They could not be left to the chance relief of the alms-giver, for their number was too large.
The white population of the South were themselves reduced almost to poverty by the long struggle; and even if they had been able they were in no mood to extend relief to negroes who, as they believed, had been wrongfully released from slavery.
The Act provided that the Bureau should have supervision and management of all abandoned lands and control of all subjects relating to freedmen and refugees from the Rebel States, under such regulations as might be prescribed by the Commissioner at the head of the Bureau and by the President.

The Secretary of War was authorized "to direct such issues of provisions, clothing and fuel as he may deem needful for the immediate and temporary shelter and supply of destitute and suffering refugees and freedmen and their wives and children, under such rules and regulations as he may approve." The Commissioner was authorized to lease, for a term of three years, to every male citizen, whether refugee or freedman, not more than forty acres of the lands which had been abandoned by their owners or confiscated to the United States, at a rental of six per cent on the last appraised value.

At the end of three years the occupant was entitled to purchase and receive the land, with such title as the United States could convey, at a price proportioned to the rental value.

Very little permanent advantage came to the negro from this provision; for the abandoned lands were legally reclaimed by their owners and the confiscations, few in number, would, by the Constitution, be only for the life of the owner.

Temporary relief however was afforded; but much harm was done by creating in the minds of ignorant freedmen, just redeemed from slavery, the belief that the Government would give to each of them "forty acres of land and a mule." The Commissioner selected was Major-General Oliver O.Howard, who had gone through the war with marked honor.