Produced by Juliet Sutherland, Shawn Cruze and PG Distributed Proofreaders JOHNS HOPKINS UNIVERSITY STUDIES IN HISTORICAL AND POLITICAL SCIENCE HERBERT B. ADAMS, Editor History is past Politics and Politics present History–_Freeman_ NINTH SERIES I-II GOVERNMENT AND ADMINISTRATION OF THE UNITED STATES BY WESTEL W. WILLOUGHBY, A.B. _Fellow in History_ AND WILLIAM F. WILLOUGHBY, A.B. _U.S.
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