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system of appointments as not merely the necessary and only safe bulwark to preserve the results of their labours, but also as the most efficient means for bringing about other reforms. Hence civil service reform is given a leading position in all programmes for the reform of state and municipal governments. This has undoubtedly been due, in the first instance, at least, to the success which attended the application of the merit system to the Federal service, municipal and state legislation following in the wake of the national civil service law. In New York an act similar to the Federal Civil Service Act was passed on the 4th of May 1883, and in 1894 the principles of the merit system were introduced by an amendment into the state constitution, and made applicable to cities and villages as well. In Massachusetts an act was passed on the 3rd of June 1884 which in its general features was based upon the Federal act and the New York act. Similar laws were passed in Illinois and Wisconsin in 1895, and in New Jersey in 1908; the laws provide for the adoption of the merit system in state and municipal government. In New Orleans, La., and in Seattle, Wash., the merit system was introduced by an amendment to the city charter in 1896. The same result was accomplished by New Haven, Conn., in 1897, and by San Francisco, Cal., in 1899. In still other cities the principles of the merit system have been enacted into law, in some cases applying to the entire service and in others to only a part of it.

The application of the merit system to state and municipal governments has proved successful wherever it has been given a fair trial.[1] As experience has fostered public confidence in the system, and at the same time shown those features of the law which are most vulnerable, and the best means for fortifying them, numerous and important improvements upon the pioneer act applying to the Federal service have been introduced in the more recent legislation. This is particularly true of the acts now in force in New York (passed in 1899) and in Chicago. The power of the commission to enforce these acts is materially greater than the power possessed by the Federal commission. In making investigations they are not confined to taking the testimony of voluntary witnesses, but may administer oaths, and compel testimony and the production of books and papers where necessary; and in taking action they are not confined to the making of a report of the findings in their investigations, but may themselves, in many cases, take final judicial action. Further than this, the payment of salaries is made dependent upon the certificate of the commission that the appointments of the recipients were made in accordance with the civil service law and rules. Thus these commissions have absolute power to prevent irregular or illegal appointments by refractory appointing officers. Their powers being so much greater than those of the national commission, their action can be much more drastic in most cases, and they can go more directly to the heart of an existing abuse, and apply more quickly and effectually the needed remedy.

Upon the termination of the Spanish-American War, the necessity for the extension of the principles of the merit system to the new territories, the responsibility for whose government the results of this war had thrown upon the United States, was realized. By the acts providing for civil government in Porto Rico (April 12th, 1900) and Hawaii (April 30th, 1900), the provisions of the Civil Service Act and Rules were applied to those islands. Under this legislation the classification applies to all positions which are analogous to positions in the Federal service, those which correspond to positions in the municipal and state governments being considered as local in character, and not included in the classification.

On the 19th of September 1900 the United States Philippine Commission passed an act “for the establishment and maintenance of an efficient and honest civil service in the Philippine Islands.” This act, in its general features, is based upon the national civil service law, but includes also a number of the stronger points to be found in the state and municipal law mentioned above. Among these are the power given the civil service board to administer oaths, summon witnesses, and require the production of official records; and the power to stop payment of salaries to persons illegally appointed. Promotions are determined by competitive examinations, and are made throughout the service, as there are no excepted positions. A just right of preference in local appointments is given to natives. The president of the Philippine commission in introducing this bill said: “The purpose of the United States government . . . in these islands is to secure for the Filipino people as honest and as efficient a government as may be possible. . . . It is the hope of the commission to make it possible for one entering the lowest ranks to reach the highest, under a tenure based solely upon merit.” Judging by past experience it is believed that this law is well adapted to accomplish the purpose above stated.

For fuller information upon the details of the present workings of the merit system in the Federal service, recourse should be had to the publications of the U.S. Civil Service Commission, which are to be found in the public libraries in all the principal cities in the United States, or which may be had free of charge upon application to the commission. The Manual of Examinations, published semi-annually, gives full information as to the character of the examinations held by the commission, together with the schedule of dates and places for the holding of those examinations. The Annual Reports of the commission contain full statistics of the results of its work, together with comprehensive statements as to the difficulties encountered in enforcing the law, and the means used to overcome them. In the Fifteenth Report, pp. 443-485, will be found a very valuable historical compilation from original sources, upon the “practice of the presidents in appointments and removals in the executive civil service, from 1789 to 1883.” In the same report, pp. 511-517, is a somewhat comprehensive bibliography of “civil service” in periodical literature in the 19th century, brought down to the end of 1898. See also C. R. Fish, The Civil Service and the Patronage (New York, 1905).

In most European countries the civil service is recruited on much the same lines as in the United Kingdom and the United States, that is, either by examination or by nomination or by both. In some cases the examination is purely competitive, in other cases, as in France, holders of university degrees get special privileges, such as being put at the head of the list, or going up a certain number of places; or, as in Germany, many departmental posts are filled by nomination, combined with the results of general examinations, either at school or university. In the publications of the United States Department of Labour and Commerce for 1904–1905 will be found brief details of the systems adopted by the various foreign countries for appointing their civil service employees.

CIVITA CASTELLANA (anc. Falerii, q.v.), a town and episcopal see of the province of Rome, 45 m. by rail from the city of Rome (the station is 5 m. N.E. of the town). Population (1901) 5265. The cathedral of S. Maria possesses a fine portico, erected in 1210 by Laurentius Romanus, his son Jacobus and his grandson Cosmas, in the cosmatesque style, with ancient columns and mosaic decorations: the interior was modernized in the 18th century, but has some fragments of cosmatesque ornamentation. The citadel was erected by Pope Alexander VI. from the designs of Antonio da Sangallo the elder, and enlarged by Julius II. and Leo X. The lofty bridge by which the town is approached belongs to the 18th century. Mount Soracte lies about 6 m. to the south-east.

CIVITA VECCHIA, a seaport town and episcopal see of Italy, in the province of Rome, 50 m. N.W. by rail and 35 m. direct from the city of Rome. Pop. (1871) 8143; (1901) 17,589. It is the ancient Centum Cellae, founded by Trajan. Interesting descriptions of it are given by Pliny the Younger (Epist. vi. 31) and Rutilius Namat. i. 237. The modern harbour works rest on the ancient foundations, and near it the cemetery of detachments of the Classes Misenensis and Ravennas has been found (Corp. Inscr. Lat. vol. xi., Berlin, 1888, pp. 3520 seq.). Remains of an aqueduct and other Roman buildings are preserved; the imperial family had a villa here. Procopius mentions it in the 6th century as a strong and populous place, but it was destroyed in 813 by the Saracens. Leo IV. erected a new city for the inhabitants on the site where they had taken refuge, about 8 m. N.N.E. of Civita Vecchia towards the hills, near La Farnesina, where its ruins may still be seen; the city walls and some of the streets and buildings may be traced, and an inscription

  1. In the U.S. Civil Service Commission’s Fifteenth Report, pp. 489-502, the “growth of the civil service reform in states and cities” is historically treated, briefly, but with some thoroughness.