was a waste broken only by the presence of the Mormons in Utah, of
nomadic tribes of Indians on the plains, and of tribes of more settled
habits on the eastern border. In many cases these lands had been given
to Indian tribes in perpetuity, to compensate for the loss of their
original habitat in some of the Eastern States. With strange lack of
foresight, the national government had erected a barrier to its own
development.

As early as 1844, Douglas had proposed a territorial government for
the region of which the Platte, or Nebraska, was the central
stream.[415] The chief trail to Oregon traversed these prairies and
plains. If the United States meant to assert and maintain its title to
Oregon, some sort of government was needed to protect emigrants, and
to supply a military basis for such forces as should be required to
hold the disputed country. Though the Secretary of War indorsed this
view,[416] Congress was not disposed to anticipate the occupation of
the prairies. Nebraska became almost a hobby with Douglas. He
introduced a second bill in 1848,[417] and a third in 1852,[418] all
designed to prepare the way for settled government.

The last of these was unique. Its provisions were designed, no doubt,
to meet the unusual conditions presented by the overland emigration to
California. Military protection for the emigrant, a telegraph line,
and an overland mail were among the ostensible objects. The military
force was to be a volunteer corps, which would construct military
posts and at the same time provide for its own maintenance by tilling
the soil. At the end of three years these military farmers were each
to receive 640 acres along the route, and thus form a sort of military
colony.[419] Douglas pressed the measure with great warmth; but
Southerners doubted the advisability of "encouraging new swarms to