ial duty, inevitably tended to lower the standard of public
morality, alike among the office-holders and among the politicians who
rendered party service with the hope of reward in office. Indeed, the
doctrine that "To the victor belong the spoils," the cynical battle-cry
of the spoils politician in America for the sixty years preceding my own
entrance into public life, is so nakedly vicious that few right-thinking
men of trained mind defend it. To appoint, promote, reduce, and
expel from the public service, letter-carriers, stenographers, women
typewriters, clerks, because of the politics of themselves or their
friends, without regard to their own service, is, from the standpoint of
the people at large, as foolish and degrading as it is wicked.

Such being the case, it would seem at first sight extraordinary that
it should be so difficult to uproot the system. Unfortunately, it was
permitted to become habitual and traditional in American life, so that
the conception of public office as something to be used primarily for
the good of the dominant political party became ingrained in the mind
of the average American, and he grew so accustomed to the whole process
that it seemed part of the order of nature. Not merely the politicians
but the bulk of the people accepted this in a matter-of-course way as
the only proper attitude. There were plenty of communities where the
citizens themselves did not think it natural, or indeed proper, that
the Post-Office should be held by a man belonging to the defeated
party. Moreover, unless both sides were forbidden to use the offices for
purposes of political reward, the side that did use them possessed
such an advantage over the other that in the long run it was out of the
question for the other not to follow the bad example that had been set.
Each party profited by the offices when in power, and when in opposition
each party insincerely denounced its opponents for doing exactly what it
itself had done and intended again to do.

It was necessary, in order to remedy the evil, both gradually to change
the average citizen's mental attitude toward the question, and also to
secure proper laws and proper administration of the laws. The work is
far from finished even yet. There are still masses of office-holders
who can be used by an unscrupulous Administration to debauch political
conventions and fraudulently overcome public sentiment, especially in
the "rotten borough" districts--those where