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 management in the public
business would not vacate all offices any more than in private
business, but would affect only such leading positions as are
responsible for policy and discipline. Such a sensible system,
however, had existed only in the early days of the republic and
at the time of Cleveland's accession to office federal offices
were generally used as party barracks. The situation which
confronted President Cleveland he thus described in later years: