CARL SCHURZ,
OF NEW YORK. (BORN 1829.)
THE NECESSITY AND PROGRESS OF CIVIL SERVICE REFORM.
An Address delivered at the Annual Meeting of the National Civil Service Reform League at Chicago, Ill., December 12, 1894.
What Civil Service reform demands, is simply that the business part of the Government shall be carried on in a sound, business-like manner.
This seems so obviously reasonable that among people of common-sense there should be no two opinions about it. And the condition of things to be reformed is so obviously unreasonable, so flagrantly absurd and vicious, that we should not believe it could possibly exist among sensible people, had we not become accustomed to its existence among ourselves. In truth, we can hardly bring the whole exorbitance of that viciousness and absurdity home to our own minds unless we contemplate it as reflected in the mirror of a simile.
Imagine, then, a bank, the stockholders of which, many in number, are divided into two factions--let us call them the Jones party and the Smith party--who quarrel about some question of business policy, as, for instance, whether the bank is to issue currency or not. The Jones party is in control, but the Smith men persuade over to their side a sufficient number of Jones men to give them--the Smith men--a majority at the next stockholders" meeting. Thus they succeed in getting the upper hand. They oust the old board of directors, and elect a new board consisting of Smith men. The new Smith board at once remove all the officers, president, cashier, tellers, book-keepers, and clerks, down to the messenger boys--the good and the bad alike--simply because they are Jones men, and fill their places forth-with with new persons who are selected, not on the ground that they have in any way proved their fitness for the positions so filled, but simply because they are Smith men; and those of the Smith men who have shown the greatest zeal and skill in getting a majority of votes for the Smith party are held to have the strongest claims for salaried places in the bank. The new men struggle painfully with the duties novel to them until they acquire some experience, but even then, it needs in many instances two men or more to do the work of one.
In the course of events dissatisfaction spreads among the stockholders with the Smith management, partly shared by ambitious Smith men who thought themselves ent.i.tled to reward in the shape of places and salaries, but were "left out in the cold." Now the time for a new stockholders" meeting arrives. After a hot fight the Jones party carries the day. Its ticket of directors being elected, off go the heads of the Smith president, the Smith cashier, the Smith tellers, the Smith bookkeepers, and clerks, to be replaced by true-blue Jones men, who have done the work of the campaign and are expected to do more of it when the next election comes. And so the career of the bank goes on with its periodical changes of party in power at longer or shorter intervals, and its corresponding clean sweeps of the bank service, with mismanagement and occasional fraud and peculation as inevitable incidents.
You might watch the proceedings of such a banking concern with intense curiosity and amus.e.m.e.nt. But I ask you, what prudent man among you would deposit his money in it, or invest in its stock? And why would you not?
Because you would think that this is not sensible men"s business, but foolish boys" play; that such management would necessarily result in reckless waste and dishonesty, and tend to land many of the bank"s officers in Canada, and not a few of its depositors or investors in the poor-house. Such would be your judgment, and in p.r.o.nouncing it you would at the same time p.r.o.nounce judgment upon the manner in which the business part of our national Government, as well as of many if not most of our State and munic.i.p.al governments, has been conducted for several generations. This is the spoils system. And I have by no means presented an exaggerated or even a complete picture of it; nay, rather a mild sketch, indicating only with faint touches the demoralizing influences exercised by that system with such baneful effect upon the whole political life of the nation.
Looking at the financial side of the matter alone--it is certainly bad enough; it is indeed almost incomprehensible how the spoils system could be permitted through scores of years to vitiate our business methods in the conduct of the national revenue service, the postal service, the Indian service, the public-land service, involving us in indescribable administrative blunders, bringing about Indian wars, causing immense losses in the revenue, breeding extravagant and plundering practices in all Departments, costing our people in the course of time untold hundreds of millions of money, and making our Government one of the most wasteful in the world. All this, I say, is bad enough. It might be called discreditable enough to move any self-respecting people to shame.
But the spoils system has inflicted upon the American people injuries far greater than these.
The spoils system, that practice which turns public offices, high and low, from public trusts into objects of prey and booty for the victorious party, may without extravagance of language be called one of the greatest criminals in our history, if not the greatest. In the whole catalogue of our ills there is none more dangerous to the vitality of our free inst.i.tutions.
It tends to divert our whole political life from its true aims. It teaches men to seek something else in politics than the public good.
It puts mercenary selfishness as the motive power for political action in the place of public spirit, and organizes that selfishness into a dominant political force.
It attracts to active party politics the worst elements of our population, and with them crowds out the best. It transforms political parties from a.s.sociations of patriotic citizens, formed to serve a public cause, into bands of mercenaries using a cause to serve them. It perverts party contests from contentions of opinion into scrambles for plunder. By stimulating the mercenary spirit it promotes the corrupt use of money in party contests and in elections.
It takes the leadership of political organizations out of the hands of men fit to be leaders of opinion and workers for high aims, and turns it over to the organizers and leaders of bands of political marauders. It creates the boss and the machine, putting the boss into the place of the statesman, and the despotism of the machine in the place of an organized public opinion.
It converts the public office-holder, who should be the servant of the people, into the servant of a party or of an influential politician, extorting from him time and work which should belong to the public, and money which he receives from the public for public service. It corrupts his sense of duty by making him understand that his obligation to his party or his political patron is equal if not superior to his obligation to the public interest, and that his continuance in office does not depend on his fidelity to duty. It debauches his honesty by seducing him to use the opportunities of his office to indemnify himself for the burdens forced upon him as a party slave. It undermines in all directions the discipline of the public service.
It falsifies our const.i.tutional system. It leads to the usurpation, in a large measure, of the executive power of appointment by members of the legislative branch, subst.i.tuting their irresponsible views of personal or party interest for the judgment as to the public good and the sense of responsibility of the Executive. It subjects those who exercise the appointing power, from the President of the United States down, to the intrusion of hordes of office-hunters and their patrons, who rob them of the time and strength they should devote to the public interest. It has already killed two of our Presidents, one, the first Harrison, by worry, and the other, Garfield, by murder; and more recently it has killed a mayor in Chicago and a judge in Tennessee.
It degrades our Senators and Representatives in Congress to the contemptible position of office-brokers, and even of mere agents of office-brokers, making the business of d.i.c.kering about spoils as weighty to them as their duties as legislators. It introduces the patronage as an agency of corrupt influence between the Executive and the Legislature. It serves to obscure the criminal character of bribery by treating bribery with offices as a legitimate practice. It thus reconciles the popular mind to practices essentially corrupt, and thereby debauches the popular sense of right and wrong in politics.
It keeps in high political places, to the exclusion of better men, persons whose only ability consists in holding a personal following by adroit manipulation of the patronage. It has thus sadly lowered the standard of statesmanship in public position, compared with the high order of ability displayed in all other walks of life.
It does more than anything else to turn our large munic.i.p.alities into sinks of corruption, to render Tammany Halls possible, and to make of the police force here and there a protector of crime and a terror to those whose safety it is to guard. It exposes us, by the scandalous spectacle of its periodical spoils carnivals, to the ridicule and contempt of civilized mankind, promoting among our own people the growth of serious doubts as to the practicability of democratic inst.i.tutions on a great scale; and in an endless variety of ways it introduces into our political life more elements of demoralization, debas.e.m.e.nt, and decadence than any other agency of evil I know of, aye, perhaps more than all other agencies of evil combined.
These are some of the injuries the spoils system has been, and still is, inflicting upon this Republic--some, I say; not all, for it is impossible to follow its subtle virus into all the channels through which it exercises its poisonous influence. But I have said enough to ill.u.s.trate its pernicious effects; and what I have said is only the teaching of sober observation and long experience.
And now, if such are the evils of the spoils system, what are, by way of compensation, the virtues it possesses, and the benefits it confers?
Let its defenders speak. They do not pretend that it gives us a very efficient public service; but they tell us that it is essentially American; that it is necessary in order to keep alive among our people an active interest in public affairs; that frequent rotation in office serves to give the people an intelligent insight in the nature and workings of their Government; that without it parties cannot be held together, and party government is impossible; and that all the officers and employees of the Government should be in political harmony with the party in power. Let us pa.s.s the points of this defence in review one by one.
First, then, in what sense can the spoils system be called essentially American? Certainly not as to its origin. At the beginning of our national Government nothing like it was known here, or dreamed of. Had anything like it been proposed, the fathers of the Republic would have repelled it with alarm and indignation. It did, indeed, prevail in England when the monarchy was much stronger than it is now, and when the aristocracy could still be called a ruling cla.s.s. But as the British Government grew more democratic, the patronage system, as a relic of feudalism, had to yield to the forces of liberalism and enlightenment until it completely disappeared. When it invaded our national Government, forty years after its const.i.tutional beginning, we merely took what England was casting off as an abuse inconsistent with popular government, and unworthy of a free and civilized nation. If not in origin, is the spoils system essentially American in any other sense?
Only in the sense in which murder is American, or small-pox, or highway robbery, or Tammany Hall.
As to the spoils system being necessary to the end of keeping alive among our people an active interest in public affairs--where is the American who does not blush to utter such an infamous calumny? Is there no patriotism in America without plunder in sight? Was there no public spirit before spoils systems and clean sweeps cursed us, none between the battle of Lexington and Jackson"s inauguration as President? Such an argument deserves as an answer only a kick from every honest American boot.
I admit, however, that there are among us some persons whose interest in public affairs does need the stimulus of office to remain alive. I am far from denying that the ambition to serve one"s country as a public officer is in itself a perfectly legitimate and honorable ambition. It certainly is. But when a man"s interest in public affairs depends upon his drawing an official salary, or having such a salary in prospect, the ambition does not appear so honorable. There is too pungent a mercenary flavor about it. No doubt, even among the mercenaries may be found individuals that are capable, faithful, and useful; but taking them as a cla.s.s, the men whose active public spirit is conditional upon the possession or prospect of official spoil are those whose interest in public affairs the commonweal can most conveniently spare. Indeed, our political life would be in a much healthier condition if they did not take any part in politics at all. There would be plenty of patriotic Americans to devote themselves to the public good without such a condition. In fact, there would be more of that cla.s.s in regular political activity than there are now, for they would not be jostled out by the pushing hordes of spoils-hunters, whose real interest in public affairs is that of serving themselves. The spoils system is therefore not only not a stimulus of true public spirit, but in spreading the mercenary tendency among the people it has served to baffle and discourage true public spirit by the offensive infusion in political life of the mercenary element.
The view that the spoils system with its frequent rotations in office is needed to promote among the people a useful understanding of the nature and workings of the Government, finds, amazing as it may seem, still serious adherents among well-meaning citizens. It is based upon the a.s.sumption that the public service which is inst.i.tuted to do certain business for the people, should at the same time serve as a school in which ignorant persons are to learn something about the functions of the Government. These two objects will hardly go together. If the public service is to do its business with efficiency and economy, it must of course be manned with persons fit for the work. If on the other hand it is to be used as a school to instruct ignorant people in the functions of the Government--that is, in the duties of a postmaster, or a revenue collector, or an Indian agent, or a Department clerk--then we should select for such places persons who know least about them, for they have the most to learn; and inasmuch as such persons, before having acquired the necessary knowledge, skill, and experience, will inevitably do the public business in a bungling manner, and therefore at much inconvenience and loss to the people, they should, in justice to the taxpayers, instead of drawing salaries, pay something for the instruction they receive. For as soon as they have learned enough really to earn a salary, they will have to be turned out to make room for others, who are as ignorant and in as great need of instruction as the outgoing set had been before. Evidently this kindergarten theory of the public service is hardly worth discussion. The school of the spoils system, as it has been in operation since 1829, has educated thousands of political loafers, but not one political sage.
That the Government will not work satisfactorily unless all its officers and employees are in political harmony with the ruling party, is also one of those superst.i.tions which some estimable people have not yet been able to shake off. While they sternly resist the argument that there is no Democratic and no Republican way of sorting letters, or of collecting taxes, or of treating Indians, as theoretical moonshine, their belief must, after all, have received a rude shock by the conduct of the last three national Administrations, including the present one.
When in 1885, after twenty-four years of Republican ascendency, the Democrats came into power, President Cleveland determined that, as a general rule, officers holding places covered by the four-years-term law should, if they had conducted themselves irreproachably, be permitted to serve out their four-years terms. How strictly this rule was adhered to I will not now inquire. At any rate it was adhered to in a great many cases. Many Republican office-holders, under that four-years rule, remained in place one, or two, or three years under the Democratic Administration. President Harrison, succeeding Mr. Cleveland, followed a similar rule, although to a less extent. And now President Cleveland again does the same. Not only did we have during his first term the startling spectacle of the great post-office of New York City remaining in the hands of a postmaster who was not a Democrat, but recently of the Collectorship of the port of New York, once considered the most important political office in the country, being left for a year or more in possession of a Republican.
It is clear, the Presidents who acted thus did not believe that the public interest required all the officers of the Government to be in harmony with the party in power. On the contrary, they thought that the public interest was served by keeping efficient officers in their places, for a considerable time at least, although they were not in such harmony. And no doubt all sensible people admit that the common weal did not suffer therefrom. The theory of the necessity of political accord between the administrative officers of the Government and the party in power has thus been thoroughly exploded by actual practice and experience. Being obliged to admit this, candid men, it is to be hoped, will go a step further in their reasoning. If those two Presidents were right in thinking that the public welfare was served by keeping meritorious officers not belonging to the ruling party in place until they had served four years, is it not wrong to deprive the country of the services of such men, made especially valuable by their acc.u.mulated experience and the training of their skill, by turning them out after the lapse of the four years? If it was for the public interest to keep them so long, is it not against the public interest not to keep them longer?
But all these evidences of progress I regard as of less importance than the strength our cause has gained in public sentiment. Of this we had a vivid ill.u.s.tration when a year ago, upon the motion of Mr. Richard Watson Gilder, the Anti-Spoils League was set on foot for the purpose of opening communication and facilitating correspondence and, in case of need, concert of action with the friends of Civil Service reform throughout the country, and when, in a short s.p.a.ce of time, about 10,000 citizens sent in their adhesion, representing nearly every State and Territory of the Union, and in them, the most enlightened and influential cla.s.ses of society.
More encouraging still is the circ.u.mstance that now for the first time we welcome at our annual meeting not only the familiar faces of old friends, but also representatives of other organizations--Good Government clubs, working for the purification of politics; munic.i.p.al leagues, whose aim is the reform of munic.i.p.al governments; and commercial bodies, urging the reform of our consular service. We welcome them with especial warmth, for their presence proves that at last the true significance of Civil Service reform is being appreciated in constantly widening circles. The Good Government Club understands that if the moral tone of our politics, national or local, is to be lifted up, the demoralizing element of party spoil must be done away with. The Munic.i.p.al League understands that if our large munic.i.p.alities are to be no longer cesspools of corruption, if our munic.i.p.al governments are to be made honest and business-like, if our police forces are to be kept clear of thugs and thieves, the appointments to places in the munic.i.p.al service must be withdrawn from the influence of party bosses and ward ruffians, and must be strictly governed by the merit system. The merchants understand that if our consular service is to be an effective help to American commerce, and a credit to the American name, it must not be subject to periodical partisan lootings, and our consuls must not be appointed by way of favor to some influential politician, but upon a methodical ascertainment of their qualifications for the consular business; then to be promoted according to merit, and also to be salaried as befits respectable agents and representatives of a great nation. With this understanding, every Good Government Club, every Munic.i.p.al League, every Chamber of Commerce or Board of Trade must be an active Civil Service Reform a.s.sociation. But more than this. Every intelligent and unprejudiced citizen, when he candidly inquires into the developments which have brought about the present state of things, will understand that of the evils which have so alarmingly demoralized our political life, and so sadly lowered this Republic in the respect of the world, many, if not most, had their origin, and find their sustenance, in that practice which treats the public offices as the plunder of victorious parties; that as, with the increase of our population, the growth of our wealth, and the multiplication of our public interests, the functions of government expand and become more complicated, those evils will grow and eventually destroy the very vitality of our free inst.i.tutions, unless their prolific source be stopped; that this force can be effectually stopped not by mere occasional spasms of indignant virtue, but only by a systematic, thorough, and permanent reform. Every patriotic citizen understanding this must be a Civil Service reformer.
You may ask how far this understanding has penetrated our population.
President Cleveland answers this question in his recent message. Listen to what he says: "The advantages to the public service of an adherence to the principles of Civil Service Reform are constantly more apparent, and nothing is so encouraging to those in official life who honestly desire good government, as the increasing appreciation by our people of these advantages. A vast majority of the voters of the land are ready to insist that the time and attention of those they select to perform for them important public duties should not be distracted by doling out minor offices, and they are growing to be unanimous in regarding party organization as something that should be used in establishing party principles instead of dictating the distribution of public places as rewards for partisan activity."
With gladness I welcome this cheering a.s.surance, coming from so high an authority. If such is the sense of "a vast majority of the voters of the land, growing to be unanimous," it may justly be called the will of the people. If it is the will of the people, what reason--nay, what excuse--can there be for further hesitation? Let the will of the people be done! Let it be done without needless delay, and let the people"s President lead in doing it! Then no more spoils and plunder! No more removals not required by public interest! No more appointments for partisan reasons! Continuance in office, regardless of any four-years rule, of meritorious public servants! Superior merit the only t.i.tle to preferment! No longer can this be airily waved aside as a demand of a mere sect of political philosophers, for now it is recognized as the people"s demand. No longer can Civil Service reform be cried down by the so-called practical politicians as the nebulous dream of unpractical visionaries, for it has been grasped by the popular understanding as a practical necessity--not to enervate our political life, but to lift it to a higher moral plane; not to destroy political parties, but to restore them to their legitimate functions; not to make party government impossible, but to guard it against debas.e.m.e.nt, and to inspire it with higher ambitions; not pretending to be in itself the consummation of all reforms, but being the Reform without which other reformatory efforts in government cannot be permanently successful.
Never, gentlemen, have we met under auspices more propitious. Let no exertion be spared to make the voice of the people heard. For when it is heard in its strength it will surely be obeyed.