our emancipated and yet to be emancipated blacks from the old condition of forced labor to their new state of voluntary industry.”
Some half-hearted steps were taken to accomplish this, in part, by putting the whole matter again in charge of the special Treasury agents. Laws of 1863 and 1864 directed them to take charge of and lease abandoned lands for periods not exceeding twelve months, and to “provide in such leases, or otherwise, for the employment and general welfare” of the freedmen. Most of the army officers greeted this as a welcome relief from perplexing “Negro affairs,” and Secretary Fessenden, July 29, 1864, issued an excellent system of regulations, which were afterward closely followed by General Howard. Under Treasury agents, large quantities of land were leased in the Mississippi Valley, and many Negroes were employed; but in August, 1864, the new regulations were suspended for reasons of “public policy,” and the army was again in control.
Meanwhile Congress had turned its attention to the subject; and in March the House passed a bill by a majority of two establishing a Bureau for Freedmen in the War Department. Charles Sumner, who had charge of the bill in the Senate, argued that freedmen and abandoned lands ought to be under the same department, and reported a substitute for the House bill attaching the Bureau to the Treasury Department. This bill passed, but too late for action by the House. The debates wandered over the whole policy of the administration and the general question of slavery, without touching very closely the specific merits of the measure in hand. Then the national election took place; and the administration, with a vote of renewed confidence from the country, addressed itself to the matter more seriously. A conference between the two branches of Congress agreed upon a carefully drawn measure which contained the chief provisions of Sumner’s bill, but made the proposed organization a department independent of both the War and the Treasury officials. The bill was conservative, giving the new department “general superintendence of all freedmen.” Its purpose was to “establish regulations” for them, protect them, lease them lands, adjust their wages, and appear in civil and military courts as their “next friend.” There were many limitations attached to the powers thus granted, and the organization was made permanent. Nevertheless, the Senate defeated the bill, and a new conference committee was appointed. This committee reported a new bill, February 28, which was whirled through just as the session closed, and became the act of 1865 establishing in the War Department a “Bureau of Refugees, Freedmen, and Abandoned Lands.”This last compromise was a hasty bit of legislation, vague and uncertain in outline. A Bureau was 

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