until October 8, 1884, when 332 appointments had been made. From that time until January 6, 1911, the practice was followed of apportioning among the States some arbitrary number of appointments and of charging against the allotment of each State as thus determined each appointment given to a resiIdent of that State.

October 8, 1884, a new apportionment of 500 places was ordered, September 23, 1885, a new apportionment of 1,002 places, and on July 23, 1887, still another of 2,000 became necessary.

On November 4, 1897, the commission took the following action preparatory to the adoption of a new apportionment:

"Ordered, First: That all separations since the beginning of the present statistical year (July 1, 1897) of persons charged to the apportionment shall be credited on the existing apportionment, and that future separations of similar persons shall be similarly credited.

"Second. That all appointments through examination, reinstatement, or otherwise, since the beginning of the present statistical year (July 1, 1897) shall be debited to the existing apportionment, unless previously so debited, and that all future similar appointments shall be similarly debited.

"Third. That upon the credits and debits since July 1, 1897, having been made, a new apportionment of 2,000 shall be calculated, and the States which have received an excess of appointments under the previous apportionment shall be charged with the number so received, and those States which have not received their full share of appointments under the previous apportionment shall be credited with the deficit."

On December 31, 1900, the commission approved a new apportionment, under the census of 1900, upon the basis of one appointment to every 10,000 of population, making a total of 7,591 appointments, to go into effect on January 1, 1901.

In 1902, by action of January 27 and February 7, Porto Rico and Hawaii were admitted to participation in the apportionment, their quotas being 95 and 16, respectively, on the basis of 1 to 10,000, making the entire number 7,702.

On May 13, 1903, to comply with the official bulletin showing the population of the States, the quotas of several States were increased by from 1 to 5, the total number added being 14, bringing the arbitrary number allotted up to 7,716.

On April 1, 1910, it was ordered that all appointments to apportioned positions, whether through examination, by executive order, legislative enactment, or otherwise, should be charged to the apportionment, unless purely temporary, and that all persons already in the apportioned service, but whose appointments had not been charged to the apportionment, should have their appointments charged when their status is changed from one position to another in such service upon certificate of the commission.

On January 4, 1911, the population according to the Thirteenth Census having been announced, the commission directed the immediate adoption of a new system of keeping the apportionment.

To maintain a correct apportionment it is necessary to know at all times which State or Territory has received the smallest part of its due share of appointments. It often happens that the State next entitled to an appointment has no suitable eligibles for the particular vacancy, and it is sometimes necessary to pass over several States for the same reason, certifying eligibles from the first State that has them. Each appointment received by a State brings it nearer to its full share and frequently places it farther down the list. For this reason the entries for each State are made on a separate card.

The theory of the maintenance of the apportionment is to give each State the same per cent of all appointments as it has of the total population, but this is not practicable, for various reasons. The total number of appointments is constantly changing, increasing by new appointments and diminishing by separations. Each State's per cent of the total population must be expressed by several decimals to insure sufficient accuracy.

Three methods have been employed for recording the relative order of the States, the first until November 29, 1897, the second from that date until January 6, 1911, and the third, or existing method.

The method followed until November 29, 1897, is partially explained in the fourth report of the commission, pages 56 to 59. An arbitrary number was distributed among all the States and Territories according to population.

The following section of the list of States will illustrate the working of the method:

The second column shows each State's share of 1,002 as determined by its percentage of the total population.

The third column shows how many appointments each State had actually received on June 30, 1887.

The fourth column shows the value of one appointment to each State, taking the value of one appointment to New York as unity. New York having the greatest population, its allotment of 101 was larger than that of any other State, and the value of one appointment in filling its allotment was therefore less than that of any other State. The value to New York of one appointment was 1. Since it would take 101 appointments to fill the allotment of New York and only 6 to fill the allotment of Rhode Island, the value of one appointment given to Rhode Island as compared with that of one appointment given to New York was 101 to 6, or 16.83. In a similar way the value of one appointment to each of the other States was determined.

The numbers in the fifth column were obtained by adding the value of one appointment to each State every time that State received an appointment. It will be observed in the case of each State that its value of one appointment multiplied by the number of appointments received by it gives its number in the fifth column, determining relative standing.

The following partial table and explanation illustrate the method employed from November 29, 1897, to January 6, 1911:

The second column shows each State's share of 7,716, as determined by its per cent of the total population, census of 1900.

The third column shows the net number of appointments charged to each State on July 1, 1903.

The fourth column shows the per cent that each State received of its entire allotment every time it received an appointment. For example, in the case of

Arkansas 1/131 equals 0.007633, showing that each appointment given to Arkansas is 0.7633 per cent of its entire allotment.

The fifth column shows the per cent that each State had received of its allotment, and determined its relative order in line for appointments. For example, in the case of Arkansas the value of one appointment, 0.7633, multiplied by the number received, 88, was its per cent received of its entire allotment, or 67.176.

The practice of allotting an arbitrary number among the States was defective, because the quota assigned a State was its true quota only on the day when the total number of appointments reached the arbitrary number. It was misleading and, at times, made it appear that a State had received more or less than its due share of appointments, when the opposite was true.

On January 6, 1911, the previous system was replaced by a new one, which shows accurately at all times the relative standing of the States, on the basis of the total number of appointments actually made. This system and its work

ings can be explained by the use of the following partial table:

The total population of the States and Territories and the District of Columbia, including Alaska, Porto Rico, and Hawaii, according to the census of 1910, was 93,346,543. The second column shows for each State its per cent of the total population, and its due share of each appointment.

To illustrate the working of this system it may be said that on March 17, 1911, 10,182 appointments had been made and each State was therefore entitled to 10,182 times its share of each appointment. As a matter of fact, some States had received more and some less. The number of times its share of one appointment which each State has actually received is shown in the fifth column, and this determines the relative order for certification under the present system.

The third column shows the value to each State of each appointment received by it. For example, Iowa is entitled to 2.38 per cent of each appointment. When it receives an appointment it receives 41.9578 times its share of each appointment. The number in the third column opposite each State is therefore a factor to be added to or subtracted from the corresponding number in the fifth column every time a resident of the State is appointed or separated from the service. For example, an appointment given to Nebraska increases its number in the fifth column by 78.2968, or to 9,865.39, and drops it below Connecticut in order of certification.

On March 17, 1911, the United States as a whole had received 10,182 appointments, which is 10,182 times its share of one appointment. Any State which had received more than 10,182 times its share of one appointment was in excess, while any that had received less than 10,182 times its share of one appointment was in arrears. The number of appointments to which a State is entitled at any time may be found by multiplying the total number of appointments by its per cent of the total population. The per cent of its share which any State has received may be found by dividing the number in the fifth column showing the total number of times its share of one appointment received by the total number of appointments received by all the States and Territories.

CONDITIONS IN THE FIELD SERVICES.

For the purpose of presenting accurately the conditions existing outside Washington, in so far as they relate to the administration of the civil service act and rules, the commission called for reports from its district secretaries, who are located at advantageous points throughout the country and have charge of civil-service administration in their respective districts. Their accounts, published below, are illuminating when the extent to which they are actually in touch with the service is considered, and their views and recommendations are of special interest.

FIRST DISTRICT.

(Maine, New Hampshire, Vermont. Massachusetts, Rhode Island, and Connecticut; headquarters, Boston, Mass.)

The fiscal year ended June 30, 1911, was notable in the further progress made in the extension of the district system. It witnessed the final consummation of the plans for thus disposing of the Engineer, Ordnance, and Signal Services, War Department, and for establishing local registers for various positions formerly filled from the commission's registers at Washington, prominent among which were those of stenographer and typewriter. The classification of assistant postmasters and clerks at first and second class post offices not previously in the competitive classified service was another most important addition. The Executive order by which this was accomplished has been universally commended for removing from the spoils system a large body of hard-working and faithful Government employees and for the increased efficiency bound to result. Generally speaking, we have had little difficulty in establishing satisfactory registers in this district for positions calling for no more than ordinary qualifications. Male eligibles for stenographer and typewriter appointments at $900 per annum or less have been scarce in all parts of the district. We have frequently been obliged to certify typewriters who failed in stenography when meeting requests for (male) stenographer and typewriter eligibles, and appointing officers have been glad to get them, for it is generally understood by them that persons who are capable of passing our examinations find no difficulty in securing positions outside of the service paying at least as much salary at the start, with a wider field for advancement and without the trouble and expense of taking an examination.

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There is practically no complaint on the part of appointing officers as to the qualifications of eligibles certified to them. The situation is precisely the same in this respect as for a number of years past. * * A higher grade of stenographers and typewriters is much to be desired, but can hardly be expected at existing entrance salaries, which in many cases do not compare favorably with those paid in the commercial field.

The same cordial cooperation has been forthcoming from appointing officers with whom this office has dealings as has been so conspicuous and gratifying all along. But one exception can be recalled to this highly satisfactory condition, and this, it is believed, will soon be but a memory of the past. The officials who have been met for the first time, through the inclusion of their offices during the year, have without exception shown their full sympathy with district methods and their appreciation of the efforts of the commission to cooperate with them in promptly supplying eligibles of the qualifications required when there have been vacancies to fill.

There has been about the usual number of temporary appointments during the year, with probably a slight increase in the post office service, due to the department's orders to make temporary appointments when additional help is required rather than increase the substitute lists beyond the normal needs of the office.

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There has been an increase in the number of declinations, which has been quite noticeable in connection with low-salaried positions. The percentage of declinations to appointments throughout the district was 34. It is generally the case that declinations are the result of greater inducements outside than offered by the Government. Particularly is this true with respect to male stenographers and typewriters. I doubt if forced declinations often are brought about by misstatements of conditions of employment and prospects

of advancement, as have occasionally been reported in the past. No complaints of the kind have been received.

Rumors of selections for political reasons are occasionally heard, but it is doubtful if they could be substantiated or if more than suspicions of such being the case. With human nature such as it is, it would be strange if political appointments did not sometimes happen in this way. No complaints have been received of political pressure being brought to bear on appointing officers in this district in making appointments. It is probably true that promotions are sometimes effected in this way.

SECOND DISTRICT.

(New York and seven eastern counties of New Jersey; headquarters, New York, N. Y.)

Practically no difficulty is experienced in securing a sufficient number of satisfactory eligibles in all positions except those relating to the trades, such as blacksmith, marine fireman, and marine oiler in the Quartermaster's Department, and male stenographers and typewriters. It is believed that when stenographer and typewriter examinations are announced and held locally for the district service, under the recent order of the commission, the difficulty in filling stenographer and typewriter vacancies will end. For clerical and subclerical positions, particularly in Greater New York, the supply of eligibles is very far in excess of the demand. The same is true for the post-office service at all the larger offices in this district. Appointing officers throughout the district express entire satisfaction with the class of eligibles provided. At the port of New York there are more than 3,000 employees in the customs service alone. Twentyone hundred and thirty-two of these are under the collector of the port. During the past two years the collector of customs at New York has entirely reorganized his force, and under him promotions are made solely on merit. The promotion regulations have been modified to meet the conditions. Now promotions from the subclerical to the clerical grade are made as a result of competitive examinations, while promotions within the clerical grade are from class to class on merit, seniority governing, other things being equal. The efficiency of the service has been greatly increased, and the personnel strengthened. A similar reorganization is now in progress at the appraiser's department at this port.

I think the commission has the cooperation and good will of practically all appointing officers in this district.

While a number of temporary appointments are made from time to time, a very large number of them are for job employment, selections being made from among the highest eligibles willing to accept. In the Quartermaster's service, however, a number of temporary appointments from outside the register become necessary on account of the difficulty in securing eligibles for the positions mentioned above. The post offices during the holiday season require the services of a number of temporary employees. It frequently occurs that there are not at such times sufficient eligibles willing to accept appointment for so short a period, varying in length from 2 to 10 days, and in post offices of the second class, classified under Executive order of September 30, 1910, temporary appointments pending the establishment of registers become necessary, but registers are being established in such cases as rapidly as conditions require and permit. Quite a large number of declinations are reported, but this is to be expected, because, granting that the higher eligibles are in most cases the most capable, their condition with regard to outside employment changes between the time of the examination and the time of certification.

Several cases of political activity have been investigated and appropriate action taken. There has been one glaring case of the collection of political contributions from employees by a postmaster. This case is now under consideration. As a whole, the service in this district is free from political activity and influences, and if there has been a case of selection for political purposes or on account of political influences in this district during the past two years it has not come to my attention.

The reorganization of the customs service under the present collector of customs at this port has aided materially in driving the political evil from the service. I understand that in past years it was a most serious evil here. Now it is eliminated.