The Cheyenne could win battles.

They could not win a war of attrition against a nation with virtually unlimited men and material.

This calculation was not defeatist or cowardly.

It was a clear-eyed assessment of the military and political reality.

The challenge was whether the American political system could or would produce the leadership necessary to honor treaty commitments — whether the government in Washington could control its own military and territorial officials well enough to make peace agreements actually mean something.

Black Kettle continued to believe, against considerable evidence, that it could.