American State Executive Systems

T HE ACTUAL NATURE of American state executive arrangements has received only meagre attention from political scientists.' Traditionally the ineffectiveness, irresponsibility, and unresponsiveness of a number of relatively independent elective and appointive officials empowered to conduct state executive affairs has been assumed. Primary concern has centered upon reform of the executive establishment through the application of orthodox principles of organization. These cardinal tenets require, among other things, centralization of the executive function, elimination of boards, and separation of policy-making from administration. Reorganization based upon these principles, it was assumed, would inevitably result in more efficient and responsible government.2 Yet serious doubts persisted concerning this approach to administrative practice.3 Attempts to reform the basic structure of state executives according to the established tenets were sometimes conspicuous failures.4 Investigation has disclosed that state agencies play an active role in legislative policy-making.5 Fundamental state executive activities performed by state officials other than the governor were often neglected or subordinated because of the requirements of the traditional approach. These other executive officers are often independently elected or appointed under conditions which establish effective separation from gubernatorial supervision. Some of the activities conducted by these officers, such as educational and highway programs, often account for well in excess of 50 per cent of an annual state budget.6 The inadequacies of the traditional approach have become more apparent. One of the major assertions, that which declares policy can be separated from administration, is a demonstrable fiction.' Today the actual functioning of an organization

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