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Because they had pro-Southern leaders, who might easily have put pressure on the public to vote to join the Confederacy if Lincoln alienated them too much.

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How did the US Civil War impact Kentucky?

It only "freed" slaves in territories the US no longer controlled. In other words, it freed no slaves, but instead served as a moral impetus for the North's flagging war effort. If Lincoln had indeed free slaves in Kentucky, or any of the border states, the threat of further secession would have potentially damaged the Union beyond repair. These states still had sizable slave holdings, so Lincoln had to approach the issue with kid gloves. He was against slavery as an institution, but his desire to preserve the Union trumped all else. It took the 13th Amendment to the Constitution after the war to officially end slavery in Kentucky and all the other states which had remained loyal.


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