Within any bureaucracy the size of that to which the government of the United States had grown there were inevitably those who had been in the same or similar roles for a number of administrations, if not decades. They had been hired or appointed to carry out certain tasks and implement certain policies and, whether intentionally or subliminally, they did their job each day as they had been hired to do it, often oblivious to the changes in policy by subsequent administrations. These men and women made up the shadow government. There were those in the print and broadcast media who reveled in referring to a so-called

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