Journal of Race Development - 1910 - 6 PDF

The Philippine Civil Service Author(s): William S. Washburn Source: The Journal of Race Development, Vol. 1, No. 1 (Jul.
, 1910), pp. 36-57 Published by: Stable URL: http://www.jstor.org/stable/29737846 . Accessed: 04/10/2013 02:05
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THE PHILIPPINE CIVIL SERVICE

By William S. Washburn, United States Civil Service
Commissioner An Address Delivered at Clark University Far East during the Conference upon the
It is eminently fitting that in celebrating the twentieth anniversary of the founding of Clark University the princi?
ples which close work have controlled and great critical university. the action of our government which characterize in the
its relations to the Philippine

scrutiny of this
Islands be subjected to that
analysis
In considering the problems incident to instituting and maintaining good government in the Philippine Islands as
measures elsewhere, Just as government or harmful, so also or vice versa. Good and men are may measures administration government men. principal be good or bad, the factors. helpful
may
be beyond results usually
criticism, from wise
measures
capable While nations
faithfully
and
observed by the intelligent
action of
upright movement the colonizing of European formerly was largely one of exploitation and national aggran? has are so that their greatly changed, now the beneficiaries largely home colonies of the
dizement, during the last century the attitude of the successful

nations colonizing or dependencies control exercised demonstrated prosperity to advantage idea,
by that, aside in a dependency the home country to adopt
has governments. Experience from the benevolent assimilation is indirectly of material and in recent the years measures to promote intended
has been tendency colonial well-being. elsewhere. adverse Our conditions
This principle is no less applicable in the Philippines

government in the endeavor has had to strive to bring
than
against many a higher about
THE PHILIPPINE
CIVIL SERVICE
37
degree of prosperity in the islands. Those who have given the matter impartial consideration in the light of modern history have reached the conclusion that a helpful remedy lies in the application of the tariff measure just enacted, reducing the duty on Philippine products imported into the United States. Undoubtedly many difficult problems in Philippine government administration will thus be solved and the material interests of both the United States and the Philippines will be subserved by improving economic
conditions assume century the in the islands. In any event our country can not
afford to neglect the interests of the Filipino people and thus

of European of a position powers colonizing we The white man's is burden and ago. upon us,
should carry it with the strength and courage that befits a

strong and courageous people. It is not my purpose, however, to discuss measures,
but rather that phase of government in the Philippine Islands which has to do with the personnel, with efficiency and econ? omy, integrity and dignity in the civil service, and with
good ment administration. cannot be attained Even with wise measures without or maintained good govern? an honest and
efficient personnel. In the treatment of this subject I shall adopt the comparative method and invoke the aid of the history and experience of other nations to illuminate the
subject. The more system, Patronage Principle
For merit ment gling
than
a century the patronage and the system the one feudalistic and the other democratic, in the public service, have been strug? for the mastery. From the dawn of was an and inher? principle integral and was the domi? of to be has recognition
embodying distinctly opposing principles relating to appoint?

and employment as never before
the patronage history ent part of all government administration, nant until the rise of democracy. With the rights questioned in recent of the masses and times the more been this feudalistic democratic
gradually
principle began of merit principle the former. replacing
38
william of the
s. washburn
Need
Merit
System
In briefly reviewing the civil service reform movement I shall draw freely from the results of a study of this subject
made on a former occasion.
That
the merit
system of appointment
government is patent
is essential to the
to every student
maintenance
of good
of the history and development of the civil service in the United States and elsewhere. The public service the world
over has always been an inviting field for graft and wrong?
doing. The reign of corruption and scandal was not the reign of law, but of demoralization and anarchy, entailing
on subject in embarrassment, and resulting wrongs peoples, and in some cases disaster, to home governments. were In the earlier days governments honey? frequently combed with corrupting Over influences and there was not enough
healthful public sentiment to cure evils generally well known

and acknowledged. countries, notably fifty year s ago some of the European and a quarter and Holland, of England of appointment, of selection on merit advancement, and personal and re?
a century later theUnited States, began effectivelyto repudiate

the patronage system
tention of the personnel of the public service by the adoption

of the saner method with Compared or a half century their dependencies in the establishment fitness. a quarter in either hemisphere the service of these countries and of ago, the people cause for sincere have congratulation
of a relatively and effi? clean, honest, cient public For many service. the day of governments It is of course idle to speculate has not yet come. purification
as to what position in the colonial world Spain would now be occupying had she adopted the policy of England and
and secured and retained Holland, and honest colonial officials. the services of capable
New With struction liberal
Policy
Adopted
by England
and Holland
the loss of the thirteen of and the British enlightened
American the recon? colonies, was a more under begun Empire Great Britain since has policy.
THE PHILIPPINE
CIVIL SERVICE
39
established a world-wide empire, and of the great colonizing nations ofmodern times is easily first in colonial achievement, while the flag of Castile and Aragon, of Ferdinand and
Isabella, territorial peninsula. once the most acquisition, glorious has almost in the world ceased to wave by reason beyond of the
During the last century Holland abandoned the culture system which originated with the Dutch East India Com?
pany, ation sions. affairs with greater consider? administering for the welfare of her East Indian posses? of the natives a similar policy in the control France has adopted by the home not do government colonies, governments, expense. of this more only to the home of heavy out carrying dependencies. as a rule, yield no direct but in some cases they beneficent and compara? over her and is now
exercised Nowadays, revenue are
sources
The
tively more liberal policy of fair treatment of the natives of dependencies, has been attended with many difficulties, the chief of which has been the failure to secure the services of honest and reliable colonial officials. Long after this new policy was announced individual officials sought to enrich themselves as in days of old, with the result that
government legitimate Application revenues channels. of the were constantly being diverted from
Merit of
System India
to
the
Civil
Service
Although subsequently shown to be not guilty of much with which he was charged, the revelations of the ten years' trial of Warren Hastings, the trial of Clive, and the utter? ances of eminent British statesmen tended to crystallize
public opinion in Great Britain in favor of civil service reform.
In 1853 the British Parliament passed an act which provided

for the making of appointments through of India, in time open but competitive
examination
called measure great "
of British
subjects
to the imperial (formerly

this reform to prevent the result of the mal
civil service covenanted") not did become effective mutiny of 1857,
Indian
the natural
40
WILLIAM
S. WASHBURN
administration and mismanagement of dishonest and ineffi? cient officials, who had received appointment through favor. This reform provision, incorporated into the India act of
enlightened, ever incorpor? and far-reaching liberal, salutary, provisions the administrative and ated into laws of any nation," " of the old spoils system in the overthrow in Great resulted Britain itself, and the substitution therefor of free, open 1853, has been declared to be "one of the most
competitions
administrations." The first
of merit,
regulations
both in the military

governing appointment
and the civil

through com?
petitive examinations for the British Indian civil service, based on the report of a commission headed by Lord
have been revised from time to time. Macaulay, In 1889 the "provincial" civil service contra-distinguished from the imperial or "covenanted" service, was established, providing into entrance of appointment were promulgated, permanent service. to adopt thus for natives the Indian of which natives of India service. "proved a systematic method Rules governing merit of and for examination period of the
appointment
provided a after
ability" and for
probationary
In 1864 the Dutch
and in 1873 the French found it neces?

in making system the results of which obtained by Great
the competitive examination sary to their colonial services, appointments are comparable results with the only Britain. Reform The reform not Movement movement on clean of laws in the
United now
States in America, but operations, of the people,
is dominant
only insisting also the enactment
governmental for the betterment
for their moral, mental, men in all eminent by number ment the and of reform finds selection expression, of men laws for
elevation. and physical Supported of life, the ever the walks increasing senti? public through which organizations a manifest are having influence for public office and the enactment the of social improvement of life and property. conditions on of
wholesome
the better
protection
THE PHILIPPINE
CIVIL SERVICE
41
It is desirable and essential that these reform influences and the power of public opinion in the United States extend
to the Philippines and insist on the continuance and mainte? nance the selection, of a clean public service, retention, of the best men elimina? and advancement the available,
tion of the unfit, and the ultimate

nified, efficient, and permanent
establishment
service?one
of a dig?
shall
which
give the Filipino people every opportunity for development and constitute an added achievement of the United States,
worthy of the nation's greatness. Government Organization
The
Phillipine
While
organization three bers four control civil reaus tive
general knowledge
might be
of the Philippine
a brief outline
goverment
to refresh
assumed,
the memory may properly be given at this time.

branches branch
Of the
of the central the executive government, over by a governor-general is presided and four mem? of the Philippine who are secretaries Commission of the departments of service or offices the into which the general administrative
work of the government
is divided.
Under
office.
the immediate
All office, other the bu? are
governor-general office, and the auditor's
is the
executive
control
are under of the central government of the four members of the Commission
the execu? who
secretaries at present house elected The
of departments. a body of seven members, appointed the Pres?
The legislature is composed of the Philippine Commission,

by
ident of the United

of the legislature, the people,
States, which
and
constitutes
the upper
by a supreme branch in judicial comprises court, sitting seven of courts Manila, justices appointed by the President, of first instance, for which are divided the islands purpose into fifteen districts, and finally numerous justice-of-the-peace
courts.
the assembly which constitutes
of eighty members the lower house.
the purposes of administration, the Moros and other are by law placed non-Christian tribes under the control of the Philippine Commission. The of the organization
For
42
WILLIAM
S. WASHBURN
Moro
province, the inhabitants of which are principally is distinct from the general provincial Mohammedans, organization common to the Christianized provinces of the Philippine Islands. The Moros are governed directly by an
army officer as governor, who is assisted by a council com?
All posed of officers of the army and civilian appointees. Christianized people of the islands are subject to the lawrsof
central, zations. Provincial composed pointed The by the provincial, and municipal government organi?
is centered in boards government organization a of three members, ap? treasurer, provincial the governor-general, of municipalities each councils, all of whom a provincial governor, is under the
and a third member elected by the people.

government of municipal control and several members, or pueblos composed are elected of a president by the people.
Provision ismade by special charter for the government of the city of Manila, by a municipal board. The chairman and three members of the board are appointed by the gover?
nor-general and two members the are elected by the people. Service of the public in? service The and their enactment
Extent There service cludes army the
of
Philippine or naval
Civil
being no military of the Philippine the entire public belong
branches the
government, of that service
civil
government.
and navy federal
to the federal The first
establishment, constructive
operation
in the Philippines,
government.
as elsewhere, is supported by
of the Philippine Commission as a legislative body was the civil service act passed in September, 1900. All its vital
are still in force. Of all the provisions sion, it has best stood the test of time those opposed to the effective merit through government, and maintain establish Methods of entrance laws of the Commis? and the which criticism of to the home sought
system
the Philippine Commission, in these islands.
of the personnel privileges civil in the revised defined
and the duties into the service and are now, for the most part, clearly service act and rules.
THE PHILIPPINE
CIVIL SERVICE
43
When
adopted the Philippine

few positions. and bureaus created were As and
civil service act applied to

the government organiza? offices were the organized,
comparatively tion developed positions thus
in the so-called classified placed are to to which made examina? service, appointments subject the several bureaus in the tions, the acts organizing leaving
service positions, which, in the judgment of the Commission, it was inexpedient to fill through competitive unclassified
examination. Finally the examination requirements of the
act were made to apply to all positions in the legislative (except the assembly), executive, and judicial branches of the
central the tions government, government of the in the provincial city of Manila, and in governments, certain except posi? for examination, which, national, for the ap? exami?
from specifically exempted the most part, are exempt in nearly all governments, laws. state, and municipal, having merit system The original of the civil service act provision of unskilled laborers by
pointment
non-competitive
nation
or by registration was found to be impracticable owing to the ignorance of the average laborer, the difficulty of securing a sufficient supply of satisfactory laborers and the lack of competition. Skilled workman positions and certain clerical and other subordinate positions have been
retained in the examination or classified partially American the persistent and, for a time, of a small coterie of misguided The Character service, successful officials. in spite opposition of
of Competitive
Examinations
It has been our work tical tests an accurate
our constant in the examining feature of study in the Philippines, to give appropriate and prac? of fitness for appointments. To do this requires knowledge of work. of the duties of the various Reliance is rarely
positions on scholastic placed tests alone. are expected to observe Examiners applicants and record their observations. Personal contact closely and inquiry to light evidences or unfitness of fitness bring not discoverable routine methods. The ordinarily by an or of sometimes presence physical applicant competitor and classes
44 defects The
WILLIAM
S. WASHBURN out of vicious growing form of inquiry outlined
reveals habits. for
moral nature,
or physical, and scope,
in forms of application
furnish
fairly reliable evidence

experience, Appropriate an
as to training and ratings comparative in most examinations. subject important
practical
position many to test tained. given be done. unfit when
questions
or tests relating
another together present
to the duties of the

in subject important with subjects selected evidence of fitness are at? are to ratings examinations
constitute sought examinations. These, general reliable, Practically warranted intelligence,
on which
comparative,
adapted by the nature service, morally,
general scholastic
of the work
required
By for the public
such methods
as outlined
mentally,
above, applicants or physically,
are almost invariably found to be ineligible for appointment, and those best fitted are placed highest on the registers, entitling them to the first chance for trial as probationers, the final practical test of fitness under the examination sys?
tem before permanent Promotion appointment. of the English Language
The
Applicants are examined either in the English or in the Spanish language, but those who are citizens of the United
States are tested in the Spanish in the language and those who of to are
natives
language service, effect
of the Philippine
whenever, a knowledge
islands are tested in the English

civil the
of the director opinion is essential of both languages of the law has stimulated
efficient discharge of the duties of the position sought.

of this provision
The appli?
the attain?
ment
cants,
of the Spanish
and
language by English-speaking
the attainment
applicants. ish-speaking to the opening of led have nation night requirements for to preparing devoted schools Filipinos examinations, effort in educational matters. stimulated and have markedly a now of the Eng? sufficient knowledge have secured Filipinos
of the English language by Span? The civil service exami? general
in examinations to be successful in Eng? taken lish language were more from lish . While regis formerly appointed Filipinos
THE PHILIPPINE
CIVIL SERVICE
45
ters obtained as a result of examinations

than after from registers a few years obtained as a result
given in Spanish
of examinations
given in English,
only
it is a remarkable and significant fact that

of American tutelage appointments
are now being made principally eligibles.

Filipino
from English
registers of
Adaptability
The field of employment of Filipinos broadens with their acquisition of a knowledge of the English language and the
industrial writers tions arts. and in other The Filipinos excel in penmanship and are
rapidly becoming proficient in routine clerical work as type?

copyists. grades, assistant have been appointed Many such as copyist of drawings, sanitary inspector, etc. in certain has who are forestry classes to posi? printer, ranger,
interpreter,
policeman, fireman, The employment especially and learn clerical
mechanic, of Filipinos and mechanical, under those
demonstrated themselves
of positions, a fair skilled
degree of capacity and efficiency.

rapidly
They possess adaptability
and not prejudiced against them. While it has been diffi? cult to induce some American officials to employ them freely,
than instruction appointees naturally require more success em? the of of the the several in bureaus Americans, of almost demon? ployment Filipinos exclusively, clearly strates on the routine the practicability of carrying work of government almost wholly with natives. The increased educational offered Filipinos, in indus? advantages especially as such
trial and vocational

tions now ists, vacated practically or, broadly
lines, is fitting them to fill many posi?

The need of Americans experts, Americans administrative is special? are ap? in
by limited
Americans.
to superintendents, instructors. speaking,
pointed principally
technical,
character.
to fill positions,
scientific,
the duties of which are

or
professional,
46 Gradual
william
s. wrashburn for
Substitution
of
Filipinos
Americans
Eight years have elapsed since civil administration suc? ceeded military government in the Philippines. During this period the policy has been to give preference to Filipinos in appointment to all positions which they are capable of filling. There has been a gradual reduction in the number of
Americans are now a regular connected approximately status in the with there While government. with Americans hundred twenty-five service of the Philippine government, the
this number, though relatively larger than the number of British in the civil service of India, is needed at present to carry on the work of government efficiently. All unskilled
laborers, numbering Orientals?Japanese or other are Filipinos many thousands, num? The constabulary, and Chinese.
bering approximately five thousand, is 95 per cent Filipino. The municipal governments outside of the city of Manila
are autonomous and also large measure governments provincial no Americans with autonomous, the are in a in the
service of the former and but few in the latter. Americans in the Philippine Service are connected principally with the
bureaus and offices of the central government. In the
judiciary about half of the judges are Filipinos, and in the upper branch of the legislature, the Philippine Commission, The lower branch, nearly half of the members are Filipinos.
the assembly, pino. if including its entire personnel, is wholly Fili?
Political
Conditions People Left to a phase of Filipino
Favorable to Their of the Own
to
an
Oligarchy
Resources
I now
come
consideration
yet speak frankly, sincere friend of the best a small proportion But interest personal to the Cacique cipally as they accustomed any
some involves subject which I shall character and customs. as a and sympathetically, considerately of the Filipino people. the Filipino take population in politics. These few belong prin? or the Ilustrado classes, and I suppose, interests of been from time immemorial to
have
THE PHILIPPINE
CIVIL SERVICE
47
govern, actually feel that they have a sort of proprietary right to the offices; as a general rule, they are looked up to as
functionaries classes the were interests the masses by never trained of the In that portion was never actually like The ruling people. officials to by Spanish guard common but rather to enrich people, of Manila known as Intramuros of the
themselves.
is the foundation
building for
for a large public building.

constructed,
While
the
that
it is reported the erection of
the Spanish government

repairs, which
repeatedly
the money
sent funds to Manila

for the
building, went into the pockets of dishonest officials. What

These who can be expected lessons are wont "es of a people reared under were not in corruption to excuse many unusual costumbre del pais77 lost this sort of tutelage? on the Filipinos
expression country).
with the procedures is the custom of the (it
The Filipino has had little opportunity

American however, officials their occupation. constitutes were measured payment a real menace their would The of
for grafting since

exclusive salaries, in government
to good
the Philippines.
rates
If the salaries of some of the Filipino

by and efficiency, capacity be but a fraction of what
the conditions Under attendant they are on the organization some of these ex? of civil government were probably cessive A further salaries, however, justified.
of compensation now receiving.
evidence of the present unfitness

government appears for salaries. ing the revenues in the reckless
of the Filipinos
first
for self
in expend? session
extravagance the very During
of the Philippine assembly, but a few weeks after its creation and organization and while bewailing the oppression of the
and poverty people increase their own salaries larger lature of New than York the of the salaries the members to voted country, from $10 to $15 per diem. The are now of the Philippine assembly the members except the great Officials of any State legis? commonwealths
of the members salaries and in the United where
of
States
provinces, have been for salaries.
in some of the Pennsylvania. local government is practically automonous, to vote known the entire revenues of a province
48
WILLIAM Temperamental
S. WASHBURN
Characteristics
The Filipino is never boorish. He is generally the em? bodiment of politeness and often has the polish of the well bred, the gentleman, but his idea of honesty and integrity is frequently quite different from that inculcated under our system of ethics. When confronted with the fact of having spoken untruthfully or of having taken by theft that which
does not terized belong by much to him, simplicity his explanations and innocence are as well often charac? as ingenuity.
He may say he told you what he thought you would be pleased to hear, that he did not want to hurt your feelings;
and, in the case of theft, that it was an accident, or that
he was simply borrowing and would return the article poco tiempo despu?s (after a little time). It is important that American administrators understand
the mental and who attitude are the attitude between that we products of his and possesss an intimate knowledge of
the history of the Filipino people.

Oriental fundamental
The difference in outlook
are so real and and European do not know them as we know the men of western The at civilization. Oriental There is an is
need
his
for better understanding

personality. be made and
of Filipino
philosophy,
of
character,
inter?
esting study in psychology,

can not profitably value, on the ground be made
but such a study, to be of much

cover long range, but must a considerable period
of observation and study of his daily life in the light of his is frequently political and religious history. Reference
made to the difference between who eastern travels and western and lives civil and the European zation, sees on every hand countries a civilization, be interesting studious and average man that concludes minded because sand and to which to him in Oriental
phases he has been of and
because
of of life, the evidences It may unaccustomed. the novelty, or, if he is to
thoughtful soon reaches he does
the investigate, and wisely the realm of mystery If he is broad not understand. inclined
tolerant
the people behind years
everything enough, he will not condemn or a thou? to him to be a hundred appear reasons American For these the times.
THE PHILIPPINE
CIVIL SERVICE
49
administrators in the Philippines should not only possess well disciplined minds and sound judgment, but they should be men of high ideals and be actuated by principles of the
right sort, men who are inclined to get at the mainsprings
of action which govern the Filipino
and to enlist his sym?
and cooperation in helping to modern him to conform pathy methods and usages in working out his own destiny. and of
Character During positions vacancies filled the were
Qualifications period without have
Americans government Since
early
organization
of civil
in the Philippines,
appointments
to official and many other

examination.
made generally in official positions from
by promotion in office on the part system. Many of
for the most been, part, classified malfeasance service, of Americans has been in pro? lessened the made before
portion to the completeness of the application of the merit

these early appointments,
the act became fully operative, clearly indicate the necessity for stringent rules by which appointments shall be made to
the public of service strictly on a merit system basis. Under
the revised civil service act and rules the appointment

retention the present incompetent time. persons is wholly inexcusable
or
at
It is clear that the American

should be a very ful, possessing ter which commands high type a well-trained respect. of man, mind To
in the Philippine
self-reliant and that be successful and force
service
resource?
of charac? pos?
he must
sess tact and industry in a high degree. He has to mingle with a people whose civilization is at once primitive and archaic and very different from that to which he has been
a people who need in modern accustomed, enlightenment methods of accomplishment and to be taught by example as well as by precept. The American official should be in sympathy with the settled purpose of the govern? heartily which that capable ment, shall be contemplates Filipinos to aid in on given the of work opportunity carrying govern? as their is in the interests ment, of economical participation administration and accords with the policy of assisting a de
50
WILLIAM
S. WASHBURN
pendent people to work out their own destiny.

Americans service
ment.
Competent
conspicuous the govern?
with in the
this difficult
attitude situations
are able which
to render confront
It has been amply demonstrated in the Philippines that an efficient and honest civil service can not be established
or maintained tention of men and in a dependency by who do not possess the appointment training or re? and adequate
inherent
lapses
integrity.
failures
Though
of unfit and
they be relatively
unworthy thus Americans the
few, the
do not difficul?
pass unnoticed by Filipinos,

to unfortunate ties generalizations, of administration.
but produce distrust and lead

increasing
Continuity
of
Service
is Essential
to
Efficiency
Nor can a high degree of efficiency in the service be reached and maintained with a transient personnel. From the
as well as efficiency, colonial of economy appoint? standpoint a and con? ments of should service, contemplate long period a career. of the observance salaries, Adequate sequently
the principle of promotion to the higher positions according to merit, with a liberal leave of absence to visit the home
are provided land, all of which to retain the most competent by existing Americans law, are necessary and to secure an
efficient and dignified service at all comparable with our military and naval services and the British Indian civil
service.
Importance
of Making and
Merit
the
Basis
of Retention
Advancement
in the
Service
to the civil serv? important problems relating on merit, a the of promotion based ice is to provide system diffi? is attended with almost insuperable out of which working that con? The rules relating to promotions contemplate culty. One of the most sideration condition, bility, be given habits, to quantity and quality character, conduct, and attendance. of work, physical and adapta? aptitude A systematic record
punctuality,
THE PHILIPPINE
CIVIL SERVICE
51
is required by rule to be kept

showing sideration warded selection record the relative
in each bureau and office,

of
on con? based efficiency employes a and for? of the elements enumerated, report to the Civil Service Office In semi-annually. making for of each promotion employe and of and of the most is always the entire competent, available for considera? in accordance the like for the and with
tion, the making of which record is largely in his own hands.

Appointments recognition favoritism ciations the promotions made and
the letter and the spirit of the civil service law mean
the most nepotism. similar honest deserving Conferences aims, man. stand elimination this, and
the
of asso? of the
having and capable
recognition
the grafter, be retained private action retain
and inefficient, in the public
relations as between in their
always man and man;
logically can not consistently ignoble service. There in is, of course, room for individual freedom of the but sensible business men,
Obviously
however
trustee
charitably
inclined, do not knowingly
employ or
service this class of persons. no Certainly or public official entrusted with the wise and proper of other people's money should be governed expenditure by or in the matter standards of the employment of principles and expenditure of funds?the if persons revenues, public you please?widely adopts different from those principles and standards a govern?
which the honest business man of sound judgment ordinarily

and follows. Those who talk much of running
ment on business principles are often the first to violate the In this day prodigies of valor principles they proclaim.
but or spasms or of brilliancy of industry the idea should be paramount are not that indispensable, tenure of office is
assured only by the exhibition of qualities essential to the

maintenance of good government, such as honesty and capa? and bility, industry reliability. If the civil service law is faithfully in letter and observed in spirit, competent and reliable men in the service have the
assurance
as vacancies of and the in less
that the higher positions may be filled by them

occur, rather than from of competent is the purpose the original appointment life. This in brief private by the civil service law in the
fact
52
WILLIAM
S. WASHBURN
Philippines, alike advantageous to the public service and to honest and capable Filipinos and Americans, the latter of whom would not be justified in severing home relations
and going to the opportunity far away for advancement islands unless the service offers on merit.
Some
Critics
and
Their
Criticisms
The Philippine
abroad, have and you
civil service has received at home and

constructive and destructive,
its fair share of criticism, been few,
favorable and unfavorable.

comparatively
Complaints
from
from the deserving

many.
the undeserving,
In former years bombardment
by
the
latter was
fierce
as A
a moral or to adorn a tale, To point continuous. a personal reference. I may be permitted choose,
United States minister to a foreign country once asked me in the presence of Governor-General Wright if I stood by my guns and did my duty in enforcing the civil service law.
Before to add, I could "And reply the governor-general always was saying, by "He
does, but they get mighty hot sometimes," towhich Iwas able ner. JJ
the governor-general stands the gun?
The real point of this incident deserving of emphasis is
of all praise, that each of the govern? fact, worthy civil serv stood for an effective without exception ors-general executive Without cive law and its enforcement. support the the important
merit system in the Philippines must inevitably be a failure. There are those in the Philippines who complain that the
rules and regulations upon some of the civil action service office office are too inflexi? to the
ble.
Almost
invariably
it is observed that such criticism

of the unfavorable
is based
complainant, but thoroughly consistent and sound in law and

be? the action is condemned taken In other words, a law, rule, or regulation has not been flexed by par? or favoritism to subserve the interests of the com? tiality a or law service civil friends. Neither his personal plainant logic. cause a body vive under interest of inextricable nor designated a policy individuals maze of to execute of flexibility but both such of would a law could interpretation soon be lost and unhappy long sur? in the in an prece
inconsistencies
THE PHILIPPINE
CIVIL SERVICE
53
I have consist? dents and be brought finally into disrepute. an on insisted honest enforcement of the ently law, realizing
that only by its observance can in one this? impartiality be assured and
a high degree of efficiency and honesty attained.

Roosevelt by President "It is important that in our observed insular it by of his messages the merit ?system President Taft, during
As stated
to Congress, be observed
at home, but it ismore important that it be rigidly enforced

possessions/7 concrete the first his gover?
nor-general of the Philippines,
recognized this principle and

administra?
application,
tion of Philippine affairs. I left the work in the Philippines,

interesting, type; verse regret to the with that much regret; regret
always to me intensely
that I could not accom?
plish greater things in helping to create a service of highest

sometimes interests "Hard action ad? plain duty required individual against my personal cases'7 make to one's powerful appeal of an for much bad law and responsible cases arise While there are times when
inclinations.
but they sympathy, bad many precedents.
are
which strongly tempt one to violate, through official action, his convictions of duty and impartiality, the law is the only safe guide, and, if faithfully adhered to, the deserving will
be prejudiced, and majesty purpose rarely all will of the in the be given a square deal, law will be maintained. islands and has been and the
The most
have had
reliable authors and critics of Philippine

stay inclination prolonged, to obtain
affairs
who clear
are those whose time, views
opportunity, of existing conditions and have faithfully and discrimi? recorded facts and drawn these natingly logical deductions; observers have made contributions of real and permanent
value to the literature on the Philippine

writers, hand, in the islands, have written weeks was erroneous and unfair, which antidote. and intelligent Honest on the other after
islands.
a few
Certain
spending and published perhaps
or days much that its own
carries
of comparative is when government operations helpful, especially coming from those who by education and position should be able to and candidly. I have speak authoritatively Nevertheless, been constrained to say that certain critics in some instances
criticism
54
WILLIAM
S. WASHBURN
display by their inaccuracy and attitude a need of definite information and lack of appreciation of the principles under? They seem lying the policy of the Philippine government.
not that to realize never that they has have there no standard by which they can
judge of success or failure in the Philippines

before been instituted colonial government so beneficent
from the fact

a scheme of as that
and humanitarian
which the United States has instituted and is pledged to carry on in these islands. There is no precedent in history to which they can point as an example that the attempted mental and moral elevation of a people of an Oriental dependency has proved a failure and been detrimental to their material
welfare. Following carried men by the army, distant the general education idea, of more
symbolized by the little red school house of our own land,

has than been to those earnest, and women competitive islands and by a corps a thousand capable, who won young high-minded and their appointments in examinations. Everywhere
American promotions
the pueblos and barrios in the Philippines the little school house of nipa and bamboo is being set up to accommodate the children who, eager to learn and thirsting for knowledge, are presenting themselves in hundreds of thousands for in?
struction. in a dependency of the masses education general new in colonial achievement. an American idea and something The is
In the broadest
sense it is a missionary
and
idea worthy
should not by adopted The views minute of
of a
the of 1835
like the United States, great mation it has not been extensively because demned successful Lord have colonizing European in his expressed in principle. nations. famous
be con?
Macaulay been accepted
With The edge must the
Good
Government
Outlook of cultural
Encouraging and vocational knowl?
rapid through
acquirement the medium clear customs
inevitably traditions,
language, English of for the general the way adoption civilization and laws of enlightened
of the world-wide
THE PHILIPPINE
CIVIL SERVICE
55
and the unification

people.
and ultimate welfare
of the Filipino
For the last eight years I have seen much of the Filipinos in their home land, have had opportunity to learn their true worth, to appreciate their virtues and their faults. It is certainly true that they have many virtues and equally
true that past environment and treatment are partly re?
sponsible for their failure tomeasure up to the best standards Those who have approached them with a of civilization. spirit of sympathy and helpfullness have been impressed
with the manifestations of teachers where to aid but of sincere and other of hundreds appreciation. civilians dwelling The needed lives or in remote
communities, could be spared
was a single American on the work in carrying
of govern?
Of ment, have been repeatedly entrusted to Filipinos. the food and shelter the American teacher is generally given best the community affords, and time and again the hospi?
tion table Filipinos therefor. have declined to accept any money compensa?
The door of knowledge has been opened to the Filipinos with abiding faith that the gift of individual opportunity will be found to fit into the general scheme for their physical, moral, and industrial uplifting, will give them a better appre?
ciation of the principles of democratic at government least if not and insti?
tutions, and will help to make them in time?probably

in your pared The day nor in mine?partially for self-government. and Not the fully
not
pre?
Merit Hope
System of Good
Patronage in the
System Philippines
the
Government
service in the classified of the work of Filipinos a and efficient personnel, capable fairly gives hope devel? in numbers, will be gradually increasing constantly of whom will undoubt? oped in this part of the service, many Observation that edly be able responsibilities observation, to perform creditably of administrative experience, open-minded, the duties and and the and and to meet the executive positions. of events, men thoughtful logic
History, convince
well-informed,
56
WILLIAM
S. WASHBURN
that the merit

properly reliable official working adapted and
system, made
educational men
possible
system,
and effective by a
the patronage
and not
system, must
be depended upon
needed
for the development

for the
of
capable as subordinate as well out of the problem
positions. of government
of great majority In the practical I have been accus?
tomed to bespeak for Filipinos that genuine interest and help? fulness on the part of all Americans of the gentle, kindly attitude of the strong man who habitually teaches by right example and sound precept. This is the attitude of the
broad-minded, of one who lording, sane-thinking and humiliates one who spoils administrator, discourages by coddling. by and not that over? boorish
nor yet
Danger
from
Reactionary
Forces
While
effort to
there has been real and substantial progress in the

establish and maintain good government in the
Philippines
and the struggle against the coercive power of
has not been in vain, yet the experience of the last patronage two or three years clearly that a satisfactory indicates future is not by any means for that service assured. A frank and
full presentation
annual
of conditions may
be found in my
the
last
I endeavor in which to analyze report to point out in detail and impending dangers of forestalling forces. In view reactionary
situation, suggest means of the efforts
heretofore made
to modify
the Philippine
civil service law
as amerit (also the rules), so as to render it ineffective system measure and of the prospect of the more successful renewal in the absence of such efforts of restraining the influences,
control of the service should be placed in the hands of the

home tion and provision be made government, of civil service rules to the subject of War. for approval promulga? of the
Secretary
Creation
of
Foreign
Service
The suggestion is made

proposed law should be
that it is quite possible that the

inclusive and apply to our other
THE PHILIPPINE
CIVIL SERVICE
57 war the
The possessions. of dependencies acquirement foreign consular service.
Spanish-American occasioned have to a trained
and
the
creation
of a foreign civil service additional

I refer now
to the diplomatic
corps
and
of Americans
for public foreign service.

of these dependencies
The best interests of the people

government, system. To undoubt? insure an
and of the home or Cacique
edly demand the elimination

possible, of the patronage
from civil service, as far as
efficient and dignified service, the time is ripe for definitive action looking toward the development and permanency of a foreign service, the personnel of which shall include the best type of American citizens, those who represent the best traditions of American family life and the force of char? acter and breadth of view which education and culture give. Under existing conditions the personnel of our foreign civil
service ciency accrue can and not be economy to compare expected that of European with by the retention thus establishing factors important should and favorably countries, of officials and in good in effi? where
the benefits of training and experience acquired in the service

to those become they very esprit and morale, in a dependency. Tenure tration for transfer of opportunity door governments most useful, when preserving adminis? and to the other
be assured, promotion
fields in the foreign service, including the consular service, might be opened with distinct advantage to the government, thus offering a career which would justify the better equipped
in remaining
ness.
in the
service
and
insure
the
development
of
a corps of officials of the highest order of ability and useful?

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The Philippine Civil Service Author(s): William S. Washburn Source: The Journal of Race Development, Vol. 1, No. 1 (Jul.

THE PHILIPPINE CIVIL SERVICE

its relations to the Philippine

Islands be subjected to that

be beyond results usually

criticism, from wise

observed by the intelligent

dizement, during the last century the attitude of the successful

by that, aside in a dependency the home country to adopt

has been tendency colonial well-being. elsewhere. adverse Our conditions

This principle is no less applicable in the Philippines

against many a higher about

afford to neglect the interests of the Filipino people and thus

should carry it with the strength and courage that befits a

For merit ment gling

embodying distinctly opposing principles relating to appoint?

principle began of merit principle the former. replacing

healthful public sentiment to cure evils generally well known

a century later theUnited States, began effectivelyto repudiate

tention of the personnel of the public service by the adoption

New With struction liberal

the loss of the thirteen of and the British enlightened

exercised Nowadays, revenue are

In 1853 the British Parliament passed an act which provided

to the imperial (formerly

civil service covenanted") not did become effective mutiny of 1857,

both in the military

and the civil

ability" and for

In 1864 the Dutch

and in 1873 the French found it neces?

States in America, but operations, of the people,

only insisting also the enactment

governmental for the betterment

tion of the unfit, and the ultimate

the memory may properly be given at this time.

work of the government

governor-general office, and the auditor's

the execu? who

secretaries at present house elected The

of departments. a body of seven members, appointed the Pres?

The legislature is composed of the Philippine Commission,

ident of the United

the assembly which constitutes

of eighty members the lower house.

and a third member elected by the people.

Extent There service cludes army the

being no military of the Philippine the entire public belong

government, of that service

and navy federal

to the federal The first

the Philippine Commission, in these islands.

of the personnel privileges civil in the revised defined

adopted the Philippine

civil service act applied to

comparatively tion developed positions thus

It has been our work tical tests an accurate

S. WASHBURN out of vicious growing form of inquiry outlined

reveals habits. for

or physical, and scope,

fairly reliable evidence

as to training and ratings comparative in most examinations. subject important

to the duties of the