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Because he was keen not to upset the people of those states, and risk driving them into the arms of the Confederacy.

Even his 'proclamation' about Southern slaves was not, in fact, a human rights appeal, though it was meant to sound like one. The real objective was to keep Britain and France from granting recognition to the Confederates, and this new ethical/moral imperative prevented them from doing so.

Also, remember that Lincoln had been nominated by the Republicans because he was not an Abolitionist; he was moderate on the slavery issue, and the war started purely because he would not allow any new slave-states, not because he was insisting on abolition.

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