When the politician went to the voters, he adroitly concealed his designs under the name of one of the national parties. Voters were asked to vote for a Republican or a Democrat, not for a policy of munic.i.p.al administration or other local policies. The system of committees, caucuses, conventions, built up in every city, was linked to the national organization. A citizen of New York, for instance, was not asked to vote for the Broadway Franchise, which raised such a scandal in the eighties, but to vote for aldermen running on a national tariff ticket!

The electorate was somnolent and permitted the politician to have his way. The mult.i.tudes of the city came princ.i.p.ally from two sources, from Europe and from the rural districts of our own country. Those who came to the city from the country were prompted by industrial motives; they sought wider opportunities; they soon became immersed in their tasks and paid little attention to public questions. The foreign immigrants who congested our cities were alien to American inst.i.tutions. They formed a heterogeneous population to whom a common ideal of government was unknown and democracy a word without meaning. These foreigners were easily influenced and easily led. Under the old naturalization laws, they were herded into the courts just before election and admitted to citizenship. In New York they were naturalized under the guidance of wardheelers, not infrequently at the rate of one a minute! And, before the days of registration laws, ballots were distributed to them and they were led to the polls, as charity children are given excursion tickets and are led to their annual summer's day picnic.

The slipshod methods of naturalization have been revealed since the new law (1906) has been in force. Tens of thousands of voters who thought they were citizens found that their papers were only declarations of intentions, or "first papers." Other tens of thousands had lost even these papers and could not designate the courts that had issued them; and other thousands found that the courts that had naturalized them were without jurisdiction in the matter.

It was not merely among these newcomers that the boss found his opportunities for carrying elections. The dense city blocks were convenient lodging places for "floaters." Just before elections, the population of the downtown wards in the larger cities increased surprisingly. The boss fully availed himself of the psychological and social reactions of the city upon the individual, knowing instinctively how much more easily men are corrupted when they are merged in the crowd and have lost their sense of personal responsibility.

It was in the city, then, that industrial politics found their natural habitat. We shall now scrutinize more closely some of the developments which arose out of such an environment.

CHAPTER V. TAMMANY HALL

Before the Revolutionary War numerous societies were organized to aid the cause of Independence. These were sometimes called "Sons of Liberty" and not infrequently "Sons of St. Tammany," after an Indian brave whom tradition had shrouded in virtue. The name was probably adopted to burlesque the royalist societies named after St. George, St. David, or St. Andrew. After the war these societies vanished. But, in New York City, William Mooney, an upholsterer, reorganized the local society as "Tammany Society or Columbian Order," devoted ostensibly to goodfellowship and charity. Its officers bore Indian t.i.tles and its ceremonies were more or less borrowed from the red man, not merely because of their unique and picturesque character, but to emphasize the truly American and anti-British convictions of its members. The society attracted that element of the town's population which delighted in the crude ceremonials and the stimulating potions that always accompanied them, mostly small shopkeepers and mechanics. It was among this cla.s.s that the spirit of discontent against the power of Federalism was strongest-a spirit that has often become decisive in our political fortunes.

This was still the day of the "gentleman," of small clothes, silver shoe-buckles, powdered wigs, and lace ruffles. Only taxpayers and propertied persons could vote, and public office was still invested with certain prerogatives and privileges. Democracy was little more than a name. There was, however, a distinct division of sentiment, and the drift towards democracy was accelerated by immigration. The newcomers were largely of the humble cla.s.ses, among whom the doctrines of democratic discontent were welcome.

Tammany soon became partizan. The Federalist members withdrew, probably influenced by Washington's warning against secret political societies. By 1798 it was a Republican club meeting in various taverns, finally selecting Martling's "Long Room" for its nightly carousals. Soon after this a new const.i.tution was adopted which adroitly transformed the society into a compact political machine, every member subscribing to the oath that he would resist the encroachments of centralized power over the State.

Tradition has it that the transformer of Tammany into the first compact and effective political machine was Aaron Burr. There is no direct evidence that he wrote the new const.i.tution. But there is collateral evidence. Indeed, it would not have been Burrian had he left any written evidence of his connection with the organization. For Burr was one of those intriguers who revel in mystery, who always hide their designs, and never bind themselves in writing without leaving a dozen loopholes for escape. He was by this time a prominent figure in American politics. His skill had been displayed in Albany, both in the pa.s.sing of legislation and in out-maneuvering Hamilton and having himself elected United States Senator against the powerful combination of the Livingstons and the Schuylers. He was plotting for the Presidency as the campaign of 1800 approached, and Tammany was to be the fulcrum to lift him to this conspicuous place.

Under the ostensible leadership of Matthew L. Davis, Burr's chief lieutenant, every ward of the city was carefully organized, a polling list was made, scores of new members were pledged to Tammany, and during the three days of voting (in New York State until 1840 elections lasted three days), while Hamilton was making eloquent speeches for the Federalists, Burr was secretly manipulating the wires of his machine. Burr and Tammany won in New York City, though Burr failed to win the Presidency. The political career of this remarkable organization, which has survived over one hundred and twenty years of stormy history, was now well launched.

From that time to the present the history of Tammany Hall is a tale of victories, followed by occasional disclosures of corruption and favoritism; of quarrels with governors and presidents; of party fights between "up-state" and "city"; of skulking when its sachems were unwelcome in the White House; of periodical displays of patriotism for cloaking its grosser crimes; of perennial charities for fastening itself more firmly on the poorer populace which has always been the source of its power; of colossal munic.i.p.al enterprise for profit-sharing; and of a continuous political efficiency due to sagacious leadership, a remarkable adaptability to the necessities of the hour, and a patience that outlasts every "reform."

It early displayed all the traits that have made it successful. In 1801, for the purpose of carrying city elections, it provided thirty-nine men with money to purchase houses and lots in one ward, and seventy men with money for the same purpose in another ward, thus manufacturing freeholders for polling purposes. In 1806 Benjamin Romaine, a grand sachem, was removed from the office of city controller by his own party for acquiring land from the city without paying for it. In 1807 several superintendents of city inst.i.tutions were dismissed for frauds. The inspector of bread, a sachem, resigned because his threat to extort one-third of the fees from his subordinates had become public. Several a.s.sessment collectors, all prominent in Tammany, were compelled to reimburse the city for deficits in their accounts. One of the leading aldermen used his influence to induce the city to sell land to his brother-in-law at a low price, and then bade the city buy it back for many times its value. Mooney, the founder of the society, now superintendent of the almshouse, was caught in a characteristic fraud. His salary was $1000 a year, with $500 for family expenses. But it was discovered that his "expenses" amounted to $4000 a year, and that he had credited to himself on the books $1000 worth of supplies and numerous sums for "trifles for Mrs. Mooney."

In September, 1826, the Grand Jury entered an indictment against Matthew L. Davis and a number of other Tammany men for defrauding several banks and insurance companies of over $2,000,000. This created a tremendous sensation. Political influence was at once set in motion, and only the minor defendants were sent to the penitentiary.

In 1829 Samuel Swartwout, one of the Tammany leaders, was appointed Collector of the Port of New York. His downfall came in 1838, and he fled to Europe. His defalcations in the Custom House were found to be over $1,222,700; and "to Swartwout" became a useful phrase until Tweed's day. He was succeeded by Jesse Hoyt, another sachem and notorious politician, against whom several judgments for default were recorded in the Superior Court, which were satisfied very soon after his appointment. At this time another Tammany chieftain, W. M. Price, United States District Attorney for Southern New York, defaulted for $75,000.

It was in 1851 that the council commonly known as "The Forty Thieves" was elected. In it William M. Tweed served his apprenticeship. Some of the maneuvers of this council and of other officials were divulged by a Grand Jury in its presentment of February 23, 1853. The presentment states: "It was clearly shown that enormous sums of money were spent for the procurement of railroad grants in the city, and that towards the decision and procurement of the Eighth Avenue railway grant, a sum so large that would startle the most credulous was expended; but in consequence of the voluntary absence of important witnesses, the Grand Jury was left without direct testimony of the particular recipients of the different amounts."

These and other exposures brought on a number of amendments to the city charter, surrounding with greater safeguards the sale or lease of city property and the letting of contracts; and a reform council was elected. Immediately upon the heels of this reform movement followed the shameful regime of Fernando Wood, an able, crafty, unscrupulous politician, who began by announcing himself a reformer, but who soon became a boss in the most offensive sense of that term-not, however, in Tammany Hall, for he was ousted from that organization after his reelection as mayor in 1856. He immediately organized a machine of his own, Mozart Hall. The intense struggle between the two machines cost the city a great sum, for the taxpayers were mulcted to pay the bills.

Through the anxious days of the Civil War, when the minds of thoughtful citizens were occupied with national issues, the tide of reform ebbed and flowed. A reform candidate was elected mayor in 1863, but Tammany returned to power two years later by securing the election and then the reelection of John T. Hoffman. Hoffman possessed considerable ability and an attractive personality. His zeal for high office, however, made him easily amenable to the manipulators. Tammany made him Governor and planned to name him for President. Behind his popularity, which was considerable, and screened by the greater excitements of the war, reconstruction, and the impeachment of Andrew Johnson, lurked the Ring, whose exposures and confessions were soon to amaze everyone.

The chief ringster was William M. Tweed, and his name will always be a.s.sociated in the public mind with political bossdom. This is his immortality. He was a chairmaker by trade, a vulgar good fellow by nature, a politician by circ.u.mstances, a boss by evolution, and a grafter by choice. He became grand sachem of Tammany and chairman of the general committee. This committee he ruled with blunt directness. When he wanted a question carried, he failed to ask for the negative votes; and soon he was called "the Boss," a t.i.tle he never resented, and which usage has since fixed in our politics. So he ruled Tammany with a high hand; made nominations arbitrarily; bullied, bought, and traded; became President of the Board of Supervisors, thus holding the key to the city's financial policies; and was elected State Senator, thereby directing the granting of legislative favors to his city and to his corporations.

In 1868 Tammany carried Hoffman into the Governor's chair, and in the following year the Democrats carried the State legislature. Tweed now had a new charter pa.s.sed which virtually put New York City into his pocket by placing the finances of the metropolis entirely in the hands of a Board of Apportionment which he dominated. Of this Board, the mayor of the city was the chairman, with the power to appoint the other members. He promptly named Tweed, Connolly, and P. B. Sweeny. This was the famous Ring. The mayor was A. Oakey Hall, dubbed "Elegant Oakey" by his pals because of his fondness for clubs, society, puns, and poems; but Nast called him "O. K. Haul." Sweeny, commonly known as "Pete," was a lawyer of ability, and was generally believed to be the plotter of the quartet. Nast transformed his middle initial B. into "Brains." Connolly was just a coa.r.s.e gangster.

There was some reason for the Ring's faith in its invulnerability. It controlled Governor and legislature, was formidable in the national councils of the Democratic party, and its Governor was widely mentioned for the presidential nomination. It possessed complete power over the city council, the mayor, and many of the judges. It was in partnership with Gould and Fiske of the Erie, then reaping great harvests in Wall Street, and with street railway and other public service corporations. Through untold largess it silenced rivalry from within and criticism from without. And, when suspicion first raised its voice, it adroitly invited a committee of prominent and wealthy citizens, headed by John Jacob Astor, to examine the controller's accounts. After six hours spent in the City Hall these respectable gentlemen signed an acquitment, saying that "the affairs of the city under the charge of the controller are administered in a correct and faithful manner."

Thus intrenched, the Ring levied tribute on every munic.i.p.al activity. Everyone who had a charge against the city, either for work done or materials furnished, was told to add to the amount of his bill, at first 10%, later 66%, and finally 85%. One man testified that he was told to raise to $55,000 his claim of $5000. He got his $5000; the Ring got $50,000. The building of the Court House, still known as "Tweed's Court House," was estimated to cost $3,000,000, but it cost many times that sum. The item "repairing fixtures" amounted to $1,149,874.50, before the building was completed. Forty chairs and three tables cost $179,729.60; thermometers cost $7500. G. S. Miller, a carpenter, received $360,747.61, and a plasterer named Gray, $2,870,464.06 for nine months' "work." The Times dubbed him the "Prince of Plasterers." "A plasterer who can earn $138,187 in two days [December 20 and 21] and that in the depths of winter, need not be poor." Carpets cost $350,000, most of the Brussels and Axminster going to the New Metropolitan Hotel just opened by Tweed's son.

The Ring's hold upon the legislature was through bribery, not through partizan adhesion. Tweed himself confessed that he gave one man in Albany $600,000 for buying votes to pa.s.s his charter; and Samuel J. Tilden estimated the total cost for this purpose at over one million dollars. Tweed said he bought five Republican senators for $40,000 apiece. The vote on the charter was 30 to 2 in the Senate, 116 to 5 in the a.s.sembly. Similar sums were spent in Albany in securing corporate favors. The Viaduct Railway Bill is an example. This bill empowered a company, practically owned by the Ring, to build a railway on or above any street in the city. It provided that the city should subscribe for $5,000,000 of the stock; and it exempted the company from taxation. Collateral bills were introduced enabling the company to widen and grade any streets, the favorite "job" of a Tammany grafter. Fortunately for the city, exposure came before this monstrous scheme could be put in motion.

Newspapers in the city were heavily subsidized. Newspapers in Albany were paid munificently for printing. One of the Albany papers received $207,900 for one year's work which was worth less than $10,000. Half a dozen reporters of the leading dailies were put on the city payroll at from $2000 to $2500 a year for "services."

The Himalayan size of these swindles and their monumental effrontery led the New York Sun humorously to suggest the erection of a statue to the princ.i.p.al Robber Baron, "in commemoration of his services to the commonwealth." A letter was sent out asking for funds. There were a great many men in New York, the Sun thought, who would not be unwilling to refuse a contribution. But Tweed declined the honor. In its issue of March 14, 1871, the Sun has this headline:

"A GREAT MAN'S MODESTY"

"THE HON. WILLIAM M. TWEED DECLINES THE SUN'S STATUE. CHARACTERISTIC LETTER FROM THE GREAT NEW YORK PHILANTHROPIST. HE THINKS THAT VIRTUE SHOULD BE ITS OWN REWARD. THE MOST REMARKABLE LETTER EVER WRITTEN BY THE n.o.bLE BENEFACTOR OF THE PEOPLE."

Another kind of memorial to his genius for absorbing the people's money was awaiting this philanthropic buccaneer. Vulgar ostentation was the outward badge of these civic burglaries. Tweed moved into a Fifth Avenue mansion and gave his daughter a wedding at which she received $100,000 worth of gifts; her wedding dress was a $5000 creation. At Greenwich he built a country estate where the stables were framed of choice mahogany. Sweeny hobn.o.bbed with Jim Fiske of the Erie, the Tweed of Wall Street, who went about town dressed in loud checks and lived with his harem in his Opera House on Eighth Avenue.

Thoughtful citizens saw these things going on and believed the city was being robbed, but they could not prove it. There were two attacking parties, however, who did not wait for proofs-Thomas Nast, the brilliant cartoonist of Harper's Weekly, and the New York Times. The incisive cartoons of Nast appealed to the imaginations of all cla.s.ses; even Tweed complained that his illiterate following could "look at the d.a.m.n pictures." The trenchant editorials of Louis L. Jennings in the Times reached a thoughtful circle of readers. In one of these editorials, February 24, 1871, before the exposure, he said: "There is absolutely nothing-nothing in the city-which is beyond the reach of the insatiable gang who have obtained possession of it. They can get a grand jury dismissed at any time, and, as we have seen, the legislature is completely at their disposal."

Finally proof did come and, as is usual in such cases, it came from the inside. James...o...b..ien, an ex-sheriff and the leader in a Democratic "reform movement" calling itself "Young Democracy," secured the appointment of one of his friends as clerk in the controller's office. Transcripts of the accounts were made, and these O'Brien brought to the Times, which began their publication, July 8, 1871. The Ring was in consternation. It offered George Jones, the proprietor of the Times, $5,000,000 for his silence and sent a well-known banker to Nast with an invitation to go to Europe "to study art," with $100,000 for "expenses."

"Do you think I could get $200,000?" innocently asked Nast.

"I believe from what I have heard in the bank that you might get it."

After some reflection, the cartoonist asked: "Don't you think I could get $500,000 to make that trip?"

"You can; you can get $500,000 in gold to drop this Ring business and get out of the country."

"Well, I don't think I'll do it," laughed the artist. "I made up my mind not long ago to put some of those fellows behind the bars, and I am going to put them there."

"Only be careful, Mr. Nast, that you do not first put yourself in a coffin," said the banker as he left.

A public meeting in Cooper Inst.i.tute, April 6, 1871, was addressed by William E. Dodge, Henry Ward Beecher, William M. Evarts, and William F. Havemeyer. They vehemently denounced Tweed and his gang. Tweed smiled and asked, "Well, what are you going to do about it?" On the 4th of September, the same year, a second ma.s.s meeting held in the same place answered the question by appointing a committee of seventy. Tweed, Sweeny, and Hall, now alarmed by the disclosures in the Times, decided to make Connolly the scapegoat, and asked the aldermen and supervisors to appoint a committee to examine his accounts. By the time the committee appeared for the examination-its purpose had been well announced-the vouchers for 1869 and 1870 had disappeared. Mayor Hall then asked for Connolly's resignation. But instead, Connolly consulted Samuel J. Tilden, who advised him to appoint Andrew H. Green, a well-known and respected citizen, as his deputy. This turned the tables on the three other members of the Ring, whose efforts to oust both Connolly and Green were unavailing. In this manner the citizens got control of the treasury books, and the Grand Jury began its inquisitions. Sweeny and Connolly soon fled to Europe. Sweeny afterwards settled for $400,000 and returned. Hall's case was presented to a grand jury which proved to be packed. A new panel was ordered but failed to return an indictment because of lack of evidence. Hall was subsequently indicted, but his trial resulted in a disagreement.

Tweed was indicted for felony. He remained at large on bail and was twice tried in 1873. The first trial resulted in a disagreement, the second in a conviction. His sentence was a fine of $12,000 and twelve years' imprisonment. When he arrived at the penitentiary, he answered the customary questions. "What occupation?" "Statesman." "What religion?" "None." He served one year and was then released on a flimsy technicality by the Court of Appeals. Civil suits were now brought, and, unable to obtain the $3,000,000 bail demanded, the fallen boss was sent to jail. He escaped to Cuba, and finally to Spain, but he was again arrested, returned to New York on a man-of-war, and put into Ludlow Street jail, where he died April 12, 1878, apparently without money or friends.

The exact amount of the plunder was never ascertained. An expert accountant employed by the housecleaners estimated that for three years, 1868-71, the frauds totaled between $45,000,000 and $50,000,000. The estimate of the aldermen's committee was $60,000,000. Tweed never gave any figures; he probably had never counted his gains, but merely spent them as they came. O'Rourke, one of the gang, estimated that the Ring stole about $75,000,000 during 1865-71, and that, "counting vast issues of fraudulent bonds," the looting "probably amounted to $200,000,000."

The story of these disclosures circled the earth and still affects the popular judgment of the American metropolis. It seemed as though Tammany were forever discredited. But, to the despair of reformers, in 1874 Tammany returned to power, electing its candidate for mayor by over 9000 majority. The new boss who maneuvered this rapid resurrection was John Kelly, a stone-mason, known among his Irish followers as "Honest John." Besides the political probity which the occasion demanded, he possessed a capacity for knowing men and sensing public opinion. This enabled him to lift the prostrate organization. He persuaded such men as Samuel J. Tilden, the distinguished lawyer, August Belmont, a leading financier, Horatio Seymour, who had been governor, and Charles O'Conor, the famous advocate, to become sachems under him. This was evidence of reform from within. Cooperation with the Bar a.s.sociation, the Taxpayers' a.s.sociation, and other similar organizations evidenced a desire of reform from without. Kelly "bossed" the Hall until his death, June 1, 1886.

He was succeeded by Richard Croker, a machinist, prizefighter, and gang-leader. Croker began his official career as a court attendant under the notorious Judge Barnard and later was an engineer in the service of the city. These places he held by Tammany favor, and he was so useful that in 1868 he was made alderman. A quarrel with Tweed lost him the place, but a reconciliation soon landed him in the lucrative office of Superintendent of Market Fees and Rents, under Connolly. In 1873 he was elected coroner and ten years later was appointed fire commissioner. His career as boss was marked by much political cleverness and caution and by an equal degree of moral obtuseness.

The triumph of Tammany in 1892 was followed by such ill-disguised corruption that the citizens of New York were again roused from their apathy. The investigations of the Fa.s.sett Committee of the State Senate two years previously had shown how deep the tentacles of Tammany were thrust into the administrative departments of the city. The Senate now appointed another investigating committee, of which Clarence Lexow was the chairman and John W. Goff the counsel. The Police Department came under its special scrutiny. The disclosures revealed the connivance of the police in stupendous election frauds. The President of the Police Board himself had distributed at the polls the policemen who committed these frauds. It was further revealed that vice and crime under police protection had been capitalized on a great scale. It was worth money to be a policeman. One police captain testified he had paid $15,000 for his promotions; another paid $12,000. It cost $300 to be appointed patrolman. Over six hundred policy-shops were open, each paying $1500 a month for protection; pool rooms paid $300 a month; bawdy-houses, from $25 to $50 per month per inmate. And their patrons paid whatever they could be blackmailed out of; streetwalkers, whatever they could be wheedled out of; saloons, $20 per month; p.a.w.nbrokers, thieves, and thugs shared with the police their profits, as did corporations and others seeking not only favors but their rights. The committee in its statement to the Grand Jury (March, 1892) estimated that the annual plunder from these sources was over $7,000,000.

During the committee's sessions Croker was in Europe on important business. But he found time to order the closing of disreputable resorts, and, though he was only a private citizen and three thousand miles away, his orders were promptly obeyed.

Aroused by these disclosures and stimulated by the lashing sermons of the Rev. Charles H. Parkhurst, the citizens of New York, in 1894, elected a reform government, with William L. Strong as Mayor. His administration set up for the metropolis a new standard of city management. Colonel George E. Waring organized, for the first time in the city's history, an efficient streetcleaning department. Theodore Roosevelt was appointed Police Commissioner. These men and their a.s.sociates gave to New York a period of thrifty munic.i.p.al housekeeping.

But the city returned to its filth. After the incorporation of Greater New York and the election of Robert A. Van Wyck as its mayor, the great beast of Tammany arose and extended its eager claws over the vast area of the new city.

The Mazet Committee was appointed by the legislature in 1899 to investigate rumors of renewed corruption. But the inquiry which followed was not as penetrating nor as free from partizan bias as thoughtful citizens wished. The princ.i.p.al exposure was of the Ice Trust, an attempt to monopolize the city's ice supply, in which city officials were stockholders, the mayor to the extent of 5000 shares, valued at $500,000. It was shown, too, that Tammany leaders were stockholders in corporations which received favors from the city. Governor Roosevelt, however, refused to remove Mayor Van Wyck because the evidence against him was insufficient.

The most significant testimony before the Mazet Committee was that given by Boss Croker himself. His last public office had been that of City Chamberlain, 1889-90, at a salary of $25,000. Two years later he purchased for $250,000 an interest in a stock-farm and paid over $100,000 for some noted race-horses. He spent over half a million dollars on the English racetrack in three years and was reputed a millionaire, owning large blocks of city real estate. He told the committee that he virtually determined all city nominations; and that all candidates were a.s.sessed, even judicial candidates, from $10,000 to $25,000 for their nominations. "We try to have a pretty effective organization-that's what we are there for," he explained. "We are giving the people pure organization government," even though the organizing took "a lot of time" and was "very hard work." Tammany members stood by one another and helped each other, not only in politics but in business. "We want the whole business [city business] if we can get it." If "we win, we expect everyone to stand by us." Then he uttered what must have been to every citizen of understanding a self-evident truth, "I am working for my pockets all the time."

Soon afterwards Croker retired to his Irish castle, relinquishing the leadership to Charles Murphy, the present boss. The growing alertness of the voters, however, makes Murphy's task a more difficult one than that of any of his predecessors. It is doubtful if the nature of the machine has changed during all the years of its history. Tweed and Croker were only natural products of the system. They typify the vulgar climax of organized looting.