After President Abraham Lincoln issued the Emancipation Proclamation freeing all slaves in rebel territory, in April 1863 Foster appointed Horace James, an experienced Congregational chaplain, as "Superintendent of Negro Affairs for the North Carolina District." To support the transition to freedom for former slaves, he was to develop a colony from the contraband camp that had developed on Roanoke Island. It became known as the Roanoke Island Freedmen's Colony (1863–1867). James also managed other camps for freedmen in the state, such as one at Trent River near his base at New Bern. Foster directed James to settle the people, give them farming tools and prepare them for a "free and independent community."