Banner's were issued to police, military and I assume civilian; as said above, guns were not illegal, just regulated.
Officers bought their own pistols (and sometimes issues), but since they bought their own, thus they bought civilian types. In addition, remember that railroad officials needed arms, postal, etc, etc, some smaller caliber, some larger caliber.
ed
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Edward Tinker
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Co-Author of Police Lugers - Co-Author of Simson Lugers
Author of Veteran Bring Backs Vol I, Vol II, Vol III and Vol IV
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