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WASHINGTON — A watchdog said the government’s $45 billion bailout of Citigroup in the financial crisis met the goal of restoring the market’s confidence in the third-largest bank and limited the risk of taxpayer loss.

But the government’s decision to aid Citigroup in the fall of 2008 wasn’t made coherently and seemed to be based on “gut instinct,” said a report issued Thursday by the office of Neil Barofsky, special inspector general for the bailout of the financial industry.

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