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第25章

the boss and the machine-第25章

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is carrying out its determination。 Illinois has provided perhaps
the most democratic method。 In each congressional district; the
voters; at the regular party primaries; choose the member of the
state committee for the district; who serves for a term of two
years。 The law says that 〃no other person or persons whomsoever〃
than those so chosen by the voters shall serve on the committee;
so that members by courtesy or by proxy; who might represent the
boss; are apparently shut off。 The law stipulates the time within
which the committee must meet and organize。 Under this plan; if
the ring controls the committee; the fault lies wholly with the
majority of the party; it is a self…imposed thraldom。

Iowa likewise stipulates that the Central Committee shall be
composed of one member from each congressional district。 But the
members are chosen in a state convention; organized under strict
and minute regulations imposed by law。 It permits considerable
freedom to the committee; however; stating that it 〃may organize
at pleasure for political work as is usual and customary with
such committees。〃

In Wisconsin another plan was adopted in 1907。 Here the
candidates for the various state offices and for both branches of
the legislature and the senators whose terms have not expired
meet in the state capital at noon on a day specified by law and
elect by ballot a central committee consisting of at least two
members from each congressional district。 A chairman is chosen in
the same manner。

Most States; however; leave some leeway in the choice of the
state committee; permitting their election usually by the regular
primaries but controlling their action in many details。 The
lesser committeescounty; city; district; judicial; senatorial;
congressional; and othersare even more rigorously controlled by
law。

So the issuing of the party platform; the principles on which it
must stand or fall; has been touched by this process of
ossification。 Few States retain the state convention in its
original vigor。 In all States where primaries are held for state
nominations; the emasculated and subdued convention is permitted
to write the party platform。 But not so in some States。 Wisconsin
permits the candidates and the hold…over members of the Senate;
assembled according to law in a state meeting; to issue the
platform。 In other States; the Central Committee and the various
candidates for state office form a party council and frame the
platform。 Oregon; in 1901; tried a novel method of providing
platforms by referendum。 But the courts declared the law
unconstitutional。 So Oregon now permits each candidate to write
his own platform in not over one hundred words and file it with
his nominating petition; and to present a statement of not over
twelve words to be printed on the ballot。

The convention system provided many opportunities for the
manipulator and was inherently imperfect for nominating more than
one or two candidates for office。 It has survived as the method
of nominating candidates for President of the United States
because it is adapted to the wide geographical range of the
nation and because in the national convention only a President
and a Vice…President are nominated。 In state and county
conventions; where often candidates for a dozen or more offices
are to be nominated; it was often subject to demoralizing
bartering。

The larger the number of nominations to be made; the more
complete was the jobbery; and this was the death warrant of the
local convention。 These evils were recognized as early as June
20; 1860; when the Republican county convention of Crawford
County; Pennsylvania; adopted the following resolutions:

〃Whereas; in nominating candidates for the several county
offices; it clearly is; or ought to be; the object to arrive as
nearly as possible at the wishes of the majority; or at least a
plurality of the Republican voters; and

Whereas the present system of nominating by delegates; who
virtually represent territory rather than votes; and who almost
necessarily are wholly unacquainted with the wishes and feelings
of their constituents in regard to various candidates for office;
is undemocratic; because the people have no voice in it; and
objectionable; because men are often placed in nomination because
of their location who are decidedly unpopular; even in their own
districts; and because it affords too great an opportunity for
scheming and designing men to accomplish their own purposes;
therefore

Resolved; that we are in favor of submitting nominations directly
to the peoplethe Republican votersand that delegate
conventions for nominating county officers be abolished; and we
hereby request and instruct the county committee to issue their
call in 1861; in accordance with the spirit of this resolution。〃

Upon the basis of this indictment of the county convention
system; the Republican voters of Crawford County; a rural
community; whose largest town is Meadville; the county seat;
proceeded to nominate their candidates by direct vote; under
rules prepared by the county committee。 These rules have been but
slightly changed。 The informality of a hat or open table drawer
has been replaced by an official ballotbox; and an official
ballot has taken the place of the tickets furnished by each
candidate。

The 〃Crawford County plan;〃 as it was generally called; was
adopted by various localities in many States。 In 1866 California
and New York enacted laws to protect primaries and nominating
caucuses from fraud。 In 1871 Ohio and Pennsylvania enacted
similar laws; followed by Missouri in 1875 and New Jersey in
1878。 By 1890 over a dozen States had passed laws attempting to
eliminate the grosser frauds attendant upon making nominations。
In many instances it was made optional with the party whether the
direct plan should supersede the delegate plan。 Only in certain
cities; however; was the primary made mandatory in these States。
By far the larger areas retained the convention。

There is noticeable in these years a gradual increase in the
amount of legislation concerning the nominating machinery
prescribing the days and hours for holding elections of
delegates; the size of the polling…place; the nature of the
ballotbox; the poll…list; who might participate in the choice of
delegates; how the returns were to be made; and so on。 By the
time; then; that the Australian ballot came; with its profound
changes; nearly all the States had attempted to remove the
glaring abuses of the nominating system; and several of them
officially recognized the direct primary。 The State was reluctant
to abolish the convention system entirely; and the Crawford
County plan long remained merely optional。 But in 1901 Minnesota
enacted a state…wide; mandatory primary law。 Mississippi followed
in 1902; Wisconsin in 1903; and Oregon in 1904。 This movement has
swept the country。

Few States retain the nominating convention; and where it remains
it is shackled by legal restrictions。 The boss; however; has
devised adequate means for controlling primaries; and a return to
a modified convention system is being earnestly discussed in many
States to circumvent the further ingenuity of the boss。 A further
step towards the state control of parties was taken when laws
began to busy themselves with the conduct of the campaign。
Corrupt Practices Acts began to assume bulk in the early
nineties; to limit the expenditure of candidates; and to
enumerate the objects for which campaign committees might
legitimately spend money。 These are usually personal traveling
expenses of the candidates; rental of rooms for committees and
halls for meetings; payment of musicians and speakers and their
traveling expenses; printing campaign material; postage for
distribution of letters; newspapers and printed matter; telephone
and telegraph charges; political advertising; employing
challengers at the polls; necessary clerk hire; and conveyances
for bringing aged or infirm voters to the polls。 The maximum
amount that can be spent by candidates is fixed; and they are
required to make under oath a detailed statement of their
expenses in both primary and general elections。 The vario

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