Both as regards the border states and looking to the restoration of the Union, Lincoln was determined to give this line of policy a trial.

The prevailing sentiment of Congress, however, preferred the punitive Confiscation Bill.
At this juncture General Hunter, in command of the "Department of the South," which theoretically included also the States of South Carolina, Georgia and Florida, issued an order declaring the slaves in these states free.

This was May 9, 1862.

Lincoln immediately countermanded Hunter's order, stating that such action "under my responsibility, I reserve to myself[867]." He renewed, in this same proclamation, earnest appeals to the border states, to embrace the opportunity offered by the Congressional resolution of April 10.

In truth, border state attitude was the test of the feasibility of Lincoln's hoped-for voluntary emancipation, but these states were unwilling to accept the plan.
Meanwhile pressure was being exerted for action on the Confiscation Bill; it was pushed through Congress and presented to Lincoln for his signature or veto.