The organization of a loyal government on a free-state basis in Louisiana in early 1864 under Lincoln’s ten-percent plan. Contrary to the free-state Unionists’ plan, General Nathaniel Banks orders an election for state executive officers before holding a constitutional convention to abolish slavery. In the campaign that follows, free-state Unionists split into “radical” and “moderate” factions, primarily over black political and legal rights but also over Banks’s interference. Conservative Unionists in Louisiana continue their campaign to restore Louisiana as a slave state, but Congress refuses to seat claimants elected in November 1863. Free-state moderate Michael Hahn is elected Unionist governor in March and takes office. In the planning for a state constitutional convention to abolish slavery, New Orleans free people of color advocate for voting rights, and Lincoln, after meeting with two black leaders, “privately” suggests to Hahn that Louisiana adopt limited black suffrage.

The organization of loyal governments on a free-state basis in Tennessee and Arkansas during early 1864. Unionists in Arkansas hold a constitutional convention in January and draft a state constitution prohibiting slavery. Despite logistical challenges, constitution gains approval by voters in Union-held Arkansas in March. In Tennessee, Andrew Johnson formulates plan to hold local elections before holding a state constitutional convention. Johnson’s plan includes a loyalty oath that imposes stricter requirements for voting than Lincoln’s ten-percent plan. Local elections take place and officials began assuming office, but the unsettled military situation in the state forces postponement of the plan to hold a state constitutional convention.

Contests between free-state and conservative Unionists in Tennessee and Louisiana continue through summer 1863. Tennessee conservatives conduct a gubernatorial convention that Lincoln refuses to recognize. Despite Lincoln’s rejection, Louisiana conservatives also plan elections for the fall, while free-state Unionists – despite Lincoln’s support – encounter various challenges. Free-state Unionism arises in Arkansas after Federal capture of Little Rock in September 1863. In North, debate over Reconstruction intensifies after Federal victories at Vicksburg and Gettysburg, and antislavery advocates warn against any reunion that does not require rebellious states to abolish slavery in state constitutions, else slavery may survive war. Northern debate over Reconstruction intersects with contest between free-state and conservative Unionists in Louisiana and Tennessee.

Following Federal capture of Little Rock, Arkansas Unionists prepare during fall 1863 for free-state convention, to meet in early 1864. Conservative Unionists in Tennessee petition Lincoln to recognize their gubernatorial election, but Federal capture of Chattanooga revives hopes to organize free-state government in Tennessee. Andrew Johnson supports abolition of slavery in Tennessee. Conservative Unionists in Louisiana hold congressional elections in November and send members-elect to Congress. Free-state movement stalls in Louisiana during the fall, and Lincoln places General Nathaniel Banks in charge of organizing free-state government, warning of efforts by proslavery Unionists to organize a loyal government. “Etheridge Plot” features failed attempt by northern Democrats, along with southern and border-state conservative Unionists, to seize control of organizing closely divided House of Representatives in December 1863. Thirteenth Amendment introduced into Congress. Lincoln announces plan for Reconstruction, the ten-percent plan, in December.