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: "In numerous instances the post-offices were made headquarters for local party committees and organizations and the centers of partisan scheming.
Party literature favorable to the postmaster's party, that never passed regularly through the mails, was distributed through the post-offices as an item of party service; and matter of a political character, passing through the mails in the usual course and addressed to patrons belonging to the opposite party, was withheld; disgusting and irritating placards were prominently displayed in many post-offices, and the attention of Democratic inquirers for mail matter was tauntingly directed to them by the postmaster; and in various other ways postmasters and similar officials annoyed and vexed those holding opposite political opinions, who, in common with all having business at public offices, were entitled to considerate and obliging treatment.