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University Microfilms International 300 North Zeeb Road Ann Arbor, Michigan 48106 USA St. John’s Road, Tyler's Green High Wycombe, Bucks, England HP10 8HR 77-29,362 TITLOW, Richard Emory, 1932- AMERICANS IMPORT MERIT ORIGINS OF THE UNITED STATES CIVIL SERVICE SYSTEM AND THE INFLUENCE OF THE BRITISH MODEL, 1865-1886. The American University, Ph.D., 1977 History, modern Xerox University Microfiims, Ann Arbor, Michigan 4S106 0 1977 RICHARD EMORY TITLOW ALL RIGHTS RESERVED AMERICANS IMPORT MERIT ORIGINS OF THE UNITED STATES CIVIL SERVICE SYSTEM AND THE INFLUENCE OF THE BRITISH MODEL 1865 - 1886 by Richard E. Titlow Submitted to the Faculty of the College of Arts and Sciences of The American University in Partial Fulfillment of the Requirements for the Degree of Doctor of Philosophy in History Signatures of Committee Chairman Dean of the College ÜMJlJélû Date ; ^ ^ ^'7^ 1977 The American University Washington, D.C. THE AMERICAN UNIVERSITY LIBRARY AMERICANS IMPORT MERIT ORIGINS OF THE UNITED STATES CIVIL SERVICE SYSTEM AND THE INFLUENCE OF THE BRITISH MODEL 1865 - 1886 by Richard E. Titlow ABSTRACT Civil Service Reform attracted the attention of most politicians in the last quarter of the nineteenth century. The Spoils system helped finance the major political parties from the time of President Jackson but brought many undesirable elements to the government service. Reformers, desirous of eliminating these objectionable elements of the patronage system, looked to Great Britain for inspiration. This study examines the civil service reform movements in Great Britain and the United States with emphasis on the influence the British reform exercised on the American system. TABLE OF CONTENTS PREFACE .............................................. viil Chapter I. INTRODUCTION ......................... 1 Objective General Developments Chinese Civil Service German (Prussian) Civil Service French Civil Service The First Review by the United States of the French Civil Service Common Elements of Chinese, German, and French Systems II. BRITISH ADMINISTRATION BEFORE 1850 32 The Practice of Patronage Corrupt Administrative Practices Administrative Features of Parliamentary Supremacy Struggle Reform Activity from 1820 to 1850 The Concept of Patronage as Applied in England Before 1850 Efforts to Reform the Civil Service Before 1850 Civil Service Reformers Thomas Babington Macaulay Benjamin Jowett Charles Edward Trevelyan Stafford Northcote Robert Lowe William Ewart Gladstone Reform Movement of the Indian Civil Service Reform Movement in the Universities Reform Movement in the Home Civil Service Unified Reform Campaign iii III. BRITISH CIVIL SERVICE REFORM .................... 75 Civil Service Reform in India Northcote-Trevelyan Report Campaign for Reform Order In Council of 1855 University Reform Civil Service Commission Northcote Select Committee of 1860 Treasury Control of the Civil Service Commission Struggle for Open Competition Order In Council of 1870 Application of the OIC of 1870 Role of the Treasury in Civil Service Functions Classification of Government Employees Playfair Commission of 1873 Foreign Influence in the United States IV. UNITED STATES FEDERAL SERVICE TO 1865 138 Search for a System Establishing Precedent Alexander Hamilton, Secretary of Treasury Congress Development of Political Parties Jefferson-Hamilton Conflict President John Adams's Policies Removals for Party Purposes Selection by Examination Office Seekers Deportment Tenure of Office Act, 1820 Increased Congressional Interest State and Local Governments Changes Ensue Manifestations of Change Application of the System of Rotation Selective Factors Congressional Action Corruption-Customhouses Growth of the Spoils System Personnel Management iv V. INTRODUCTION OF CIVIL SERVICE REFORM: 1864-1868 . 192 Seward and Sumner Ponder Thomas A. Jenckes The Legislative War on the Executive Branch Civil Service Reform Attracts Attention Campaign for Reform Congressional Campaign Expectations of General Grant Grant Alienates Reformers VI. RELUCTANT REFORM: 1869-1871 233 Climax of Reform Campaign Spoilsmen Counterattack Jenckes's Bill Changes Again New Leaders Join the Campaign George William Curtis Henry Adams Carl Schurz Jenckes's Last Speech Political Events of 1870 Grant's Endorsement VII. BRITISH INFLUENCE DURING THE JENCKES ERA: 1864-1871 261 Jenckes and the British Precedent Report Number 47 Foreign Influence Attacked Direct Contact with Reformers in England Response to Logan and Woodward British Example - Curtis and Adams Familiar Arguments Persist British Developments Reported Use of British Influence in Reform Campaign VIII. ABORTIVE EFFORT: 1871-1880 289 Political Atmosphere Surrounding the Commission's Deliberations Dorman Bridgeman Eaton Hayes Arrests the Decline New York Stalwarts - Attempts to Weaken Hayes Fails IX. REFORMERS GO TO ENGLAND ........................ 318 Grant Commission Looks to Britain for Inspiration British Influence Under the New Chairman Congressional Debate Reformers Made Infrequent Use of British Example Dorman Eaton to England Trevelyan Writes Eaton Eaton Reports Content of the Report Impact of the Report Curtis Introduction and Hayes's Last Message X. VOTERS DEMAND REFORM; 1881-1883 347 Civil Service Reform League Garfield Administration Garfield and Civil Service Reform Star Route Frauds Congress and Civil Service Reform Activities Assassination of President Garfield Impact of Assassination Exploiting Garfield's Illness Chester Alan Arthur Arthur on Civil Service Reform Congress Changes Tactics Political Assessments Second Annual Meeting of Reform League Election of 1882 The Pendleton Bill President Chester Arthur Signs XI. BRITISH INFLUENCE ON THE PENDLETON ACT: 1880-1883 . 390 Continued Use of British Example Eaton's Book Motivates Reformers Committee Hearings on the Pendleton Bill, 1881 President Arthur Attacks the "English System" Senator George Pendleton's Speech Committee Hearings on the Pendleton Bill, 1882 Congressional Debate on the Pendleton Bill Vi XII. BRITISH LEGACY ................................ 411 Examinations Promotions Aristocratic Classes Government Stability Ridley Commission Similarities in the British and American Systems Anglo-American Movement Decline of British Influence BIBLIOGRAPHY ........................................ 434 vii PREFACE Reformers acknowledged that they modeled the present civil service system after Great Britain. This study set out to search the records to find out exactly what kind of influence the British supplied and the specific elements which the reformers adopted from the Mother Country. The influence turned out to be extensive. One of the reasons this study probably was not undertaken earlier is that the most obvious sources are no longer available. The corre­ spondence between Representative Jenckes and British officials were given to the Grant Civil Service Commission and disappeared when that body discontinued its operation in 1875. The author found that there were many sources in less obvious categories which explained the extent of that influence. I undertook this study in 1972 when the principles of civil service reform came under severe attack in Congress as a result of the Watergate affair. I was working for the Civil Service Commission,which had the responsibility for defending the system yet, I could find few of the policy makers who possessed a thorough understanding of the original developments of the various elements in the system. Policy makers cannot acquire that knowledge without examining the civil service reform movement in Great Britain and the extent American reformers emulated that system.
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