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As long ago as 19o4, Ernst Freund wrote with respect to the regulation of the sale of alcoholic beverages, "There is hardly any other branch of law in which there has been so much shifting and reversing of policies."'1 This statement, intended as a summary of prior experience, proved to be prophetic of the years ahead. During Prohibition, regulatory policies assumed a superficial uniformity, but beneath the surface of constitutional restraint there developed the widest variety of local practices. These ranged from rigid suppression to easy toleration of an extra-legal liquor trade. In a sense local values could not be "repealed" by the adoption of Prohibition. In widespread areas an entirely new traffic in alcoholic beverages developed often dominated by professional criminals and accepted by otherwise law-abiding citizens as an unwelcome but necessary evil. Enforcement policies continued to fluctuate, more rapidly than in pre-Prohibition days, since there was no longer the stabilizing force of formalized toleration and official supervision. From many standpoints Repeal meant a return to legal rule and defined discretion.

State Administrative Machinery for Liquor Control