n Story's
"Commentaries," Senator Pendleton attributed the inefficiency of
national government to the sharp separation of Congress from the
Administration--a separation not required by the Constitution but made
by Congress itself and subject to change at its discretion. He proposed
to admit the heads of executive departments to participation in the
proceedings of Congress. "This system," said he, "will require the
selection of the strongest men to be heads of departments, and will
require them to be well equipped with the knowledge of their offices.
It will also require the strongest men to be the leaders of Congress and
participate in the debate. It will bring those strong men in contact,
perhaps into conflict, to advance the public weal and thus stimulate
their abilities and their efforts, and will thus assuredly result to
the good of the country."* The report--signed by such party leaders as
Allison, Blaine, and Ingalls among the Republicans, and by Pendleton and
Voorhees among the Democrats--reviewed the history of relations between
the executive and legislative branches and closed with the expression of
the unanimous belief of the committee that the adoption of the measure
"will be the first step towards a sound civil service reform, which will
secure a larger wisdom in the adoption of policies, and a better system
in their execution."

* "Senate Report," No. 837, 46th Congress, 3d session, February
4, 1881.

No action was taken on this proposal, notwithstanding the favor
with which it was regarded by many close students of the political
institutions of the country. Public opinion, preoccupied with more
specific issues, seemed indifferent to a reform that aimed simply at
general improvement in governmental machinery. The legislative calendars
are always so heaped with projects that to reach and act upon any
particular measure is impossible, except when there is brought to bear
such energetic pressure as to produce special arrangements for the
purpose, and in this case no such pressure was developed. A companion
measure for civil service reform which was proposed by Senator Pendleton
long remained in a worse situation, for it was not merely left under the
congressional midden heap but was deliberately buried by politicians who
were determined that it should never emerge. That it did emerge is due
to a tragedy which aroused public opinion to an extent that intimidated
Congress.

Want of genuine politica