the defendant, and there other nationals could not be compelled to appear as witnesses. No court had general jurisdiction. An American aggrieved by a German must remain without redress or go into the German Consulate to try his case, by German law, before a German judge. The new court, administering a uniform system of English law, having jurisdiction over all controversies between different nationals, revising judgments of native tribunals, freed from national prejudices by the international character of its appointment, has commanded respect and obedience, and has proved a useful object lesson to the teachable Samoans. In a very few instances its authority has been defied temporarily by rebellious natives in remote parts of the islands, but in nearly every such instance the matter in controversy has ultimately been properly adjusted. All this has been accomplished wholly by moral force, without the aid of the Powers in a single instance.

Manifestly some of the important results hoped for have been secured, and Secretary Gresham's official declaration that, "the expenses, the responsibilities, and the entanglements have so far been its only fruits," would seem somewhat overdrawn.

Objections Considered.-But something more specific should be said upon the subject of expenses and difficulties. The expenses of negotiating the treaty, paying the first year's salary of the Chief Justice, and the cost of the International Land Commission were large, and were borne by the three Powers equally. The Commission finished its work in 1894. All the items of large expense are past. Since the first year, the new government has paid its own way without assistance except as to the items next to be mentioned. It might be thought that, inasmuch as we had incurred large expenditures in the initial work of the treaty, and as that expense was now ended, that fact was an argument for holding on to the treaty and realizing the benefit of our investment. The maintenance of a Consul in Samoa is no part of the expense of the treaty. We had one in Samoa many years before the treaty was thought of. The only known expenses which our government has incurred in relation to Samoa since 1894, aside from the expense for surveying, are one-third of the expenses of maintaining Mataafa and his associate rebels in the Marshall Islands, and the transportation expenses of the two foreign officials,

the

Chief Justice and President of the municipality of Apia, whenever new officials are appointed. The former item, support of Mataafa and the chiefs, costs our government less than $500 per annum, and this expense is temporary. The other item, transportation, occurs only about once in four years and at the highest estimate will not cost more than $800 per year on the average. The actual expense to our government of continuing the treaty will apparently be less than $1,500 per year, a petty sum to be made the ground of receding from our solemn international compact. Even if the new government should occasionally receive a little assistance, every River and Harbor Appropriation Bill in Congress dedicates a far larger amount for improving some mud creek, in the name of promoting commerce, than will be required for maintaining our hold upon a group of islands lying in the very pathway of enormous commercial interests. If a warship should occasionally be sent by us to Samoa, as is done by the other Powers, and as should be done by us, the cost is no more than that of maintaining the warships in other remote parts of the world where they carry our flag. Congress did not consider $500,000 too great a sum to be appropriated for the protection of our interests in Samoa. native troubles, though greatly to be deplored, have been magnified enormously in official and other correspondence. Samoa is an international megaphone. The firing of a few muskets in a bush scrimmage there seems to echo and re-echo all over the world, and to be amplified into salvos of artillery and volleys from great armies. The killed and wounded in all the fighting in Samoa during the last seven years would not equal the number of dead and maimed in a single railway accident in the United States. Not a foreigner has been touched, nor has his property been invaded by reason of those hostilities, except by the petty stealing incident to disturbed conditions. Absolute peace has prevailed for nearly three years. It is of little importance to aliens whether all Samoans do or do not recognize allegiance to King Malietoa as long as they keep the peace. The treaty recognizes their right to govern themselves in their own way in all particulars save those specially otherwise provided for. Some disturbances were to be expected in such a country as Samoa. They were, are, and will be inevitable. Even in our own country, which we are wont to

regard as the final fruition of the teachings of all the ages in good government, we read of more lynchings than legal executions year by year; we see governors of a great State vainly trying for years to execute criminal process upon Jesse James, and finally succeeding only by the aid of hired assassins; our Indian Territory filled with murder and violence, railway trains wrecked and robbed, and the commerce of half a continent paralyzed by unrestrained mobs. Surely we may excuse poor Samoa if she does not instantly abandon all her old ways, and leap at one bound into the blessings of perfect order and peace. The life of any decently behaved white man is as secure in any portion of Samoa as in the most quiet hamlet of rural New England.

It has been a subject of unfriendly comment that the King of Samoa receives a mean and insignificant allowance. This is true. But it is equally true that he receives far more, and with far more regularity, than either he or any other King of Samoa ever received before the making of the treaty. His condition in that respect has been greatly improved by the treaty. According to the official publication entitled Foreign Relations of the United States, 1889, page 324, the first item in Samoan budgets of expenditure was: "Two Kings at $500 each. . . . $1,000," Clearly, kings were far cheaper in those days than now, when a single one receives $1,800 per year from the Treasury, and an abundance of all he needs, supplied to him by his people.

Some criticism has been made upon the salaries paid to the two foreign officials, and their expenses, but it is a just measure of the reasonableness of these expenditures to say that the whole expenses of maintaining the Samoan government, including the salaries of the two foreign officials, but not including the other expenses of the municipality of Apia, are less than those of the German Consular office in Apia, with its staff and offices. The German government is not accustomed to extravagance, but does believe in the utility of a well-trained and well-paid Consular service. That there are defects in the treaty, shown by its practical working, particularly in its unjust and unworkable provisions for taxation, is true. This was anticipated. The treaty provided that, "Upon the request of either Power, after three years from the signature hereof, the Powers shall consider by common accord what ameliorations, if any, may be introduced into the provisions of their general act."

Future Action.-In the face of successive recommendations of a withdrawal from the treaty by President Cleveland, Congress has taken no action. Manifestly the country did not respond to the President's appeals. The question is not, shall we enter upon a career of extension and annexation in the Pacific? That question is closed. The field is occupied; everything in the Pacific, except Hawaii and Samoa, has been annexed and appropriated by other Powers.

The real questions are, having secured the autonomy and neutrality of Samoa by the only available means, shall we now permit the islands to be appropriated by a European power? Having in an honorable way acquired valuable rights in one of the best harbors in the Pacific, shall we fling them from us? Having deliberately and with full knowledge entered into an international compact which forever made secure to us rights, and the only remaining possible ones, in the centre of a vast commerce, shall we voluntarily release our grasp? Having incurred a large expenditure of money, and devoted years of careful diplomatic action to obtain what we have, shall all the results be passed over for the sole benefit of other nations? Having by practical experience learned the imperfections in present conditions, should we not be short-sighted indeed, if, instead of arranging "ameliorations" of those conditions, we were irretrievably to throw away all the future?

HENRY C. IDE.

SHALL THE CIVIL SERVICE ORDERS BE

AMENDED?

BY GENERAL GREEN B. RAUM.

THE orders of President Cleveland adding more than 44,000 officers and employees of the Executive Departments to the classified service, including many important positions, has challenged widespread comment and opposition, and there is an carnest demand that his orders and rules shall be abrogated or greatly amended.

This subject is now worthy of careful examination.

Civil government under our republican system is a great progressive science; especially is this so in regard to the executive administration. During the past thirty-six years there has been a wonderful growth in the character and volume of business transacted in all the great departments of the executive branch of government. There has also been a steady improvement in the methods of business, in the enforcement of the laws, and in the accountability of public officers charged with the collection and disbursement of public moneys. The improvements in the public. service were the result of wholesome laws and efficient administration. The present Civil Service law was approved by President Arthur, January 16, 1883. At that time the Civil Service list was in a highly satisfactory condition.

Capable and efficient officers were at the head of all departments and bureaus.

The clerical force was exceptionally competent and efficient. It had been appointed by selection, after due examination as to fitness, by boards of examiners in each department.

These boards were organized under Section 164 of the U. S. Revised Statutes, which prohibits the appointment of a clerk until he has been examined and found qualified.