Liberated slaves were treated as contraband or captured property at this time. The confiscation act of 1861 allowed seizing Confederate property but did not clarify the fate of captured slaves. One Union general gained notoriety for general order No. 11 which freed all slaves in areas under his control. President Lincoln countermanded this order amid concerns of the political consequences in four slave-holding, border states that remained in the Union.

Liberated slaves were treated as contraband or captured property at this time. The confiscation act of 1861 allowed seizing Confederate property but did not clarify the fate of captured slaves. One Union general gained notoriety for general order No. 11 which freed all slaves in areas under his control. President Lincoln countermanded this order amid concerns of the political consequences in four slave-holding, border states that remained in the Union.