In July, 1861, one of the special problems to be adjusted was the attitude of the Border States. Missouri, Kentucky, Tennessee, and West Virginia had not been willing at the outset to cast in their lot with the South, but they were not prepared to give any assured or active support to the authority of the national government. The Governor and the Legislature of Kentucky issued a proclamation of neutrality; they demanded that the soil of the State should be respected and that it should not be traversed by armed forces from either side. The Governor of Missouri, while not able to commit the State to secession, did have behind him what was possibly a majority of the citizens in the policy of attempting to prevent the Federal troops from entering the State. Maryland, or at least eastern Maryland, was sullen and antagonistic. Thousands of the Marylanders had in fact already made their way into Virginia for service with the Confederacy. On the other hand, there were also thousands of loyal citizens in these States who were prepared, under proper guidance and conservative management, to give their own direct aid to the cause of nationality. In the course of the succeeding two years, the Border States sent into the field in the Union ranks some fifty thousand men. At certain points of the conflict, the presence of these Union men of Kentucky, Tennessee, Maryland, and Missouri was the deciding factor. While these men were willing to fight for the Union, they were strongly opposed to being used for the destruction of slavery and for the freeing of the blacks. The acceptance, therefore, of the policy that was pressed by the extreme anti-slavery group, for immediate action in regard to the freeing of the slaves, would have meant at once the dissatisfaction of this great body of loyalists important in number and particularly important on account of their geographical position. Lincoln was able, although with no little difficulty, to hold back the pressure of Northern sentiment in regard to anti-slavery action until the course of the War had finally committed the loyalists of the Border States to the support of the Union. For the support of this policy, it became necessary to restrain certain of the leaders in the field who were mixing up civil and constitutional matters with their military responsibilities. Proclamations issued by Fremont in Missouri and later by Hunter in South Carolina, giving freedom to the slaves within the territory of their departments, were promptly and properly disavowed. Said Lincoln: "A general cannot be permitted to make laws for the district in which he happens to have an army."