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SINCE 1915 the question of sovereignty over the California off-shore islands has been raised four times, though never officially. The historical bases of the questions are complex, including the indefinite and unusual language used in the Treaty of Guadalupe Hidalgo in defining the boundary line. On September 10, 1959, Professor Donald C. Cutter of the University of Southern California raised the question in a talk before the Berkeley Rotary Club, asserting "they haven't been admitted to the Union yet." In a letter he amplified the remark