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 does not make those selections at all, but they are made for him and forced upon him by political influences with the impelling motives of which the public interest has ordinarily nothing to do. And you may be assured that most of those who clamor to have the appointing officer entirely free in his choice, do so only because they wish to make him their slavish tool. What they are struggling for is their own freedom to impose their choice upon him. Against these incessant efforts to enslave him to influences foreign to the public interest the appointing officer needs protection; and that protection he can find only in a law, or in a rule having the force of law, which restricts the choice to a limited number of candidates found most fit for the performance of official duty by impartial test.

Will this protection be given—in other words, will favoritism be excluded, by non-competitive, mere pass examinations, in which a minimum of requirements is established and the choice is from all the candidates whose proficiency is above that minimum? This question is answered by long and varied experience. There were such examinations in the government departments in Washington many years before the enactment of the civil service law, without in any appreciable degree affecting the evils of the spoils system. Why was this the result? In the first place, those examinations were not open to all qualified persons. Only candidates designated for that purpose were admitted. Who designated such candidates? In name the appointing officer; in fact the politicians of influence who wanted places for their favorites. Thus favoritism entered into, nay, controlled the proceeding before the examination began. If several candidates for the same place passed above the minimum requirement, who received the appointment? Not the man who had passed highest but he who was selected—in name by the appointing officer, in fact by the politician who had the largest influence. Thus favoritism controlled the consummation of the proceeding. I will not say that it absolutely always happened so; but it was the rule, and exceptions were rare. Is it a wonder that the spoils system with all its scandals flourished under this system without substantial restraint?

I am well aware that under certain conditions such pass-examinations may be made to do good service. Given a