Although these local clans were the basis of American political organization, they were not, of course, its ultimate fruit.  In many of the cities, large and small, and in some of the states the leaders of the local groups were subordinated to one of their number who became the real “Boss” and who strengthened the district organizations by using for their benefit the municipal, state, and Federal patronage.  The relation of the municipal or state “Boss” to the district leaders was similar to the relation which the district leader bore to his more important retainers.  The “Boss” first obtained his primacy by means of diplomatic skill or force of character; and his ability to retain it depended upon his ability to satisfy the demands of the district leaders for patronage, while at the same time leading the organization to victory in the local elections.  His special duties as “Boss” required personal prestige, strength of will, power of persuasive talking, good judgment of men, loyalty to his promises and his followers, and a complete lack of scruple.  Unlike the district leader, however, the municipal “Boss” has tended to become a secretive and somewhat lonely person, who carried on his business behind closed doors, and on whom was visited the odium incurred by this whole system of political organization.  The district leader either does not incur or is less affected by this odium, because his social status is precisely that of his followers.  The “Boss,” on the other hand, by this wealth and public position would naturally be an important member of the society in which he lives, whereas as a matter of fact he has come to be ostracized because of the source of his power and wealth.  His leadership over-reached the district clan, which was real social basis; and the consequence was that the “Boss” became, to all appearances, a very unpopular man in the democracy which he ruled.

His secretiveness and his unpopularity point to one of the most important functions of the municipal and state “Bosses,” to which as yet only incidental reference has been made.  The “Boss” became the man who negotiated with the corporations, and through whom they obtained what they wanted.  We have already seen that the large corporation, particularly those owning railroad and municipal franchises, have found that the purchase of a certain amount of political power was a necessary consequence of their dubious legal position.  A traffic of this kind was not one, of course, to which many people could be admitted.  It must be transmitted in secret, and by people who possessed full authority.  An agreement to secure certain franchises or certain needed legislation in return for certain personal or party favors was not an agreement which could be made between a board of directors and a group of district leaders.  If a large number of people were familiar with the details of such negotiations, something more than a hint thereof would be sure to leak out; and unquestionably the