The Differences in Method. 
331 
discretion lodged in an individual, and where it is so lodged it 
is confined to some narrowly circumscribed department of busi¬ 
ness. The second great difference between the methods of priv¬ 
ate and public business is therefore this, that in the latter the 
officer must, in every important step, have the consent of others. 
A large portion of all public business is transacted by com¬ 
mittees, boards, and similar bodies, the members of which are 
of equal authority individually, and the acts of which are done 
according to majority votes. Furthermore, the entire system 
of administration is split up into a number of co-ordinate de¬ 
partments. These are not, ordinarily, subordinate to a central 
directing authority, but are each independent within its sphere, 
and at most responsible for results rather than for the details 
of their work to a central body. This central body, in the form 
of a legislature, common council, or similar institution, com¬ 
monly has power to make general rules, provide the necessary 
funds and inquire into the conduct of the administrative officers, 
but rarely issues direct executive orders. 
This elaborate division and co-ordination of powers is a ne¬ 
cessity flowing from the principles of representative govern¬ 
ment. But the independence of the various departments is an 
abstraction rather than a reality. As a matter of practice, 
there is hardly any business of importance in which two or 
more of the departments are not concerned. It is necessary, 
therefore, for the efficient dispatch of business that the differ¬ 
ent departments do not work at cross purposes; that their sys¬ 
tems and habits correspond; that the personnel work harm¬ 
oniously into each other’s hands. 
It appears, therefore, that one of the most important qualities 
of a public official is the ability to work with others over whom 
he has no control. The assistants of the private business man 
are his subordinates. They must obey his orders, and if they 
will not or cannot do so, he may discharge them. The public 
officer has often but limited power of enforcing obedience even 
on the part of those w’ho are his subordinates. But besides his 
subordinates he has to deal with others who are co-ordinate in 
authority with him, and over whom he has no control except 
that based on persuasion. 
