THE GOVERNOR AS CHIEF LEGISLATOR IN ARIZONA Item Type text; Dissertation-Reproduction (electronic) Authors Morey, Roy Douglas, 1937- 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 11/10/2021 04:15:40 Link to Item http://hdl.handle.net/10150/284544 This dissertation has been 64—10,452 microfilmed exactly as received MOREY, Roy Douglas, 1937— THE GOVERNOR AS CHIEF LEGISLATOR IN ARIZONA. University of Arizona, Ph.D., 1964 Political Science, general University Microfilms, Inc., Ann Arbor, Michigan Copyright by ROY DOUGLAS MOREY 1964 THE GOVERNOR AS CHIEF LEGISLATOR IN ARIZONA Roy D6.vMorey A Dissertation Submitted to the Faculty of the DEPARTMENT OF GOVERNMENT In Partial Fulfillment of the Requirements For the Degree of DOCTOR OF PHILOSOPHY In the Graduate College THE UNIVERSITY OF ARIZONA 19 6 4 THE UNIVERSITY OF ARIZONA GRADUATE COLLEGE I hereby recommend that this dissertation prepared under my direction by Roy D. Morey entitled The Governor as Ohief Legislator In Arizona be accepted as fulfilling the dissertation requirement of the degree of Doctor of Philosophy After inspection of the dissertation, the following members of the Final Examination Committee concur in its approval and recommend its acceptance:* .£ l! A-u* kjf \/Jf JSU*1 rf / J *This approval and acceptance is contingent on the candidate's adequate per£o£»aai£ce and defense of this dissertation at the final oral examination. The inclusion of this sheet bound into the library copy of the dissertation is evidence of satisfactory performance at the final examination. STATEMENT BY AUTHOR This dissertation 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 dissertation are allowable without special permission, provided that accurate acknowledgment of source is made. Requests for permission for extended quotation from or repro­ duction from or reproduction of this manuscript in whole or in part may be granted by the copyright holder. SIGNED: Copyright by Roy Dv Morey 1964 PREFACE Despite the efforts of the constitutional framers to separate the functions of government, the legislative process is a continuous fabric in which the legislative and executive branches mesh their activities. The preparation and initiation of legislation is not within the exclusive domain of the legislature. In fact the twentieth century executive is the most highly regarded participant in the process of lawmaking. Nowadays students of politics assume that the governor will strive to become the state's chief legislator. Since statehood Arizona has had governors who have been described as being either effective or ineffective leg­ islative leaders. The purpose of this study is to probe the various tools of formal and informal influence to determine the basis of legislative leadership. Arizona is especially suited for such an inquiry because the fundamental structure of the governor's office has not changed substantially since 1912, nor have the formal legislative tools. Hence there is an opportunity to employ an historical-comparative method of analysis. Although each governor must be viewed in his proper historical perspective, it is possible to compare and iii iv correlate the raw data of his legislative role. His position viz a viz the legislature has not been altered. The historical-comparative method will be supple­ mented by quantitative analysis. Lest one be misled, it is not my belief that all knowledge about politics can be re­ duced to a numerical product. Quantitative method can be valuable however, if it is used with prudence and moderation. It provides the common denominator essential to comparative research. Also it serves as a means of condensing enormous quantities of research into manageable and meaningful limits. Research in Arizona politics is truly a mixed blessing. Because there has been so little done in this area, the re­ searcher has the advantage of plowing a virgin terrain of inquiry which is both fertile and abundant. On the other hand, he must assume the handicap of being without source material in charting his exploration. Because of this latter limitation, the reader will notice a conspicuous absence of secondary sources used in this study and a reliance on per­ sonal observations, official records, and interviews. Although it would be impossible to list all who have contributed to the preparation of this dissertation, I would be remiss if I did not mention a few. My interest in this subject.was initially pursued while I was a Fellow in State Government of the National Center for Education in Politics in 1961-1962. For an eight month period I was special V legislative assistant to Governor Paul J. Fannin. Thanks to the aid and encouragement of Governor Fannin, his admin­ istrative assistant, John M. McGowan, and numerous members of the legislature, I received the most rewarding political experience of my life. A special note of appreciation is extended to Pro­ fessor Oonrad Joyner of the Department of Government, who generously gave of his time and ideas in directing the re­ search and writing of this dissertation. Also I am grateful for the able assistance of Professors Ourrin "V. Shields and David A. Bingham of the Department of Government who read the entire manuscript and made suggestions regarding style and substance. My most imposing debt is to my wife, Delores, who has been my most faithful assistant throughout the past five years of graduate study. In the preparation of this disser­ tation she acted in the capacity of researcher, typist and editor. For these reasons, and others too numerous to men­ tion, this study is dedicated to her. TABLE OF CONTENTS CHAPTER PAGE LIST OF TABLES . viii LIST OF ILLUSTRATIONS i... x ABSTRACT xi I. INTRODUCTION 1 Evolution of the Governor's Legislative Role *'• • * • • 2 Constitutional Confusion 5 Bridging the Gap 8 The Concept of Leadership 10 Scope 13 II. THE POLITICAL SETTING 17 Democratic Domination 17 Emergence of a Two-Party System 21 The Constitutional Period 31 The Executive Article 34 The Legislature 40 Summary 52 III. THE GOVERNOR AS LEGISLATIVE PARTICIPANT: THE EXECUTIVE VETO 56 Introduction 56 Reasons for Disapproval 61 Use and Success 65 The Item Veto 73 The .Threat of Veto 77 Summary 80 IV. TEE GOVERNOR AS POLICY INITIATOR: RECOMMENDATIONS AND SPECIAL SESSIONS 83 The Power to Recommend 84 The Special Session 107 Summary 124 vi vii CHAPTER PAGE V. THE GOVERNOR AS CHIEF EXECUTIVE: THE LEGISLATIVE IMPACT OF ADMINISTRATION 128 The Power of Appointment and Removal 130 The Supervisory Function 141 Budgeting 148 Summary 1 65 VI. THE GOVERNOR AS LEGISLATIVE BARGAINER: THE INFORMAL TOOLS 168 The Legislative Environment 168 Altering the Legislative Environment 173 Dispensing Favors 177 The "Governor's Lobby" „ 182 Conferences and Consultation 185 The Role as Party Chief 187 The Role as Popular Leader 191 Summary 1 96 VII. EXECUTIVE-LEGISLATIVE RELATIONS IN ACTION: A CASE STUDY 200 The 1961 Experience in Legislative Relations* 201 " Gathering Ideas 202 The Process of Elimination 209 Molding the Message .".... 215 The End Product 218 Presentation and Reaction 224 Delegating the Work Load 226 Directing the Lobby 230 Late Session Scramble 233 Post Mortem 234 - - VIII. THE GOVERNOR AS CHIEF LEGISLATOR 238 Evaluation of Constitutional Powers 239 Evaluation of Extra-Constitutional Powers ... 243 Gubernatorial Impotency 244 Leadership Roles .. 247 The Nature of Legislative Leadership 250 The Next Decade 254 BIBLIOGRAPHY 257 LIST OF TABLES TABLE PAGE CHAPTER II I Support Received by Republican Gubernatorial Candidates from Pima and Maricopa Counties, 1946-1962 24 II Presidential and Gubernatorial Candidates Con­ currently Carrying the State, 1916-1960 32 III Party Complexion of the Governorship and Legislature, 1912-1960 41 IV Party Strength in the Arizona Legislature, 1912-1963 45 V Party Split of Metropolitan Members 45 VI Composition of Majority and Minority Blocs, 1955-1963 47 CHAPTER III I Volume of Legislation and Vetoes During Regular and Special Sessions, 1912—1963 61 II Governor's R.easons for Vetoing Bills, 1941-1963 62 III Item Vetoes Used during Regular and Special Sessions, 1912-1963 75 CHAPTER IV I Most Frequently Recurring Recommendations Made in Governor's Messages, Regular Sessions, 1912-1963 95 II Legislative Action on Specific Recommendations Made in Governor's Messages, Regular Sessions, 1912-1963 105 III Legislative Action on Specific Recommendations Made in Governor's Messages, Special Sessions, 1912-1963 122 IV Legislative Action on Specific Recommendations Made in Governor's Messages, Regular Sessions, 1912-t963 122 V Special Sessions Categorized by the Number of Requests Included in the Governor's Call, 1912-1963 124 viii ix TABLE PAGE CHAPTER V I Senate Action on Gubernatorial Appointments, 1912-1963 132 CHAPTER VII I Legislative Action on the 1962 Program of Governor Paul Fannin „ 236 LIST OP ILLUSTRATIONS FIGURE PAGE CHAPTER III 1 Vetoes of Governor's of Arizona During Regular and Special Sessions, 1912-1963 68 CHAPTER IV 1 Frequency of Special Sessions, Arizona Legislature, 1912-1963 112 CHAPTER V 1 Arizona Budget Calendar 151 x: . ABSTRACT Students of state government have "become increasingly aware of the political role of the governor. While the polit­ ical role encompasses all roles assumed by the governor, it is especially associated with and dependent upon the gover­ nor's legislative role. Traditionally the effectiveness of the governor has been measured by careful and casual observers in terms of legislative leadership. It is generally agreed that the basis for such leadership is similar to our national chief executive.