In 1870, the national capital was in dire financial straits, with both Congress and local government more involved with racial integration and civil rights policies for former slaves than with fiscal solvency or basic city services. With popular sentiment behind him, Republican political boss Alexander Shepherd convinced the Congress to unite the governments of Washington, Georgetown, and Washington County under a single territorial government for the District of Columbia, with the governor of the District to be appointed. Congress passed the bill in January 1871, and in the following month, President Ulysses S. Grant made Cooke, his friend (and an ally of Shepherd), governor of the District.