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Lincoln didn't think he could legally free the slaves. But once they were in open rebellion he thought he could which is why he only freed them in the rebelling state's with the Emancipation Proclamation
I've always taken the Emancipation Proclamation as a warning. The Emancipation Proclamation was essentially Lincoln saying "knock your BS off right now and we the Status Quo will be maintained as if this all never happened." That's why it wasn't put into affect right away.