Lyons learned that a Bill would be introduced in Congress giving the President authority, among other powers, to "proclaim" the ports closed, thus notifying foreign nations not to attempt to use them.

He saw in it an unexpected application of the Northern theory that the South was not a belligerent and had no rights as such, and he regarded it as in effect a paper blockade[511].
The fourth section of the Bill as introduced in Congress did not direct the President to issue a proclamation closing Southern ports--it merely gave him the power to do so.

Almost from the first Lyons thought that Lincoln and Seward were too wise to issue such a proclamation[512].
Nevertheless it was his duty to be on guard and to oppose the plan.

For six weeks there was much communication in regard to the "Southern Ports Bill," as all parties called it, from Russell to Lyons, and also with Cowley in France.

The British Foreign Office interest in the matter, almost rising to excitement, is somewhat astonishing in view of the small importance evidently attached to the plan at Washington and the reluctance of France to be as vigorous as Great Britain in protest.
Vigorous Russell certainly was, using a "high tone" in official remonstrance to America not unlike that taken by Seward on British recognition of Southern belligerency.
Immediately on learning of the introduction of the Bill Russell addressed enquiries to Cowley asking what France intended and urged a stiff protest.