From 1862 to December 1863 Foster commanded the Department of North Carolina. After the Emancipation Proclamation, he appointed Horace James, a Congregational minister, to help freedmen prepare for independent life, and directed a former contraband camp to be developed as the Freedmen's Colony of Roanoke Island. By 1864, 2,200 freedmen were settled on household plots. Many worked for pay for the Army, which held the forts. Under President Andrew Johnson, after the war, the Army abandoned the colony. Most of the freedmen chose to return to the mainland for work.