The enfranchisement of the negroes added a new and enormous mass of voters, who were utterly and childishly incompetent, and it applied mainly to that portion of the United States which had escaped the contamination of the immigrant vote. For some time after the war the influence of property and intelligence in the South was completely broken, and the negro vote was ostensibly supreme. The consequence was what might have been expected. A host of vagrant political adventurers from the North, known in America as carpet-baggers, poured into the Southern provinces, and, in conjunction with the refuse of the mean whites, they undertook the direction of the negro votes. Then followed, under the protection of the Northern bayonets, a grotesque parody of government, a hideous orgie of anarchy, violence, unrestrained corruption, undisguised, ostentatious, insulting robbery, such as the world had scarcely ever seen. The State debts were profusely piled up. Legislation was openly put up for sale. The ‘Bosses’ were in all their glory, and they were abundantly rewarded, while the crushed, ruined, plundered whites combined in secret societies for their defence, and retaliated on their oppressors by innumerable acts of savage vengeance.56 At length the Northern troops were withdrawn, and the whole scene changed. The carpet-baggers had had their day, and they returned laden with Southern booty to their own States. Partly by violence, partly by fraud, but largely also through the force of old habits of obedience and command, the planters in a short time regained their ascendency. Sometimes, it is said, they did not even count the negro votes. Generally they succeeded in dictating them, and by systematic manipulation or intimidation they restored the South to quiet and some degree of prosperity. A more curious picture of the effects of democratic equality among a population who were entirely unfitted for it had never been presented. The North, it is true, introduced all the apparatus of State education for the benefit of the negroes; but if there had ever been any desire for such things, it soon died away. Mr. Bryce, writing about twenty-three years after the termination of the Civil War, says: ‘Roughly speaking, 75 per cent. of the adult coloured voters are unable to write, and most of the rest unaccustomed to read newspapers.’57
The system I have described has proved even more pernicious in municipal government than in State politics or in Federal politics. Innumerable elections of obscure men to obscure places very naturally failed to excite general interest, and they almost inevitably fell into the hands of a small ring of professional politicians. The corruption of New York, which has been the most notorious, is often attributed almost exclusively to the Irish vote; but as early as the first quarter of the nineteenth century, when Irish influence was quite imperceptible, the State and City of New York were in the hands of a clique called ‘the Albany Regency,’ which appears to have exhibited on a small scale most of the features of the later rings. ‘A strong phalanx of officers, from the governor and the senators down to the justices of peace in the most remote part of the State,’ we are told, governed New York for the sole benefit of a small knot of corrupt politicians. ‘The judiciaries’ were ‘shambles for the bargain and sale of offices.’ The justices of the peace were all the creatures of the party, and were almost invariably corrupt.58 Between 1842 and 1846, when the great Irish immigration had not yet begun, an evil of another kind was prevailing in New York. It was the custom to allow the inmates of public almshouses to leave the institutions on the days of election and cast their votes; and an American writer assures us that at this time ‘the almshouses formed an important factor in the politics of the State of New York, for the paupers were sent out to vote by the party in power, and were threatened with a loss of support unless they voted as directed; and the number was such as to turn the scale in the districts in which they voted.’59 It was abuses of this kind that led to one of the greatest modern improvements in American politics—the exclusion in several States of absolute paupers from the franchise.
It is true, however, that the corruption never attained anything approaching the magnitude which it reached between 1863 and 1871, when all the powers of the State and town of New York had passed into the hands of the Tammany Ring. At this time four-ninths of the population were of foreign birth. A vast proportion consisted of recent immigrants, and the Irish Catholic vote seems to have ‘gone solid’ in favour of the ring. The majority of the State legislature, the mayor, the governor, several of the judges, almost all the municipal authorities who were empowered to order, appropriate, supervise and control expenditure, were its creatures, and I suppose no other capital city in the civilised globe has ever, in time of peace, witnessed such a system of wholesale, organised, continuous plunder. It was computed that 65 per cent. of the sums that were ostensibly expended in public works represented fraudulent additions. Between 1860 and 1871 the debt of New York quintupled, and during the last two and a half years of the government of the ring it increased at the rate of more than five and a half millions of pounds a year.60 A distinguished American writer, who is also a distinguished diplomatist and well acquainted with the conditions of European capitals, has drawn the following instructive parallel. ‘The city of Berlin, in size and rapidity of growth, may be compared to New York. It contains twelve hundred thousand inhabitants, and its population has tripled within the last thirty years.… While Berlin has a municipal life at the same time dignified and economical, with streets well paved and clean, with a most costly system of drainage, with noble public buildings, with life, liberty, and the pursuit of happiness better guarded by far than in our own metropolis, the whole government is carried on by its citizens for but a trifle more than the interest of the public debt of the city of New York.’
‘I wish,’ says the same writer, ‘to deliberately state a fact easy of verification—the fact that whereas, as a rule, in other civilised countries municipal Governments have been steadily improving until they have been made generally honest and serviceable, our own, as a rule, are the worst in the world, and they are steadily growing worse every day.’61
The case of New York was an extreme one, but was, indeed, very far from being unique. ‘The government of the cities,’ says Mr. Bryce, ‘is the one conspicuous failure of the United States.… The faults of the State Governments are insignificant compared with the extravagance, corruption, and mismanagement which mark the administration of most of the great cities. For these evils are not confined to one or two cities.… There is not a city with a population of 200,000 where the poison-germs have not sprung into vigorous life, and in some of the smaller ones, down to 70,000, it needs no microscope to note the results of their growth. Even in cities of the third rank similar phenomena may occasionally be discerned; though there, as some one has said, the jet-black of New York or San Francisco dies away into a harmless grey.’62 It should be added, that there is no country in the world in which this question is more important than in the United States, for there is no country in which town life during the present century has increased so enormously and so rapidly. The proportion of the population who live in towns of over 8,000 inhabitants is said to have risen in that period from 4 to more than 23 per cent.63
Mr. Bryce has enumerated from good American sources the chief forms which this municipal robbery assumes. There are sales of monopolies in the use of public thoroughfares; systematic jobbing of contracts; enormous abuses in patronage; enormous over-charges for necessary public works. Cities have been compelled to buy lands for parks and places because the owners wished to sell them; to grade, pave, and sewer streets without inhabitants in order to award corrupt contracts for the works; to purchase worthless properties at extravagant prices; to abolish one office and create another with the same duties, or to vary the functions of offices for the sole purpose of redistributing official emoluments; to make or keep the salary of an office unduly high in order that its tenant may pay largely to the party funds; to lengthen the term of office in order to secure the tenure of corrupt or incompetent men. When increasing taxation begins to arouse resistance, loans are launched under false pretences, and often with the assistance of falsified accounts. In all the chief towns municipal debts have risen to colossal dimensions and increased with portentous rapidity. ‘Within the twenty years from 1860 to 1880,’ says an American writer, ‘the debts of the cities of the Union rose from about $100,000,000 to $682,000,000. From 1860 to 1875 the increase of debt in eleven cities was 270.9 per cent., increase of taxation 362.2 per cent.; whereas the increase in taxable valuation was but 156.9 per cent., and increase in population but 70 per cent.’64 The New York Commissioners of 1876 probably understated the case when they declared that more than half of all the