of character in his relations with Congress. But his powers were
so limited by the conditions under which he had to act that to a
large extent public interests had to drift along without
direction and management. In some degree, the situation resembled
that which existed in the Holy Roman Empire when a complicated
legalism kept grinding away and pretentious forms of authority
were maintained, although, meanwhile, there was actual
administrative impotence. Striking evidence of the existence of
such a situation is found in President Arthur's messages to
Congress.

In his message of December 6, 1881, the President mentioned the
fact that in the West "a band of armed desperadoes known as
'Cowboys,' probably numbering fifty to one hundred men, have been
engaged for months in committing acts of lawlessness and
brutality which the local authorities have been unable to
repress." He observed that "with every disposition to meet the
exigencies of the case, I am embarrassed by lack of authority to
deal with them effectually." The center of disturbance was in
Arizona, and the punishment of crime there was ordinarily the
business of the local authorities. But even if they called for
aid, said the President, "this Government would be powerless to
render assistance," for the laws had been altered by Congress so
that States but not Territories could demand the protection of
the national Government against "domestic violence." He
recommended legislation extending to the Territories "the
protection which is accorded the States by the Constitution." On
April 26, 1882, the President sent a special message to Congress
on conditions in Arizona, announcing that "robbery, murder, and
resistance to laws have become so common as to cease causing