Congress heeded. It worked its way up from the convictions of the many to the purposes of the few. Amongst the chief difficulties that have stood in its way, and which still block its perfect realization, is that peculiarity of structure which I have just now pointed out as intrinsic in the scheme of divided power which runs through the Constitution. One of the conditions precedent to any real and lasting reform of the civil service, in a country whose public service is moulded by the conditions of self-government, is the drawing of a sharp line of distinction between those offices which are political and those which are non-political. The strictest rules of business discipline, of merit-tenure and earned promotion, must rule every office whose incumbent has naught to do with choosing between policies; but no rules except the choice of parties can or should make and unmake, reward or punish, those officers whose privilege it is to fix upon the political purposes which administration shall be made to serve. These latter are not many under any form of government. There are said to be but fifty such at most in the civil service of Great Britain; but these fifty go in or out as the balance of power shifts from party to party. In the case of our own civil service it would, I take it, be extremely hard to determine where the line should
