BEWILDERING COMPLEXITY OF ADMINISTRATIVE OFFICES

In all states the governor “shall take care that the laws be faithfully executed” (Pennsylvania constitution).  For the execution of the laws, however, he is dependent not only upon a number of principal executive officers such as those named above, but also upon a large number of less important administrative officers.  Governor Lowden, of Illinois, a few years ago said: 

Administrative agencies have been multiplied in bewildering confusion.  They have been created without reference to their ability economically and effectively to administer the laws.  Separate boards govern the penitentiaries, the reformatories, and the educational institutions.  Several boards and commissions have charge of matters affecting the agricultural interests.  Administration of laws affecting labor is parceled out among numerous agencies, including several boards having jurisdiction of mining problems and several free employment agencies, each independent of the other.  Our finance administration is chaotic, illogical and confused.

The administration of the health laws is divided between boards and commissions, with no effective means of coordination.  Our educational agencies are not harmonious.  Over one hundred officers, boards, agencies, commissions, institutions and departments are charged with the administration of our laws.  No systematic organization exists, and no adequate control can be exercised ...  Under the present system the governor cannot exercise the supervision and control which the people have a right to demand. [Footnote:  Charles E. Woodward, “The Illinois Civil Administrative Code,” reprinted from Proceedings, Academy of Political Science, July, 1918.]

GOVERNOR LACKS POWER TO MEET HIS RESPONSIBILITY

This condition of affairs is characteristic of state governments generally.  Some of the numerous officers are appointed by the governor, but many of them are elected by the people or appointed by the legislature.  Their terms of office do not coincide with that of the governor, so that he finds in office many persons whom he did not appoint, and whom he cannot remove.  Often they may be of an opposite political party.  Thus the very organization of the state executive department is such as to make it impossible for the governor to perform the duty, imposed upon him by the constitution, of seeing to it that the laws are faithfully executed.  It must be remembered, moreover, that the execution of the laws is also dependent largely upon a multitude of local officers over whom the state exercises little control.  It is apparent how imperfect must be the teamwork of the people through this organization.

UNSUCCESSFUL EFFORTS AT POPULAR CONTROL