During winter and spring of 1865, Tennessee amendments gain voter approval, abolishing slavery in the state, and loyalist government elected and inaugurated. Legislatures of Louisiana, Arkansas, and Tennessee approve Thirteenth Amendment. Lincoln and congressional Republicans fail to reach accord on Reconstruction legislation before Congress adjourns in early March, and Congress refuses to seat Louisiana and Arkansas claimants but creates Freedmen’s Bureau. Lincoln’s Second Inaugural Address promises reconciliation for former Confederates and justice for freedpeople. Following Lee’s surrender, Lincoln’s “last” address defends his Reconstruction policy and the Louisiana government, although Lincoln also for the first time publicly endorses black suffrage and acknowledges black role in Reconstruction. Confederate surrender in western theater takes several more weeks. Andrew Johnson announces Reconstruction policy in late May 1865, recognizing governments of Tennessee, Arkansas, and Louisiana but rejecting calls for black role in Reconstruction.