Produced by The James J. Kelly Library of St. Gregory's
University, and Alev Akman
THE BOSS AND THE MACHINE,
A CHRONICLE OF THE POLITICIANS AND PARTY ORGANIZATION
By Samuel P. Orth
CONTENTS
I. THE RISE OF THE PARTY
II. THE RISE OF THE MACHINE
III. THE TIDE OF MATERIALISM
IV. THE POLITICIAN AND THE CITY
V. TAMMANY HALL
VI. LESSER OLIGARCHIES
VII. LEGISLATIVE OMNIPOTENCE
VIII. THE NATIONAL HIERARCHY
IX. THE AWAKENING
X. PARTY REFORM
XI. THE EXPERT AT LAST
BIBLIOGRAPHICAL NOTE
THE BOSS AND THE MACHINE
CHAPTER I. THE RISE OF THE PARTY
The party system is an essential instrument of Democracy. Wherever
government rests upon the popular will, there the party is the organ of
expression and the agency of the ultimate power. The party is, moreover,
a forerunner of Democracy, for parties have everywhere preceded free
government. Long before Democracy as now understood was anywhere
established, long before the American colonies became the United
States, England was divided between Tory and Whig. And it was only after
centuries of bitter political strife, during which a change of ministry
would not infrequently be accompanied by bloodshed or voluntary exile,
that England finally emerged with a government deriving its powers from
the consent of the governed.
The functions of the party, both as a forerunner and as a necessary
organ of Democracy, are well exemplified in American experience. Before
the Revolution, Tory and Whig were party names used in the colonies to
designate in a rough way two ideals of political doctrine. The Tories
believed in the supremacy of the Executive, or the King; the Whigs in
the supremacy of Parliament. The Tories, by their rigorous and ruthless
acts giving effect to the will of an un-English King, soon drove the
Whigs in the colonies to revolt, and by the time of the Stamp Act (1765)
a well-knit party of colonial patriots was organized through committees
of correspondence and under the stimulus of local clubs called "Sons of
Liberty." Within a few years, these patriots became the Revolutionists,
and the Tories became the Loyalists. As always happens in a successful
revolution, the party of opposition vanished, and when the peace of
1783 finally put the stamp of reality upon the Declaration of 1776, the
patriot party had won its cause and had served its day.
Immediately thereafter a new issue, and a very significant one, began to
divide the thought of the people. The Articles of Confederation, adopted
as a form of government by the States during a lull in the nationalistic
fervor, had utterly failed to perform the functions of a national
government. Financially the Confederation was a beggar at the doors of
the States; commercially it was impotent; politically it was bankrupt.
The new issue was the formation of a national government that should in
reality represent a federal nation, not a collection of touchy States.
Washington in his farewell letter to the American people at the close of
the war (1783) urged four considerations: a strong central government,
the payment of the national debt, a well-organized militia, and the
surrender by each State of certain local privileges for the good of the
whole. His "legacy," as this letter came to be called, thus bequeathed
to us Nationalism, fortified on the one hand by Honor and on the other
by Preparedness.
The Confederation floundered in the slough of inadequacy for several
years, however, before the people were sufficiently impressed with the
necessity of a federal government. When, finally, through the adroit
maneuver of Alexander Hamilton and James Madison, the Constitutional
Convention was called in 1787, the people were in a somewhat chastened
mood, and delegates were sent to the Convention from all the States
except Rhode Island.
No sooner had the delegates convened and chosen George Washington as
presiding officer, than the two opposing sides of opinion were revealed,
the nationalist and the particularist, represented by the Federalists
and the Anti-Federalists, as they later termed themselves. The
Convention, however, was formed of the conservative leaders of the
States, and its completed work contained in a large measure, in spite
of the great compromises, the ideas of the Federalists. This achievement
was made possible by the absence from the Convention of the two types of
men who were to prove the greatest enemy of the new document when it was
presented for popular approval, namely, the office-holder or politician,
who feared that the establishment of a central government would deprive
him of his influence, and the popular demagogue, who viewed with
suspicion all evidence of organized authority. It was these two
types, joined by a third--the conscientious objector--who formed the
AntiFederalist party to oppose the adoption of the new Constitution.
Had this opposition been well-organized, it could unquestionably have
defeated the Constitution, even against its brilliant protagonists,
Hamilton, Madison, Jay, and a score of other masterly men.
The unanimous choice of Washington for President gave the new Government
a non-partizan initiation. In every way Washington attempted to foster
the spirit of an undivided household. He warned his countrymen against
partizanship and sinister political societies. But he called around
his council board talents which represented incompatible ideals
of government. Thomas Jefferson, the first Secretary of State, and
Alexander Hamilton, the first Secretary of the Treasury, might for a
time unite their energies under the wise chieftainship of Washington,
but their political principles could never be merged. And when,
finally, Jefferson resigned, he became forthwith the leader of the
opposition--not to Washington, but to Federalism as interpreted by
Hamilton, John Adams, and Jay.
The name Anti-Federalist lost its aptness after the inauguration of
the Government. Jefferson and his school were not opposed to a federal
government. They were opposed only to its pretensions, to its assumption
of centralized power. Their deep faith in popular control is revealed in
the name they assumed, Democratic-Republican. They were eager to limit
the federal power to the glorification of the States; the Federalists
were ambitious to expand the federal power at the expense of localism.
This is what Jefferson meant when he wrote to Washington as early as
1792, "The Republican party wish to preserve the Government in its
present form." Now this is a very definite and fundamental distinction.
It involves the political difference between government by the people
and government by the representatives of the people, and the practical
difference between a government by law and a government by mass-meeting.
Jefferson was a master organizer. At letter-writing, the one means of
communication in those days, he was a Hercules. His pen never
wearied. He soon had a compact party. It included not only most of the
Anti-Federalists, but the small politicians, the tradesmen and artisans,
who had worked themselves into a ridiculous frenzy over the French
Revolution and who despised Washington for his noble neutrality. But
more than these, Jefferson won over a number of distinguished men who
had worked for the adoption of the Constitution, the ablest of whom was
James Madison, often called "the Father of the Constitution."
The Jeffersonians, thus representing largely the debtor and farmer
class, led by men of conspicuous abilities, proceeded to batter down the
prestige of the Federalists. They declared themselves opposed to large
expenditures of public funds, to eager exploitation of government
ventures, to the Bank, and to the Navy, which they termed "the great
beast with the great belly." The Federalists included the commercial
and creditor class and that fine element in American life composed
of leading families with whom domination was an instinct, all led,
fortunately, by a few idealists of rare intellectual attainments. And,
with the political stupidity often characteristic of their class, they
stumbled from blunder to blunder. In 1800 Thomas Jefferson, who adroitly
coined the mistakes of his opponents into political currency for
himself, was elected President. He had received no more electoral votes
than Aaron Burr, that mysterious character in our early politics, but
the election was decided by the House of Representatives, where, after
seven days' balloting, several Federalists, choosing what to them was
the lesser of two evils, cast the deciding votes for Jefferson. When the
Jeffersonians came to power, they no longer opposed federal pretensions;
they now, by one of those strange veerings often found in American
politics, began to give a liberal interpretation to the Constitution,
while the Federalists with equal inconsistency became strict
constructionists. Even Jefferson was ready to sacrifice his theory of
strict construction in order to acquire the province of Louisiana.
The Jeffersonians now made several concessions to the manufacturers,
and with their support linked to that of the agriculturists Jeffersonian
democracy flourished without any potent opposition. The second war with
England lent it a doubtful luster but the years immediately following
the war restored public confidence. Trade flourished on the sea. The
frontier was rapidly pushed to the Mississippi and beyond into the vast
empire which Jefferson had purchased. When everyone is busy, no one
cares for political issues, especially those based upon philosophical
differences. So Madison and Monroe succeeded to the political regency
which is known as the Virginia Dynasty.
This complacent epoch culminated in Monroe's "Era of Good Feeling,"
which proved to be only the hush before the tornado. The election of
1824 was indecisive, and the House of Representatives was for a second
time called upon to decide the national choice. The candidates were John
Quincy Adams, Andrew Jackson, Henry Clay, and William H. Crawford. Clay
threw his votes to Adams, who was elected, thereby arousing the wrath of
Jackson and of the stalwart and irreconcilable frontiersmen who hailed
him as their leader. The Adams term merely marked a transition from the
old order to the new, from Jeffersonian to Jacksonian democracy. Then
was the word Republican dropped from the party name, and Democrat became
an appellation of definite and practical significance.
By this time many of the older States had removed the early restrictions
upon voting, and the new States carved out of the West had written
manhood suffrage into their constitutions. This new democracy flocked to
its imperator; and Jackson entered his capital in triumph, followed by a
motley crowd of frontiersmen in coonskin caps, farmers in butternut-dyed
homespun, and hungry henchmen eager for the spoils. For Jackson had let
it be known that he considered his election a mandate by the people to
fill the offices with his political adherents.
So the Democrats began their new lease of life with an orgy of spoils.
"Anybody is good enough for any job" was the favorite watchword.
But underneath this turmoil of desire for office, significant party
differences were shaping themselves. Henry Clay, the alluring orator
and master of compromise, brought together a coalition of opposing
fragments. He and his following objected to Jackson's assumption of vast
executive prerogatives, and in a brilliant speech in the Senate Clay
espoused the name Whig. Having explained the origin of the term in
English and colonial politics, he cried: "And what is the present but
the same contest in another form? The partizans of the present Executive
sustain his favor in the most boundless extent. The Whigs are opposing
executive encroachment and a most alarming extension of executive power
and prerogative. They are contending for the rights of the people, for
free institutions, for the supremacy of the Constitution and the laws."
There soon appeared three practical issues which forced the new
alignment. The first was the Bank. The charter of the United States Bank
was about to expire, and its friends sought a renewal. Jackson
believed the Bank an enemy of the Republic, as its officers were
anti-Jacksonians, and he promptly vetoed the bill extending the charter.
The second issue was the tariff. Protection was not new; but Clay
adroitly renamed it, calling it "the American system." It was popular in
the manufacturing towns and in portions of the agricultural communities,
but was bitterly opposed by the slave-owning States.
A third issue dealt with internal improvements. All parts of the country
were feeling the need of better means of communication, especially
between the West and the East. Canals and turnpikes were projected in
every direction. Clay, whose imagination was fervid, advocated a vast
system of canals and roads financed by national aid. But the doctrine of
states-rights answered that the Federal Government had no power to enter
a State, even to spend money on improvements, without the consent of
that State. And, at all events, for Clay to espouse was for Jackson to
oppose.
These were the more important immediate issues of the conflict between
Clay's Whigs and Jackson's Democrats, though it must be acknowledged
that the personalities of the leaders were quite as much an issue as any
of the policies which they espoused. The Whigs, however, proved unequal
to the task of unhorsing their foes; and, with two exceptions,
the Democrats elected every President from Jackson to Lincoln. The
exceptions were William Henry Harrison and Zachary Taylor, both of whom
were elected on their war records and both of whom died soon after their
inauguration. Tyler, who as Vice-President succeeded General Harrison,
soon estranged the Whigs, so that the Democratic triumph was in effect
continuous over a period of thirty years.
Meanwhile, however, another issue was shaping the destiny of parties and
of the nation. It was an issue that politicians dodged and candidates
evaded, that all parties avoided, that publicists feared, and that
presidents and congressmen tried to hide under the tenuous fabric of
their compromises. But it was an issue that persisted in keeping alive
and that would not down, for it was an issue between right and wrong.
Three times the great Clay maneuvered to outflank his opponents over the
smoldering fires of the slavery issue, but he died before the repeal
of the Missouri Compromise gave the death-blow to his loosely gathered
coalition. Webster, too, and Calhoun, the other members of that
brilliant trinity which represented the genius of Constitutional
Unionism, of States Rights, and of Conciliation, passed away before the
issue was squarely faced by a new party organized for the purpose of
opposing the further expansion of slavery.
This new organization, the Republican party, rapidly assumed form
and solidarity. It was composed of Northern Whigs, of anti-slavery
Democrats, and of members of several minor groups, such as the
Know-Nothing or American party, the Liberty party, and included as well
some of the despised Abolitionists. The vote for Fremont, its first
presidential candidate, in 1856, showed it to be a sectional party,
confined to the North. But the definite recognition of slavery as an
issue by an opposition party had a profound effect upon the Democrats.
Their Southern wing now promptly assumed an uncompromising attitude,
which, in 1860, split the party into factions. The Southern wing named
Breckinridge; the Northern wing named Stephen A. Douglas; while many
Democrats as well as Whigs took refuge in a third party, calling itself
the Constitutional Union, which named John Bell. This division cost the
Democrats the election, for, under the unique and inspiring leadership
of Abraham Lincoln, the Republicans rallied the anti-slavery forces of
the North and won.
Slavery not only racked the parties and caused new alignments; it
racked and split the Union. It is one of the remarkable phenomena of
our political history that the Civil War did not destroy the Democratic
party, though the Southern chieftains of that party utterly lost their
cause. The reason is that the party never was as purely a Southern
as the Republican was a Northern party. Moreover, the arrogance and
blunders of the Republican leaders during the days of Reconstruction
helped to keep it alive. A baneful political heritage has been handed
down to us from the Civil War--the solid South. It overturns the
national balance of parties, perpetuates a pernicious sectionalism,
and deprives the South of that bipartizan rivalry which keeps open the
currents of political life.
Since the Civil War the struggle between the two dominant parties has
been largely a struggle between the Ins and the Outs. The issues that
have divided them have been more apparent than real. The tariff, the
civil service, the trusts, and the long list of other "issues" do not
denote fundamental differences, but only variations of degree. Never
in any election during this long interval has there been definitely at
stake a great national principle, save for the currency issue of 1896
and the colonial question following the War with Spain. The revolt of
the Progressives in 1912 had a character of its own; but neither of the
old parties squarely joined issue with the Progressives in the
contest which followed. The presidential campaign of 1916 afforded an
opportunity to place on trial before the people a great cause, for there
undoubtedly existed then in the country two great and opposing sides
of public opinion--one for and the other against war with Germany. Here
again, however, the issue was not joined but was adroitly evaded by both
the candidates.
None the less there has been a difference between the two great parties.
The Republican party has been avowedly nationalistic, imperialistic, and
in favor of a vigorous constructive foreign policy. The Democratic party
has generally accepted the lukewarm international policy of Jefferson
and the exaltation of the locality and the plain individual as
championed by Jackson. Thus, though in a somewhat intangible and
variable form, the doctrinal distinctions between Hamilton and Jefferson
have survived.
In the emergence of new issues, new parties are born. But it is one of
the singular characteristics of the American party system that third
parties are abortive. Their adherents serve mainly as evangelists,
crying their social and economic gospel in the political wilderness. If
the issues are vital, they are gradually absorbed by the older parties.
Before the Civil War several sporadic parties were formed. The most
unique was the Anti-Masonic party. It flourished on the hysteria caused
by the abduction of William Morgan of Batavia, in western New York, in
1826. Morgan had written a book purporting to lay bare the secrets
of Freemasonry. His mysterious disappearance was laid at the doors of
leading Freemasons; and it was alleged that members of this order placed
their secret obligations above their duties as citizens and were hence
unfit for public office. The movement became impressive in Pennsylvania,
Vermont, Massachusetts, Ohio, and New York. It served to introduce
Seward and Fillmore into politics. Even a national party was organized,
and William Wirt, of Maryland, a distinguished lawyer, was nominated for
President. He received, however, only the electoral votes of Vermont.
The excitement soon cooled, and the party disappeared.
The American or Know-Nothing party had for its slogan "America for
Americans," and was a considerable factor in certain localities,
especially in New York and the Middle States, from 1853 to 1856. The
Free Soil party, espousing the cause of slavery restriction, named
Martin Van Buren as its presidential candidate and polled enough votes
in the election of 1848 to defeat Cass, the Democratic candidate. It
did not survive the election of 1852, but its essential principle was
adopted by the Republican party.
Since the Civil War, the currency question has twice given life to
third-party movements. The Greenbacks of 1876-1884 and the Populists
of the 90's were both of the West. Both carried on for a few years a
vigorous crusade, and both were absorbed by the older parties as
the currency question assumed concrete form and became a commanding
political issue. Since 1872, the Prohibitionists have named national
tickets. Their question, which was always dodged by the dominant
parties, is now rapidly nearing a solution.
The one apparently unreconcilable element in our political life is the
socialistic or labor party. Never of great importance in any national
election, the various labor parties have been of considerable influence
in local politics. Because of its magnitude, the labor vote has always
been courted by Democrats and Republicans with equal ardor but with
varying success.