end of the first paragraph thereof the following:
_And provided further_, That whenever an emergency shall arise
requiring that a vacant position in any internal-revenue district shall
be filled before a certificate can be issued by the Commission and an
appointment made thereto in the manner provided in these rules, such
position may be filled without regard to the provisions of these rules
by temporary appointment for a period not to exceed fifteen days, and
only for such period as may be required for the execution of the
necessary details of an appointment thereto in accordance with said
provisions; but no person shall receive such emergency appointment who
within the sixty days next previous thereto has been separated from a
position in said district to which he was temporarily appointed under
the provisions of this section.
The section as amended shall read as follows:
5. In the case of the occurrence of a vacancy in the classified service
of any internal-revenue collection district which the public interest
requires shall be immediately filled and there is no eligible entitled
to reinstatement under section 1, clause (_b_), of this rule
or remaining on the proper register, such vacancy in the class of
storekeeper, storekeeper and gauger, or clerk may be filled without
examination and certification by a temporary designation by the
collector of the district of some suitable person to perform the duties
of the position until a regular appointment can be made under the
provisions of sections 1, 2, and 3 of this rule: _Provided_, That
service under such temporary designation shall in no case continue
longer than six months, and shall expire by limitation at the end of
that time: _And provided further_, That no person shall serve
more than six months in any one year under such temporary designation,
the year limitation in regard to such designation to begin to run
on the date thereof: _And provided further_, That whenever
an emergency shall arise requiring that a vacant position in any
internal-revenue district shall be filled before a certificate can be
issued by the Commission and an appointment made thereto in the manner
provided in these rules, such position may be filled without regard to
the provisions of these rules by temporary appointment for a period not
to exceed fifteen days, and only for such period as may be required for
the execution of the necessary details of an appointment thereto in
accordance with said provisions; but no person shall receive such
emergency appointment who within the sixty days next previous thereto
has been separated from a position in said district to which he was
temporarily appointed under the provisions of this section.
Every such temporary designation, and also the discontinuance of the
same, shall be at once reported to the Commission.
Approved:
GROVER CLEVELAND.
AMENDMENT OF CIVIL-SERVICE RULES.
EXECUTIVE MANSION, _January 1896_.
Section 5 of Customs Rule II is hereby amended by adding thereto the
following:
(_i_) Any person appointed to a position which requires only a
portion of his time and attention for the performance of its duties,
pays him a compensation not exceeding $300 per annum, and permits of
his pursuing other regular business or occupation, such person being
conveniently located for the performance of said duties.
The section as amended shall read as follows:
5. Exceptions from examination in the classified customs service are
hereby made as follows:
(_a_) Deputy collectors who do not also act as inspectors,
examiners, or clerks.
(_b_) Cashier of the collector.
(_c_) Assistant cashier of the collector.
(_d_) Auditor of the collector.
(_e_) Chief acting disbursing officer.
(_f_) Deputy naval officers.
(_g_) Deputy surveyors.
(_h_) One private secretary or one confidential clerk of each
nominating officer.
(_i_) Any person appointed to a position which requires only a
portion of his time and attention for the performance of its duties,
pays him a compensation not exceeding $300 per annum, and permits of
his pursuing other regular business or occupation, such person being
conveniently located for the performance of said duties.
Approved:
GROVER CLEVELAND.
CIVIL SERVICE.--EXTENSION OF THE CLASSIFIED DEPARTMENTAL AND INDIAN
SERVICES.
In the exercise of the power vested in the President by the third
paragraph of section 6 of the act entitled "An act to regulate and
improve the civil service of the United States," approved January 16,
1883, I hereby direct the Secretary of the Interior to amend the
classification of the Interior Department so as to include among the
positions classified thereunder and subject to competitive examination
clerk, assistant clerk, issue clerk, property clerk, storekeeper, and
all other clerical positions at Indian agencies and Indian schools;
likewise to amend the classification of the Indian service so as to
include among the positions classified thereunder supervisor of Indian
schools, day-school inspector, disciplinarian, industrial teacher,
teacher of industries, kindergarten teacher, farmer, nurse, assistant
matron, and seamstress.
But Indians shall be eligible to appointment to any of said positions
on such test of fitness as may be required by the Secretary of the
Interior and without examination or certification by the Civil Service
Commission; but they shall not be transferred from said positions to
the departmental service.
Approved, March 20, 1896.
GROVER CLEVELAND.
AMENDMENT OF CIVIL-SERVICE RULES.
EXECUTIVE MANSION, _March 28, 1896_.
So much of the Executive orders heretofore issued under General Rule
III, section 2, clause (_c_) as provides for the appointment of
members of the board of pension appeals in the Department of the
Interior by non-competitive examination is hereby revoked, and these
places will hereafter be treated as subject to competitive examination.
Approved:
GROVER CLEVELAND.
AMENDMENT OF CIVIL-SERVICE RULES.
EXECUTIVE MANSION, _March 28, 1896_.
Special Departmental Rule No. 1, clause 3, is hereby amended by striking
from the list of places excepted from examination in the Department of
the Interior assistant attorneys and law clerks, and these places will
hereafter be treated as subject to competitive examination.
Approved:
GROVER CLEVELAND.
CIVIL-SERVICE RULES.
In the exercise of power vested in him by the Constitution and of
authority given to him by the seventeen hundred and fifty-third section
of the Revised Statutes and by an act to regulate and improve the civil
service of the United States, approved January 16, 1883, the President
hereby makes and promulgates the following rules and revokes all others:
RULE I.
1. The United States Civil Service Commission shall have authority to
prescribe regulations in pursuance of and for the execution of the
provisions of these rules and of the civil-service act.
2. The several terms hereinafter mentioned, wherever used in these rules
or the regulations of the Commission, shall be construed as follows:
(_a_) The term "civil-service act" refers to "An act to regulate
and improve the civil service of the United States," approved January
16, 1883.
(_b_) The term "classified service" refers to all that part of the
executive civil service of the United States included within the
provisions of the civil-service act.
(_c_) The term "grade" in connection with employees or positions
refers to a group of employees or positions in the classified service
arranged upon the basis of duties performed, without regard to salaries
received.
(_d_) The term "class" in connection with employees or positions
refers to a group of employees or positions in any grade arranged upon
the basis of salaries received, in pursuance of the provisions of
section 163 of the Revised Statutes and of section 6 of the
civil-service act.
(_e_) The term "excepted position" refers to any position within
the provisions of the civil-service act, but excepted from the
requirement of competitive examination or registration for appointment
thereto.
RULE II.
1. Any person in the executive civil service of the United States who
shall willfully violate any of the provisions of the civil-service act
or of these rules shall be dismissed from office.
2. No person in the executive civil service shall use his official
authority or official influence for the purpose of interfering with an
election or controlling the result thereof.
3. No person in the executive civil service shall dismiss, or cause to
be dismissed, or make any attempt to procure the dismissal of, or in any
manner change the official rank or compensation of, any other person
therein because of his political or religious opinions or affiliations.
4. No question in any examination or form of application shall be so
framed as to elicit information concerning, nor shall any inquiry be
made concerning, nor any other attempt be made to ascertain, the
political or religious opinions or affiliations of any applicant,
competitor, or eligible; and all disclosures thereof shall be
discountenanced, and no discrimination shall be exercised, threatened,
or promised against or in favor of any applicant, competitor, or
eligible because of his political or religious opinions or affiliations.
5. No recommendation of an applicant, competitor, or eligible involving
any disclosure of his political or religious opinions or affiliations
shall be received, filed, or considered by the Commission, by any board
of examiners, or by any nominating or appointing officer.
6. In making removals or reductions or in imposing punishment for
delinquency or misconduct penalties like in character shall be imposed
for like offenses, and action thereupon shall be taken irrespective of
the political or religious opinions or affiliations of the offenders.
7. A person holding a position on the date said position is classified
under the civil-service act shall be entitled to all the rights and
benefits possessed by persons of the same class or grade appointed upon
examination under the provisions of said act.
RULE III.
1. All that part of the executive civil service of the United States
which has been or may hereafter be classified under the civil-service
act shall be arranged in branches as follows: The departmental service,
the custom-house service, the post-office service, the Government
printing service, and the internal-revenue service.
2. The departmental service shall include officers and employees as
follows, except those in the service of the Government Printing Office
and in the service of the several custom-houses, post-offices, and
internal-revenue districts:
(_a_) All officers and employees, of whatever designation, except
persons merely employed as laborers or workmen and persons who have been
nominated for confirmation by the Senate, however or for whatever
purpose employed, whether compensated by a fixed salary or otherwise,
who are serving in or on detail from--
The several Executive Departments, the commissions, and offices
in the District of Columbia.
The railway mail service.
The Indian service.
The several pension agencies.
The steamboat-inspection service.
The marine-hospital service.
The light-house service.
The life-saving service.
The several mints and assay offices.
The revenue-cutter service.
The force employed under custodians of public buildings.
The several subtreasuries.
The engineer department at large.
(_b_) All executive officers and employees outside of the District
of Columbia not covered in (_a_), of whatever designation, whether
compensated by a fixed salary or otherwise--
Who are serving in a clerical capacity or whose duties are in whole or
in part of a clerical nature.
Who are serving in the capacity of watchman or messenger.
Who are serving in the capacity of physician, hospital steward, nurse,
or whose duties are of a medical nature.
Who are serving in the capacity of draftsman, civil engineer, steam
engineer, electrical engineer, computer, or fireman.
Who are in the service of the Supervising Architect's Office in the
capacity of superintendent of construction, superintendent of repair,
or foreman.
Who are in the service of the Treasury Department in any capacity
except those in the life-saving service.
3. The custom-house service shall include the officers and employees
serving in any customs district whose employees number as many as five
who have been or may hereafter be classified under the civil-service
act; and whenever in any customs district whose officers and employees
number less than five the number of officers and employees shall be
increased to as many as five the Secretary of the Treasury shall at once
notify the Commission of such increase and the officers and employees in
said district shall be included within the classified service from the
date of said increase.
4. The post-office service shall include the officers and employees
in any free-delivery post-office who have been or may hereafter be
classified under the civil-service act; and whenever the free-delivery
system shall be established in any post-office the Postmaster-General
shall at once notify the Commission of such establishment and the
officers or employees of said office shall be included within the
classified service from the date of such establishment; and whenever
by order of the Postmaster-General any post-office shall be
consolidated with and made a part of a free-delivery post-office
the Postmaster-General shall at once notify the Commission of such
consolidation and from the date of said order the employees of the
office thus made a part of the free-delivery office whose names appear
on the roster of the Post-Office Department shall be employees of said
free-delivery office, and the person holding on the date of said order
the position of postmaster at the office thus made a part of said
free-delivery office may be made an employee in said free-delivery
office and may at the time of classification be assigned to any
position therein and given any appropriate designation which the
Postmaster-General may direct.
5. The Government printing service shall include the officers and
employees in the Government Printing Office who have been or may
hereafter be classified under the civil-service act.
6. The internal-revenue service shall include the officers and employees
who have been or may hereafter be classified under the civil-service act
in any internal-revenue district.
7. All officers and employees who have heretofore been classified under
the civil-service act shall be considered as still classified and
subject to the provisions of these rules.
8. The following-mentioned positions or employees shall not be subject
to the provisions of these rules:
(_a_) Any position filled by a person whose place of private
business is conveniently located for the performance of the duties of
said position, or any position filled by a person remunerated in one sum
both for services rendered therein and for necessary rent, fuel, and
lights furnished for the performance of the duties thereof:
_Provided_, That in either case the performance of the duties of
said position requires only a portion of the time and attention of the
occupant, paying him a compensation not exceeding, for his personal
salary only, $300 per annum, and permitting of his pursuing other
regular business or occupation.
(_b_) Any person in the military or naval service of the United
States who is detailed for the performance of civil duties.
(_c_) Any person employed in a foreign country under the State
Department or temporarily employed in a confidential capacity in a
foreign country.
(_d_) Any position whose duties are of a quasi military or quasi
naval character and for the performance of whose duties a person is
enlisted for a term of years.
RULE IV.
1. In pursuance of the provisions of section 2 of the civil-service act,
there shall be provided, to test fitness for admission to positions
which have been or may hereafter be classified under the civil-service
act, examinations of a practical and suitable character involving such
subjects and tests as the Commission may direct.
2. No person shall be appointed to or be employed in any position which
has been or may hereafter be classified under the civil-service act
until he shall have passed the examination provided therefor or unless
he is especially exempt from examination by the provisions of said act
or the rules made in pursuance thereof.
3. In pursuance of the provisions of section 2 of the civil-service act,
wherever competent persons can be found who are willing to compete, no
noncompetitive examination shall be given except as follows:
(_a_) To test fitness for transfer or for promotion in a part of
the service to which promotion regulations have not been applied.
(_b_) To test fitness for appointment of Indians as
superintendents, teachers, teachers of industries, kindergartners, and
physicians in the Indian service at large.
The noncompetitive examinations of Indians for the positions mentioned
shall consist of such tests of fitness, not disapproved by the
Commission, as may be determined upon by the Secretary of the Interior.
A statement of the result of every noncompetitive test and all
appointments, transfers, or promotions based thereon shall be
immediately forwarded to the Commission.
4. In pursuance of the provisions of section 3 of the civil-service act,
examinations shall be provided at such places and upon such dates as the
Commission shall deem most practicable to subserve the convenience of
applicants and the needs of the service.
5. In pursuance of the provisions of section 3 of the civil-service act,
the Commission shall appoint from persons in the Government service such
boards of examiners as it may deem necessary. The members of said boards
shall perform such duties as the Commission may direct in connection
with examinations, appointments, and promotions in any part of the
service which has been or may hereafter be classified. The members of
any board of examiners in the performance of their duties as such shall
be under the direct and sole control and authority of the Commission.
The duties performed by the members of any board of examiners in their
capacity as such shall be considered part of the duties of the office in
which they are serving, and time shall be allowed for the performance of
said duties during the office hours of said office. The members of any
board of examiners shall not all be adherents of one political party
when persons of other political parties are available and competent to
serve upon said board.
6. In pursuance of the provisions of section 3 of the civil-service
act, all executive officers of the United States shall facilitate
civil-service examinations, and postmasters, customs officers,
internal-revenue officers, and custodians of public buildings at places
where such examinations are to be held shall for the purpose of such
examinations permit and arrange for the use of suitable rooms under
their charge and for heating, lighting, and furnishing the same.
RULE V.
1. Every applicant for examination must be a citizen of the United
States, must be of proper age, and must make an application under oath
upon a form prescribed by the Commission and accompanied by such
certificates as may be prescribed.
2. No application for examination shall be accepted from any person
serving in the Army, the Navy, or Marine Corps of the United States
unless the written consent of the head of the department under which
said person is enlisted is filed with his application.
3. The Commission may, in its discretion, refuse to examine an applicant
or to certify an eligible who is physically so disabled as to be
rendered unfit for the performance of the duties of the position to
which he seeks appointment, or who has been guilty of a crime or of
infamous or notoriously disgraceful conduct, or who has been dismissed
from the service for delinquency or misconduct within one year next
preceding the date of his application, or who has intentionally made a
false statement in any material fact or practiced or attempted to
practice any deception or fraud in securing his registration or
appointment. Any of the foregoing disqualifications shall be good cause
for the removal of an eligible from the service after his appointment.
4. No application for examination shall be accepted unless the applicant
is within the age limitations fixed herein for entrance to the position
to which he seeks to be appointed: _Provided_, That, subject to the
other conditions of these rules, the application of any person whose
claim of preference under the provisions of section 1754 of the Revised
Statutes has been allowed by the Commission may be accepted without
regard to his age. The age limitations for entrance to positions in the
different branches of the service shall be as follows:
Minimum. Maximum.
Departmental service:
Page or messenger boy 14 18
Apprentice (or student) 16 20
Printer's assistant and messenger 18 No limit.
Positions in railway mail service 18 35
Superintendent, physician, supervisor, day-school
inspector, Indian service 25 55
All other positions in the Indian service 21 45
All other positions 20 No limit.
(These limitations shall not apply in the cases
of wives of superintendents of Indian schools who
apply for examination for the position of teacher
or matron.)
Custom-house service:
Clerk and messenger 20 No limit.
Other positions 21 No limit.
Post-office service:
Letter carrier 21 40
Other positions 18 No limit.
Government printing service:
All positions (male) 21 No limit.
All positions (female) 18 No limit.
Internal-revenue service:
Clerk 18 No limit.
Other positions 21 No limit.
5. No application shall be accepted for examination for a position which
belongs to one of the recognized mechanical trades unless it shall be
shown that the applicant has served as apprentice or as journeyman or as
apprentice and journeyman at said trade for such periods as the
Commission may prescribe.
RULE VI.
The following-named employees or positions which have been or may
hereafter be classified under the civil-service act shall be excepted
from the requirement of examination or registration:
_Departmental service_.--(_a_) Private secretaries or
confidential clerks (not exceeding two) to the President or to the head
of each of the eight Executive Departments; (_b_) Indians employed
in the Indian service at large, except those employed as
superintendents, teachers, teachers of industries, kindergartners, and
physicians.
_Custom-house service_.--(_a_) One cashier in each customs
district; (_b_) one chief or principal deputy or assistant
collector in each customs district whose employees number as many as
150.
_Post-office service_.--(_a_) One assistant postmaster, or
chief assistant to the postmaster, of whatever designation, at each
post-office; (_b_) one cashier of each first-class post-office when
employed under the roster title of cashier only.
_Internal-revenue service_.--One cashier in each internal-revenue
district.
RULE VII.
1. Examination papers shall be rated on a scale of 100, and the subjects
therein shall be given such relative weights as the Commission may
prescribe. After a competitor's papers have been rated he shall be duly
notified of the result thereof.
2. Every competitor who attains an average percentage of 70 or over
shall be eligible for appointment to the position for which he was
examined, and the names of eligibles shall be entered in the order of
their average percentages on the proper register of eligibles:
_Provided_, That the names of all competitors whose claims to
preference under the provisions of section 1754 of the Revised Statutes
have been allowed by the Commission, and who attain an average
percentage of 65 or over, shall be placed in the order of their average
percentages at the head of the proper register of eligibles.
3. For filling vacancies in positions for which competitive tests are
not practicable the registration of applicants shall be in the order in
which they fulfill the requirements prescribed therefor by regulation of
the Commission: _Provided_, That persons who served in the military
or naval service of the United States in the late War of the Rebellion
and were honorably discharged therefrom, and persons who have been
separated from such positions above mentioned through no delinquency or
misconduct, shall be placed at the head of the proper register in the
order of their fulfillment of said requirements.
4. The term of eligibility shall be one year from the date on which the
name of the eligible is entered upon the register.
RULE VIII.
In pursuance of the provisions of section 2 of the civil-service
act, whenever a vacancy occurs in any position which has been or may
hereafter be classified under the civil-service act, and which is not
an excepted position, the filling of said vacancy, unless filled through
noncompetitive examination or by reinstatement, transfer, promotion, or
reduction, shall be governed as follows:
1. The appointing or nominating officer shall request certification
to him of the names of eligibles for the position vacant, and the
Commission shall certify to said officer from the proper register
the three names at the head thereof which have not been three times
certified to the Department or office in which the vacancy exists:
_Provided_, That certification for temporary appointment shall not
be counted as one of the three certifications to which an eligible is
entitled: _And provided further_, That whenever the sex of those
whose names are to be certified is fixed by any law, rule, or regulation
or is specified in the request for certification the names of those of
the sex so fixed or specified shall be certified, but in other cases
certification shall be made without regard to sex.
2. Of the three names certified the nominating or appointing officer
shall select one, and if at the time of selection there are more
vacancies than one he may select more than one name, unless otherwise
directed by the Commission.
3. If an eligible who is not entitled to certification is certified and
appointed, his appointment shall be immediately revoked by the
appointing officer upon notification from the Commission.
4. A person selected for appointment shall be notified of his selection
by the appointing or nominating officer, and upon his acceptance shall
receive from the appointing officer a certificate of appointment for a
probationary period of six months, at the end of which period, if the
conduct and capacity of the probationer are satisfactory to the
appointing officer, his retention in the service shall be equivalent to
his absolute appointment; but if his conduct or capacity be not
satisfactory he shall be notified by the appointing officer that he will
not receive absolute appointment because of such unsatisfactory conduct
or want of capacity, and such notification shall discharge him from the
service: _Provided_, That the probation of an employee in the
Indian-school service shall terminate at the end of the school year in
which he is appointed: _And provided further_, That the time which
an employee has actually served as substitute in parts of the service
where substitutes are authorized shall be counted as part of the
probationary period of his regular appointment, but that time served
under a temporary appointment shall not be so counted.
5. If the appointing or nominating officer shall object to an eligible
named in the certificate, stating that because of some physical defect,
mental unsoundness, or moral disqualification, particularly specified,
said eligible would be incompetent or unfit for the performance of the
duties of the vacant position, and if said officer shall sustain such
objection with evidence satisfactory to the Commission, the Commission
may certify the eligible on the register who is in average percentage
next below those already certified in place of the one to whom objection
is made and sustained.
6. Certifications for appointment of persons for service in or on direct
detail from any Department or office in Washington, D.C., shall be so
made as to maintain as nearly as possible the apportionment of such
appointments among the several States and Territories and District of
Columbia upon the basis of population, except to appointments in the
Government Printing Office, to the position of printer's assistant,
skilled helper, and operative in the Bureau of Engraving and Printing,
to positions in the post quartermaster's office, in the pension agency,
and other local offices in the District of Columbia, and to the
positions of page and messenger boy and apprentice or student.
7. Within any part of the service to which promotion regulations have
been or may hereafter be applied certification of those eligible to
original appointment shall not be made for filling a vacancy in a
position above the lowest class in any grade whenever there is any
person eligible and willing to be promoted to said vacancy:
_Provided_, That a vacancy in any position requiring the exercise
of technical or professional knowledge may be filled by original
appointment.
8. When two or more eligibles on a register have the same average
percentage, preference in certification shall be determined by the order
in which their applications were filed.
9. For filling vacancies in positions outside of the District
of Columbia and in positions in the pension agency, the depot
quartermaster's office, and other local offices in the District of
Columbia the territory of the United States shall be arranged in
such sections or districts as the Commission may determine, and an
eligible shall be certified in his order to vacancies in the section
or district in which he resides, and, upon his written request, to
vacancies in any one or more of the other sections or districts:
_Provided_, That in the custom-house service, post-office service,
or internal-revenue service an eligible shall be certified only to
vacancies in the customs district, post-office, or internal-revenue
district where he was examined.
10. In any part of the service in which the employment of substitutes is
not prohibited by law there may be certified and appointed in the manner
provided for in this rule only such number of substitutes as are
actually needed for the performance of substitute duty.
11. In any part of the service in which substitutes are employed
certifications of those eligible to original appointment shall be made
for filling vacancies in substitute positions only, and vacancies in
regular positions shall be filled by the appointment or promotion
thereto of substitutes in the order of their original appointment as
substitutes whenever there are substitutes of the required sex who are
eligible and willing to be so appointed or promoted. Substitutes so
appointed or promoted shall, however, be subject to the provisions of
these rules relating to probation and permanent appointment.
12. Upon request of the appointing or nominating officer preference
in certification may be given to the wife of the superintendent of an
Indian school for filling a vacancy in the position of teacher or matron
in said school.
13. Whenever there shall occur a vacancy which the public interest
requires shall be immediately filled and which can not be so filled in
time to meet the emergency by certification from the eligible registers,
such vacancy may, subject to the approval of the Commission, be filled
by temporary appointment without examination until a regular appointment
can be made. Such temporary appointment shall in no case continue longer
than ninety days, and shall expire by limitation at the end of that
time. No person shall serve longer than ninety days in any one year
under such temporary appointment or appointments, and in any event only
until a regular appointment can be made through examination and
certification. Said year limitation shall begin to run in the case of
any person on the date of his first such appointment: _Provided_,
That whenever an emergency shall arise requiring that a vacant position
in any internal-revenue district shall be filled before a certificate
can be issued by the Commission and an appointment made thereto in the
manner provided in these rules such position may be filled without
regard to the provisions of these rules by temporary appointment for a
period not to exceed thirty days, and only for such period as may be
required for the execution of the necessary details of an appointment
thereto in accordance with said provisions; but no person shall receive
such temporary appointment who within the ninety days next previous
thereto has been separated from a position in said district to which he
was temporarily appointed under the provisions of this section.
14. Whenever a temporary appointment shall be made through certification
from the eligible registers of the Commission in the manner provided in
these rules, such temporary appointment shall in no case continue longer
than six months, and shall expire by limitation at the end of that
period.
RULE IX.
A vacancy in any position which has been or may hereafter be classified
under the civil service act may, upon requisition of the proper officer
and the certificate of the Commission, be filled by the reinstatement
without examination of any person who within one year next preceding the
date of said requisition has through no delinquency or misconduct been
separated from a classified position at the date of said requisition and
in that Department or office and that branch of the service in which
said vacancy exists: _Provided_, That for original entrance to the
position proposed to be filled by reinstatement there is not required by
these rules, in the opinion of the Commission, an examination involving
essential tests different from or higher than those involved in the
examination for original entrance to the position formerly held by the
person proposed to be reinstated: _And provided further_, That,
subject to the other conditions of these rules, any person who served in
the military or naval service of the United States in the late War of
the Rebellion and was honorably discharged therefrom, or the widow of
any such person, may be reinstated without regard to the length of time
he or she has been separated from the service.
RULE X.
Within that part of the civil service of the United States which has
been or may hereafter be classified under the civil-service act
transfers shall be governed as follows:
1. A person in any Department or office may be transferred within the
same Department or office and the same branch of the service upon any
test of fitness, not disapproved by the Commission, which may be
determined upon by the appointing officer, subject to the limitations of
the provisos of section 2 of this rule.
2. A person who has received absolute appointment may be transferred
without examination from any Department, office, or branch of the
service upon requisition and consent of the proper officers and the
certificate of the Commission: _Provided_, That no transfer shall
be made of a person to a position within the same Department or office
and the same branch of the service, or to a position in another
Department, office, or branch of the service, if from original entrance
to such position said person is barred by the age limitations prescribed
therefor or by the provisions regulating apportionment, or if in said
position there is not required, in the judgment of the Commission, the
performance of the same class of work or the practice of the same
mechanical trade performed or practiced in the position from which
transfer is proposed: _And provided further_, That transfer shall
not be made without examination, provided by the Commission, to a
position for original entrance to which, in the judgment of the
Commission, there is required by these rules an examination involving
essential tests different from or higher than those involved in the
examination required for original entrance to the position from which
transfer is proposed; but a person employed in any grade shall not
because of such employment be barred from the open competitive
examination provided for original entrance to any other grade.
3. Upon requisition of the proper officer and the certificate of the
Commission transfer may be made without examination from the office of
the President of the United States, after continuous service therein for
the two years next preceding the date of said requisition, to any
position classified under the civil-service act, if in said position
there is required, in the judgment of the Commission, the performance of
the same class of work that is required to be performed in the position
from which transfer is proposed.
4. Transfer shall not be made from an excepted position to a position
not excepted: _Provided_, That a person holding an excepted
position at the time said position is classified under the civil-service
act, or a person holding an excepted position which he entered prior to
the President's order of November 2, 1894, may, subject to the other
conditions and provisions of this rule, be transferred to a position not
excepted.
5. Transfer shall not be made from a position not classified under the
civil-service act to a classified position: _Provided_, That a
person who by promotion or transfer from a classified position has
entered a position appointment to which is made by the President by and
with the advice and consent of the Senate, and has served continuously
therein from the date of said promotion or transfer, may be transferred
from said Presidential appointment to the position from which he was so
transferred or to any position to which transfer could be made
therefrom.
6. Transfer shall not be made from a position outside the District of
Columbia to a position within the District of Columbia except upon the
certificate of the Commission, subject to the other conditions and
provisions of this rule.
7. Any person who has been transferred from a classified position to
another classified position may be retransferred to the position in
which he was formerly employed or to any position to which transfer
could be made therefrom without regard to the limitations of this rule.
8. All transfers herein authorized shall be made only after the issuance
by the Commission of the certificates therefor, except those which may
be specifically exempted from such condition by regulation of the
Commission.
9. Whenever a person is proposed for transfer from one branch of the
service to another branch of the service and from a part of the service
not within the provisions regulating apportionment to a part of the
service within said provisions, and the transfer is one which under the
provisions of this rule may be allowed without examination, such person
shall be required precedent to his transfer to file a statement under
oath setting forth the same facts, accompanied by the same certificates
or vouchers relating to residence, as may be required in an application
for examination.
RULE XI.
1. In pursuance of the requirements of section 7 of the civil-service
act, competitive tests or examinations shall, as far as practicable and
useful, be established to test fitness for promotion in any part of the
civil service of the United States which has been or may hereafter be
classified under the civil-service act.
2. The details regulating promotions shall be formulated by the
Commission after consultation with the heads of the several Departments,
bureaus, or offices. It shall be the duty of the head of each
Department, bureau, or office when such regulations have been formulated
to promulgate the same, and any amendments or revocations thereof shall
be approved by the Commission before going into effect.
3. The Commission shall, upon the nomination of the head of each
Department, bureau, or office, designate and select a suitable number of
persons, not less than three, in said Department, bureau, or office to
be members of a board of promotion. In the Departments, bureaus, or
offices in Washington and in all other offices the members of any board
of examiners shall not all be adherents of one political party when
persons of other political parties are available and competent to serve
upon said board.
4. Until the regulations herein authorized have been approved for any
Department, bureau, or office in which promotion regulations approved by
the Commission are not in force promotions therein may be made from one
class to another class which is in the same grade and from one grade to
another grade upon any test of fitness, not disapproved by the
Commission, which may be determined upon by the promoting officer:
_Provided_, That no promotion of a person shall be made, except
upon examination provided by the Commission, from one class to another
class or from one grade to another grade if for original entrance to
said class or grade to which promotion is proposed there is required by
these rules an examination involving essential tests different from or
higher than those involved in the examination required for original
entrance to the class or grade from which promotion is proposed: _And
provided further_, That no promotion of a person shall be made,
except upon examination provided by the Commission, to a position in
which, in the judgment of the Commission, there is not required the
performance of the same class of work or the practice of the same
mechanical trade which is required to be performed or practiced in the
position from which promotion is proposed; but a person employed in any
grade shall not because of such employment be barred from the open
competitive examination provided for original entrance to any other
grade: _And provided further_, That no promotion of a person shall
be made to a class or grade from original entrance to which such person
is barred by the age limitations prescribed therefor or by the
provisions regulating apportionment.
RULE XII.
1. In pursuance of the provisions of section 2 of the civil-service act
every nominating or appointing officer in the executive civil service of
the United States shall furnish to the Commission a list of all the
positions and employments under his control and authority, together with
the names, designations, compensations, and dates of appointment or
employment of all persons serving in said positions or employments, said
list to be arranged as follows: (_a_) Classified positions not
excepted from examination; (_b_) classified positions excepted from
examination; (_c_) unclassified positions.
2. Every nominating or appointing officer in the executive civil service
shall report in detail to the Commission, in form and manner to be
prescribed by the Commission, all changes as soon as made, and the dates
thereof, in the service under his control and authority, setting forth
among other things the following: The position to which an appointment
or reinstatement is made; the position from which a separation is made,
whether the same was caused by dismissal, resignation, or death, and the
position from which and the position to which a transfer or promotion is
made; the compensation of every position from which or to which a change
is made; the name of every person appointed, reinstated, promoted,
transferred, or separated from the service, and every failure to accept
an appointment and the reasons therefor.
Approved, May 6, 1896.
GROVER CLEVELAND.
EXECUTIVE MANSION, _Washington, D.C., May 7, 1896_.
In the exercise of the authority vested in the President by the
seventeen hundred and fifty-third (1753d) section of the Revised
Statutes--
_It is ordered_, That the office of the Interstate Commerce
Commission be, and the same is hereby, classified as a part of the
classified departmental service, and for the purpose of applying the
civil-service rules thereto the officers, clerks, and other employees of
said Commission are hereby arranged in the following classes, viz:
_Class A_.--All persons receiving an annual salary of less than
$720, or a compensation at the rate of less than $720 per annum.
_Class B_.--All persons receiving an annual salary of $720 or more,
or a compensation at the rate of $720 or more, but less than $840 per
annum.
_Class C_.--All persons receiving an annual salary of $840 or more,
or a compensation at the rate of $840 or more, but less than $900 per
annum.
_Class D_.--All persons receiving a salary of $900 or more, or a
compensation at the rate of $900 or more, but less than $1,000 per
annum.
_Class E_.--All persons receiving an annual salary of $1,000 or
more, or a compensation at the rate of $1,000 or more, but less than
$1,200 per annum.
_Class 1_.--All persons receiving an annual salary of $1,200 or
more, or a compensation at the rate of $1,200 or more, but less than
$1,400 per annum.
_Class 2_.--All persons receiving an annual salary of $1,400 or
more per annum, or a compensation at the rate of $1,400 or more, but
less than $1,600 per annum.
_Class 3_.--All persons receiving an annual salary of $1,600 or
more per annum, or an annual compensation at the rate of $1,600 or more,
but less than $1,800 per annum.
_Class 4_.--All persons receiving an annual salary of $1,800 or
more per annum, or a compensation at the rate of $1,800 or more, but
less than $2,000 per annum.
_Class 5_.--All persons receiving an annual salary of $2,000 or
more or a compensation at the rate of $2,000 or more per annum.
_Provided_, That no person who may be appointed to an office by and
with the advice and consent of the Senate and that no person who may be
employed merely as a workman or laborer shall be considered as within
this classification, and no person so employed shall be assigned to the
duties of a classified place.
_Provided further_, That no person shall be admitted to any place
not excepted from examination by the civil-service rules in any of the
classes above designated until he or she shall have passed an
appropriate examination under the United States Civil Service Commission
and his or her eligibility has been certified to by said Commission.
GROVER CLEVELAND.
AMENDMENTS OF CIVIL-SERVICE RULES.
EXECUTIVE MANSION, _May 13, 1896_.
The civil-service rules are hereby amended as follows:
Rule III, clause 2 (_a_), is amended by adding after the words "the
light-house service" the words "the life-saving service."
Paragraph (_b_) of the same rule and clause is amended by striking
out after the words "who are in the service of the Treasury Department
in any capacity" the words "except those in the life-saving service."
Approved:
GROVER CLEVELAND.
AMENDMENTS OF CIVIL-SERVICE RULES.
The civil-service rules as revised May 6, 1896, are hereby amended as
follows:
Rule I, section 2, clause (_b_): In the third line, after the word
"act," insert "and these rules;" so that as amended the clause will
read:
(_b_) The term "classified service" refers to all that part of
the executive civil service of the United States included within the
provisions of the civil-service act and these rules.
Rule III, section 2, clause (_a_), is amended by adding thereto the
following clause:
The Ordnance Department at large.
Rule III, section 2, clause (_a_), is amended by striking out after
"persons" in the third line the words "who have been nominated for" and
inserting in lieu thereof the words "whose appointments are subject to."
Rule III, section 2 clause (_b_), is amended by inserting in the
second line, after the word "designation," the words "except persons
merely employed as laborers or workmen and persons whose appointments
are subject to confirmation by the Senate."
Rule III, section 2, clause (_b_), is amended by adding thereto the
following words:
Who are employed in the Department of Justice under the annual
appropriation for the investigation of official acts, records, and
accounts of officers of the courts.
Rule III, section 3, is amended to read as follows:
3. The custom-house service shall include such officers and employees as
have been or may hereafter he classified under the civil-service act who
are serving in any customs district whose officers and employees number
as many as five; and whenever in any customs district whose officers and
employees number less than five the number of officers and employees
shall be increased to as many as five the Secretary of the Treasury
shall at once notify the Commission of such increase, and the officers
and employees of said district shall be included within the classified
service from the date of said increase.
Rule III, section 6, is amended by inserting in the second line, after
the word "employees," the following: "in any internal-revenue district;"
and in the third line, after the word "act," by striking out the
following: "in any internal-revenue district;" so that as amended the
section will read:
6. The internal-revenue service shall include the officers and
employees in any internal-revenue district who have been or may
hereafter be classified under the civil-service act.
Rule VI is amended by adding in the departmental service an additional
clause, making exceptions from examination, to read as follows:
(_c_) Attorneys or assistant attorneys in any Department whose
main duties are connected with the management of cases in court.
Amend Rule VI by striking out after "internal-revenue service" the words
"one cashier in each internal-revenue district" and inserting in lieu
thereof--
One employee in each internal-revenue district who shall act as cashier
or chief deputy or assistant collector, as may be determined by the
Treasury Department.
Amend Rule VIII by striking out section 3.
Rule IX is amended by striking out in the seventh line the word
"classified" and inserting in lieu thereof after the word "position" in
the same line the following: "included within the classified service;"
so that as amended the line will read: "misconduct, been separated from
a position included within the classified service at the."
Rule XI, section 2, is amended by striking out in line 1 the words "The
details regulating" and inserting in their stead the words "Regulations
to govern;" so that as amended the section will read:
2. Regulations to govern promotions shall be formulated by the
Commission after consultation with the heads of the several Departments,
bureaus, and offices. It shall be the duty of the head of each
Department, bureau, or office when such regulations have been formulated
to promulgate the same, and any amendments or revocations thereof shall
be approved by the Commission before going into effect.
Rule XI, section 3: The word "examiners" in line 7 is changed to
"promotion," making the section read:
3. The Commission shall, upon the nomination of the head of each
Department, bureau, or office, designate and select a suitable number
of persons, not less than three, in said Department, bureau, or office
to be members of a board of promotion. In the Departments, bureaus, or
offices in Washington and in all other offices the members of any board
of promotion shall not all be adherents of one political party when
persons of other political parties are available and competent to serve
upon said board.
Approved, November 2, 1896.
GROVER CLEVELAND.
CIVIL SERVICE--EXECUTIVE ORDER.
EXECUTIVE MANSION, _November 2, 1896_.
The regulations of the Navy Department governing the employment of labor
at navy-yards having been adopted by the Civil Service Commission as
a regulation of the Commission July 29, 1896, under the authority
conferred by clause 1, Rule 1, of the revised civil-service rules of
May 6, 1896, it is hereby ordered that no modification of the existing
regulations shall be made without the approval of the Civil Service
Commission.
GROVER CLEVELAND.
FOURTH ANNUAL MESSAGE.
EXECUTIVE MANSION, _December 7, 1896_.
_To the Congress of the United States_:
As representatives of the people in the legislative branch of
their Government, you have assembled at a time when the strength and
excellence of our free institutions and the fitness of our citizens to
enjoy popular rule have been again made manifest. A political contest
involving momentous consequences, fraught with feverish apprehension,
and creating aggressiveness so intense as to approach bitterness and
passion has been waged throughout our land and determined by the decree
of free and independent suffrage without disturbance of our tranquillity
or the least sign of weakness in our national structure.
When we consider these incidents and contemplate the peaceful obedience
and manly submission which have succeeded a heated clash of political
opinions, we discover abundant evidence of a determination on the part
of our countrymen to abide by every verdict of the popular will and
to be controlled at all times by an abiding faith in the agencies
established for the direction of the affairs of their Government.
Thus our people exhibit a patriotic disposition which entitles them
to demand of those who undertake to make and execute their laws such
faithful and unselfish service in their behalf as can only be prompted
by a serious appreciation of the trust and confidence which the
acceptance of public duty invites.
In obedience to a constitutional requirement I herein submit to the
Congress certain information concerning national affairs, with the
suggestion of such legislation as in my judgment is necessary and
expedient. To secure brevity and avoid tiresome narration I shall omit
many details concerning matters within Federal control which, though
by no means unimportant, are more profitably discussed in departmental
reports. I shall also further curtail this communication by omitting
a minute recital of many minor incidents connected with our foreign
relations which have heretofore found a place in Executive messages,
but are now contained in a report of the Secretary of State, which is
herewith submitted.
At the outset of a reference to the more important matters affecting our
relations with foreign powers it would afford me satisfaction if I could
assure the Congress that the disturbed condition in Asiatic Turkey had
during the past year assumed a less hideous and bloody aspect and that,
either as a consequence of the awakening of the Turkish Government to
the demands of humane civilization or as the result of decisive action
on the part of the great nations having the right by treaty to interfere
for the protection of those exposed to the rage of mad bigotry and cruel
fanaticism, the shocking features of the situation had been mitigated.
Instead, however, of welcoming a softened disposition or protective
intervention, we have been afflicted by continued and not infrequent
reports of the wanton destruction of homes and the bloody butchery of
men, women, and children, made martyrs to their profession of Christian
faith.
While none of our citizens in Turkey have thus far been killed or
wounded, though often in the midst of dreadful scenes of danger, their
safety in the future is by no means assured. Our Government at home
and our minister at Constantinople have left nothing undone to protect
our missionaries in Ottoman territory, who constitute nearly all the
individuals residing there who have a right to claim our protection on
the score of American citizenship. Our efforts in this direction will
not be relaxed; but the deep feeling and sympathy that have been aroused
among our people ought not to so far blind their reason and judgment as
to lead them to demand impossible things. The outbreaks of blind fury
which lead to murder and pillage in Turkey occur suddenly and without
notice, and an attempt on our part to force such a hostile presence
there as might be effective for prevention or protection would not only
be resisted by the Ottoman Government, but would be regarded as an
interruption of their plans by the great nations who assert their
exclusive right to intervene in their own time and method for the
security of life and property in Turkey.
Several naval vessels are stationed in the Mediterranean as a measure
of caution and to furnish all possible relief and refuge in case of
emergency.
We have made claims against the Turkish Government for the pillage
and destruction of missionary property at Harpoot and Marash during
uprisings at those places. Thus far the validity of these demands has
not been admitted, though our minister, prior to such outrages and
in anticipation of danger, demanded protection for the persons and
property of our missionary citizens in the localities mentioned and
notwithstanding that strong evidence exists of actual complicity of
Turkish soldiers in the work of destruction and robbery.
The facts as they now appear do not permit us to doubt the justice of
these claims, and nothing will be omitted to bring about their prompt
settlement.
A number of Armenian refugees having arrived at our ports, an order has
lately been obtained from the Turkish Government permitting the wives
and children of such refugees to join them here. It is hoped that
hereafter no obstacle will be interposed to prevent the escape of all
those who seek to avoid the perils which threaten them in Turkish
dominions.
Our recently appointed consul to Erzerum is at his post and discharging
the duties of his office, though for some unaccountable reason his
formal exequatur from the Sultan has not been issued.
I do not believe that the present somber prospect in Turkey will be long
permitted to offend the sight of Christendom. It so mars the humane and
enlightened civilization that belongs to the close of the nineteenth
century that it seems hardly possible that the earnest demand of good
people throughout the Christian world for its corrective treatment will
remain unanswered.
The insurrection in Cuba still continues with all its perplexities. It
is difficult to perceive that any progress has thus far been made toward
the pacification of the island or that the situation of affairs as
depicted in my last annual message has in the least improved. If Spain
still holds Havana and the seaports and all the considerable towns, the
insurgents still roam at will over at least two-thirds of the inland
country. If the determination of Spain to put down the insurrection
seems but to strengthen with the lapse of time and is evinced by her
unhesitating devotion of largely increased military and naval forces
to the task, there is much reason to believe that the insurgents have
gained in point of numbers and character and resources and are none
the less inflexible in their resolve not to succumb without practically
securing the great objects for which they took up arms. If Spain has not
yet reestablished her authority, neither have the insurgents yet made
good their title, to be regarded as an independent state. Indeed, as
the contest has gone on the pretense that civil government exists on
the island, except so far as Spain is able to maintain it, has been
practically abandoned. Spain does keep on foot such a government, more
or less imperfectly, in the large towns and their immediate suburbs;
but that exception being made, the entire country is either given over
to anarchy or is subject to the military occupation of one or the other
party. It is reported, indeed, on reliable authority that at the demand
of the commander in chief of the insurgent army the putative Cuban
government has now given up all attempt to exercise its functions,
leaving that government confessedly (what there is the best reason for
supposing it always to have been in fact) a government merely on paper.
Were the Spanish armies able to meet their antagonists in the open or in
pitched battle, prompt and decisive results might be looked for, and the
immense superiority of the Spanish forces in numbers, discipline, and
equipment could hardly fail to tell greatly to their advantage. But they
are called upon to face a foe that shuns general engagements, that can
choose and does choose its own ground, that from the nature of the
country is visible or invisible at pleasure, and that fights only from
ambuscade and when all the advantages of position and numbers are on its
side. In a country where all that is indispensable to life in the way of
food, clothing, and shelter is so easily obtainable, especially by those
born and bred on the soil, it is obvious that there is hardly a limit
to the time during which hostilities of this sort may be prolonged.
Meanwhile, as in all cases of protracted civil strife, the passions of
the combatants grow more and more inflamed and excesses on both sides
become more frequent and more deplorable. They are also participated in
by bands of marauders, who, now in the name of one party and now in the
name of the other, as may best suit the occasion, harry the country at
will and plunder its wretched inhabitants for their own advantage. Such
a condition of things would inevitably entail immense destruction of
property, even if it were the policy of both parties to prevent it as
far as practicable; but while such seemed to be the original policy of
the Spanish Government, it has now apparently abandoned it and is acting
upon the same theory as the insurgents, namely, that the exigencies of
the contest require the wholesale annihilation of property that it may
not prove of use and advantage to the enemy.
It is to the same end that, in pursuance of general orders, Spanish
garrisons are now being withdrawn from plantations and the rural
population required to concentrate itself in the towns. The sure
result would seem to be that the industrial value of the island is
fast diminishing and that unless there is a speedy and radical change
in existing conditions it will soon disappear altogether. That value
consists very largely, of course, in its capacity to produce sugar--a
capacity already much reduced by the interruptions to tillage which
have taken place during the last two years. It is reliably asserted
that should these interruptions continue during the current year, and
practically extend, as is now threatened, to the entire sugar-producing
territory of the island, so much time and so much money will be required
to restore the land to its normal productiveness that it is extremely
doubtful if capital can be induced to even make the attempt.
The spectacle of the utter ruin of an adjoining country, by nature
one of the most fertile and charming on the globe, would engage the
serious attention of the Government and people of the United States in
any circumstances. In point of fact, they have a concern with it which
is by no means of a wholly sentimental or philanthropic character. It
lies so near to us as to be hardly separated from our territory. Our
actual pecuniary interest in it is second only to that of the people
and Government of Spain. It is reasonably estimated that at least
from $30,000,000 to $50,000,000 of American capital are invested in
plantations and in railroad, mining, and other business enterprises
on the island. The volume of trade between the United States and Cuba,
which in 1889 amounted to about $64,000,000, rose in 1893 to about
$103,000,000, and in 1894, the year before the present insurrection
broke out, amounted to nearly $96,000,000. Besides this large pecuniary
stake in the fortunes of Cuba, the United States finds itself
inextricably involved in the present contest in other ways, both
vexatious and costly.
Many Cubans reside in this country, and indirectly promote the
insurrection through the press, by public meetings, by the purchase and
shipment of arms, by the raising of funds, and by other means which the
spirit of our institutions and the tenor of our laws do not permit to be
made the subject of criminal prosecutions. Some of them, though Cubans
at heart and in all their feelings and interests, have taken out papers
as naturalized citizens of the United States--a proceeding resorted
to with a view to possible protection by this Government, and not
unnaturally regarded with much indignation by the country of their
origin. The insurgents are undoubtedly encouraged and supported by the
widespread sympathy the people of this country always and instinctively
feel for every struggle for better and freer government, and which,
in the case of the more adventurous and restless elements of our
population, leads in only too many instances to active and personal
participation in the contest. The result is that this Government is
constantly called upon to protect American citizens, to claim damages
for injuries to persons and property, now estimated at many millions of
dollars, and to ask explanations and apologies for the acts of Spanish
officials whose zeal for the repression of rebellion sometimes blinds
them to the immunities belonging to the unoffending citizens of a
friendly power. It follows from the same causes that the United States
is compelled to actively police a long line of seacoast against unlawful
expeditions, the escape of which the utmost vigilance will not always
suffice to prevent.
These inevitable entanglements of the United States with the
rebellion in Cuba, the large American property interests affected,
and considerations of philanthropy and humanity in general have led
to a vehement demand in various quarters for some sort of positive
intervention on the part of the United States. It was at first proposed
that belligerent rights should be accorded to the insurgents--a
proposition no longer urged because untimely and in practical operation
clearly perilous and injurious to our own interests. It has since been
and is now sometimes contended that the independence of the insurgents
should be recognized; but imperfect and restricted as the Spanish
government of the island may be, no other exists there, unless the will
of the military officer in temporary command of a particular district
can be dignified as a species of government. It is now also suggested
that the United States should buy the island--a suggestion possibly
worthy of consideration if there were any evidence of a desire or
willingness on the part of Spain to entertain such a proposal. It is
urged finally that, all other methods failing, the existing internecine
strife in Cuba should be terminated by our intervention, even at the
cost of a war between the United States and Spain--a war which its
advocates confidently prophesy could neither be large in its proportions
nor doubtful in its issue.
The correctness of this forecast need be neither affirmed nor denied.
The United States has, nevertheless, a character to maintain as a
nation, which plainly dictates that right and not might should be the
rule of its conduct. Further, though the United States is not a nation
to which peace is a necessity, it is in truth the most pacific of powers
and desires nothing so much as to live in amity with all the world.
Its own ample and diversified domains satisfy all possible longings for
territory, preclude all dreams of conquest, and prevent any casting of
covetous eyes upon neighboring regions, however attractive. That our
conduct toward Spain and her dominions has constituted no exception
to this national disposition is made manifest by the course of our
Government, not only thus far during the present insurrection, but
during the ten years that followed the rising at Yara in 1868. No other
great power, it may safely be said, under circumstances of similar
perplexity, would have manifested the same restraint and the same
patient endurance. It may also be said that this persistent attitude of
the United States toward Spain in connection with Cuba unquestionably
evinces no slight respect and regard for Spain on the part of the
American people. They in truth do not forget her connection with the
discovery of the Western Hemisphere, nor do they underestimate the
great qualities of the Spanish people nor fail to fully recognize their
splendid patriotism and their chivalrous devotion to the national honor.
They view with wonder and admiration the cheerful resolution with which
vast bodies of men are sent across thousands of miles of ocean and an
enormous debt accumulated that the costly possession of the gem of the
Antilles may still hold its place in the Spanish crown. And yet neither
the Government nor the people of the United States have shut their eyes
to the course of events in Cuba or have failed to realize the existence
of conceded grievances which have led to the present revolt from the
authority of Spain--grievances recognized by the Queen Regent and by
the Cortes, voiced by the most patriotic and enlightened of Spanish
statesmen, without regard to party, and demonstrated by reforms proposed
by the executive and approved by the legislative branch of the Spanish
Government. It is in the assumed temper and disposition of the Spanish
Government to remedy these grievances, fortified by indications of
influential public opinion in Spain, that this Government has hoped to
discover the most promising and effective means of composing the present
strife with honor and advantage to Spain and with the achievement of all
the reasonable objects of the insurrection.
It would seem that if Spain should offer to Cuba genuine autonomy--a
measure of home rule which, while preserving the sovereignty of Spain,
would satisfy all rational requirements of her Spanish subjects--there
should be no just reason why the pacification of the island might not
be effected on that basis. Such a result would appear to be in the true
interest of all concerned. It would at once stop the conflict which
is now consuming the resources of the island and making it worthless
for whichever party may ultimately prevail. It would keep intact the
possessions of Spain without touching her honor, which will be consulted
rather than impugned by the adequate redress of admitted grievances.
It would put the prosperity of the island and the fortunes of its
inhabitants within their own control without severing the natural and
ancient ties which bind them to the mother country, and would yet enable
them to test their capacity for self-government under the most favorable
conditions. It has been objected on the one side that Spain should not
promise autonomy until her insurgent subjects lay down their arms;
on the other side, that promised autonomy, however liberal, is
insufficient, because without assurance of the promise being fulfilled.
But the reasonableness of a requirement by Spain of unconditional
surrender on the part of the insurgent Cubans before their autonomy
is conceded is not altogether apparent. It ignores important features
of the situation--the stability two years' duration has given to the
insurrection; the feasibility of its indefinite prolongation in the
nature of things, and, as shown by past experience, the utter and
imminent ruin of the island unless the present strife is speedily
composed; above all, the rank abuses which all parties in Spain, all
branches of her Government, and all her leading public men concede to
exist and profess a desire to remove. Facing such circumstances, to
withhold the proffer of needed reforms until the parties demanding them
put themselves at mercy by throwing down their arms has the appearance
of neglecting the gravest of perils and inviting suspicion as to the
sincerity of any professed willingness to grant reforms. The objection
on behalf of the insurgents that promised reforms can not be relied upon
must of course be considered, though we have no right to assume and no
reason for assuming that anything Spain undertakes to do for the relief
of Cuba will not be done according to both the spirit and the letter of
the undertaking.
Nevertheless, realizing that suspicions and precautions on the part
of the weaker of two combatants are always natural and not always
unjustifiable, being sincerely desirous in the interest of both as
well as on its own account that the Cuban problem should be solved with
the least possible delay, it was intimated by this Government to the
Government of Spain some months ago that if a satisfactory measure of
home rule were tendered the Cuban insurgents and would be accepted by
them upon a guaranty of its execution the United States would endeavor
to find a way not objectionable to Spain of furnishing such guaranty.
While no definite response to this intimation has yet been received from
the Spanish Government, it is believed to be not altogether unwelcome,
while, as already suggested, no reason is perceived why it should not be
approved by the insurgents. Neither party can fail to see the importance
of early action, and both must realize that to prolong the present
state of things for even a short period will add enormously to the
time and labor and expenditure necessary to bring about the industrial
recuperation of the island. It is therefore fervently hoped on all
grounds that earnest efforts for healing the breach between Spain and
the insurgent Cubans upon the lines above indicated may be at once
inaugurated and pushed to an immediate and successful issue. The
friendly offices of the United States, either in the manner above
outlined or in any other way consistent with our Constitution and laws,
will always be at the disposal of either party.
Whatever circumstances may arise, our policy and our interests would
constrain us to object to the acquisition of the island or an
interference with its control by any other power.
It should be added that it can not be reasonably assumed that the
hitherto expectant attitude of the United States will be indefinitely
maintained. While we are anxious to accord all due respect to the
sovereignty of Spain, we can not view the pending conflict in all its
features and properly apprehend our inevitably close relations to it and
its possible results without considering that by the course of events we
may be drawn into such an unusual and unprecedented condition as will
fix a limit to our patient waiting for Spain to end the contest, either
alone and in her own way or with our friendly cooperation.
When the inability of Spain to deal successfully with the insurrection
has become manifest and it is demonstrated that her sovereignty is
extinct in Cuba for all purposes of its rightful existence, and when a
hopeless struggle for its reestablishment has degenerated into a strife
which means nothing more than the useless sacrifice of human life and
the utter destruction of the very subject-matter of the conflict, a
situation will be presented in which our obligations to the sovereignty
of Spain will be superseded by higher obligations, which we can hardly
hesitate to recognize and discharge. Deferring the choice of ways and
methods until the time for action arrives, we should make them depend
upon the precise conditions then existing; and they should not be
determined upon without giving careful heed to every consideration
involving our honor and interest or the international duty we owe to
Spain. Until we face the contingencies suggested or the situation is by
other incidents imperatively changed we should continue in the line of
conduct heretofore pursued, thus in all circumstances exhibiting our
obedience to the requirements of public law and our regard for the duty
enjoined upon us by the position we occupy in the family of nations.
A contemplation of emergencies that may arise should plainly lead us to
avoid their creation, either through a careless disregard of present
duty or even an undue stimulation and ill-timed expression of feeling.
But I have deemed it not amiss to remind the Congress that a time may
arrive when a correct policy and care for our interests, as well as a
regard for the interests of other nations and their citizens, joined by
considerations of humanity and a desire to see a rich and fertile
country intimately related to us saved from complete devastation, will
constrain our Government to such action as will subserve the interests
thus involved and at the same time promise to Cuba and its inhabitants
an opportunity to enjoy the blessings of peace.
The Venezuelan boundary question has ceased to be a matter of
difference between Great Britain and the United States, their respective
Governments having agreed upon the substantial provisions of a treaty
between Great Britain and Venezuela submitting the whole controversy to
arbitration. The provisions of the treaty are so eminently just and fair
that the assent of Venezuela thereto may confidently be anticipated.
Negotiations for a treaty of general arbitration for all differences
between Great Britain and the United States are far advanced and promise
to reach a successful consummation at an early date.
The scheme of examining applicants for certain consular positions to
test their competency and fitness, adopted under an Executive order
issued on the 20th of September, 1895,[36] has fully demonstrated the
usefulness of this innovation. In connection with this plan of
examination promotions and transfers of deserving incumbents have been
quite extensively made, with excellent results.
During the past year 35 appointments have been made in the consular
service, 27 of which were made to fill vacancies caused by death or
resignation or to supply newly created posts, 2 to succeed incumbents
removed for cause, 2 for the purpose of displacing alien consular
officials by American citizens, and 4 merely changing the official
title of incumbent from commercial agent to consul. Twelve of these
appointments were transfers or promotions from other positions under the
Department of State, 4 of those appointed had rendered previous service
under the Department, 8 were made of persons who passed a satisfactory
examination, 7 were appointed to places not included in the order of
September 20, 1895, and 4 appointments, as above stated, involved no
change of incumbency.
The inspection of consular offices provided for by an appropriation for
that purpose at the last session of the Congress has been productive
of such wholesome effects that I hope this important work will in the
future be continued. I know of nothing that can be done with the same
slight expense so improving to the service.
I desire to repeat the recommendation contained in my last annual
message in favor of providing at public expense official residences
for our ambassadors and ministers at foreign capitals. The reasons
supporting this recommendation are strongly stated in the report of the
Secretary of State, and the subject seems of such importance that I hope
it may receive the early attention of the Congress.
We have during the last year labored faithfully and against unfavorable
conditions to secure better preservation of seal life in the Bering Sea.
Both the United States and Great Britain have lately dispatched
commissioners to these waters to study the habits and condition of the
seal herd and the causes of their rapid decrease. Upon the reports of
these commissioners, soon to be submitted, and with the exercise of
patience and good sense on the part of all interested parties, it is
earnestly hoped that hearty cooperation may be secured for the
protection against threatened extinction of seal life in the Northern
Pacific and Bering Sea.
The Secretary of the Treasury reports that during the fiscal year ended
June 30, 1896, the receipts of the Government from all sources amounted
to $409,475,408.78. During the same period its expenditures were
$434,678,654.48, the excess of expenditures over receipts thus amounting
to $25,203,245.70. The ordinary expenditures during the year were
$4,015,852.21 less than during the preceding fiscal year. Of the
receipts mentioned there was derived from customs the sum of
$160,021,751.67 and from internal revenue $146,830,615.66. The receipts
from customs show an increase of $7,863,134.22 over those from the same
source for the fiscal year ended June 30, 1895, and the receipts from
internal revenue an increase of $3,584,537.91.
The value of our imported dutiable merchandise during the last fiscal
year was $369,757,470 and the value of free goods imported $409,967,470,
being an increase of $6,523,675 in the value of dutiable goods and
$41,231,034 in the value of free goods over the preceding year. Our
exports of merchandise, foreign and domestic, amounted in value to
$882,606,938, being an increase over the preceding year of $75,068,773.
The average _ad valorem_ duty paid on dutiable goods imported
during the year was 39.94 per cent and on free and dutiable goods taken
together 20.55 per cent.
The cost of collecting our internal revenue was 2.78 percent, as
against 2.81 per cent for the fiscal year ending June 30, 1895. The
total production of distilled spirits, exclusive of fruit brandies, was
86,588,703 taxable gallons, being an increase of 6,639,108 gallons over
the preceding year. There was also an increase of 1,443,676 gallons of
spirits produced from fruit as compared with the preceding year. The
number of barrels of beer produced was 35,859,250, as against 33,589,784
produced in the preceding fiscal year, being an increase of 2,269,466
barrels.
The total amount of gold exported during the last fiscal year was
$112,409,947 and of silver $60,541,670, being an increase of $45,941,466
of gold and $13,246,384 of silver over the exportations of the preceding
fiscal year. The imports of gold were $33,525,065 and of silver
$28,777,186, being $2,859,695 less of gold and $8,566,007 more of silver
than during the preceding year.
The total stock of metallic money in the United States at the close
of the last fiscal year, ended on the 30th day of June, 1896, was
$1,228,326,035, of which $599,597,964 was in gold and $628,728,071
in silver.
On the 1st day of November, 1896, the total stock of money of all kinds
in the country was $2,285,410,590, and the amount in circulation, not
including that in the Treasury holdings, was $1,627,055,641, being
$22.63 Per capita upon an estimated population of 71,902,000.
The production of the precious metals in the United States during the
calendar year 1895 is estimated to have been 2,254,760 fine ounces of
gold, of the value of $46,610,000, and 55,727,000 fine ounces of silver,
of the commercial value of $36,445,000 and the coinage value of
$72,051,000. The estimated production of these metals throughout the
world during the same period was 9,688,821 fine ounces of gold,
amounting to $200,285,700 in value, and 169,189,249 fine ounces of
silver, of the commercial value of $110,654,000 and of the coinage value
of $218,738,100 according to our ratio.
The coinage of these metals in the various countries of the world during
the same calendar year amounted to $232,701,438 in gold and $121,996,219
in silver.
The total coinage at the mints of the United States during the fiscal
year ended June 30, 1896, amounted to $71,188,468.52, of which
$58,878,490 was in gold coins and $12,309,978.52 in standard silver
dollars, subsidiary coins, and minor coins.
The number of national banks organized from the time the law authorizing
their creation was passed up to October 31, 1896, was 5,051, and of
this number 3,679 were at the date last mentioned in active operation,
having authorized capital stock of $650,014,895, held by 288,902
shareholders, and circulating notes amounting to $211,412,620.
The total outstanding circulating notes of all national banks on
the 31st day of October, 1896, amounted to $234,553,807, including
unredeemed but fully secured notes of banks insolvent and in process
of liquidation. The increase in national-bank circulation during the
year ending on that day was $21,099,429. On October 6, 1896, when the
condition of national banks was last reported, the total resources of
the 3,679 active institutions were $3,263,685,313.83, which included
$1,893,268,839.31 in loans and discounts and $362,165,733.85 in money
of all kinds on hand. Of their liabilities $1,597,891,058.03 was due
to individual depositors and $209,944,019 consisted of outstanding
circulating notes.
There were organized during the year preceding the date last mentioned
28 national banks, located in 15 States, of which 12 were organized in
the Eastern States, with a capital of $1,180,000, 6 in the Western
States, with a capital of $875,000, and 10 in the Southern States, with
a capital of $1,190,000. During the year, however, 37 banks voluntarily
abandoned their franchises under the national law, and in the case of
27 others it was found necessary to appoint receivers. Therefore, as
compared with the year preceding, there was a decrease of 36 in the
number of active banks.
The number of existing banks organized under State laws is 5,708.
The number of immigrants arriving in the United States during the fiscal
year was 343,267, of whom 340,468 were permitted to land and 2,799 were
debarred on various grounds prescribed by law and returned to the
countries whence they came at the expense of the steamship companies
by which they were brought in. The increase in immigration over the
preceding year amounted to 84,731. It is reported that with some
exceptions the immigrants of the past year were of a hardy laboring
class, accustomed and able to earn a support for themselves, and it
is estimated that the money brought with them amounted to at least
$5,000,000, though it was probably much in excess of that sum, since
only those having less than $30 are required to disclose the exact
amount, and it is known that many brought considerable sums of money to
buy land and build homes. Including all the immigrants arriving who were
over 14 years of age, 28.63 Per cent were illiterate, as against 20.37
Per cent of those of that age arriving during the preceding fiscal year.
The number of immigrants over 14 years old, the countries from which
they came, and the percentage of illiterates among them were as follows:
Italy, 57,515, with 54.59 per cent; Ireland, 37,496, with 7 per cent;
Russia, 35,188, with 41.14 per cent; Austria-Hungary and provinces,
57,053, with 38.92 per cent; Germany, 25,334, with 2.96 per cent;
Sweden, 18,821, with 1.16 per cent; while from Portugal there came
2,067, of whom 77.69 per cent were illiterate. There arrived from Japan
during the year only 1,100 immigrants, and it is the opinion of the
immigration authorities that the apprehension heretofore existing to
some extent of a large immigration from Japan to the United States is
without any substantial foundation.
From the Life-Saving Service it is reported that the number of disasters
to documented vessels within the limits of its operations during the
year was 437. These vessels had on board 4,608 persons, of whom 4,595
were saved and 13 lost. The value of such vessels is estimated at
$8,880,140 and of their cargoes $3,846,380, making the total value of
property imperiled $12,726,520. Of this amount $11,292,707 was saved and
$1,432,750 was lost. Sixty-seven of the vessels were totally wrecked.
There were besides 243 casualties to small undocumented craft, on board
of which there were 594 persons, of whom 587 were saved and 7 were lost.
The value of the property involved in these latter casualties is
estimated at $119,265, of which $114,915 was saved and $4,350 was lost.
The life-saving crews during the year also rescued or assisted numerous
other vessels and warned many from danger by signals, both by day and
night. The number of disasters during the year exceeded that of any
previous year in the history of the service, but the saving of both life
and property was greater than ever before in proportion to the value of
the property involved and to the number of persons imperiled.
The operations of the Marine-Hospital Service, the Revenue Cutter
Service, the Steamboat-Inspection Service, the Light-House Service, the
Bureau of Navigation, and other branches of public work attached to the
Treasury Department, together with various recommendations concerning
their support and improvement, are fully stated in the report of the
Secretary of the Treasury, to which the attention of the Congress is
especially invited.
The report of the Secretary of War exhibits satisfactory conditions in
the several branches of the public service intrusted to his charge.
The limit of our military force as fixed by law is constantly and
readily maintained. The present discipline and morale of our Army are
excellent, and marked progress and efficiency are apparent throughout
its entire organization.
With the exception of delicate duties in the suppression of slight
Indian disturbances along our southwestern boundary, in which the
Mexican troops cooperated, and the compulsory but peaceful return, with
the consent of Great Britain, of a band of Cree Indians from Montana to
the British possessions, no active operations have been required of the
Army during the year past.
Changes in methods of administration, the abandonment of unnecessary
posts and consequent concentration of troops, and the exercise of care
and vigilance by the various officers charged with the responsibility
in the expenditure of the appropriations have resulted in reducing to
a minimum the cost of maintenance of our military establishment.
During the past year the work of constructing permanent infantry and
cavalry posts has been continued at the places heretofore designated.
The Secretary of War repeats his recommendation that appropriations for
barracks and quarters should more strictly conform to the needs of the
service as judged by the Department rather than respond to the wishes
and importunities of localities. It is imperative that much of the money
provided for such construction should now be allotted to the erection
of necessary quarters for the garrisons assigned to the coast defenses,
where many men will be needed to properly care for and operate modern
guns. It is essential, too, that early provision be made to supply the
necessary force of artillery to meet the demands of this service.
The entire Army has now been equipped with the new magazine arms, and
wise policy demands that all available public and private resources
should be so employed as to provide within a reasonable time a
sufficient number to supply the State militia with these modern weapons
and provide an ample reserve for any emergency.
The organized militia numbers 112,879 men. The appropriations for its
support by the several States approximate $2,800,000 annually, and
$400,000 is contributed by the General Government. Investigation shows
these troops to be usually well drilled and inspired with much military
interest, but in many instances they are so deficient in proper arms and
equipment that a sudden call to active duty would find them inadequately
prepared for field service. I therefore recommend that prompt measures
be taken to remedy this condition and that every encouragement be given
to this deserving body of unpaid and voluntary citizen soldiers, upon
whose assistance we must largely rely in time of trouble.
During the past year rapid progress has been made toward the completion
of the scheme adopted for the erection and armament of fortifications
along our seacoast, while equal progress has been made in providing the
material for submarine defense in connection with these works.
It is peculiarly gratifying at this time to note the great advance that
has been made in this important undertaking since the date of my annual
message to the Fifty-third Congress at the opening of its second
session, in December, 1893. At that time I informed the Congress of the
approaching completion of nine 12-inch, twenty 10-inch, and thirty-four
8-inch high-power steel guns and seventy-five 12-inch rifled mortars.
This total then seemed insignificant when compared with the great work
remaining to be done. Yet it was none the less a source of satisfaction
to every citizen when he reflected that it represented the first
installment of the new ordnance of American design and American
manufacture and demonstrated our ability to supply from our own
resources guns of unexcelled power and accuracy.
At that date, however, there were practically no carriages upon which
to mount these guns and only thirty-one emplacements for guns and
sixty-four for mortars. Nor were all these emplacements in condition
to receive their armament. Only one high-power gun was at that time in
position for the defense of the entire coast.
Since that time the number of guns actually completed has been increased
to a total of twenty-one 12-inch, fifty-six 10-inch, sixty-one 8-inch
high-power breech-loading steel guns, ten rapid-fire guns, and eighty
12-inch rifled mortars. In addition there are in process of construction
one 16-inch-type gun, fifty 12-inch, fifty-six l0-inch, twenty-seven
8-inch high-power guns, and sixty-six 12-inch rifled mortars; in all,
four hundred and twenty-eight guns and mortars.
During the same year, immediately preceding the message referred to, the
first modern gun carriage had been completed and eleven more were in
process of construction. All but one were of the nondisappearing type.
These, however, were not such as to secure necessary cover for the
artillery gunners against the intense fire of modern machine rapid-fire
and high-power guns.
The inventive genius of ordnance and civilian experts has been taxed
in designing carriages that would obviate this fault, resulting, it is
believed, in the solution of this difficult problem. Since 1893 the
number of gun carriages constructed or building has been raised to a
total of 129, of which 90 are on the disappearing principle, and the
number of mortar carriages to 152, while the 95 emplacements which were
provided for prior to that time have been increased to 280 built and
building.
This improved situation is largely due to the recent generous response
of Congress to the recommendations of the War Department.
Thus we shall soon have complete about one-fifth of the comprehensive
system the first step in which was noted in my message to the Congress
of December 4, 1893.[37]
When it is understood that a masonry emplacement not only furnishes
a platform for the heavy modern high power gun, but also in every
particular serves the purpose and takes the place of the fort of former
days, the importance of the work accomplished is better comprehended.
In the hope that the work will be prosecuted with no less vigor in the
future, the Secretary of War has submitted an estimate by which, if
allowed, there will be provided and either built or building by the end
of the next fiscal year such additional guns, mortars, gun carriages,
and emplacements as will represent not far from one-third of the total
work to be done under the plan adopted for our coast defenses, thus
affording a prospect that the entire work will be substantially
completed within six years. In less time than that, however, we shall
have attained a marked degree of security.
The experience and results of the past year demonstrate that with a
continuation of present careful methods the cost of the remaining work
will be much less than the original estimate.
We should always keep in mind that of all forms of military preparation
coast defense alone is essentially pacific in its nature. While it gives
the sense of security due to a consciousness of strength, it is neither
the purpose nor the effect of such permanent fortifications to involve
us in foreign complications, but rather to guarantee us against them.
They are not temptation to war, but security against it. Thus they are
thoroughly in accord with all the traditions of our national diplomacy.
The Attorney-General presents a detailed and interesting statement of
the important work done under his supervision during the last fiscal
year.
The ownership and management by the Government of penitentiaries for
the confinement of those convicted in United States courts of violations
of Federal laws, which for many years has been a subject of Executive
recommendation, have at last to a slight extent been realized by the
utilization of the abandoned military prison at Fort Leavenworth as a
United States penitentiary.
This is certainly a movement in the right direction, but it ought to be
at once supplemented by the rebuilding or extensive enlargement of this
improvised prison and the construction of at least one more, to be
located in the Southern States. The capacity of the Leavenworth
Penitentiary is so limited that the expense of its maintenance,
calculated at a per capita rate upon the number of prisoners it can
accommodate, does not make as economical an exhibit as it would if it
were larger and better adapted to prison purposes; but I am thoroughly
convinced that economy, humanity, and a proper sense of responsibility
and duty toward those whom we punish for violations of Federal law
dictate that the Federal Government should have the entire control and
management of the penitentiaries where convicted violators are confined.
It appears that since the transfer of the Fort Leavenworth Military
Prison to its new uses the work previously done by prisoners confined
there, and for which expensive machinery has been provided, has been
discontinued. This work consisted of the manufacture of articles for
army use, now done elsewhere. On all grounds it is exceedingly desirable
that the convicts confined in this penitentiary be allowed to resume
work of this description.
It is most gratifying to note the satisfactory results that have
followed the inauguration of the new system provided for by the act of
May 28, 1896, under which certain Federal officials are compensated by
salaries instead of fees. The new plan was put in operation on the 1st
day of July, 1896, and already the great economy it enforces, its
prevention of abuses, and its tendency to a better enforcement of the
laws are strikingly apparent. Detailed evidence of the usefulness of
this long-delayed but now happily accomplished reform will be found
clearly set forth in the Attorney-General's report.
Our Post-Office Department is in good condition, and the exhibit
made of its operations during the fiscal year ended June 30, 1896,
if allowance is made for imperfections in the laws applicable to
it, is very satisfactory. The total receipts during the year were
$82,499,208.40. The total expenditures were $90,626,296.84, exclusive
of the $1,559,898.27 which was earned by the Pacific Railroad for
transportation and credited on their debt to the Government. There was
an increase of receipts over the previous year of $5,516,080.21, or 7.1
per cent, and an increase of expenditures of $3,836,124.02, or 4.42
percent. The deficit was $1,679,956.19 less than that of the preceding
year. The chief expenditures of the postal service are regulated by law
and are not in the control of the Postmaster-General. All that he can
accomplish by the most watchful administration and economy is to enforce
prompt and thorough collection and accounting for public moneys and such
minor savings in small expenditures and in letting those contracts, for
post-office supplies and star service, which are not regulated by
statute.
An effective cooperation between the Auditor's Office and the
Post-Office Department and the making and enforcement of orders by
the Department requiring immediate notification to their sureties
of all delinquencies on the part of postmasters, and compelling such
postmasters to make more frequent deposits of postal funds, have
resulted in a prompter auditing of their accounts and much less default
to the Government than heretofore.
The year's report shows large extensions of both star-route service and
railway mail service, with increased postal facilities. Much higher
accuracy in handling mails has also been reached, as appears by the
decrease of errors in the railway mail service and the reduction of mail
matter returned to the Dead-Letter Office.
The deficit for the last year, although much less than that of the last
and preceding years, emphasizes the necessity for legislation to correct
the growing abuse of second-class rates, to which the deficiency is
mainly attributable. The transmission at the rate of 1 cent a pound of
serial libraries, advertising sheets, "house organs" (periodicals
advertising some particular "house" or institution), sample copies, and
the like ought certainly to be discontinued. A glance at the revenues
received for the work done last year will show more plainly than any
other statement the gross abuse of the postal service and the growing
waste of its earnings.
The free matter carried in the mails for the Departments, offices, etc.,
of the Government and for Congress, in pounds, amounted to 94,480,189.
If this is offset against buildings for post-offices and stations, the
rental of which would more than compensate for such free postal service,
we have this exhibit:
_Weight of mail matter (other than above) transmitted through the
mails for the year ending June 30, 1896_.
---------------------------------------+--------------+---------------+
Class. | Weight. | Revenue. |
---------------------------------------+--------------+---------------+
|_Pounds._| |
1. Domestic and foreign letters and | | |
postal cards, etc. | 65,337,343 | $60,624,464 |
2. Newspapers and periodicals, | | |
1 cent per pound. | 348,988,648 | 2,996,403 |
3. Books, seeds, etc., 8 cents a pound.| 78,701,148 | 10,324,069 |
4. Parcels, etc., 16 cents a pound. | 19,950,187 | 3,129,321 |
+--------------+---------------+
Total | 512,977,326 | 77,044,257 |
---------------------------------------+--------------+---------------+
The remainder of our postal revenue, amounting to something more than
$5,000,000, was derived from box rents, registry fees, money-order
business, and other similar items.
The entire expenditures of the Department, including pay for
transportation credited to the Pacific railroads, were $92,186,195.11,
which may be considered as the cost of receiving, carrying, and
delivering the above mail matter. It thus appears that though the
second-class matter constituted more than two-thirds of the total that
was carried, the revenue derived from it was less than one-thirtieth of
the total expense.
The average revenue was--
From each pound of first-class matter cents 93.0
From each pound of second class[38] mills 8.5
From each pound of third class cents 13.1
From each pound of fourth class do 15.6
The growth in weight of second-class matter has been from 299,000,000
pounds in 1894 to 312,000,000 in 1895 and to almost 349,000,000 in 1896,
and it is quite evident this increasing drawback is far outstripping any
possible growth of postal revenues.
Our mail service should of course be such as to meet the wants and even
the conveniences of our people at a direct charge upon them so light
as perhaps to exclude the idea of our Post-Office Department being
a money-making concern; but in the face of a constantly recurring
deficiency in its revenues and in view of the fact that we supply the
best mail service in the world it seems to me it is quite time to
correct the abuses that swell enormously our annual deficit. If we
concede the public policy of carrying weekly newspapers free in the
county of publication, and even the policy of carrying at less than
one-tenth of their cost other _bona fide_ newspapers and periodicals,
there can be no excuse for subjecting the service to the further immense
and increasing loss involved in carrying at the nominal rate of 1 cent a
pound the serial libraries, sometimes including trashy and even harmful
literature, and other matter which under the loose interpretation of
a loose statute have been gradually given second-class rates, thus
absorbing all profitable returns derived from first-class matter, which
pays three or four times more than its cost, and producing a large
annual loss to be paid by general taxation. If such second-class matter
paid merely the cost of its handling, our deficit would disappear and
a surplus result which might be used to give the people still better
mail facilities or cheaper rates of letter postage. I recommend that
legislation be at once enacted to correct these abuses and introduce
better business ideas in the regulation of our postal rates.
Experience and observation have demonstrated that certain improvements
in the organization of the Post-Office Department must be secured before
we can gain the full benefit of the immense sums expended in its
administration. This involves the following reforms, which I earnestly
recommend:
There should be a small addition to the existing inspector service,
to be employed in the supervision of the carrier force, which now
numbers 13,000 men and performs its service practically without the
surveillance exercised over all other branches of the postal or public
service. Of course such a lack of supervision and freedom from wholesome
disciplinary restraints must inevitably lead to imperfect service. There
should also be appointed a few inspectors who could assist the central
office in necessary investigation concerning matters of post-office
leases, post-office sites, allowances for rent, fuel, and lights, and
in organizing and securing the best results from the work of the 14,000
clerks now employed in first and second class offices.
I am convinced that the small expense attending the inauguration of
these reforms would actually be a profitable investment.
I especially recommend such a recasting of the appropriations
by Congress for the Post-Office Department as will permit the
Postmaster-General to proceed with the work of consolidating
post-offices. This work has already been entered upon sufficiently to
fully demonstrate by experiment and experience that such consolidation
is productive of better service, larger revenues, and less expenditures,
to say nothing of the further advantage of gradually withdrawing
post-offices from the spoils system.
The Universal Postal Union, which now embraces all the civilized world
and whose delegates will represent 1,000,000,000 people, will hold its
fifth congress in the city of Washington in May, 1897. The United States
may be said to have taken the initiative which led to the first meeting
of this congress, at Berne in 1874, and the formation of the Universal
Postal Union, which brings the postal service of all countries to every
man's neighborhood and has wrought marvels in cheapening postal rates
and securing absolutely safe mail communication throughout the world.
Previous congresses have met in Berne, Paris, Lisbon, and Vienna, and
the respective countries in which they have assembled have made generous
provision for their accommodation and for the reception and
entertainment of the delegates.
In view of the importance of this assemblage and of its deliberations
and of the honors and hospitalities accorded to our representatives by
other countries on similar occasions, I earnestly hope that such an
appropriation will be made for the expenses necessarily attendant upon
the coming meeting in our capital city as will be worthy of our national
hospitality and indicative of our appreciation of the event.
The work of the Navy Department and its present condition are fully
exhibited in the report of the Secretary.
The construction of vessels for our new Navy has been energetically,
prosecuted by the present Administration upon the general lines
previously adopted, the Department having seen no necessity for radical
changes in prior methods, under which the work was found to be
progressing in a manner highly satisfactory. It has been decided,
however, to provide in every shipbuilding contract that the builder
should pay all trial expenses, and it has also been determined to pay no
speed premiums in future contracts. The premiums recently earned and
some yet to be decided are features of the contracts made before this
conclusion was reached.