But as early as anyone he had foreseen the gradual emergence of emancipation as a war problem, at first dangerous to that wise "border state policy" which had prevented the more northern of the slave states from seceding.

His first duty was to restore the Union and to that he gave all his energy, yet that emancipation, when the time was ripe, was also in Lincoln's mind is evident from the gradual approach through legislation and administrative act.

In February, 1862, a Bill was under discussion in Congress, called the "Confiscation Bill," which, among other clauses, provided that all slaves of persons engaged in rebellion against the United States, who should by escape, or capture, come into the possession of the military forces of the United States, should be for ever free; but that this provision should not be operative until the expiration of sixty days, thus giving slave-owners opportunity to cease their rebellion and retain their slaves[865].

This measure did not at first have Lincoln's approval for he feared its effect on the loyalists of the border states.

Nevertheless he realized the growing strength of anti-slavery sentiment in the war and fully sympathized with it where actual realization did not conflict with the one great object of his administration.