The loyal border states were not to be affected, but the proclamation renewed the promise of steps to be taken to persuade them to voluntary action.

On January 1, 1863, a second proclamation, referring to that of September 22, was issued by Lincoln "by virtue of the power in me vested as commander-in-chief of the army and navy of the United States in time of actual armed rebellion against the authority and Government of the United States...." The states affected were designated by name and all persons held as slaves within them "are, and henceforward shall be, free...." "I hereby enjoin upon the people so declared to be free to abstain from all violence, unless in necessary self-defence...." "And upon this act, sincerely believed to be an act of justice, warranted by the Constitution upon military necessity, I invoke the considerate judgment of mankind, and the gracious favour of Almighty God[873]." Such were the steps, from December, 1861, when the radical Sumner began his pressure for action, to September, 1862, when Lincoln's pledge of emancipation was made.

Did these steps indicate, as British opinion unquestionably held, an intention to rouse a servile insurrection?
Was the Confiscation Bill passed with that purpose in view and had Lincoln decided to carry it into effect?
The failure of the slaves to rise is, indeed, the great marvel of the Civil War and was so regarded not in England only, but in America also.

It was the expectation of the North and the constant fear of the South.

But was this, in truth, the _purpose_ of the emancipation proclamation?
This purpose has been somewhat summarily treated by American historians, largely because of lack of specific evidence as to motives at the time of issue.