The expected easy victory did not follow; but, on the contrary, came sad and humiliating defeat of Pope in the second battle of Bull Run in August, 1862. At this juncture Lincoln was urged by both individuals and delegations to follow one or the other decision relative to emancipation, but his attitude remained the same. On September 13, he informed a Chicago delegation that he was unable to free slaves by the Constitution, especially when the Constitution could not be enforced in the rebel States, and declared that any emancipation proclamation would at that time be as effective and operative as "the Pope's bull against the comet."[42] What the antislavery group wanted was not granted; but wholesale emancipation was going on by virtue of the provisions of the Confiscation Act, slavery had been abolished in the District of Columbia, and the territories had been restored to freedom. Lincoln, moreover, left himself a margin for action according to his declaration, in his interview with the Chicago delegation, that, as Commander-in-Chief of the Army and Navy, he had the right to take any measure which might best subdue the enemy.[43] Upon hearing of the Union victory at Antietam three days after, Lincoln immediately seized this opportunity to announce the policy upon which he had already decided. He had promised to withhold his Emancipation Proclamation until the rebels were out of Frederick. Now that they had been driven from Maryland and Pennsylvania, Lincoln was ready to carry out his plan. On September 22, 1862, therefore, he announced, read, and published his preliminary Emancipation Proclamation.[44] It embraced propositions that provided for the renewal of the plan of compensated emancipation, voluntary colonization, military emancipation of all slaves in rebellious States on January 1, 1863, and the ultimate recommendation of compensation to loyal owners. Although this proclamation was endorsed by an assembly of Governors from the Northern States, who had already convened at Altoona, Pennsylvania, to consider emergency measures for the protection of their respective States,[45] the political test of this announcement of military emancipation came, as expected, in the autumn elections. Popular discontent had arisen as the result of military failure. The Democrats boldly declared that the war of the Union had been changed to a war for abolition of slavery. Party conflicts became bitter and resulted in a loss to the Republicans although they still retained a majority.