GOVERNORS The State of the States: Governors Mirror New Administration Priorities By Katherine Willoughby 7KHIXOOIRUFHRIWKHÀVFDOWVXQDPLKDVEHHQIHOWE\DOOVWDWHV*RYHUQRUVDUHZHDU\RIWKH EDGQHZVDQGDQ[LRXVDERXWNHHSLQJVWDWHRIÀFHVRSHQSURJUDPVRSHUDWLQJDQGVXSSRUWÁRZLQJ WRWKHSXEOLF*RYHUQRUVDSSULVHUHVLGHQWVLQWKHLUVWDWHVDERXWWKHLUEXGJHWDQGSROLF\GLUHFWLRQ HDFK\HDUWKURXJKVWDWHRIVWDWHDGGUHVVHV7KLVUHVHDUFKDVVHVVHVWKHDGGUHVVHVWRGHWHUPLQH 1 WKHIRFXVRIVWDWHOHDGHUV·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³LVVXHVWKDWKDYHEHHQVSHFLÀFDOO\WDUJHWHGE\WKHQHZDGPLQLVWUDWLRQLQ:DVKLQJWRQ

The Politics The majority of governors’ seats are held by tisan legislature.) Seventeen states can be labeled Democrats in 2009—29 governors are Democratic Democratic with a Democratic governor and major- and 21 are Republican. The 2008 gubernatorial elec- ity Democratic legislature; eight states are Republi- tions yielded a party change only in Missouri, from can. The states break down in terms of party control one-term Republican Matt Blunt to Democrat Jay accordingly: Nixon. In , Democrat Jack Markell beat the ‡ Eight with Republican governor and legislature Republican challenger and replaced Democrat Ruth ‡ One with Republican governor and unicameral Ann Minner, whose second term ended this year. In legislature North Carolina, Democrat Beverly Perdue beat her Two with Republican governor and split Republican challenger to replace Mike Easley, who ‡ legislature also completed his second term. Incumbent Demo- crat governors in Montana, New Hampshire, Wash- ‡ 10 with Republican governor and Democratic ington and West Virginia were re-elected in 2008, legislature while incumbent Republican governors in Indiana, ‡ Six with Democratic governor and Republican North Dakota, Utah and Vermont were re-elected to legislature the top spot in those states. ‡ Six with Democratic governor and split legislature The election of President and the ‡ 17 with Democratic governor and legislature majority Democratic Congress undoubtedly pushed state legislatures to Democrat majorities as well. Today, both houses of the legislature are majority The Fiscal Picture Democratic in 27 states, up from 23 in 2008; in 14 In the recent past, states had begun to crawl out states both houses are majority Republican. Eight of the economic decline of 2002 and 2003. In fact, states have split legislatures in which the house and by 2006, most states increased funding for existing senate have different party majorities, down from a SURJUDPVEH\RQGLQÁDWLRQDU\DPRXQWVFUHDWHGQHZ dozen states last year. Democrats gained three state programs, replenished budget stabilization or other houses from last year—33 state houses are majority contingency funds, lent increased support to local Democratic and 16 are majority Republican. On the governments and many even increased pension con- senate side, Democrats gained two states—29 are tributions and cut taxes.2 Unfortunately, however, by majority Democratic and 20 are majority Republi- 2008, the entire nation’s economy was beginning a can in 2009. (Nebraska has a unicameral, nonpar- free fall. And, according to McNichol and Lav, the

The Council of State Governments 161 GOVERNORS

Figure A: Total Gap as a Percent of Fiscal Year 2009 General Fund

6RXUFH: “State Budget Troubles Worsen,” by Elizabeth McNichol and Iris J. Lave (February 10, 2009). Posted by the Center for Budget Policy and Priori- ties at: KWWSZZZFESSRUJVISKWP. total state budget shortfall for 2009 is expected to cal 2009 state budgets are being revisited, programs close in on $100 billion. Estimated shortfalls for are being sliced and then cut again; to date, state 2010 equal $145 billion and for 2011 state budget programs and activities across the nation have been gaps are estimated at $180 billion. Figure A illus- severely compromised. In the words of Connecticut trates McNichol and Lav’s tabulation of shortfalls Gov. Jodi Rell, “the cuts that must be made will be greater than 5 percent in 2009 general fund budgets deep and they will affect every agency, every program in 35 states. According to the authors, nine other and every service provided by state government.” states have total gaps under 5 percent of each state’s What’s on the Agenda? ÀVFDOJHQHUDOIXQG-XVWVL[VWDWHV³0RQWDQD Nebraska, North Dakota, Texas, West Virginia and Governors last year held “kitchen table” con- Wyoming—do not indicate a current year gap.3 The versations with residents, keeping their budget and revenue outlook is bleak; 28 percent of states have policy agendas short, not wanting to overreach with increased taxes and, according to a Center for Budget spending promises in the face of a deteriorating and Policy Priorities report, “governors in six more economy. This year, governors are even more direct states have proposed new revenue measures.”4 Fis- ZLWKWKHEDGQHZV´7KLVÀVFDO\HDUZLOOEHPDUNHG

162 The Book of the States 2009 GOVERNORS

Table A: Issues Expressed by Governors in State of the State Addresses, 2007–2009

  SHUFHQWDJH SHUFHQWDJH SHUFHQWDJH   RIJRYHUQRUV RIJRYHUQRUV RIJRYHUQRUV   PHQWLRQLQJLVVXH PHQWLRQLQJLVVXH PHQWLRQLQJLVVXH  ,VVXHH[SUHVVHGE\JRYHUQRUV 1   1   1  Education 100.0% 90.5% 86.4% Economic development/tourism 79.5 81.0 79.5 Health care 86.4 83.3 79.5 Natural resources/energy 84.1 71.4 79.5 Tax/revenue initiative 84.1 59.5 65.9 Transportation/roads/bridges 52.3 59.5 65.9 Military troops/veteran recognition 68.2 73.8 63.6 Performace/accountability 72.7 42.9 52.3 Safety/corrections 75.0 59.5 50.0 Surplus/rainy day/reserves 70.5 54.8 45.5 Transparency 20.5 14.3 31.8 Local government 52.3 35.7 20.5 Pensions/OPEB 36.4 21.4 18.2 Ethics reform 13.6 11.9 15.9 Borders/illegal immigrants 11.4 16.7 6.8 Debt reduction 13.6 9.5 4.5

6RXUFH: Content analysis of 2007 and 2008 State of the State Addresses from Table C of Katherine G. Willoughby, 2008, “The State of the States: Gover- nors Keep Agendas Short,” 7KH%RRNRIWKH6WDWHV, Vol. 40 (Lexington, KY: The Council of State Governments): 157–64; Content analysis of 2009 State of State Addresses conducted by Tanya Smilley and Soyoung Park, Ph.D. candidates, Public Policy, Andrew Young School of Policy Studies, Georgia State University, Atlanta, Georgia.

E\WKULIWDQGVDFULÀFHµVDLG2NODKRPD*RY%UDG content analysis presented here. The only deviation Henry. Vermont Gov. concurs that “The from this protocol regards mention by a governor SKLORVRSK\RIVKDULQJWKHVDFULÀFHEURDGO\PXVWEH of military troops, family and veterans. A governor part of any proposal we advance.” recognizing service on the part of these individu- In the analysis of the content of governors’ state of als and/or indicating thanks for this service, with state addresses this year, as in the past, topics were or without recommending some future support to FRQVLGHUHGDGGUHVVHGLIWKHFKLHIH[HFXWLYHVSHFLÀ- such personnel, received a check for this issue in cally discussed them as relevant to state operations Table A. In 2009, just slightly less than two-thirds and the budget JRLQJIRUZDUG. That is, the governor of governors—10 percent less than the proportion of needed to relay that the function, activity or issue is governors last year—recognize their military service DQLPSRUWDQWLWHPLQQH[W\HDU·V³ÀVFDO³EXG- personnel and/or veterans in state of state addresses get and policy direction. More often than not, the to their residents. governor laid out relevant funding and/or program- Examination of governors’ addresses in 2007, matic issues related to the state function and/or 2008 and 2009 suggests that as the economy wors- agenda item in some detail. That is, just mentioning ened, state chief executives’ consideration of the a state function or policy area like transportation in various issues did change. While primary agenda a speech did not generate a checkmark for this issue items remain education, health care, economic as an agenda item addressed by a governor. Further, development, and natural resources and energy, a review by the governor of past accomplishments gubernatorial mention of issues differed across alone in any particular issue area did not count in the years. Not surprisingly, given the political swing

The Council of State Governments 163 GOVERNORS of the nation and states, Table A indicates that state nor asserted both no tax increases and maintenance chief executives honed in on issues important to the of the state’s cash reserve. Gov. said new administration in Washington, D.C. That is, a Nebraskans need tax relief and his budget continues smaller percentage of governors than last year pre- to fund a $230 million property tax credit program, sented their concerns and initiatives regarding all DQGKHSODQQHGIRU]HURUHYHQXHJURZWKLQÀVFDO state functional areas, except natural resources and 2010. The governor considers the state’s cash reserve energy, and transportation, roads and bridges. In line as a method for preventing tax increases; he plans on with President Obama’s focus on green energy and maintaining a strong reserve while using $40 million capital investment—both to upgrade the nation’s of the fund annually over the next two years. deteriorating transportation infrastructure as well Of governors pushing tax increases, most endorsed as to pump up the economy—governors were more either increased or new earmarked revenues like likely this year than last to specify initiatives in these highway and transportation related taxes and fees areas. This research highlights the gubernatorial dis- (Hawaii and Idaho) or increased taxes on tobacco cussions of those topics receiving more attention this products (Kentucky, New Hampshire, Pennsylvania, year than last year—including taxes and revenues, South Carolina, Virginia and West Virginia). Penn- natural resources and energy, transportation, and per- sylvania Gov. asked for a tax on natural formance, transparency and ethics. gas extraction, and South Carolina Gov. Mark San- ford called for increased taxes and fees associated Tax and Revenue Initiatives with garbage (dumping within state borders) in addi- The increased attention to revenues and tax issues tion to an increase in tobacco taxes. As a way to more by governors this year is not unusual. Perhaps no strongly support local governments, Wyoming Gov. governor was more direct about his state’s money Dave Freudenthal asked residents to support elimi- problems than California Gov. Arnold Schwarzeneg- nation of the state’s “sales and use tax exemption on ger. He held his state of state address to less than 10 wind energy projects. I’ve heard from any number of minutes with a plea for collaboration and consensus county commissioners that they are dealing with the within the legislature and across branches EHIRUH he impact of the development of wind energy, and they would deliver his budget and policy agenda to the have no revenue. I acknowledge that it is appropriate state. Rather, according to the governor, “Address- for me to ask because I asked you (for) the exemp- LQJWKLVHPHUJHQF\LVWKHÀUVWDQGPRVWLPSRUWDQW WLRQLQWKHÀUVWSODFH$QGZHGLGWKDWEHFDXVHZH and greatest thing that we must do for the people of wanted to signal that Wyoming is ready for business, &DOLIRUQLD7KHELOOLRQGHÀFLWLVDURFNXSRQRXU particularly with regard to wind energy.” chest that we cannot breathe until we get it off. It doesn’t make any sense for me to … stand in front Natural Resources and Energy of you and talk about education or infrastructure, A larger proportion of governors this year than or water, or health care reform and all those things last discussed natural resources and energy issues in ZKHQZHKDYHWKLVKXJHEXGJHWGHÀFLWµ their state of state addresses. Most governors sought Other governors discussing revenues in their to link into President Obama’s push for conserva- addresses in 2009 called for holding steady on taxes tion, the development of renewable and clean energy (no increases), cutting taxes or expanding tax cred- and to wean Americans from dependence on foreign its, or asked for new or changed dedicated revenues oil, as evidenced in his stimulus package and budget (such as highway taxes and fees), or recommended proposals. Some governors were explicit, including increases to tobacco taxes. Governors in Alabama, Colorado Gov. Bill Ritter who said, “I’m working Arizona, Indiana, Iowa, Kansas, Missouri, Montana, with our congressional delegation and the incoming Nebraska, Nevada, New Mexico, South Dakota and Obama administration to ensure the federal recovery Vermont pushed for no tax increases. Those in Arkan- package includes funds for transmission lines and sas, Massachusetts, Minnesota, New York, North other clean-energy projects.” Dakota and Montana called for some sort of tax cut State chief executives presented numerous ideas or cap (property taxes) or the elimination of a tax. for advancing “green” living. Several talked of their For example, Montana Gov. Brian Schweitzer called support for requirements regarding the construction for doing away with the business equipment tax for of new homes, schools and/or state buildings that 90 percent of businesses in the state. Governors in include using green products and that upon comple- Minnesota, New Jersey and Ohio discussed new and/ WLRQWKH\EHHQHUJ\HIÀFLHQWDQGRUVXSSRUWHGZLWK or expanded tax credits. Finally, Nebraska’s gover- renewable energy sources. Many also suggested that

164 The Book of the States 2009 GOVERNORS

pass the New Mexico Global Warming Solutions VWDWHHTXLSPHQWEHHQHUJ\HIÀFLHQW2WKHUVVXJJHVWHG ‡ Act to start carbon trading in the region; FUHDWLRQRIÀQDQFLQJDUPVWKDWZRXOGVXSSRUWERWKUHV- idential and business green projects. Some governors ‡ extend the hybrid vehicle tax credit, and help keep promoted green, tax free zones to boost renewable IXHOHIÀFLHQWFDUVDQGWUXFNVDIIRUGDEOH energy job creation. Several highlighted development ‡ pursue a carbon storage enabling act, because and/or promotion of hybrid vehicles and/or the devel- before we move forward on clean coal or natural opment of energy storage technologies. gas, we need a clear regulatory framework; and Many governors discussed specific alternative ‡ expand parks with creation of a new Pecos Canyon energy sources including: solar, wind, offshore wind, State Park. wave, ethanol and biofuels. Kentucky Gov. Steve Beshear discussed advances in nuclear power. State Finally, South Dakota Gov. Mike Rounds pre- leaders in Michigan, Oklahoma, New York, South sented a very detailed plan in which state government 'DNRWD9LUJLQLDDQG:HVW9LUJLQLDSUHVHQWHGVSHFLÀF would change equipment and behaviors internal to timelines and percentages for the reduction in the use state government to initiate energy savings—tem- of traditional energy by state employees or by the SHUDWXUHFRQWUROVHQHUJ\HIÀFLHQWYHKLFOHVFOHDQLQJ state entirely. Hawaii Gov. Linda Lingle explained schedules, energy purchases, building materials and a complex web of stakeholder support necessary to more would all be subjected to new requirements to reduce her state’s reliance on foreign oil: foster less use of energy and a greater proportion of “Last year we entered into a unique partnership that used to be green. with the federal Department of Energy called the He recommended an Energy Conservation Hawaii Clean Energy Initiative or HCEI. My admin- Revolving Loan Fund to provide “low interest loans istration and legislators will introduce several bills continually to schools, cities, counties, universities, based on these HCEI recommendations. Implement- tech schools and state agencies that have developed ing these policy changes will require a large mea- good ways to save tax dollars by becoming more sure of collaboration as we will need public funding, HQHUJ\HIÀFLHQWµ assistance from county governments, conservation His plan also called for a reduction in the tax on by citizens, and investment by the business com- biodiesel-blended fuel, an increase in wind energy munity. To successfully transition to a clean energy production and requirements regarding the construc- economy, we will need the involvement of our entire tion and operation of future power plants. community, alignment of our efforts, and a continual 6HYHUDOJRYHUQRUVVSHFLÀHGSROLF\WRLQÁXHQFH focus on our objectives.” behaviors in order to bring about more responsible Likewise, Virginia Gov. Tim Kaine stated, “We use of energy. For example, in West Virginia, Gov. will act by budget and legislation, but also through III said, “My alternative and renewable regulation, executive orders, creative partnerships energy bill will also require electric utility compa- and multi-state collaborations” (to promote green nies to provide net metering to residential, small energy, energy conservation and environmental business and industrial customers who generate their protection). Governors in Michigan, New Mexico, own electricity. This bill also requires the Public Ser- South Dakota and West Virginia laid out fairly com- vice Commission to expand the availability of net prehensive energy plans, too. For example, Michigan metering to West Virginia electric customers. It will Gov. Jennifer Granholm asserted, “By the year 2020, encourage private investment in renewable energy Michigan will reduce our reliance on fossil fuels for sources, including solar, wind, biomass, hydro- generating electricity by 45 percent. We will do it SRZHUZDVWHKHDWUHFRYHU\DQGHYHQODQGÀOOJDV,W through increased renewable energy, gains in energy is another step toward expanding our state’s energy efficiency and other new technologies.” In New portfolio.” Mexico, Gov. Bill Richardson presented his plan for energy as including the following: Transportation, Road and Bridges On the whole, governors’ plans regarding trans- make larger solar and geothermal energy providers ‡ portation, roads and bridges were not as thorough or eligible for the Advanced Energy Tax Credit; comprehensive as those laid out for education, eco- ‡ build a clean energy work force; nomic development, natural resources and energy. ‡ construct a Green Grid to harness the power of Most governors mentioning these issues brought up solar and wind, and use smart electronics to deliver a past initiative not yet completed with an update on HQHUJ\WRFRQVXPHUVFKHDSHUDQGPRUHHIÀFLHQWO\ project progress going forward. Governors did seem

The Council of State Governments 165 GOVERNORS

WRHPSKDVL]HWKHOLQNEHWZHHQÀQDQFLDOVXSSRUWIRU public-private partnerships. According to Oregon transportation-related infrastructure, job creation and Gov. Ted Kulongoski, “We will invest in the most economic growth. That is, many mimicked President green, sustainable, multi-modal, energy-efficient Obama regarding the usefulness of funding this gov- transportation system in the country.” And in Ohio, ernment function both to modernize capital and to Gov. Ted Strickland was positive about the state’s pump the economy. For example, in Pennsylvania, transportation future. “We will work toward the Rendell said, “the key to recovery lies in putting our restoration of passenger rail service between Cincin- citizens back to work through continued infrastruc- nati, Columbus and Cleveland,” he said. “Our goal ture investments, including the ongoing efforts to is to link Ohio’s three largest cities by passenger rail repair our bridges, roads and mass transit systems, IRUWKHÀUVWWLPHLQ\HDUV7KLVZLOOEHDÀUVWVWHS improve our water quality and delivery systems, and toward a rail system that links neighborhoods within expand our rail freight capacity.” Rendell exclaimed a city, and cities within our state.” that “public sector driven capital investment is Several governors provided detailed plans for clearly the best option we have these days for keep- managing transportation funds and projects in the ing Pennsylvanians employed.” Likewise, Rhode current climate and into the future. New Hampshire Island Gov. Don Carcieri explained that investment Gov. John Lynch discussed the state’s turnpike sys- in infrastructure promotes economic growth in the tem purchase of a portion of Interstate 95, future state. In Washington, Gov. was open tolling on this interstate, a new E-Z pass, fre- very positive, saying: quent user discount, a road improvement surcharge “My ‘Washington Jobs Now’ plan will stretch on vehicle registration, and federal transportation over the next two years — even as we undertake stimulus funds as the means with which the state the largest transportation construction cycle in state will manage future transportation investment. On history! We now have 1,400 transportation projects the other hand, Virginia Gov. Tim Kaine was very under way, or about to start, worth $3 billion. By VSHFLÀFDERXWFXWVLQWUDQVSRUWDWLRQWRVXSSRUWIXWXUH combining this historic transportation package with initiatives: my ‘Washington Jobs Now’ plan, we will provide “Our transportation agencies are reducing their nearly 20,000 jobs in the next two years.” administrative overhead to preserve scarce dollars for Claiming transportation in the state as “intoler- maintenance and construction. To balance its budget, able,” Hawaii’s governor proposed, with legislators, 9'27ZLOOUHGXFHFHQWUDORIÀFHVWDIIDQGVWUHDPOLQH a highway modernization program that “combines operations around the state. Over the next two years, road building, highway and bridge safety improve- VDOT will reduce agency employment by about 1,000 PHQWVDQWLFRQJHVWLRQWUDIÀFPDQDJHPHQWDQGD employees, through retirements, attrition, and other pavement maintenance program, in addition to safety restructuring. The Commonwealth Transportation legislation and increased public outreach and educa- Board has rewritten the six year construction plan to tion.” According to Lingle, the project will be sup- UHÁHFWWKHQHZUHGXFHGÀQDQFLDOSURMHFWLRQVDQGWKH ported with “existing funds and anticipated federal results are startling. Without a long-term commitment ÀVFDOVWLPXOXVIXQGLQJµZLWK´ORQJHUWHUPSURMHFWV from the legislature to support transportation funding, paid for from increases in highway-related taxes and and with a slump in existing revenue sources, dozens fees triggered at a future date if steady job growth of road and bridge projects all across the Common- indicates that our economy is growing again.” wealth have been taken out of the plan.” Other governors expressed some enthusiasm for In South Dakota, Rounds was optimistic about expansion and advancement in this area of state meeting the state’s future transportation needs, function, including Maryland Gov. Martin O’Malley though he emphasized that “I have been taking who exclaimed that, “perhaps best of all, we now steps now to ensure that South Dakota continues to have a new president who believes that America’s maximize the dollars we receive from Washington transportation future is worth the investment.” In under the current program. We will also work hard North Dakota, Gov. John Hoeven discussed one to ensure that rural states like South Dakota are well time transportation related investments “to support represented when Congress begins drafting a new projects statewide that will strengthen and enhance highway funding program.” Rounds did talk about North Dakota’s roads, bridges and water supply sys- reductions, delays and other measures to allow the tems.” Nevada Gov. Jim Gibbons called on the state state to manage transportation infrastructure needs legislature to support infrastructure building that into the future. Idaho Gov. Butch Otter mapped a does not require raising taxes, perhaps by endorsing three-point plan for transportation called Project 60

166 The Book of the States 2009 GOVERNORS that has additional reporting requirements, recom- general election, each time in clear favor of change. mends some tax and fee increases, a new excise tax The hour for action has arrived.” on car rentals, elimination of the ethanol exemption Many governors expressing interest in these from the fuel tax and shifting revenue to better sup- areas pushed Web connections and greater online port roads and bridges. Finally, the plan establishes presence by agencies and programs as a means to “a task force on truck transportation to study the help government become more responsive, account- validity of—and perceived inequities in—Idaho’s able and transparent. Consolidation, organizational truck registration system.” In Colorado, Ritter has restructuring and privatization were also mentioned been building support for a bill to “establish a new by governors to streamline service delivery. In South transportation vision for the future, a vision that cre- Carolina, Sanford suggested state government be ates jobs, a vision we can implement in stages, and restructured to reduce the number of constitutionally a vision that’s both bold and realistic about what we HOHFWHGRIÀFHUV:HVW9LUJLQLD·V0DQFKLQFDOOHGIRU can afford.” a modernization of the state court system. In New Hampshire, Gov. John Lynch proposed “sunsetting Performance, Accountability and Transparency all commissions, committees and non-regulatory President Barack Obama pledged to make the ERDUGVE\WKHHQGRIÀVFDO\HDU:HVKRXOGWKHQ federal government more accountable, more trans- only re-enact those that are essential.” Lynch called parent and more responsive to the American public. for consolidating licensing boards and commissions Toward that pledge, he quickly created a position for into state departments; a four-day work week for WKHQDWLRQ·VÀUVWFKLHISHUIRUPDQFHRIÀFHUDQGPDGH cleaning crews of state buildings; an expansion of an appointment shortly prior to his inauguration. He electronic licensing and registrations; and, extend- WDVNHGWKLVRIÀFHUZLWKIHUUHWLQJRXWJRYHUQPHQW LQJGULYHU·VOLFHQVHVWR\HDUVDVRWKHUHIÀFLHQF\ ZDVWHDQGLQHIÀFLHQF\LPSURYLQJVHUYLFHGHOLYHU\ measures. DQGDGYDQFLQJWKHSXEOLF·VWUXVWDQGFRQÀGHQFHLQ Governors in Montana, Nevada, New Hamp- government. Although his choice, Nancy Killefer, VKLUHDQG0LVVRXULFDOOHGIRUJUHDWHUHIÀFLHQF\LQ stepped down within a month of her appointment state operations through temporary salary cuts, sal- in the face of unpaid taxes on household help, his ary freezes, personnel cuts, lapsing vacancies and/ PHVVDJHFDPHWKURXJKDQGXQGRXEWHGO\LQÁXHQFHG or increasing agency reporting requirements. Iowa the governors in their 2009 state of state addresses. Gov. Chet Culver suggested exploring the sale or In fact, mention of performance and accountability lease of state assets, consolidation of state contracts by governors increased by almost 9.5 percent from and group purchasing agreements. In Idaho, Otter 2008 to 2009. Governors’ discussions about ethics mentioned the state’s zero-based budgeting system increased by 4 percent. And, talk of transparency by and the additional reporting and oversight require- governors increased the most of any of the issues ments that highlight the relationship between fund- listed in Table A, by 17.5 percent. ing and results in transportation as providing greater Indiana Gov. Mitch Daniels presented reform accountability to citizens. front and center in his state of state address: Ethical concerns of governors were focused on “The largest and most momentous of our oppor- campaign finance reform, reducing voter fraud, tunities lies in the area of governmental reform. The early voting processes and same day voter registra- cost in dollars, confusion and just plain bad govern- tion. Alabama Gov. Bob Riley plans to overhaul his ment of our 150-year-old system is by now com- state’s ethics, including full disclosure of real and pletely beyond dispute. The report so ably researched SRWHQWLDOFRQÁLFWVRILQWHUHVWRISXEOLFRIÀFLDOVDQG and written by former Governor Joe Kernan, Chief their spouses; full disclosure by lobbyists of spend- -XVWLFH6KHSDUGDQGÀYHRWKHURXWVWDQGLQJFLWL]HQV LQJRQHOHFWHGRIÀFLDOVDQGDQHWKLFVFRPPLVVLRQ lays out the folly of too many politicians, too many with subpoena power “to carry out its mission.” layers, too many taxing units, all producing too little Governors in Massachusetts and New Mexico called accountability and too few results. If there is any- for ethics reform as well. In Utah, Gov. Jon Hunts- one present who, given a blank slate, would draw man explained the purpose of a new “Commission up our system just as it is, please stand up now. I on Strengthening Utah’s Democracy, because with- thought not. As intended at the outset, we have all out public support and participation we have no had a full year to study the report and meditate on its democracy.” Arizona Gov. , who recommendations. The public has spoken loudly, in ZDVODWHUFRQÀUPHGDVVHFUHWDU\RIWKH86'HSDUW- referenda, in opinion surveys, and in the most recent ment of Homeland Security, sought changes to the

The Council of State Governments 167 GOVERNORS state’s referendum and initiative processes—to sup- port balance of power and to protect “the ability of Notes 1 the people to enact legislation.” Napolitano also Chief executives of state governments report annually RUELHQQLDOO\WRWKHLUOHJLVODWXUHVUHJDUGLQJWKHÀVFDOFRQGL- SXVKHGHIÀFLHQF\DQGDFFRXQWDELOLW\E\$UL]RQD·V tion of their state, commonwealth or territory. Governors 2-1-1 online component “which connects Arizonans often use their address to lay out their policy and budget with opportunities to serve. Arizonans can now go agendas for their upcoming or continuing administration. to AZ211.gov to donate resources or volunteer time The 2009 state of the state addresses were accessed from to their communities and their state.” Greater use of January through February 27, 2009 at ZZZVWDWHOLQHRUJ, volunteers was endorsed by New York Gov. David ZZZQJDRUJ, or at the state government homepage. This Paterson, too. research considers those 44 states with transcripts available at this site as of February 27, 2009. Speeches not available Conclusion by this date included those from Delaware, Florida, Illinois, Louisiana, Maine and North Carolina. All quotes and data Governors talked about a lot more than taxes, presented here are from the addresses accessed on these energy, transportation and performance in their state websites, unless otherwise noted. of state addresses this year. Table A shows most 2Katherine Willoughby. “The State of the States: Gover- governors mentioned agendas related to—and some- nors Keep Agendas Short,” in Keon Chi, ed. 7KH%RRNRI times even laid out elaborate plans to support and/ WKH6WDWHV. Vol. 40 (Lexington, KY: Council of State Gov- or expand—education and health services, promote ernments), 2008: 157 and Katherine Willoughby, (forth- economic development and address public safety. It coming). “Reaching and Maintaining Structural Balance: Leaders in the States,” in is interesting to note, however, that since last year, 6WDWH DQG /RFDO )LVFDO 3ROLF\ 7KLQNLQJ2XWVLGHWKH%R[" Edward Elgar Press. a greater proportion of governors addressed issues 3Elizabeth C. McNichol, and Iris J. Lav, 2009. “State budget of immediate concern to President Obama, nota- troubles worsen.” Report available at Center for Budget and bly government performance and transparency and Policy Priorities (2009), KWWSZZZFESSRUJVISKWP. PRUHVSHFLÀFDOO\WUDQVSRUWDWLRQDQGLQIUDVWUXFWXUH 4Nicholas Johnson, Phil Oliff and Jeremy Koulish. “Fac- and energy dependence. Also, examination of these LQJGHÀFLWVDWOHDVWVWDWHVDUHLPSRVLQJRUSODQQLQJFXWV discussions by state leaders indicates that a poor that hurt vulnerable residents,” (2009). Report available at economy does not necessarily mean an across-the- Center for Budget and Policy Priorities, KWWSZZZFESS . board shutdown of operations, lack of innovation or RUJVISKWP loss of hope. Certainly, state of state addresses can be characterized as “pie in the sky”—they provide About the Author governors the bully pulpit to orient the public to a Katherine Willoughby is professor of public manage- way of thinking about government presence and ment and policy in the Andrew Young School of Policy service. Still, assessment of these addresses reveals Studies at Georgia State University in Atlanta. Her research state leaders who, for the most part, are thinking concentrates on state and local government budgeting and holistically, realistically and yes, politically, about ÀQDQFLDOPDQDJHPHQWSXEOLFSROLF\GHYHORSPHQWDQGSXE- ways to keep state operations going and going in lic organization theory. She has conducted extensive re- ways that are more responsive, better performing search in the area of state budgeting practices, with a concentration on performance measurement applicability at and transparent. this level of government in the United States.

168 The Book of the States 2009