A similar distinction exists in regard to the constitution of the
executive departments of administration. Their machinery is good, when
the proper tests are prescribed for the qualifications of officers,
the proper rules for their promotion; when the business is
conveniently distributed among those who are to transact it, a
convenient and methodical order established for its transaction, a
correct and intelligible record kept of it after being transacted;
when each individual knows for what he is responsible, and is known to
others as responsible for it; when the best-contrived checks are
provided against negligence, favouritism, or jobbery, in any of the
acts of the department. But political checks will no more act of
themselves than a bridle will direct a horse without a rider. If the
checking functionaries are as corrupt or as negligent as those whom
they ought to check, and if the public, the mainspring of the whole
checking machinery, are too ignorant, too passive, or too careless and
inattentive, to do their part, little benefit will be derived from the
best administrative apparatus. Yet a good apparatus is always
preferable to a bad. It enables such insufficient moving or checking
power as exists to act at the greatest advantage; and without it, no
amount of moving or checking power would be sufficient. Publicity, for
instance, is no impediment to evil nor stimulus to good if the
public will not look at what is done; but without publicity, how could
they either check or encourage what they were not permitted to see?
The ideally perfect constitution of a public office is that in which
the interest of the functionary is entirely coincident with his
duty.
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