force consists of 12 district secretaries, each with supervision over the local boards in the territory under his charge, and 27 clerks serving in the offices of these secretaries.

The establishment of these districts has resulted from the growth of the classified service outside the city of Washington, which now embraces more than 200,000 positions.

Much of the work formerly done at the office of the Commission at Washington and in the departments has been transferred to the field. Direct administration has thus been secured, the transaction of the public business facilitated, and a better understanding established in the minds of local officers and the public owing to the closer relations existing between them and the Commission through its representatives. The district system also enables the Commission to exercise a more complete supervision over this outside work, and to meet the needs of local appointing officers over a wide area, and furnish them and the public with information regarding the rules and procedure with greater promptness and intelligence."

Each district secretary from time to time personally visits the appointing officers within his district and confers with them, gives instructions to the local examiners, and conducts examinations. He is furnished by the Commission with the latest information relative to applications, examinations, certifications for appointment, transfers, and promotions, and is authorized to answer inquiries with regard to these matters. He supervises the examinations within his district and makes certifications to vacancies from the local registers, furnishes information to officers and others relative to the practice of the Commission and the requirements of the rules, and investigates alleged violations of the law and rules, and reports to the Commission. His authority is limited and his duties are well defined by regulation; all matters involving any new or doubtful principle are required to be referred to the Commission for decision, and in order to secure greater accuracy and uniformity in results all examination papers are prepared and rated in Washington.

Regular reports of the work of each district secretary are submitted at stated intervals to the main office in Washington and certifications for appointment are finally audited there. The work which is now carried on by the district secretaries with accuracy and promptness was formerly done by numerous inexperienced local boards or at long range by the Commission in Washington. A stricter observance of the act and rules has been obtained since any laxity in their enforcement at once becomes apparent to the district secretary. The work of the local boards is facilitated by the immediate personal supervision of a trained expert.

In the organization, equipment, and conduct of the district system the Commission has had the cordial cooperation of the heads of de

partments, who have appreciated the aid which the system affords toward meeting fully the needs of the departments, and local appointing officers have assisted in administering the act and rules.

The existence of twelve central points of information and supervision, instead of one as formerly, renders easier the diffusion of information relative to the requirements of the rules, brings home more closely to the general public the facts in connection with their application and the remedies against abuses, and enables the Commission to secure reports of alleged violations and to investigate them readily and expeditiously. The location of the district boards in close proximity to the scenes of action also enables them to ascertain at the earliest possible moment that a vacancy has occurred or is about to occur, and not only to meet the needs of the service in this regard, but in many cases to anticipate them. The latter fact has tended to reduce the number of temporary appointments without examination, and also to reduce the average duration of those which are necessarily made, since the district secretary announces examination immediately on receipt of information that a vacancy has occurred or is about to occur, while formerly the Commission was frequently unaware of the existence of a vacancy until called upon to approve a temporary appointment thereto, in many instances long after the vacancy first occurred. Also by advising appointing officers of their rights, powers, and duties many possible violations of the rules are prevented in advance, and through the immediate supervision of the district secretaries others are caught in sufficient time to prevent injury to the rights of the parties concerned. Infractions of the rules have been due rather to a lack of knowledge of them than to any intent to evade them.

The district system is still in a state of development, and with increased appropriations the Commission has been able from time to time to add additional branches of the field service to the jurisdiction of the district secretaries. Advancement along these lines has been made during the past year, and the further expansion of the system is under advisement.

IMPROVED METHODS OF EXAMINATION.

Methods of testing persons for various kinds of work have now become so much improved and varied that many positions which were properly exempted in the earlier years of the application of the law have recently been made subject to examination. Among examinations of this class which have proved entirely successful in furnishing competent and trustworthy officers may be mentioned that for special agent in the Bureau of Corporations, which position requires men of extensive practical business experience and economic train

ing; that for examiner in the Interstate Commerce Commission, where men of experience who are qualified in railway accounting are required; that for agent in the child-labor investigations, to which position 88 have been appointed; and that for scientific expert in the Departinent of Agriculture.

FOURTH-CLASS POSTMASTERS.

On November 30, 1908, the President transferred from the excepted to the competitive class fourth-class postmasters, 15,488 in number, in the New England States and in New York, New Jersey, Pennsylvania, Ohio, Indiana, Illinois, Wisconsin, and Michigan. Regulations became effective in January and February, 1909, governing examinations and appointments, as follows:

The following regulations shall govern appointments to the position of fourth-class postmaster:

1. No person is eligible to examination—

(a) Who is not a citizen of the United States; except that where the needs of the service so require applications may be accepted from persons not citizens, but such persons shall not be eligible for appointment so long as the register contains the names of persons who are citizens.

(b) Who is not at least 21 years of age; except that a woman 18 years of age but under 21 shall be eligible in a State where women are declared by statute of full age for all purposes at 18.

(c) Who does not actually reside within the territory supplied by such post-office, except in a case where there is not a sufficient number of applicants; but no person not residing within the delivery of the office prior to the examination shall be eligible for appointment so long as the register contains the name of a person residing within such delivery.

(d) Who would not personally conduct the office if appointed.

(e) Who is physically or mentally disqualified for the position.

(f) Who is addicted to the habitual use of intoxicating beverages to excess.

(g) Who has been dismissed from the service of the Government for delinquency or misconduct.

(h) Who has been discharged from the military or naval service for desertion under section 1998, Revised Statutes.

(i) Who has been guilty of crime or infamous or notoriously disgraceful conduct. (j) Who has intentionally made a false statement as to any material fact or has practiced deceit or fraud in any manner in connection with his application or examination.

(k) Who has within approximately one year passed the examination prescribed by the Commission for fourth-class postmaster.

2. Examinations shall be held only when eligibles are needed to fill existing or contemplated vacancies.

No application shall be received until the examination is announced, at which time full information shall be furnished relative to the method of procuring blanks and filing applications.

3. An applicant must be vouched for by three persons who are citizens of the United States, at least 21 years of age, owners of real estate and patrons of the postoffice named in the application, and where application is made for appointment at a proposed post-office the persons signing the vouchers must indicate that they live

within the territory to be supplied and that they intend to patronize the office. The signers of the vouchers must show their occupations and the estimated value of real estate owned by them. The applicant must furnish a sketch or map showing the proposed location of the post-office, the location of the principal stores or business places of the village or town, and the present post-office site (if any). If the applicant proposes to change the location of the post-office, he should show the distance and direction of the proposed site from the present location and should state the estimated number of families who patronize or will patronize the post-office. After an application has been received and reviewed the Commission may, in its discretion, require a statement signed by such number of property-tax payers who are or will be patrons of the post-office as may be deemed necessary by the Commission in any particular case, certifying that the applicant is suitable for appointment and that the place he desires to locate the post-office will be entirely satisfactory to them. Each qualified person may sign such a statement for as many of the applicants as he believes to be suitable.

4. The examination shall be practical in its character, and so far as may be shall relate to those matters which will fairly test the relative capacity and fitness of the persons examined. The examination shall be held at the most convenient point in each county. Local examining boards in counties in which such boards exist shall conduct the examinations. In counties where there are no local examining boards a postmaster or other government official may be called on to act as an examiner. 5. The examination shall be as follows:

(a) For positions the annual compensation of which amounts to $500 or more. (b) For positions the annual compensation of which amounts to less than $500. The examination under (a) shall be of an educational character, consideration being also given to the facilities to be furnished by the applicant to transact postal business. The examination under (b) shall be of a more simple character than that given under (a), the relative standing of those attaining eligible ratings to be determined by an investigation of a representative of the Post-Office Department and based upon the suitability of the eligibles with regard to facilities to be provided for transacting postal business. A report showing the basis of the determination of relative standing shall in each case be filed with the papers of the eligibles.

In the States of Massachusetts, New York, Ohio, and Illinois in positions under subdivision (b) the manner of appointment shall be as follows: Where a vacancy has occurred, a post-office inspector shall visit the locality and select for recommendation from among the persons filing applications a name for appointment, having regard to the suitability of the applicant and his ability to provide proper facilities for transacting the postal business. The inspector shall make his report in duplicate and accompany each duplicate with a list of applicants and the name of the person selected. Each applicant shall execute in duplicate a simple form of application. When the Post-Office Department shall have approved the report of the inspector it shall transmit to the Civil Service Commission one copy of such report, together with one of the applications from each applicant, and also the name of the person so selected. The post-office inspector may make such selection when directed by the Post-Office Department in cases where there is no actual existing vacancy, but where it is believed that a vacancy is likely to occur.

6. Whenever patrons of a post-office who are property-tax payers submit to the Commission and to the Post-Office Department in duplicate, in writing, over their own signatures, sworn statements that an applicant or an eligible is unsuitable for appointment, giving specific reasons therefor, the Commission may investigate the matter, and if upon the evidence thus submitted it is shown to the satisfaction of the Commission that the applicant or eligible is unsuitable for appointment, his application shall be canceled, and if eligible his name shall be stricken from the register, and the Post-Office Department shall, upon the receipt of such statement, hold up the ap

pointment of the applicant until said investigation is made by the Civil Service Commission and reported. This section shall apply to the three classes of examinations mentioned in section 5.

7. Examination papers shall be rated in the office of the Commission, and each competitor shall, as soon as practicable, be mailed a report of his rating.

An average percentage of at least 70 shall be required for eligibility, except that persons preferred under section 1754 of the Revised Statutes shall be required to attain an average percentage of only 65 and their names shall be placed at the head of the register.

The period of eligibility shall be one year from the date of entering the name on the register, unless in the meantime it is removed either by certification or for other cause. The eligibility of no person shall be extended for a longer time, without reexamination, unless it appears that the interests of the service demand extension of an entire register.

8. Certification shall be made from a register as it exists on the day that the necessity for certification arises. The person's name that stands at the head of the register shall be selected for the first appointment, the next highest for the next appointment, etc. Certification shall be made without regard to sex unless sex is specified in the requisition.

9. When a vacancy occurs at a post-office the sureties of the former postmaster shall be responsible for the proper performance of the duties of the office until the vacancy is filled in accordance with these regulations.

10. Political or religious affiliations of applicants will not be given any consideration whatever, nor shall political indorsements be received or entertained. The merit and qualifications of the applicant and the good of the service shall alone be considered. The application of any person who attempts to exercise political influence may be canceled. Letters of indorsement and petitions other than as provided in section 3 will not be considered, and they can not in any way affect the chance of an applicant.

11. A fourth-class postmaster shall not be eligible for transfer to any other position or post-office in the classified service.

When the compensation of a postmaster at an office where the compensation was less than $500 per annum becomes $500 or more per annum, and he is therefore subject to examination under the provisions of section 5, clause (a), the incumbent of the office shall be given all the rights and privileges resulting from that examination.

12. All communications relative to fourth-class postmaster applications and examinations should be addressed to the United States Civil Service Commission, Washington, D. C.

PARTISAN ACTIVITY OF OFFICEHOLDERS AND POLITICAL ASSESSMENTS.

The number of cases of political activity in violation of the law and rules which were brought to the attention of the Commission during the year was somewhat larger than that during the year covered by the last report. This was the natural result of a great national campaign and of the keen interest everywhere manifested therein, and of the elections for state and municipal offices which occurred at the same time. Another reason for a slight increase in such cases is the fact that as the rule restricting political activity becomes better known and its purpose more widely understood, cases of its violation, many of them of a minor character, are reported to the Commission which previously would not have been brought to its attention. It