of the law-making power to abolish slavery has thus been recognized every where and for ages, when it has been embodied in the highest precedents, and celebrated in the thousand jubilees of regenerated liberty, is it an achievement of modern discovery, that such a power is a nullity?--that all these acts of abolition are void, and that the millions disenthralled by them, are, either themselves or their posterity, still legally in bondage?
4. LEGISLATIVE POWER HAS ABOLISHED SLAVERS IN ITS PARTS. The law of South Carolina prohibits the working of slaves more than fifteen hours in the twenty-four. In other words, it takes from the slaveholder his power over nine hours of the slave's time daily; and if it can take nine hours it may take twenty-four. The laws of Georgia prohibit the working of slaves on the first day of the week; and if they can do it for the first, they can for the six following. The law of North Carolina prohibits the "immoderate" correction of slaves. If it has power to prohibit immoderate correction, it can prohibit moderate correction--all correction, which would be virtual emancipation; for, take from the master the power to inflict pain, and he is master no longer. Cease to ply the slave with the stimulus of fear, and he is free.
The Constitution of Mississippi gives the General Assembly power to make laws "to oblige the owners of slaves to treat them with humanity." The Constitution of Missouri has the same clause, and an additional one making it the DUTY of the legislature to pass such laws as may be necessary to secure the humane treatment of the slaves. This grant to those legislatures, empowers them to decide what is and what is not "humane treatment." Otherwise it gives no "power"--the clause is mere waste paper, and flouts in the face of a befooled legislature. A clause giving power to require "humane treatment" covers all the particulars of such treatment--gives power to exact it in all respects--requiring certain acts, and prohibiting others--maiming, branding, chaining together, separating families, floggings for learning the alphabet, for reading the Bible, for worshiping God according to conscience--the legislature has power to specify each of these acts--declare that it is not "humane treatment," and PROHIBIT it.--The legislature may also believe that driving men and women into the field, and forcing them to work without pay, is not "humane treatment," and being constitutionally bound "to oblige" masters to practise "humane treatment"--they have the power to prohibit such treatment, and are bound to do it.
The law of Louisiana makes slaves real estate, prohibiting the holder, if he be also a land holder, to separate them from the soil.[A] If it has power to prohibit the sale without the soil, it can prohibit the sale with it; and if it can prohibit the sale as property, it can prohibit the holding as property. Similar laws exist in the French, Spanish, and Portuguese colonies. The law of Louisiana requires the master to give his slaves a certain amount of food and clothing. If it can oblige the master to give the slave one thing, it can oblige him to give him another: if food and clothing, then wages, liberty, his own body. By the laws of Connecticut, slaves may receive and hold property, and prosecute suits in their own name as plaintiffs: [This last was also the law of Virginia in 1795. See Tucker's "Dissertation on Slavery," p. 73.] There were also laws making marriage contracts legal, in certain contingencies, and punishing infringements of them, ["Reeve's Law of Baron and Femme," p. 340-1.]
[Footnote A: Virginia made slaves real estate by a law passed in 1705. (Beverly's Hist. of Va., p. 98.) I do not find the precise time when this law was repealed, probably when Virginia became the chief slave breeder for the cotton-growing and sugar-planting country, and made young men and women "from fifteen to twenty-five" the main staple production of the State.]
Each of the laws enumerated above, does, in principle, abolish slavery; and all of them together abolish it in fact. True, not as a whole, and at a stroke, nor all in one place; but in its parts, by piecemeal, at divers times and places; thus showing that the abolition of slavery is within the boundary of legislation.
In the "Washington (D.C.) City Laws," page 138, is "AN ACT to prevent horses from being cruelly beaten or abused." Similar laws have been passed by corporations in many of the slave states, and throughout the civilized world, such acts are punishable either as violations of common law or of legislative enactments. If a legislature can pass laws "to prevent horses from being cruelly abused," it can pass laws to prevent men from being cruelly abused, and if it can prevent cruel abuse, it can define what it is. It can declare that to make men work without pay is cruel abuse, and can PROHIBIT it.
5. THE COMPETENCY OF THE LAW-MAKING POWER TO ABOLISH SLAVERY, HAS BEEN RECOGNIZED BY ALL THE SLAVEHOLDING STATES, EITHER DIRECTLY OR BY IMPLICATION. Some States recognize it in their Constitutions, by giving the legislature power to emancipate such slaves as may "have rendered the state some distinguished service," and others by express prohibitory restrictions. The Constitution of Mississippi, Arkansas, and other States, restrict the power of the legislature in this respect. Why this express prohibition, if the law-making power cannot abolish slavery? A stately farce indeed, with appropriate rites to induct into the Constitution a special clause, for the express purpose of restricting a nonentity!--to take from the law-making power what it never had, and what cannot pertain to it! The legislatures of those States have no power to abolish slavery, simply because their Constitutions have expressly taken away that power. The people of Arkansas, Mississippi, &c. well knew the competency of the law-making power to abolish slavery, and hence their zeal to restrict it.
The slaveholding States have recognised this power in their laws. Virginia passed a law in 1786 to prevent the importation of Slaves, of which the following is an extract: "And be it further enacted that every slave imported into this commonwealth contrary to the true intent and meaning of this act, shall upon such importation become free." By a law of Virginia, passed Dec. 17, 1792, a slave brought into the state and kept there a year, was free. The Maryland Court of Appeals, Dec., 1813 [case of Stewart vs. Oakes,] decided that a slave owned in Maryland, and sent by his master into Virginia to work at different periods, making one year in the whole, became free, being emancipated by the above law. North Carolina and Georgia in their acts of cession, transferring to the United States the territory now constituting the States of Tennessee, Alabama and Mississippi, made it a condition of the grant, that the provisions of the ordinance of '87 should be secured to the inhabitants, with the exception of the sixth article which prohibits slavery; thus conceding, both the competency of law to abolish slavery, and the power of Congress to do it, within its jurisdiction. (These acts show the prevalent belief at that time, in the slaveholding States, that the general government had adopted a line of policy aiming at the exclusion of slavery from the entire territory of the United States, not included within the original States, and that this policy would be pursued unless prevented by specific and formal stipulation.)
Slaveholding States have asserted this power in their judicial decisions. In numerous cases their highest courts have decided that if the legal owner of slaves takes them into those States where slavery has been abolished either by law or by the constitution, such removal emancipates them, such law or constitution abolishing their slavery. This principle is asserted in the decision of the Supreme Court of Louisiana, Lunsford vs. Coquillon, 14 Martin's La. Reps. 401. Also by the Supreme Court of Virginia, Hunter vs. Fulcher, 1 Leigh's Reps. 172. The same doctrine was laid down by Judge Washington, of the U. S. Sup. Court, Butler vs. Hopper, Washington's C. C. Reps. 508; also, by the Court of Appeals in Kentucky, Rankin vs. Lydia, 2 Marshall's Reps. 407; see also, Wilson vs. Isbell, 5 Call's Reps. 425, Spotts vs. Gillespie, 6 Randolph's Reps. 566. The State vs. Lasselle, 1 Blackford's Reps. 60, Marie Louise vs. Mariot, 8 La. Reps. 475. In this case, which was tried in 1836, the slave had been taken by her master to France and brought back; Judge Matthews, of the Supreme Court of Louisiana, decided that "residence for one moment" under the laws of France emancipated her.
6. EMINENT STATESMEN, THEMSELVES SLAVEHOLDERS, HAVE CONCEDED THIS POWER. Washington, in a letter to Robert Morris, April 12, 1786, says: "There is not a man living, who wishes more sincerely than I do, to see a plan adopted for the abolition of slavery; but there is only one proper and effectual mode by which it can be accomplished, and that is by legislative authority." In a letter to Lafayette, May 10, 1786, he says: "It (the abolition of slavery) certainly might, and assuredly ought to be effected, and that too by legislative authority." In a letter to John Fenton Mercer, Sept. 9, 1786, he says: "It is among my first wishes to see some plan adopted by which slavery in this country may be abolished by law." In a letter to Sir John Sinclair, he says: "There are in Pennsylvania, laws for the gradual abolition of slavery, which neither Maryland nor Virginia have at present, but which nothing is more certain than that they must have, and at a period not remote." Jefferson, speaking of movements in the Virginia Legislature in 1777, for the passage of a law emancipating the slaves, says: "The principles of the amendment were agreed on, that is to say, the freedom of all born after a certain day; but it was found that the public mind would not bear the proposition, yet the day is not far distant when it must bear and adopt it."--Jefferson's Memoirs, v. i. p. 35. It is well known that Jefferson, Pendleton, Mason, Wythe and Lee, while acting as a committee of the Virginia House of Delegates to revise the State Laws, prepared a plan for the gradual emancipation of the slaves by law. These men were the great lights of Virginia. Mason, the author of the Virginia Constitution; Pendleton, the President of the memorable Virginia Convention in 1787, and President of the Virginia Court of Appeals; Wythe was the Blackstone of the Virginia bench, for a quarter of a century Chancellor of the State, the professor of law in the University of William and Mary, and the preceptor of Jefferson, Madison, and Chief Justice Marshall. He was the author of the celebrated remonstrance to the English House of Commons on the subject of the stamp act. As to Jefferson, his name is his biography.
Every slaveholding member of Congress from the States of Maryland, Virginia, North and South Carolina, and Georgia, voted for the celebrated ordinance of 1787, which abolished the slavery then existing in the Northwest Territory. Patrick Henry, in his well known letter to Robert Pleasants, of Virginia, January 18, 1773, says: "I believe a time will come when an opportunity will be offered to abolish this lamentable evil." William Pinkney, of Maryland, advocated the abolition of slavery by law, in the legislature of that State, in 1789. Luther Martin urged the same measure both in the Federal Convention, and in his report to the Legislature of Maryland. In 1796, St. George Tucker, of Virginia, professor of law in the University of William and Mary, and Judge of the General Court, published a dissertation on slavery, urging the abolition of slavery by law.
John Jay, while New-York was yet a slave State, and himself in law a slaveholder, said in a letter from Spain, in 1786, "An excellent law might be made out of the Pennsylvania one, for the gradual abolition of slavery. Were I in your legislature, I would present a bill for the purpose, and I would never cease moving it till it became a law, or I ceased to be a member."
Governor Tompkins, in a message to the Legislature of New-York, January 8, 1812, said: "To devise the means for the gradual and ultimate extermination from amongst us of slavery, is a work worthy the representatives of a polished and enlightened nation."
The Virginia Legislature asserted this power in 1832. At the close of a month's debate, the following proceedings were had. I extract from an editorial article in the Richmond Whig, Jan. 26, 1832.
"The report of the Select Committee, adverse to legislation on the subject of Abolition, was in these words: Resolved, as the opinion of this Committee, that it is INEXPEDIENT FOR THE PRESENT, to make any legislative enactments for the abolition of slavery." This Report Mr. Preston moved to reverse, and thus to declare that it was expedient, now to make legislative enactments for the abolition of slavery. This was meeting the question in its strongest form. It demanded action, and immediate action. On this proposition the vote was 58 to 73. Many of the most decided friends of abolition voted against the amendment, because they thought public opinion not sufficiently prepared for it, and that it might prejudice the cause to move too rapidly. The vote on Mr. Witcher's motion to postpone the whole subject indefinitely, indicates the true state of opinion in the House. That was the test question, and was so intended and proclaimed by its mover. That motion was negatived, 71 to 60; showing a majority of 11, who by that vote, declared their belief that at the proper time, and in the proper mode, Virginia ought to commence a system of gradual abolition.
7. THE CONGRESS OF THE UNITED STATES HAVE ASSERTED THIS POWER. The ordinance of '87, declaring that there should be "neither slavery nor involuntary servitude," in the North Western Territory, abolished the slavery then existing there. The Sup. Court of Mississippi, [Harvey vs. Decker, Walker's Mi. Reps. 36,] declared that the ordinance of '87 emancipated the slaves then held there. In this decision the question is argued ably and at great length. The Supreme Court of La. made the same decision in the case of Forsyth vs. Nash, 4 Martin's La. Reps. 385. The same doctrine was laid down by Judge Porter, (late United States Senator from La.,) in his decision at the March term of the La. Supreme Court, 1830, Merry vs. Chexnaider, 20 Martin's Reps. 699.
That the ordinance abolished the slavery then existing there is also shown by the fact, that persons holding slaves in the territory petitioned for the repeal of the article abolishing slavery, assigning that as a reason. "The petition of the citizens of Randolph and St. Clair counties in the Illinois country, stating that they were in possession of slaves, and praying the repeal of that act (the 6th article of the ordinance of '87) and the passage of a law legalizing slavery there." [Am. State papers, Public Lands, v. 1. p. 69.] Congress passed this ordinance before the United States' Constitution was adopted, when it derived all its authority from the articles of Confederation, which conferred powers of legislation far more restricted than those committed to Congress over the District and Territories by the United States' Constitution. Now, we ask, how does the Constitution abridge the powers which Congress possessed under the articles of confederation?
The abolition of the slave trade by Congress, in 1808, is another illustration of the competency of legislative power to abolish slavery. The African slave trade has become such a mere technic, in common parlance, that the fact of its being proper slavery is overlooked. The buying and selling, the transportation, and the horrors of the middle passage, were mere incidents of the slavery in which the victims were held. Let things be called by their own names. When Congress abolished the African slave trade, it abolished SLAVERY--supreme slavery--power frantic with license, trampling a whole hemisphere scathed with its fires, and running down with blood. True, Congress did not, in the abolition of the slave trade, abolish all the slavery within its jurisdiction, but it did abolish all the slavery in one part of its jurisdiction. What has rifled it of power to abolish slavery in another part of its jurisdiction, especially in that part where it has "exclusive legislation in all cases whatsoever?"
8. THE CONSTITUTION OF THE UNITED STATES RECOGNIZES THIS POWER BY THE MOST CONCLUSIVE IMPLICATION. In Art. 1, sec. 3, clause 1, it prohibits the abolition of the slave trade previous to 1808: thus implying the power of Congress to do it at once, but for the restriction; and its power to do it unconditionally, when that restriction ceased. Again; In Art. 4, sec. 2, "No person held to service or labor in one state under the laws thereof, escaping into another, shall in consequence of any law or regulation therein, be discharged from said service or labor." This clause was inserted, as all admit, to prevent the runaway slave from being emancipated by the laws of the free states. If these laws had no power to emancipate, why this constitutional guard to prevent it?
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