Near the beginning of his first term as President, George Washington declared that a just Indian policy was one of his highest priorities, explaining that "The Government of the United States are determined that their Administration of Indian Affairs shall be directed entirely by the great principles of Justice and humanity."1 The Washington administration's initial policy toward Native Americans was enunciated in June of 1789. Secretary of War Henry Knox explained that the Continental Congress had needlessly provoked Native Americans following the Revolution by insisting on American possession of all territory east of the Mississippi River. Congress had previously argued that by supporting the British during the war Native Americans had forfeited any claim to territory on the western frontier of American settlement. However, this perspective ignored the fact that only a portion of tribes had actually supported the British.
In 1787, the Confederation Congress enacted the Northwest Ordinance, opening the Ohio Valley to new American settlement. Members of the Western Lakes Confederacy reacted by utilizing armed resistance to protect their land. These events increased the urgency for Washington to develop a formal method for managing Indian affairs. In referring to the constitutional grant of treaty-making powers to the chief executive—with the "advice and consent" of the Senate—Washington declared that a similar practice should also apply to agreements with Native Americans. The Senate acceded to the President's wishes and accepted treaties as the basis for conducting Indian relations.
In response, Congress proceeded to approve a treaty with seven northern tribes (the Shawnee, Miami, Ottawa, Chippewa, Iroquois, Sauk, and Fox). This agreement, however, lacked meaningful protection of tribal land. To the northern tribes this ineffectual treaty and the constant intrusion into their lands by droves of settlers meant that the American government had little control over its own citizens. Members of the northern tribes believed it was necessary to deploy force to prevent further incursions.
Washington's desire to protect American citizens led to an American military response. In 1790 and 1791, Washington dispatched armies to confront native forces, and in both instances the Americans were soundly defeated. Responding to these two embarrassing setbacks, Congress authorized a five-thousand man regular army to quell resistance. Led by General "Mad Anthony" Wayne, the Legion inflicted a crushing defeat on the Indian confederation in the Summer of 1794. This decisive battle and the ensuing Treaty of Greenville brought a tentative peace to the northwest in 1795.
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