In an effort to placate the slave-holding border states, Lincoln resisted the demands of radical Republicans for complete abolition. Yet some Union generals, such as General B. F. Butler, declared slaves escaping to their lines "contraband of war," not to be returned to their masters. Other generals decreed that the slaves of men rebelling against the Union were to be considered free. Congress, too, had been moving toward abolition. In 1861, Congress had passed an act stating that all slaves employed against the Union were to be considered free. In 1862, another act stated that all slaves of men who supported the Confederacy were to be considered free. Lincoln, aware of the public's growing support of abolition, issued the Emancipation Proclamation on declaring that all slaves in areas still in rebellion were, in the eyes of the federal government, free.