|THE AGE OF BOSSES
William V. Shannon
The big city and the political boss grew up together in America. Bossism, with all its color and corruption and human drama, was a natural and perhaps necessary accompaniment to the rapid development of cities. The new urban communities did not grow slowly and according to plan; on the contrary, huge conglomerations of people from all over the world and from widely varying backgrounds came together suddenly, and in an unplanned, unorganized fashion fumbled their way toward communal relationships and a common identity. The political bosses emerged to cope with this chaotic change and growth. Acting out of greed, a ruthless will for mastery, and an imperfect understanding of what they were about, the bosses imposed upon these conglomerations called cities a certain feudal order and direction.
By 1890 virtually every sizable city had a political boss or was in the process of developing one. By 1950, sixty years later, almost every urban political machine was in an advanced state of obsolescence and its boss in trouble. The reason is not hard to find. Some of the cities kept growing and all of them kept changing, but the bosses, natural products of a specific era, could not grow or change beyond a certain point. The cities became essentially different, and as they did, the oldstyle organizations, like all organisms which cannot adapt, began to die. The dates vary from city to city. The system began earlier and died sooner in New York. Here or there, an old-timer made one last comeback. In Chicago, the organization and its boss still survive. But exceptions aside, the late nineteenth century saw the beginning, and the middle twentieth, the end, of the Age of the Bosses. What follows is a brief history of how it began, flourished, and passed away.
Soft-spoken Irish fanners from County Mayo and bearded Jews from Poland, country boys from Ohio and sturdy peasants from Calabria, gangling Swedes from near the Artic Circle and Chinese from Canton, laconic Yankees from Vermont villages and Negro freedmen putting distance between themselves and the old plantation—all these and many other varieties of human beings from every national and religious arid cultural tradition poured into America’s cities in the decades after the Civil War.
Rome and Alexandria in the ancient world had probably been as polyglot, but in modern times the diversity of American cities was unique. Everywhere in the Western world, cities were growing rapidly in the late nineteenth century; but the Germans from the countryside who migrated to Hamburg and Berlin, the English who moved to Birmingham and London, and the French who flocked to Paris stayed among fellow nationals. They might be mocked as country bumpkins and their clothes might be unfashionable, but everyone they met spoke the same language as themselves, observed the same religious and secular holidays, ate the same kind of food, voted—if they had the franchise at all—in the same elections, and shared the same sentiments and expectations. To move from farm or village to a big European city was an adventure, but one still remained within the reassuring circle of the known and the familiar.
In American cities, however, the newcomers had nothing in common with one another except their poverty and their hopes. They were truly “the uprooted.” The foreign-born, unless they came from the British Isles, could not speak the language of their new homeland. The food, the customs, the holidays, the politics, were alien. Native Americans migrating to the cities from the countryside experienced their own kind of cultural shock: they found themselves competing not with other Americans but with recently arrived foreigners, so that despite their native birth they, too, felt displaced, strangers in their own country.
It was natural for members of each group to come together to try to find human warmth and protection in Little Italy or Cork Hill or Chinatown or Harlem. These feelings of clannish solidarity were one basis of strength for the political bosses. A man will more readily give his vote to a candidate because he is a neighbor from the old country or has some easily identifiable relationship, if only a similar name or the same religion, than because of agreement on some impersonal issue. Voters can take vicarious satisfaction from his success: “One of our boys is making good.”
With so many different races and nationalities living together, however, mutual antagonisms were present, and the opportunity for hostility to flare into open violence was never far away. Ambitious, unscrupulous politicians could have exploited these antagonisms for their own political advantage, but the bosses and the political organizations which they developed did not function that way. It a man could vote and would “vote right,” he was accepted, and that was the end of the matter. What lasting profit was there in attacking his religion or deriding his background?
Tammany early set the pattern of cultivating every bloc and faction and making an appeal as broad-based as possible. Of one precinct captain on the Lower East Side it was said: “He eats corned beef and kosher meat with equal nonchalance, and it’s all the same to him whether he takes off his hat in the church or pulls it down over his ears in the synagogue.”
Bosses elsewhere instinctively followed the same practice. George B. Cox, the turn-of-the-century Republican boss of Cincinnati, pasted together a coalition of Germans, Negroes, and old families like the Tafts and the Long-worths. James M. Curley, who was mayor of Boston on and off for thirty-six years and was its closest approximation to a political boss, ran as well in the Lithuanian neighborhood of South Boston and the Italian section of East Boston as he did in the working-class Irish wards. In his last term in City Hall, he conferred minor patronage on the growing Negro community and joined the N.A.A.C.P.
The bosses organized neighborhoods, smoothed out antagonisms, arranged ethnically balanced tickets, and distributed patronage in accordance with voting strength as part of their effort to win and hold power. They blurred divisive issues and buried racial and religious hostility with blarney and buncombe. They were not aware that they were actually performing a mediating, pacifying function. They did not realize that by trying to please as many people as possible they were helping to hold raw new cities together, providing for inexperienced citizens a common meeting ground in politics and an experience in working together that would not have been available if the cities had been governed by apolitical bureaucracies. Bossism was usually corrupt and was decidedly inefficient, but in the 1960’s, when antipoverty planners try to stimulate “community action organizations” to break through the apathy and disorganization of the slums, we can appreciate that the old-style machines had their usefulness.
When William Marcy Tweed, the first and most famous of the big-city bosses, died in jail in 1878, several hundred workingmen showed up for his funeral. The Nation wrote the following week: Let us remember that he fell without loss of reputation among the bulk of his supporters. The bulk of the poorer voters of this city today revere his memory, and look on him as the victim of rich men’s malice; as, in short, a friend of the needy who applied the public funds, with as little waste as was possible under the circumstances, to the purposes to which they ought to be applied—and that is to the making of work for the working man. The odium heaped on him in the pulpits last Sunday does not exist in the lower stratum of New York society.
This split in attitude toward political bosses between the impoverished many and the prosperous middle classes lingers today and still colors historical writing. To respectable people, the boss was an exotic, even grotesque figure. They found it hard to understand why anyone would vote for him or what the sources of his popularity were. To the urban poor, those sources were self-evident. The boss ran a kind of ramshackle welfare state. He helped the unemployed find jobs, interceded in court for boys in trouble, wrote letters home to the old country for the illiterate; he provided free coal and baskets of food to tide a widow over an emergency, and organized parades, excursions to the beach, and other forms of free entertainment. Some bosses, such as Frank Hague in Jersey City and Curley in Boston, were energetic patrons of their respective city hospitals, spending public funds lavishly on new-construction, providing maternity and children’s clinics, and arranging medical care for the indigent. In an era when social security, Blue Cross, unemployment compensation, and other public and private arrangements to cushion life’s shocks did not exist, these benefactions from a political boss were important.
In every city, the boss had his base in the poorer, older, shabbier section of town. Historians have dubbed this section the “walking city” because it developed in the eighteenth and early nineteenth centuries, when houses and businesses were jumbled together, usually near the waterfront, and businessmen and laborers alike had to live within walking distance of their work. As transportation improved, people were able to live farther and farther from their place of work. Population dispersed in rough concentric circles: the financially most successful lived in the outer ring, where land was plentiful and the air was clean: the middle classes lived in intermediate neighborhoods; and the poorest and the latest arrivals from Europe crowded into the now-rundown neighborhoods in the center, where rents were lowest. Politics in most cities reflected a struggle between the old, boss-run wards downtown and the more prosperous neighborhoods farther out, which did not need a boss’s services and which championed reform. The more skilled workingmen and the white-collar workers who lived in the intermediate neighborhoods generally held the balance of power between the machine and the reformers. A skillful boss could hold enough of these swing voters on the basis of ethnic loyalty or shared support of a particular issue. At times, he might work out alliances with business leaders who found that an understanding with a boss was literally more businesslike than dependence upon the vagaries of reform.
But always it was the poorest and most insecure who provided the boss with the base of his political power. Their only strength, as Professor Richard C. Wade of the University of Chicago has observed, was in their numbers.
These numbers were in most cases a curse: housing never caught up with demand, the job market was always flooded, the breadwinner had too many mouths to feed. Yet in politics such a liability could be turned into an asset. If the residents could be mobilized, their combined strength would be able to do what none could do alone. Soon the “boss” and the “machine” arose to organize this potential. The boss system was simply the political expression of inner city life.
At a time when many newcomers to the city were seeking unskilled work, and when many families had a precarious economic footing, the ability to dispense jobs was crucial to the bosses. First, there were jobs to be filled on the city payroll. Just as vital, and far more numerous, were jobs on municipal construction projects. When the machine controlled a city, public funds were always being spent for more schools, hospitals, libraries, courthouses, and orphanages. The growing cities had to have more sewer lines, gas lines, and waterworks, more paved streets and trolley tracks. Even if these utilities were privately owned, the managers needed the goodwill of city hall and were responsive to suggestions about whom to hire.
The payrolls of these public works projects were often padded, but to those seeking a job, it was better to be on a padded payroll than on no payroll. By contrast, the municipal reformers usually cut back on public spending, stopped projects to investigate for graft, and pruned payrolls. Middle- and upper-income taxpayers welcomed these reforms, but they were distinctly unpopular in working-class wards.
Another issue that strengthened the bosses was the regulation of the sale of liquor. Most women in the nineteenth century did not drink, and with their backing, the movement to ban entirely the manufacture and sale of liquor grew steadily stronger. It had its greatest support among Protestants with a rural or small-town background. To them the cities, with their saloons, dance halls, cheap theatres, and red-light districts, were becoming latter-day versions of Sodom and Gomorrah.
Many of the European immigrants in the cities, however, had entirely different values. Quite respectable Germans took their wives to beer gardens on Sundays. In the eyes of the Irish, keeping a “public house” was an honorable occupation. Some Irish women drank beer and saw no harm in going to the saloon or sending an older child for a bucketful—”rushing the growler,” I they called it. Poles, Czechs, Italians, and others also! failed to share the rage of the Prohibitionists against] saloons. Unable to entertain in their cramped tenements, they liked to congregate in neighborhood bars.
The machine also appealed successfully on the liquor issue to many middle-class ethnic voters who had no need of the machine’s economic assistance. Thus, in New York in 1897, Tammany scored a sweeping victory over an incumbent reform administration that had tried to enforce a state law permitting only hotels to sell liquor on Sundays. As one of the city’s three police commissioners, Theodore Roosevelt became famous prowling the tougher neighborhoods on the hunt for saloon violations, but on the vaudeville stage the singers were giving forth with the hit song, “I Want What I Want When I Want It!” As a character in Alfred Henry Lewis’ novel The Boss explained it, the reformers had made a serious mistake: “They got between the people and its beer!”
In 1902, Lincoln Steffens, the muckraker who made a name for himself writing about political bossism, visited St. Louis to interview Joseph W. Folk, a crusading district attorney. “It is good businessmen that are corrupting our bad politicians,” Folk told him. “It is good business that causes bad government in St. Louis.” Thirty-five years later, Boss Tom Pendergast was running the entire state of Missouri on that same reciprocal relationship.
Although many factory owners could be indifferent to politics, other businessmen were dependent upon the goodwill and the efficiency of the municipal government. The railroads that wanted to build their freight terminals and extend their lines into the cities, the contractors who erected the office buildings, the banks that held mortgages on the land and loaned money for the construction, the utility and transit companies, and the department stores were all in need of licenses, franchises, rights of way, or favorable rulings from city inspectors and agencies. These were the businesses that made the big pay-offs to political bosses in cash, blocks of stock, or tips on land about to be developed.
In another sense, profound, impersonal, and not corrupt, the business community needed the boss. Because the Industrial Revolution hit this country when it was still thinly populated and most of its cities were overgrown towns, American cities expanded with astonishing speed. For example, in the single decade from 1880 to 1890, Chicago’s population more than doubled, from a half million to over a million. The twin cities of Minneapolis and St. Paul tripled in size. New York City increased from a million to a million and a half; Detroit, Milwaukee, Columbus, and Cleveland grew by sixty to eighty per cent.
Municipal governments, however, were unprepared for this astonishing growth. Planning and budgeting were unknown arts. City charters had restrictive provisions envisaged for much smaller, simpler communities. The mayor and the important commissioners were usually amateurs serving a term or two as a civic duty. Authority was dispersed among numerous boards and special agencies. A typical city would have a board of police commissioners, a board of health, a board of tax assessors, a water board, and many others. The ostensible governing body was a city council or board of aldermen which might have thirty, fifty, or even a hundred members. Under these circumstances, it was difficult to get a prompt decision, harder still to co-ordinate decisions taken by different bodies acting on different premises, and easy for delays and anomalies to develop.
In theory, the cities could have met their need for increased services by municipal socialism, but the conventional wisdom condemned that as too radical, although here and there a city did experiment with publicly owned utilities. In theory also, the cities could have financed public buildings and huge projects such as water and sewer systems by frankly raising taxes or floating bonds. But both taxes and debt were no more popular then than they are now. Moreover, the laissezfaire doctrine which holds that “that government is best which governs least” was enshrined orthodoxy in America from the 1870’s down to the 1930’s.
As men clung to such orthodox philosophies, the structures of government became obsolete; they strained to meet unexpected demands as a swelling number of citizens in every class clamored for more services. In this climate the bosses emerged. They had no scruples about taking shortcuts through old procedures or manipulating independent boards and agencies in ways that the original city fathers had never intended. They had no inhibiting commitment to any theory of limited government. They were willing to spend, tax, and build—and to take the opprobrium along with the graft. Sometimes, like Hague in Jersey City, Curley in Boston, and Big Bill Thompson in Chicago, they got themselves elected mayor and openly assumed responsibility. More often, like Pendergast in Kansas City, Cox in Cincinnati, the leaders of Tammany, and the successive Republican bosses of Philadelphia, they held minor offices or none, stayed out of the limelight, and ran city government through their iron control of the party organization. In ruling Memphis for forty years, Ed Crump followed one pattern and then the other. Impeached on a technicality after being elected three times as mayor, Crump retreated to the back rooms and became even more powerful as the city’s political boss.
What manner of men became political bosses? They were men of little education and no social background, often of immigrant parentage. A college-educated boss like Edward Flynn of The Bronx was a rarity. Bosses often began as saloonkeepers, because the saloon was a natural meeting place in poorer neighborhoods in the days before Prohibition. They were physically strong and no strangers to violence. Seventy-five years ago, most men made their living with brawn rather than brain, and a man who expected to be a leader of men had to be tough as will as shrewd. Open violence used to be common at polling places on Election Day, and gangs of repeaters roamed from one precinct to another. Although the typical boss made his way up through that roughneck system, the logic, of his career led him to suppress violence. Bloody heads make bad publicity, and it is hard for any political organization to maintain a monopoly on violence. Bosses grew to prefer quieter, more lawful, less dangerous methods of control. Ballot-box stuffing and overt intimidation never disappeared entirely, but gradually they receded to the status of weapons of last resort.
Political bosses varied in their idiosyncrasies and styles. A few, like Curley, became polished orators; others, like the legendary Charles Murphy of Tammany Hall, never made speeches. They were temperate, businesslike types; among them a drunk was as rare as a Phi Beta Kappa. If they had a generic failing it was for horses and gambling. Essentially they were hardheaded men of executive temper and genuine organizing talents; many, in other circumstances and with more education, might have become successful businessmen.
They have disappeared now, most of them. Education has produced a more sophisticated electorate; it has also encouraged potential bosses to turn away from politics toward more secure, prestigious, and profitable careers. A young man who had the energy, persistence, and skill in 1899 to become a successful political boss would in 1969 go to college and end up in an executive suite.
The urban population has also changed. The great flood of bewildered foreigners has dwindled to a trickle. In place of the European immigrants of the past, today’s cities receive an influx of Negroes from the rural South, Puerto Ricans, Mexicans, and the white poor from Appalachia. As they overcome the language barrier and widen their experience, the Puerto Ricans are making themselves felt in urban politics. New York City, where they are most heavily concentrated, may have a Puerto Rican mayor in the not too distant future.
But the other groups are too isolated from the rest of the community to put together a winning political coalition of have-nots. The Mexicans and the ex-hillbillies from Appalachia are isolated by their unique cultural backgrounds, the Negroes by the giant fact of their race. Inasmuch as they make up a quarter to a third of the population in many cities, are a cohesive group, and still have a high proportion of poor who have to look to government for direct help, the Negroes might have produced several bosses and functioning political machines had they been of white European ancestry. But until Negroes attain a clear numerical majority, they find it difficult to take political power in any city because various white factions are reluctant to coalesce with them.
Regardless of the race or background of the voters, however, there are factors which work against the oldstyle machines. Civil service regulations make it harder to create a job or pad a payroll. Federal income taxes and federal accounting requirements make it more difficult to hide the rewards of graft. Television, public relations, and polling have created a whole new set of political techniques and undermined the personal ties and neighborhood loyalties on which the old organizations depended.
The new political style has brought an increase in municipal government efficiency and probably some decline in political corruption and misrule. But the politics of the television age puts a premium on hypocrisy. Candor has gone out the window with the spoils system. There is still a lot of self-seeking in politics and always will be. But gone are the days of Tammany’s Boss Richard Croker, who when asked by an investigating committee if he was “working for his own pocket,” shot back: “All the time—same as you.” Today’s politicians are so busy tending their images that they have become incapable of even a mildly derogatory remark such as Jim Curley’s: “The term ‘codfish aristocracy’ is a reflection on the fish.”
Curley entitled his memoirs I’d Do It Again. But the rough-and-tumble days when two-fisted, rough-tongued politicians came roaring out of the slums to take charge of America’s young cities are not to come again.