The office and powers of the governor of Arizona Item Type text; Thesis-Reproduction (electronic) Authors Dickinson, Joel Ray Publisher The University of Arizona. Rights Copyright © is held by the author. Digital access to this material is made possible by the University Libraries, University of Arizona. Further transmission, reproduction or presentation (such as public display or performance) of protected items is prohibited except with permission of the author. Download date 25/09/2021 08:22:29 Link to Item http://hdl.handle.net/10150/551822 THE OFFICE AND POWERS OF THE GOVERNOR OF ARIZONA by Joel Ray Dickinson A Thesis Submitted to the Faculty of the DEPARTMENT OF GOVERNMENT In Partial Fulfillment of the Requirements For the Degree of MASTER OF ARTS In the Graduate College THE UNIVERSITY OF ARIZONA 19 6 6 STATEMENT BY AUTHOR This thesis has been submitted in partial fulfillment of requirements for an advanced degree at The University of Arizona and is deposited in the University Library to be made available to borrowers under rules of the Library. Brief quotations from this thesis are allowable without special permission, provided that accurate acknowledgment of source is made. Requests for permission for extended quotation from or reproduction of this manuscript in whole or in part may be granted by the head of the major department or the Dean of the Graduate College when in his judgment the proposed use of the material is in the interests of scholarship. In all other instances, however, permission must be obtained from the author. SIGNED: APPROVAL BY THESIS DIRECTOR This thesis has been approved on the date shown below: Q D. A. BINGHAM / 'Date Associate Professor of Government and Public Administration ACKNOWLEDGMENTS I have been much aided by others— to "whom I want to make acknowledgment here. My major professor, Dr. David A. Bingham, encouraged and aided the effort throughout. His suggestions and corrections, as well as his guidance in locating and evaluating research material, have been invaluable to the study. A special appreciation goes to the following: John M. McGowan, Administrative Assistant to Governor Paul Fannin; Paul Fannin, Governor of Arizona, 1958 to 1964; and numerous members of the Arizona state legislature. I am indebted to the Special Collections Division of the University of Arizona Library and the Arizona State Library and Archives for research materials and study facilities which, without their kind assistance, would have proved difficult to obtain. I would like to express my thanks to all those who made it possible for me to conduct this study, especially to the Bureau of Business and Public Research at the University of Arizona, which extended me an assistantship during part of my study, and to my parents, Mr. and Mrs. Lawrence C. Dickinson. Lastly, a note of gratitude to my wife for her consideration, constant encouragement, and editing assistance. iii TABLE OF CONTENTS CHAPTER PAGE I. INTRODUCTION ............................................. 1 The Problem ............. ............ .. 1 Statement of the problem ........................... 1 II. A “MODEL” EXECUTIVE BRANCH.............................. 9 Public Opinion and Administrative Reorganization in Arizona ........................................... 13 The period of 1 9 2 1 ...................................13 The period of 1930-1933 ................ 18 The period of 1 9 ^ 1 ...................................24 The period of 1950-1953 .......................... 2? The Constructed "Model"............................. 36 Principles of administrative organization ..... 36 Term of office ........................ ...... 38 Time of election .................. 4l The executive p o w e r s .................... 42 The legislative powers ............... 51 H I . THE LEGAL-POLITICAL POWERS AID OFFICE OF THE G O V E R N O R ....................................... 53 The Legal Powers................... 53 Constitutional powers ....... .............. 53 Statutory po w e r s .....................................70 iv CHAPTER PAGE The Political-Traditional Powers .......... ..... 88 Development and Adequacy of the Governor’s Staff ............................................ 101 IV. THE ARIZONA EXPERIENCE: POWERS AND CONTROLS ...... 110 The Executive Powers in Practice ........... 110 The budgetary p o w e r s ...............................110 Appointing and removal powers: The short ballot concept ................ 114 Term and election ...................... ..... 119 The Legislative Powers in Practice .......... 120 The veto and item veto ........................ 120 The recommending or message power . ............. 124 The special session p o w e r ...........................129 Controlling the Strengthened Governor ................. 134 Impeachment .................................. 135 The recall .... .............. ........ 136 Popular election ................................ 137 Legislative oversight ....... .......... .. 139 V. ADMINISTRATIVE REORGANIZATION AND THE FU T U R E ............ l4l Arguments against Reorganization ................ 143 Some Guidelines for the Future .............. 149 vi CHAPTER PAGE APPENDIXES.................................................... 153 APPENDIX A. Text of Governor's Statutory Civil Defense Powers .................. 153 APPENDIX B. Arizona State Government and Administration C h a r t .......................................... 161 APPENDIX C. Griffenhagen*s Reorganization Proposals— Arizona ............ 162 BIBLIOGRAPHY.................................................. 163 LIST OF TABLES TABLE PAGE I. Governor*s Staff Positions and the Numbers of Personnel Assigned to Each, at Ten-Year Intervals During the Base Period 1911-1912 to I96O-I96I ..................... 103 vii ABSTRACT This thesis first constructs a “model" state executive branch that serves as a reference for the reader as he moves through the study. The source materials from "which this model is shaped include the most promising and challenging of the administrative reorganization principles and concepts that have been set forth in myriad publications and the view adopted by the average member of the Arizona polity with respect to the functions and responsibilities of the governor and his adminis­ tration. The governor's legal, political, and traditional powers are set forth, and the historical development and present adequacy of the governor's immediate office staff is studied. The thesis then indicates the weaknesses in the governor's budget and appointing-removal powers and compares the chief executive's powers in other areas with the constructed model. Methods for controlling the strengthened governor are discussed, along with proposals for increasing the authority and efficiency of the Arizona legislature. The study concludes with the assumption that the model represents the desired ends that the state's executive machinery should achieve and indicates that administrative reforms have been challenged and continue to be challenged by strong critical argument. Some guidelines to aid reorganization sponsors in achieving their goals are included. viii CHAPTER I INTRODUCTION The organization of the state executive branch and, more specifically, the office of the governor and his powers have been the subject of widespread, extensive studies and analyses throughout the United States. The fertile field of Arizona politics and government has afforded the student of political science an excellent opportunity for research in this extremely important area. The present study is intended to be a contribution to the knowledge of those in Arizona who seek to understand better the fascinating subject of their state government. I. THE PROBLEM Statement of the Problem The proponents of administrative reorganization have maintained since the early 1900*s that the chief executives of American states are handicapped in their attempts to perform their duties as elected public servants by inadequate powers and inefficient administrative organization. No state has escaped the constructive criticisms and suggestions put forth by these reformers. Some states have responded by revamping, either in part or completely, their executive branches in accordance with the reorganization principles which promise a sounder, more efficient execution of the functions of the modern 1 2 state government. Others have not. Arizona is a member of the latter group having experienced no major change in its executive machinery since the achievement of statehood in 1912. That a continued effort will be made to obtain some measure of administrative reorganization in Arizona government is indicated by this observation from Dr. Robert E. Riggs, Research Associate of the Bureau of Business and Public Research of the University of Arizona: What is the future of administrative reorganization in Arizona? It is not currently a major issue, nor has it been since 195^• On the basis of past experience, however, one can safely predict that reorganization will come again to prominence in Arizona politics— possibly within five years, almost certainly within the decade. The basic condition of governmental expansion and proliferation which gave substance to demands for reorganiza­ tion in the past has continued its inexorable march. Such growth cannot be ignored. It does not guarantee that reorganization will take place but it does guarantee periodic outbursts of demand for reorganization, as well as almost constant piecemeal efforts to accommodate the growth pressures.^ This movement is based