Among those nations which entered upon a season of constitution making and popular reform before administration had received the impress of liberal principle, administrative improvement has been tardy and half done. Once a nation has embarked upon the business of manufacturing constitution, it finds it exceedingly difficult to close out that business and open a bureau of skilled, economical administration. It is harder for democracy to organize administration than for a monarchy. Administrative questions are not political questions. A clear view of the difference between the province of constitutional law and the province of administrative function leave no room for misconception.
Public administration is detailed and systematic execution of public law.
Every particular application of general law is an act of administration. There is no danger in power, only if it is not irresponsible. It will be necessary to organize democracy by sending up to the competitive examinations for the civil service men definitely prepared for standing liberal tests as to technical knowledge. We can never learn either our weaknesses or our virtues by comparing ourselves with ourselves.