With the obvious design of avoiding every thing which could chill the sympathy with the Confederacy so largely prevailing in the Border States, the Proclamation excepted from its operation the States of Delaware, Maryland, Kentucky, Missouri, the District of Columbia, the Territories of New Mexico, Arizona, and the Indian Territory.

This was a manifest declaration of what they expected to include in the Confederacy when the National Government should finally surrender.

Wherever a slave was held, the Confederate leaders adjudged the people to be their friends and their future allies.
CONFEDERATE CONFISCATION BILL.
This warning to alien enemies could not however be regarded as a measure of special harshness, or one beyond the fair exercise of the war power.

But the next step was of a different nature.

A law was enacted sequestrating "the estates, property, and effects of alien enemies." Mr.Judah P.Benjamin, who was at the time Attorney-General of the Confederate Government, proceeded to enforce the Act with utmost rigidity.