Any expenditure for such purposes could find warrant in the Constitution only through the implied powers theory. "To exercise exclusive legislation" over the District might mean to construct sidewalks and to grade streets; but it was not so expressed. So urgent became the necessity, that in 1803 an appropriation for buildings was made to include the repair of the highway between the Capitol and the other public buildings. The expenditure of this money, as Jefferson afterwards boasted, was confined carefully to the avenue between the Capitol and Mansion hills and to the squares about them. As time went on and the city grew, specific appropriations had to be made for the construction of streets and roadways within the District. These were wrung annually from the reluctant party. To the disgust of people living in more remote parts of the District, the first of these sums was spent entirely in widening Pennsylvania Avenue, planting it with trees, in replacing its wooden culverts with brick, in repairing the public squares about the buildings, and in grading the slope in front of the War Office. "It cannot be supposed," replied Jefferson to one protestant, "that Congress intended to tax the people of the United States at large for all avenues in Washington and roads in the District of Columbia." Trivial as these incidents must appear in comparison with the present attitude of the Government toward the District, they serve to illustrate the law of compulsion. Numerous others might be introduced here. The Jeffersonians inherited from the Federalists a small collection of books and maps, which had been purchased for the use of the members of Congress deprived of the library facilities they had enjoyed in the cities of New York and Philadelphia. It was the beginning of the present magnificent Library of Congress. Instead of casting aside the volumes and returning the unexpended balance to the treasury, the strict constructionists adopted the library and soon began to make direct appropriations for it, crowning the action in 1815 by expending twenty-three thousand dollars for the purchase of Jefferson's own library to be added to the collection. Thus did the seat of government and its needs drive another wedge of loose construction into close-grained theory. To have exclusive control over a district not exceeding ten miles square meant not only police control, but it meant to make a home fit for the national seat of government, and to provide for the necessities of its representatives. Nevertheless conscientious scruples and niggardly appropriations had sufficient weight for many years to make the home of the Union a disgrace to the nation and a thing of contempt in comparison with the capitals of other lands.