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In the Emancipation Proclamation of January 1863, President Lincoln specified areas of the nation where enslaved people would be liberated. The proclamation focused on freeing slaves held as property within states that had seceded in rebellion from the Union. States not represented in Congress were considered to be rebellious.
…I do order and declare that all persons held as slaves within said designated States, and parts of States, are, and henceforward shall be free…
Manuscript Division, Library of Congress