 When Lincoln issued the Emancipation Proclamation in January 1863, declaring freedom for all slaves in Confederate-held areas, he exempted Tennessee at Johnson's request. The proclamation increased the debate over what should become of the slaves after the war, as not all Unionists supported abolition. Johnson finally decided that slavery had to end. He wrote, "If the institution of slavery ... seeks to overthrow it [the Government], then the Government has a clear right to destroy it". He reluctantly supported efforts to enlist former slaves into the Union Army, feeling that African-Americans should perform menial tasks to release white Americans to do the fighting. Nevertheless, he succeeded in recruiting 20,000 black soldiers to serve the Union.
