By the end of 1861 tens of thousands of slaves were emancipated as they came into Union lines at Fortress Monroe, Virginia, the Sea Islands off South Carolina, and in western Missouri. In December the Lincoln administration announced its emancipation policy in a series of annual reports by the president as well as several of his cabinet secretaries. By January Lincoln himself declared that no federal authority, civil or military, could legally return fugitive slaves to their owners. By then the sentiment for a more radical approach to emancipation had been building, and in July Congress authorized the president to issue a more general emancipation proclamation, freeing all the slaves in all areas in rebellion. A few days after Lincoln signed the law—known as the Second Confiscation Act—he drafted the first version of what would become his Emancipation Proclamation.