Lotho was a henchman of Saruman but he was 'evil' for a longer time, Not so much evil in a Sauronlike way, but more in a way of gaining more power and respect in the Shire. This was something that Saruman and his ruffians could build on, Lotho got power from them but was controlled by them from behind the scenes. After a while the ruffians and Saruman just took over themselves, removing the middleman Lotho.
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