Such being the case, it would seem at first sight extraordinary that it should be so difficult to uproot the system.  Unfortunately, it was permitted to become habitual and traditional in American life, so that the conception of public office as something to be used primarily for the good of the dominant political party became ingrained in the mind of the average American, and he grew so accustomed to the whole process that it seemed part of the order of nature.  Not merely the politicians but the bulk of the people accepted this in a matter-of-course way as the only proper attitude.  There were plenty of communities where the citizens themselves did not think it natural, or indeed proper, that the Post-Office should be held by a man belonging to the defeated party.  Moreover, unless both sides were forbidden to use the offices for purposes of political reward, the side that did use them possessed such an advantage over the other that in the long run it was out of the question for the other not to follow the bad example that had been set.  Each party profited by the offices when in power, and when in opposition each party insincerely denounced its opponents for doing exactly what it itself had done and intended again to do.

It was necessary, in order to remedy the evil, both gradually to change the average citizen’s mental attitude toward the question, and also to secure proper laws and proper administration of the laws.  The work is far from finished even yet.  There are still masses of office-holders who can be used by an unscrupulous Administration to debauch political conventions and fraudulently overcome public sentiment, especially in the “rotten borough” districts—­those where the party is not strong, and where the office-holders in consequence have a disproportionate influence.  This was done by the Republican Administration in 1912, to the ruin of the Republican party.  Moreover, there are numbers of States and municipalities where very little has as yet been done to do away with the spoils system.  But in the National Government scores of thousands of offices have been put under the merit system, chiefly through the action of the National Civil Service Commission.

The use of Government offices as patronage is a handicap difficult to overestimate from the standpoint of those who strive to get good government.  Any effort for reform of any sort, National, State, or municipal, results in the reformers immediately finding themselves face to face with an organized band of drilled mercenaries who are paid out of the public chest to train themselves with such skill that ordinary good citizens when they meet them at the polls are in much the position of militia matched against regular troops.  Yet these citizens themselves support and pay their opponents in such a way that they are drilled to overthrow the very men who support them.  Civil Service Reform is designed primarily to give the average American citizen a fair chance in politics, to give to this citizen the same weight in politics that the “ward heeler” has.