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In effect the proclamation freed slaves in territories fighting the Union...not all slaves every where...to quote wikipedia:
On September 22, 1862, Lincoln had issued a preliminary proclamation that he would order the emancipation of all slaves in any state (or part of a state) that did not end their rebellion against the Union by January 1, 1863. None of the Confederate states restored themselves to the Union, and Lincoln's order, signed and issued January 1, 1863, took effect.
In other words if a state ended the rebellion by 1 January slaves would not be freed in that state. However none of the states surrendered.
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