CHAPTER V-THE STRUCTURE OF GOVERNMENT AND THE POWERS, DUTIES AND
LIMITATIONS OF OFFICERS....

CHAPTER IV-Continued

PAGE

Conditions of public employment-Continued

Summary of principal defects in employment conditions..

48

Summary of related defects...

48

Causes for present conditions....

48

Steps taken to improve present conditions; the senate committee on

civil service

Need for preconception of structural plan..

Common structural essential of a representative system.

Types of organization for administration....

The committee or commission type....

Revolutionary expedients-English and American.

American committees of safety.....

The failure of committee systems..

The commission form of government..

Administration under a responsible chief executive..

Distinguishing characteristics of type.....

All responsible, but differing degrees of success in development of

efficiency

An independently organized administration without leadership......

The mechanism for making management responsible recent in its de-

velopment

The English rule limiting the cabinet personnel to responsible officers

not adopted till 1801

A single responsible head not recognized in England till after the

American Revolution

The mechanism for carrying issues before the electorate not per-

fected until after 1832 ...

Means for making control through representatives effective, not

generally adopted in Europe till after 1848......

56

The isolated development of the American type of representative

government

57

All real gains in American government have been in the direction of

the second type .....

58

The fundamental question for the convention...

58

CHAPTER VI-ORGANIZATION AND PROCEDURE OF THE LEGISLATURE.

Indictments of the present organization and procedure of the legislature

The organization and procedure have worked badly.....

Experience in other governments similarly organized...

Not adapted to the work to be done......

59

59

60

60

60

The bicameral organization originally founded on class interests....

Number of members of the legislature not determined by standards

The relation of members to constituencies...

The relation of members to committee work and debate.

62

64

64

65

PAGE

CHAPTER VI-Continued

Legislature not complementary to other working parts..

Rules governing legislature in session out of harmony with purpose..

Rules governing not adapted to enforcing responsibility......

Legislature in conflict with authority and jurisdiction of the executive..

Standing committees not adapted to the proper consideration of measures

either of legislation or administration...

Legislative staff agencies

CHAPTER VII-CONSTITUTIONAL PROVISIONS DEFINING THE RELATIONS OF

LEGISLATURE AND EXECUTIVE.

Responsibility for use of executive power implies leadership..

Need for executive leadership understood at time of first constitution....

Two important ways in which governor is recognized as leader...

His duty to recommend measures.

His power to call representatives together in extra session...

Lacking in means for making leadership effective.....

Right to introduce and defend measures necessary to effective leader-

ship ......

Argument opposed to the principle not well founded..

Executive leadership essential to preservation of separation of powers.

Executive leadership essential to safe use of veto power...

An alternative to invisible government....

No provision for leadership in matters of economy.

Executive veto to items in money measures only a palliative..

Uncertainty of operation of negative power.....

76

76

76

77

Positive requirements under present system ineffective....

Constitutional requirement of executive to frame, submit and defend

77

money bills

77

Constitution lacking in means for enforcing executive responsibility.

No provision for making the "opposition" effective.....

78

78

No provision for the prompt retirement of officers who are not supported

by a majority..

78

No power of executive dissolution..

78

8888

Historic reasons for failure to adopt constitutional plan that provides for

responsive and responsible government...

79

Provision made to prevent a misuse of the powers of government...

Use of the governor as a negative force against the legislature...

The use of the courts as a negative force..

New York practice a perversion of the principle of representative gov-

Defects of the constitution and statute law providing for current review

and approval of financial transactions..

Principles governing determination as to whether executive control

Application of general principles to functional groups.
"Governor" or "chief executive "...

CHAPTER VIII—Continued

Provisions of constitutional law in New York....

Defects of the present constitutional provisions..

Defects in legislation governing the office...

The present organization of the office...

Organic changes provided for in recent bill.

CHAPTER IX-THE GOVERNOR AND THE ADMINISTRATION.

Problems of management......

Proprietary functions and problems...

What is meant by "administration ".

Public service functions and problems...

General requirements of organization for administration..

Executive and departmental organization of the state.....

should be centralized ....

CHAPTER X-ORGANIZATION FOR THE ADMINISTRATION OF THE STATE'S PRO-

PRIETARY AND OTHER GENERAL FUNCTIONS....

105

.....

Present agencies of the state included in the proprietary group.

105

Need for correlation of official action and responsibility involved in

the handling of proprietary activities..

106

CHAPTER XII-ORGANIZATION FOR THE ADMINISTRATION OF PUBLIC SERVICE

FUNCTIONS

124

The need for grouping services for purposes of administration......

Part I-Organization for the administration of activities having to do

with the promotion of agriculture and industry...

124

124

Conservation department

The state fair commission...

Experiment station at Geneva....

Lack of correlation of related functions....

125

126

127

127

Need for change in tenure of office of commissioner of agriculture..

Improve co-ordination of functions within the department of agri-

128

culture suggested ....

128

Staff advisory council suggested....

129

Part II-Organization for the administration of public works functions

Organizations now carrying on these functions...

129

130

Part III-Organization for administration of public education..

Executive functions of department of education......

Conditions unfavorable to localization and enforcement of responsi-

Multiplicity of lines of control in the department of education..

Lack of centralization of collateral educational functions.....

141

141

Lack of machinery for the development of work and efficiency pro-

grams

Problems of state educational policy..

142

142

CHAPTER XII-Continued

Part III-Continued

PAGE

The unit for local administration of public education..

Provisions for free text-books throughout the state...

in city school districts......

143

144

The codification of laws for the administration of public education

Provisions for a permanent and continuing census..

Provision for more adequate record and report of school finances..

Part IV-Organization for administration of state institutions for the

care of delinquents, defectives and dependents.....

Financial support of state institutions....

Summary of existing organization and exercise of state authority...

Penal institutions

144

144

144

145

146

146

146

Board of examiners of feeble-minded criminals and other defectives.

148

Part V-Organization for the administration of public health functions.

158

Need for closer relation of legislative council to executives...

165

Economy through better organization.......

166

Indeterminate tenure of office desirable........

166

Part VI-Organization for the administration of state activities having

to do with industrial relations....

167

Scope of state function of regulation of industrial relations...