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, that was to breed trouble. This was the first of the series of acts empowering him to suspend the privilege of the writ of habeas corpus. Under this act he was permitted to set up martial law in any district threatened with invasion. The cause of this drastic measure was the confusion and the general demoralization that existed wherever the close approach of the enemy created a situation too complex for the ordinary civil authorities. Davis made use of the power thus given to him and proclaimed martial law in Richmond, in Norfolk, in parts of South Carolina, and elsewhere. It was on Richmond that the hand of the Administration fell heaviest. The capital was the center of a great camp; its sudden and vast increase in population had been the signal for all the criminal class near and far to hurry thither in the hope of a new field of spoliation; to deal with this immense human congestion, the local police were powerless; every variety of abominable contrivance to entrap and debauch men for a price was in brazen operation. The first care of the Government under the new law was the cleansing of the capital. General John H. Winder, appointed military governor, did the job with thoroughness. He closed the barrooms, disarmed the populace, and for the time at least swept the city clean of criminals. The Administration also made certain political arrests, and even imprisoned some extreme opponents of the Government for "offenses not enumerated and not cognizable under the regular process of law." Such arrests gave the enemies of the Administration another handle against it.