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What does "otherwise than" mean in this sentence?

[...]a very extensive territory cannot be governed on the principles of freedom, otherwise than by a confederacy of republics[...]

Is is saying that an extensive territory can be governed on principles of freedom by a confederacy of republics? Or is it saying that an extensive territory cannot be governed on principles of freedom by a confederacy of republics?

If it helps here is a snapshot of the document: picture of document, the phrase in question is highlighted

marked as duplicate by Noah, Community Nov 1 '16 at 4:53

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  • Otherwise than: in any way except the way that you are mentioning - A partnership cannot be ended otherwise than by mutual agreement. macmillandictionary.com/dictionary/british/otherwise-than - so....*a very estensive territory can be governed only by a confederation of republics.* – user66974 Oct 31 '16 at 21:10
  • so it means to say 'extensive territory can be governed on principles of freedom by a confederacy of republics', Thanks! – E7_82_8E Oct 31 '16 at 21:14
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    What @JOSH said - in another way than. – Drew Oct 31 '16 at 21:14
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other than or except by

[...]a very extensive territory cannot be governed on the principles of freedom, other than by a confederacy of republics[...]

or

[...]a very extensive territory cannot be governed on the principles of freedom, except by a confederacy of republics[...]

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