Winslow Homer and "Red Tape"

Just back from the crowded National Gallery of Art and its exhibition of Winslow Homer art. We've seen almost all of it before, since these are works NGA owns, although not always displays. I was pleased by one print that was a conglomeration of Homer's sketches--covering the years 1860-70, with an associated poem. Various images, mostly of war, but Lincoln was at the center holding a paper labeled "Emancipation Proclamation." A streamer or ribbon trailed down to the left. It was labeled "red tape". I'm not sure of the implication--that Lincoln's executive action had cut through the procedural red tape involved in freeing the slaves (i.e., through constitutional amendment)?