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*¡¡The¡¡allusion¡¡was¡¡to¡¡the¡¡Mulligan¡¡letters£»¡¡which¡¡had¡¡been¡¡made¡¡public¡¡by¡¡Mr¡£¡¡Blaine¡¡himself¡¡when¡¡it¡¡had¡¡been¡¡charged¡¡that¡¡they¡¡contained¡¡evidence¡¡of¡¡corrupt¡¡business¡¡dealings¡£¡¡The¡¡disclosure¡¡bad¡¡been¡¡made¡¡four¡¡years¡¡before¡¡and¡¡ample¡¡opportunity¡¡had¡¡existed¡¡for¡¡instituting¡¡proceedings¡¡if¡¡the¡¡case¡¡warranted¡¡it£»¡¡but¡¡nothing¡¡was¡¡done¡¡except¡¡to¡¡nurse¡¡the¡¡scandal¡¡for¡¡campaign¡¡use¡£


Notwithstanding¡¡the¡¡exceptional¡¡violence¡¡and¡¡novel¡¡ingenuity¡¡of¡¡the¡¡attacks¡¡made¡¡upon¡¡him£»¡¡Blaine¡¡met¡¡them¡¡with¡¡such¡¡ability¡¡and¡¡address¡¡that¡¡everywhere¡¡he¡¡augmented¡¡the¡¡ordinary¡¡strength¡¡of¡¡his¡¡party£»¡¡and¡¡his¡¡eventual¡¡defeat¡¡was¡¡generally¡¡attributed¡¡to¡¡an¡¡untoward¡¡event¡¡among¡¡his¡¡own¡¡adherents¡¡at¡¡the¡¡close¡¡of¡¡the¡¡campaign¡£¡¡At¡¡a¡¡political¡¡reception¡¡in¡¡the¡¡interest¡¡of¡¡Blaine¡¡among¡¡New¡¡York¡¡clergymen£»¡¡the¡¡Reverend¡¡Dr¡£¡¡Burchard¡¡spoke¡¡of¡¡the¡¡Democratic¡¡party¡¡as¡¡¡¨the¡¡party¡¡of¡¡rum£»¡¡Romanism£»¡¡and¡¡rebellion¡£¡¨¡¡Unfortunately¡¡Blaine¡¡did¡¡not¡¡hear¡¡him¡¡distinctly¡¡enough¡¡to¡¡repudiate¡¡this¡¡slur¡¡upon¡¡the¡¡religious¡¡belief¡¡of¡¡millions¡¡of¡¡American¡¡citizens£»¡¡and¡¡alienation¡¡of¡¡sentiment¡¡caused¡¡by¡¡the¡¡tactless¡¡and¡¡intolerant¡¡remark¡¡could¡¡easily¡¡account¡¡for¡¡Blaine's¡¡defeat¡¡by¡¡a¡¡small¡¡margin¡£¡¡He¡¡was¡¡only¡¡1149¡¡votes¡¡behind¡¡Cleveland¡¡in¡¡New¡¡York¡¡in¡¡a¡¡poll¡¡of¡¡over¡¡1£»125£»000¡¡votes£»¡¡and¡¡only¡¡23£»005¡¡votes¡¡behind¡¡in¡¡a¡¡national¡¡poll¡¡of¡¡over¡¡9£»700£»000¡¡votes¡¡for¡¡the¡¡leading¡¡candidates¡£¡¡Of¡¡course¡¡Cleveland¡¡in¡¡his¡¡turn¡¡was¡¡a¡¡target¡¡of¡¡calumny£»¡¡and¡¡in¡¡his¡¡case¡¡the¡¡end¡¡of¡¡the¡¡campaign¡¡did¡¡not¡¡bring¡¡the¡¡customary¡¡relief¡£¡¡He¡¡was¡¡pursued¡¡to¡¡the¡¡end¡¡of¡¡his¡¡public¡¡career¡¡by¡¡active£»¡¡ingenious£»¡¡resourceful£»¡¡personal¡¡spite¡¡and¡¡steady¡¡malignity¡¡of¡¡political¡¡opposition¡¡from¡¡interests¡¡whose¡¡enmity¡¡he¡¡had¡¡incurred¡¡while¡¡Governor¡¡of¡¡New¡¡York¡£

The¡¡situation¡¡which¡¡confronted¡¡Cleveland¡¡when¡¡he¡¡became¡¡President¡¡was¡¡so¡¡complicated¡¡and¡¡embarrassing¡¡that¡¡perhaps¡¡even¡¡the¡¡most¡¡sagacious¡¡and¡¡resourceful¡¡statesman¡¡could¡¡not¡¡have¡¡coped¡¡with¡¡it¡¡successfully£»¡¡though¡¡it¡¡is¡¡the¡¡characteristic¡¡of¡¡genius¡¡to¡¡accomplish¡¡the¡¡impossible¡£¡¡But¡¡Cleveland¡¡was¡¡no¡¡genius£»¡¡he¡¡was¡¡not¡¡even¡¡a¡¡man¡¡of¡¡marked¡¡talent¡£¡¡He¡¡was¡¡stanch£»¡¡plodding£»¡¡laborious£»¡¡and¡¡dutiful£»¡¡but¡¡he¡¡was¡¡lacking¡¡in¡¡ability¡¡to¡¡penetrate¡¡to¡¡the¡¡heart¡¡of¡¡obscure¡¡political¡¡problems¡¡and¡¡to¡¡deal¡¡with¡¡primary¡¡causes¡¡rather¡¡than¡¡with¡¡effects¡£¡¡The¡¡great¡¡successes¡¡of¡¡his¡¡administration¡¡were¡¡gained¡¡in¡¡particular¡¡problems¡¡whose¡¡significance¡¡had¡¡already¡¡been¡¡clearly¡¡defined¡£¡¡In¡¡this¡¡field£»¡¡Cleveland's¡¡resolute¡¡and¡¡energetic¡¡performance¡¡of¡¡duty¡¡had¡¡splendid¡¡results¡£

At¡¡the¡¡time¡¡of¡¡Cleveland's¡¡inauguration¡¡as¡¡President£»¡¡the¡¡Senate¡¡claimed¡¡an¡¡extent¡¡of¡¡authority¡¡which£»¡¡if¡¡allowed¡¡to¡¡go¡¡unchallenged£»¡¡would¡¡have¡¡turned¡¡the¡¡Presidency¡¡into¡¡an¡¡office¡¡much¡¡like¡¡that¡¡of¡¡the¡¡doge¡¡of¡¡Venice£»¡¡one¡¡of¡¡ceremonial¡¡dignity¡¡without¡¡real¡¡power¡£¡¡¡¨The¡¡Federalist¡¨that¡¡matchless¡¡collection¡¡of¡¡constitutional¡¡essays¡¡written¡¡by¡¡Hamilton£»¡¡Madison£»¡¡and¡¡Jaylaid¡¡down¡¡the¡¡doctrine¡¡that¡¡¡¨against¡¡the¡¡enterprising¡¡ambition¡¨¡¡of¡¡the¡¡legislative¡¡department¡¡¡¨the¡¡people¡¡ought¡¡to¡¡indulge¡¡all¡¡their¡¡jealousy¡¡and¡¡exhaust¡¡all¡¡their¡¡precautions¡£¡¨¡¡But¡¡some¡¡of¡¡the¡¡precautions¡¡taken¡¡in¡¡framing¡¡the¡¡Constitution¡¡proved¡¡ineffectual¡¡from¡¡the¡¡start¡£¡¡The¡¡right¡¡conferred¡¡upon¡¡the¡¡President¡¡to¡¡recommend¡¡to¡¡the¡¡consideration¡¡of¡¡Congress¡¡¡¨such¡¡measures¡¡as¡¡he¡¡shall¡¡judge¡¡necessary¡¡and¡¡expedient£»¡¨¡¡was¡¡emptied¡¡of¡¡practical¡¡importance¡¡by¡¡the¡¡success¡¡of¡¡Congress¡¡in¡¡interpreting¡¡it¡¡as¡¡meaning¡¡no¡¡more¡¡than¡¡that¡¡the¡¡President¡¡may¡¡request¡¡Congress¡¡to¡¡take¡¡a¡¡subject¡¡into¡¡consideration¡£¡¡In¡¡practice£»¡¡Congress¡¡considers¡¡only¡¡such¡¡measures¡¡as¡¡are¡¡recommended¡¡by¡¡its¡¡own¡¡committees¡£¡¡The¡¡framers¡¡of¡¡the¡¡Constitution¡¡took¡¡special¡¡pains¡¡to¡¡fortify¡¡the¡¡President's¡¡position¡¡by¡¡the¡¡veto¡¡power£»¡¡which¡¡is¡¡treated¡¡at¡¡length¡¡in¡¡the¡¡Constitution¡£¡¡By¡¡a¡¡special¡¡clause£»¡¡the¡¡veto¡¡power¡¡was¡¡extended¡¡to¡¡¡¨every¡¡order£»¡¡resolution¡¡or¡¡vote¡£¡£¡£¡¡except¡¡on¡¡a¡¡question¡¡of¡¡adjournment¡¨a¡¡clause¡¡which¡¡apparently¡¡should¡¡enable¡¡the¡¡President¡¡to¡¡strike¡¡off¡¡the¡¡¡¨riders¡¨¡¡continually¡¡put¡¡upon¡¡appropriation¡¡bills¡¡to¡¡coerce¡¡executive¡¡action£»¡¡but¡¡no¡¡President¡¡has¡¡ventured¡¡to¡¡exercise¡¡this¡¡authority¡£¡¡Although¡¡the¡¡Senate¡¡was¡¡joined¡¡to¡¡the¡¡President¡¡as¡¡an¡¡advisory¡¡council¡¡in¡¡appointments¡¡to¡¡office£»¡¡it¡¡was¡¡explained¡¡in¡¡¡¨The¡¡Federalist¡¨¡¡that¡¡¡¨there¡¡will¡¡be¡¡no¡¡exertion¡¡of¡¡choice¡¡on¡¡the¡¡part¡¡of¡¡Senators¡£¡¨¡¡Nevertheless£»¡¡the¡¡Senate¡¡has¡¡claimed¡¡and¡¡exercised¡¡the¡¡right¡¡to¡¡dictate¡¡appointments¡£¡¡While¡¡thus¡¡successfully¡¡encroaching¡¡upon¡¡the¡¡authority¡¡of¡¡the¡¡President£»¡¡the¡¡Senate¡¡had¡¡also¡¡been¡¡signally¡¡successful¡¡in¡¡encroaching¡¡upon¡¡the¡¡authority¡¡of¡¡the¡¡House¡£¡¡The¡¡framers¡¡of¡¡the¡¡Constitution¡¡anticipated¡¡for¡¡the¡¡House¡¡a¡¡masterful¡¡career¡¡like¡¡that¡¡of¡¡the¡¡House¡¡of¡¡Commons£»¡¡and¡¡they¡¡feared¡¡that¡¡the¡¡Senate¡¡could¡¡not¡¡protect¡¡itself¡¡in¡¡the¡¡discharge¡¡of¡¡its¡¡own¡¡functions£»¡¡so£»¡¡although¡¡the¡¡traditional¡¡principle¡¡that¡¡all¡¡revenue¡¡bills¡¡should¡¡originate¡¡in¡¡the¡¡House¡¡was¡¡taken¡¡over¡¡into¡¡the¡¡Constitution£»¡¡it¡¡was¡¡modified¡¡by¡¡the¡¡proviso¡¡that¡¡¡¨the¡¡Senate¡¡may¡¡propose¡¡or¡¡concur¡¡with¡¡amendments¡¡as¡¡on¡¡other¡¡bills¡£¡¨¡¡This¡¡right¡¡to¡¡propose¡¡amendments¡¡has¡¡been¡¡improved¡¡by¡¡the¡¡Senate¡¡until¡¡the¡¡prerogative¡¡of¡¡the¡¡House¡¡has¡¡been¡¡reduced¡¡to¡¡an¡¡empty¡¡form¡£¡¡Any¡¡money¡¡bill¡¡may¡¡be¡¡made¡¡over¡¡by¡¡amendment¡¡in¡¡the¡¡Senate£»¡¡and¡¡when¡¡contests¡¡have¡¡followed£»¡¡the¡¡Senate¡¡has¡¡been¡¡so¡¡successful¡¡in¡¡imposing¡¡its¡¡will¡¡upon¡¡the¡¡House¡¡that¡¡the¡¡House¡¡has¡¡acquired¡¡the¡¡habit¡¡of¡¡submission¡£¡¡Not¡¡long¡¡before¡¡the¡¡election¡¡of¡¡Cleveland£»¡¡as¡¡has¡¡been¡¡pointed¡¡out£»¡¡this¡¡habitual¡¡deference¡¡of¡¡the¡¡House¡¡had¡¡enabled¡¡the¡¡Senate¡¡to¡¡originate¡¡a¡¡voluminous¡¡tariff¡¡act¡¡in¡¡the¡¡form¡¡of¡¡an¡¡amendment¡¡to¡¡the¡¡Internal¡¡Revenue¡¡Bill¡¡voted¡¡by¡¡the¡¡House¡£

In¡¡addition¡¡to¡¡these¡¡extensions¡¡of¡¡power¡¡through¡¡superior¡¡address¡¡in¡¡management£»¡¡the¡¡ascendancy¡¡of¡¡the¡¡Senate¡¡was¡¡fortified¡¡by¡¡positive¡¡law¡£¡¡In¡¡1867£»¡¡when¡¡President¡¡Johnson¡¡fell¡¡out¡¡with¡¡the¡¡Republican¡¡leaders¡¡in¡¡Congress£»¡¡a¡¡Tenure¡¡of¡¡Office¡¡Act¡¡was¡¡passed¡¡over¡¡his¡¡veto£»¡¡which¡¡took¡¡away¡¡from¡¡the¡¡President¡¡the¡¡power¡¡of¡¡making¡¡removals¡¡except¡¡by¡¡permission¡¡of¡¡the¡¡Senate¡£¡¡In¡¡1869£»¡¡when¡¡Johnson's¡¡term¡¡had¡¡expired£»¡¡a¡¡bill¡¡for¡¡the¡¡unconditional¡¡repeal¡¡of¡¡this¡¡law¡¡passed¡¡the¡¡House¡¡with¡¡only¡¡sixteen¡¡votes¡¡in¡¡the¡¡negative£»¡¡but¡¡the¡¡Senate¡¡was¡¡able¡¡to¡¡force¡¡a¡¡compromise¡¡act¡¡which¡¡perpetuated¡¡its¡¡authority¡¡over¡¡removals¡£*¡¡President¡¡Grant¡¡complained¡¡of¡¡this¡¡act¡¡as¡¡¡¨being¡¡inconsistent¡¡with¡¡a¡¡faithful¡¡and¡¡efficient¡¡administration¡¡of¡¡the¡¡government£»¡¨¡¡but¡¡with¡¡all¡¡his¡¡great¡¡fame¡¡and¡¡popularity¡¡he¡¡was¡¡unable¡¡to¡¡induce¡¡the¡¡Senate¡¡to¡¡relinquish¡¡the¡¡power¡¡it¡¡had¡¡gained¡£

*¡¡The¡¡Act¡¡of¡¡April¡¡5£»¡¡1869£»¡¡required¡¡the¡¡President£»¡¡within¡¡thirty¡¡days¡¡after¡¡the¡¡opening¡¡of¡¡the¡¡sessions£»¡¡to¡¡nominate¡¡persons¡¡for¡¡all¡¡vacant¡¡offices£»¡¡whether¡¡temporarily¡¡filled¡¡or¡¡not£»¡¡and¡¡in¡¡place¡¡of¡¡all¡¡officers¡¡who¡¡may¡¡have¡¡been¡¡suspended¡¡during¡¡the¡¡recess¡¡of¡¡the¡¡Senate¡£


This¡¡law¡¡was¡¡now¡¡invoked¡¡by¡¡Republicans¡¡as¡¡a¡¡means¡¡of¡¡counteracting¡¡the¡¡result¡¡of¡¡the¡¡election¡£¡¡Such¡¡was¡¡the¡¡feeling¡¡of¡¡the¡¡times¡¡that¡¡partisanship¡¡could¡¡easily¡¡masquerade¡¡as¡¡patriotism¡£¡¡Republicans¡¡still¡¡believed¡¡that¡¡as¡¡saviors¡¡of¡¡the¡¡Union¡¡they¡¡had¡¡a¡¡prescriptive¡¡right¡¡to¡¡the¡¡government¡£¡¡During¡¡the¡¡campaign£»¡¡Eugene¡¡Field£»¡¡the¡¡famous¡¡Western¡¡poet£»¡¡had¡¡given¡¡a¡¡typical¡¡expression¡¡of¡¡this¡¡sentiment¡¡in¡¡some¡¡scornful¡¡verses¡¡concluding¡¡with¡¡this¡¡defiant¡¡notice£º

These¡¡quondam¡¡rebels¡¡come¡¡today¡¡In¡¡penitential¡¡form£»¡¡And¡¡hypocritically¡¡say¡¡The¡¡country¡¡needs¡¡¡¨Reform£¡¡¨¡¡Out¡¡on¡¡reformers¡¡such¡¡as¡¡these£»¡¡By¡¡Freedom's¡¡sacred¡¡powers£»¡¡We'll¡¡run¡¡the¡¡country¡¡as¡¡we¡¡please£»¡¡We¡¡saved¡¡it£»¡¡and¡¡it's¡¡ours¡£

Although¡¡the¡¡Democratic¡¡party¡¡had¡¡won¡¡the¡¡Presidency¡¡and¡¡the¡¡House£»¡¡the¡¡Republicans¡¡still¡¡retained¡¡control¡¡of¡¡the¡¡Senate£»¡¡and¡¡they¡¡were¡¡expected¡¡as¡¡a¡¡matter¡¡of¡¡course¡¡to¡¡use¡¡their¡¡powers¡¡for¡¡party¡¡advantage¡£¡¡Some¡¡memorable¡¡struggles£»¡¡rich¡¡in¡¡constitutional¡¡precedents£»¡¡issued¡¡from¡¡these¡¡conditions¡£



CHAPTER¡¡IV¡£¡¡A¡¡CONSTITUTIONAL¡¡CRISIS

As¡¡soon¡¡as¡¡Cleveland¡¡was¡¡seated¡¡in¡¡the¡¡presidential¡¡chair£»¡¡he¡¡had¡¡to¡¡deal¡¡with¡¡a¡¡tremendous¡¡onslaught¡¡of¡¡office¡¡seekers¡£¡¡In¡¡ordinary¡¡business¡¡affairs£»¡¡a¡¡man¡¡responsible¡¡for¡¡general¡¡policy¡¡and¡¡management¡¡would¡¡never¡¡be¡¡expected¡¡to¡¡fritter¡¡away¡¡his¡¡time¡¡and¡¡strength¡¡in¡¡receiving¡¡applicants¡¡for¡¡employment¡£¡¡The¡¡fact¡¡that¡¡such¡¡servitude¡¡is¡¡imposed¡¡upon¡¡the¡¡President¡¡of¡¡the¡¡United¡¡States¡¡shows¡¡that¡¡American¡¡political¡¡arrangements¡¡are¡¡still¡¡rather¡¡barbaric£»¡¡for¡¡such¡¡usages¡¡are¡¡more¡¡suitable¡¡to¡¡some¡¡kinglet¡¡seated¡¡under¡¡a¡¡tree¡¡to¡¡receive¡¡the¡¡petitions¡¡of¡¡his¡¡tribesmen¡¡than¡¡they¡¡are¡¡to¡¡a¡¡republican¡¡magistrate¡¡charged¡¡with¡¡the¡¡welfare¡¡of¡¡millions¡¡of¡¡people¡¡distributed¡¡over¡¡a¡¡vast¡¡continent¡£¡¡Office¡¡seekers¡¡apparently¡¡regard¡¡themselves¡¡as¡¡a¡¡privileged¡¡class¡¡with¡¡a¡¡right¡¡of¡¡personal¡¡access¡¡to¡¡the¡¡President£»¡¡and¡¡any¡¡appearances¡¡of¡¡aloofness¡¡or¡¡reserve¡¡on¡¡his¡¡part¡¡gives¡¡sharp¡¡offense¡£¡¡The¡¡exceptional¡¡force¡¡of¡¡such¡¡claims¡¡of¡¡privilege¡¡in¡¡the¡¡United¡¡States¡¡may¡¡be¡¡attributed¡¡to¡¡the¡¡participation¡¡which¡¡members¡¡of¡¡Congress¡¡have¡¡acquired¡¡in¡¡the¡¡appointing¡¡power¡£¡¡The¡¡system¡¡thus¡¡created¡¡imposes¡¡upon¡¡the¡¡President¡¡the¡¡duties¡¡of¡¡an¡¡employment¡¡agent£»¡¡and¡¡at¡¡the¡¡same¡¡time¡¡engages¡¡Congressmen¡¡in¡¡continual¡¡occupation¡¡as¡¡office¡¡brokers¡£¡¡The¡¡President¡¡cannot¡¡deny¡¡himself¡¡to¡¡Congressmen£»¡¡since¡¡he¡¡is¡¡dependent¡¡upon¡¡their¡¡favor¡¡for¡¡opportunity¡¡to¡¡get¡¡legislative¡¡consideration¡¡for¡¡his¡¡measures¡£

It¡¡was¡¡inevitable¡¡that¡¡numerous¡¡changes¡¡in¡¡office¡¡should¡¡take¡¡place¡¡when¡¡the¡¡Democratic¡¡party¡¡came¡¡into¡¡power£»¡¡after¡¡being¡¡excluded¡¡for¡¡twenty¡­four¡¡years¡£¡¡It¡¡may¡¡be¡¡admitted¡¡that£»¡¡in¡¡a¡¡sound¡¡constitutional¡¡system£»¡¡a¡¡change¡¡of¡¡m

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