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This is the first document of national scope issued by the Federal government after the fracas at Charleston. If you can read slavery into it you're a better spin master than I could ever be. Revenue.
In ticklish situations, most presidents are not dumb enough to tip their hands, make provacative statements or take too-aggressive action.
For example, Kennedy ensured the only ships stopped during the Cuban missle crisis blockade were *not* carrying military equipment, armed forces are frequently sent on 'maneuvers' during turmoil and Al Capone was imprisoned on tax charges
Shucks, even states like Iran are not dumb enough to try *real* spies, but rather reporters (whom will soon be released) to make a showy point...
HankC