But a great and bitter trial confronted him. He had never been a politician. Now he was caught in a maelstrom of ungenerous and malignant politics. All his influence and effort had been addressed to promote the calming of the passions of the war, and a reunion in fact as well as in form. The President, professing an intention of carrying out the policy of his predecessor, began a method of reconstructing civil governments in the States that had seceded which produced great dissatisfaction. Upon his own initiative, without authority of Congress, he proceeded to encourage and abet those who were lately in arms against the Union to make new constitutions for their States, and institute civil governments therein, as if they alone were to be considered. The freedmen, who had been of so great service to our armies, whom by every requirement of honor and gratitude we were bound to protect, were left to the hardly restricted guardianship of their former masters, who, having no faith in their manhood or their development, devised for them a condition with few rights or hopes, and little removed from the slavery out of which they had been delivered. This policy found little favor with those in the North who had borne the heat and burden of the war. In the elections of 1866 the people repudiated President Johnson's policy by emphatic majorities. When the hostile Congress met, the governments Johnson had instituted were declared to be provisional only, and it set about the work of reconstruction in its own way, imbedding the changed conditions, the fruits of the war, in proposed amendments of the Constitution of the United States, which were ultimately ratified by a sufficient number of States to make them part of the organic frame of government of the Republic. In these days of storm and stress, General Grant took neither side as a partisan. He stuck to his professional work until he was forced to be a participator in a political war, strange to his knowledge and his habits. Congress directed the Southern States to be divided into five military districts, with a military commander of each, and all subordinate to the general of the army, who was charged with keeping the peace, until civil governments in the States should be established by the legislative department of national authority.