Report on general state organization

              SPECIAL LEGISLATIVE COMMITTEE
ON STATE OPERATIONS
STATE OF ARIZONA
REPORT ON
GENERAL STATE ORGANIZATION
( In Three Volumes)
Volume One
( Containing Parts I - IV)
December 15, 1949
Prepared by
Griffenhagen & Associates
Consultants in Public Administration and Finance
REPORT ON GENERAL STATE ORGANIZATION
Sillv1l, W. RY TAB: LE OF CONTENTS
Volume One
Part No.
Foreword
I Summary Analysis of the Existing Organizati. on Structure of the
State Government
II General Criteria of a Sound Pl. an of Organization
III Outline of Proposed Plan of Organization
IV Desori. ptions of Proposed Staff Departments
yoJ. ume Two
V Descriptions of Proposed Operating Departments
VI Misoellaneous Independent Agencies and Summary Com. ments
Yo lume Three ( Append i2f. l.
Schedule No.
I List of Principal Agencies of the Executi. ve Department of the
Arizona State Government Showi. ng Types, and Methods of
Selection, of the Managing Authorities
II Alphabetical. Index of the Principal Existing Agenoies of the
Executive Department of the Arizona State Government
III Summary Desoriptions of Functions and Organization of . Principal
Existing Agencies of the Executive Department of the
Arizona State Goverl~ ent
c
SPECIAIJ LEGISLATIVE COMlvIIT'l'EE
ON STA'l'E OPERATIONS
STA'I'E QIi' ARIZONA
, REPORT ON
GENERAL STATE ORGANIZATION
( In Three Volumes)
Volume Orw
( Cout8. inlng Parts I ~ IV)
84748
OCT 211959
Prepared by
Q: riffenhagen & Associates
Consultants J., n Pu'blic Administration and Finance
Volume One
DEI'AILEDTABLE OF CONTENTS
LEl'TER OF TRi; NS1' 4ITTAL
I '", 11
• ~ .. • :. .. t,,, ., ;, • .. • .. -- .. ~ •.~ ~ ., • • -, - .. ~ • .. •.• ~ • .. .•• .. • ! .. ~ .. .. .. ~ ••• ~ • I - 10
.. ~ • • • • • • ~ ~ •• it ! .. .• .. ~ • .. ~ • ~ •• '~ .. .. ~
a .. Su- preme Court.; ~ .. ~ ••• _~. ~ ••• ~ ~ •.~ ., ~ .- ~.- I ...,. 1.~
b" Superi. or Courts. ~ .,,, • ~ ••...••••. " •• ~ ~ • .• I - 5
c ~ Justlces of the Peace. -•• to f1 ., ~. • • .. • .. • .. •• I - 5
a. Composition of the LegislaMve Branch I - 2
b. Legislative Sessions .•••• ~ f •• ~ •••• ; ••• ;.'.~.;••••••• +••• 1   - 3
o. Compensation of Leg: islators ~ •..•.••••••• H : r - 3
d . Legis1ati ve Corumittees • .. • • .. • • • • • • • • • .. • • . • • • • • • • .. .. • • •• I - 4
e" Attaches or Employes of the Legislature I 4
FOREWORD
a. Basis for Separation of Funct: i, ons .••.••.••.. ; .•.•••. , .• 1     1
b. Scope of Each Branch ~ ~ • ~ •• ,; .- t- ~ • ~ " r I 1
FliRT I Â  Â  Â  Sm- 1MJ: illY ANALYSIS OF THE Et'US'fI. NG ORGANIZATION
STRUCT1JRE OF THE STATE GOVERNMEN~ r •••••••.••• ; • • • • • .• I .- 1
1. Introdtlc   tion .-   •••• , ....•...•. III ••••••••••.• , ••••• 1- 1 , r
2 . Three Bas 1c Branches of the state Government ••• r • ~ ••••••• f' I .. 1
5.. . Executi. ve Branch •• ~ ill ~ ~ ~ ~ ~ ~ •••••• ~ ••• ~ I - 6
Ii ,; J ud 1c ta1 Branch ••••• ~_ ~ •• " ~ ~ • ~ • .. .. • .. • .. • .. .. ~ -•• ~ ••• ~ , -... I - 4
.3. Legislative Branch ..•• ~. t~~- ••• f! ••••••••• ! ••• ~ •• ,.~.,.~.!'-..•• I .... 2
7. Dispersion of Fowers Among Different Governi. ng Authorities
9. Complexity and Inconsistency in tl1e Forms of Agencies ..••.• I       12
8. Illog: ical Grouping of FunotIons Hlthin and Among Agenoies
6. Baslo Heaknesses of the Existing Organization Structure of
the Executive Branch t!' ' 1 ~. ~.••••• ~ I _. 9
n. Ex Ofnoio Membersh: ips on Boards and Commissions .•....••..• I - 14
10. Inappropriate Functions, and Exoessive Numbers, of Boards
and Commi. ss ions" ..... ; • ~ ... it , ••• ~ ~ ..... :. it .... '•••• '. '. '•• ..- ...... ~ .. .. .. •• I ..., 14
12. Sumraary Statement as to Existing Organization ••• ~ ••. r ••• ~ •• I - 15
PAJ.' i. T II - GENER.,~ L CRITERIA OF A SOlJND PLAN OF ORGJ:' L~ IZ. ATION •.•... 11- 1
1. IntYoduct1on.~.•• "!~ •• ,,, ••••••• ,.! ...• ~, .......•...... ...... II .... 1
2. General Objectives of Proposed Reorganization •.•••••••...••• II - 1
3. Basic Criteria for Develo- pment of the Proposed State Organi-zation
Structure ••. ~ .... ~ •...•.•••••••.•... ~". ~ ~ .•• f •• " •• "
a. In General.! " .• " , •••.• "~ . ~ .
b. Simpli, city and Definiteness •••••••.•••••••••••••.•••••••
c. Unity and Coord1. nati. on •.•••.•••••••.•••••••••••.•.••••.•
d. Iv1anageable Span of Control •••.••••••••••••••••.•••.•••••
e. Logical Allocation of Fu: qctions •••••••.•••••••••••••••••
f. Suhdivi, sion Into Subordinate Organization Units •••.•••••
g. Separation of Executive, JUdicial, and Legislative
F1lI1C t i ana . ~ • ~ • • . ~ • ~ ., • . , t • ~ , • • , • • • • • • • • • • • , • • ~ '!' •••.~ ~ ....
h. Proper Funotions of Boards, Commissions, and Other
Plural Bad tes . ~ ••. ~ . ~ .• r •••••••• ~ It •••••• ~ • ~ ••• ~ •••••••
i. Provis: ion for Conti. nulty of Policy ••.••••••..•••.•.•••.•
J, Provision for Competent Persollilel ••.•••••••••••••..••••.
4. General ~ oblems of Reorgmlization •.••••••••.••.••..•.•••.•.
a. ' rhe Frob ~ em of Cqange .. l' ~ •••••• ~ , •• " " • e " ! •••• " , •••
b. Influence of Temporar;) r Conditions ••••••••••••••.•. ~ ~ ••.•
c. Concentration of Executtve or Administrative Powers ...•.
d. ConstitutlonalProvis. ions ...••••••• !, •••••••••••••••••••
e. Federal Approval of Changes tn State f. genc les ••• r •••••••
f. Election of State Administrative Officers .•.•••••.••••••
g. Terms of Incumbent Office-; rs ••••.•.•.•..••.•••.•.••.•••••
II .....' 1
IT.... - 1
II .- 2
II - 2
II .. .3
II ., 3
II ~, .3
II - 4
II .,.. 4
II - 5
II 5
' II - 6
II -, 6
II .. 6
II ,- 7
II .,.. 7
IT .,.. 8
II .,.. 8
II - 8
5. Summary Statement as to AppUcat i on of Crlter: l. a of Sound
Organlzation , ..•.•.. ~! ••••• T•••••••• ~ ••• ~ ••••• II - 8
PART III ._. OUTLINE OF PROPOSEDPIJ~ N 0]' ORGANIZATION............ III - 1
~. In'troduction .•••••••.••••••••• e.~ •• ,.,~ ••• !~., .•.... ,., .... , III   "" 1.
2. Proposed Legi. slation , H •••• u ••• III - 1
.3. Separabil~. ty of : Proposals in the Pla'Q. ••••. , ••••.•.•••••.•.• III - 1
4. Need for Positive Aotion for Installation ••••••••••.•••••.• III - 2
5 . Main Features of the Proposed Plan •••• T ••• ! • • • • • • • • • • • • • • •• III .- 3
6.. IJccislat: Lve Branch.•.............•......................... III .- 3
a,. Int: rodu. ctor~ y" Ccnnrnerlts as to Legi, slative Branch..... ,.... III " 3
b" Size 01' Lcg. i. slature .......•. ,. " •......• ~ • " . .. III - 3
c. Regula: r Sessi. ons ( I •• 0 e .. III - 4
d. Spec1. al Sessionsfl •••.•••••••••••••••• ~ ••••••••••.••••••
e. Length of Sessiorls.~•••••.•• , ••••••••••••••••••• fI .
f. Comperillation of Legislators ••••••••••••••••.•••.•••••••
g. Term of I egis la't ors ••• ~ •••• " • , ••• ., , ••••
h . Legi slative Stand ing Con: u: ni. ttees ••••••••••••••••••••••••
i. • Irlterirn COIfJlnl t tees ,. • , ••••••••••••.•• " • ~ • ~ .•
j. Special Joint Legislative COPlII\ i. ttees •••••••••.•••••••••
k. T.. Iegislati. ve Gouncil~.~••••••••• ,~ ..... ~~ ••••••••••••• " ••
L Attaches of Employes of the Leg; islature •• c_ •••• , • " e ••••
roo ~ orking Condj. tions ••••••••• ,.,., •• ,. o.~ o '~~ 30'~" O~'"
n. Conclusion as to Legislati. ve Branch .. < 0, ,., ........ "..
fl. Auditor General < l; J~ ••••••••
all Proposed Functions •• ~ ••••••• ,.~ •••• _••• , •••• oo~ ••••••••
b. Proposed Selec'tlon., •••••••••.•.•• , •••••••••• $. a; •••••••
c . Advantages • ,. _ ' , ••••••.• , .• , It C •••••••••
8. Legislati. veBll: reau ••.•• ~ , .•.•••••• f •••••• O'; j •• ~ ~ ••' .
a II Proposed : Fur. lctions" ••••• ~ •• , ., •••• 0 •••• ~ • ., , ••
b. Proposed Organization .
c • Advantages .•.•• ~ ••• t • ~ ~ .. , ~ ••
9. Judici, al Branch ~ •••••••• ~ ••• ~ .
10. Gcyvernor • Q ., ~ •• , 0 •
11. :~ ecu'ti. ve Cab:: i. net ,. ~ ••• , •••• , •••••••••••••••••
a. Proposed Composition •••••• ~ ••••••••••••••.•••••••••••••
b • Prop os ed Func t 1. ons •••••.• , • • • • • . • • • .. • . • • • • • • • . • .. • • .. • • • ..
c. Advantages .••.•••• ~ •••••••••••••••• ~. t!' Ilt .... '•••••••••••••
12. Permanent Secretariat of Jili:: ecutive Cab: l.. net •••••••••••.•••••
alP tl"' loposed Compos i tion. , , .
b lP Proposed Funoti. ons. ~ ,. ~. ~.", ••• "•••••••• " ••• ,. •••••
c . Advantages , •• ~ ••••••••••••••• ~ •• ~ .
Page.
_".
~
III 5
III 6
III 7
III - 7
III 8
III 10
III 10
III 11
III 11
III 13
In l.! l
III 14
III 14
. III - 15
III .- 15
III - 15
III - 15
III 16
III 16
III 17
III 20
III - 21
III - 21
III - 21
III - ,- v'
C. t;
III - 23
III 23
III .- 23
III ,.,-, /::.-,
./
13. Summ. aryList of Proposed Adm: inistrative Departments., •••••• II:~ - 23
CI~ T I - : PROPOSED PLAN OF ORGP. NIZATION
lLt. General Character: is'tics of Proposed Administrat: i. ve
Depal'"' tments . , .•••••• ,. •••••••••••••••••••••••••••••• ~ •• ~ •• III 21~
27
27
28
28
24
25
26
- 26
III
III
III
III
III
III
III Â III
-
Functi. onal Bas: is of Organizati. on •••••••••••••••••••••••
Heads of . Depa~ rtments•• ~ ~ ••••••••••• , •••• ':' •••••••••••••
Internal Organ: ization of Departmenttl •••••••••••••••••••
Department Staffs and Fac: i 1ities .
Boards) Commiss : Lons J and COll1mi: ttees .
Pdnltnlstrati, ve Rules •• , ~ ~ ,. ••••••••
Gooperat ion betl   men Departments .
Transfer of Functions ••• ~' r ...... ,., •••••• ~ •• ~ ••• ~., ••• ,.
' Transfer of Records, Equipment, and Unfinished
Bus ' ines S T. I-_ I - ? 8- tI ••• , : ! ••••••• ~ •••••• ~ • l!' ~ ., •• , ~ . '-
c •
a.
b.
d.
e.
f.
g.
h.
i.
1." Introduction •.   .-~ •••..•..•.• * ~ •••••• ,~,.~ ••••••• J) l - 1
15 . Independent Agenc ies , , ~ •• III .- 29
1
1
2
2
3
3
3
11
4
5
57
13
13
1)
:,
15
. 8
9
13
TV
IV .,. 11
IV - 8
                  r   ~           '       f.       .   .  
., ..... fff'.'         .         .... ~~"   .. f ••
~ • • .... 11 ~ f • • •• " •• , • • •• " • ~' ... ., ••• , ....
of'Revenue .•••••
of Finance •••••.
of Persor~ el....••
Proposed Functions •.• ~ •.•...... , ~ ~ . ~ . ~ , ... ', f ~ • ~ •• ~ ,.. IV
Proposed Organizat : lon , •••.•.•• ~ •.• , •••• , IV
AdvantaGes .••• ~ '! " •••• _ ., " .' It , ••••• , ~ It ~ • ,. ~; ••• ~ ••• , •• '" rl
Pl" Op as ed funct 10ns " •••• , .• •' '!' • " " ••• ? ~ '" ••' ~ • !' , ~ ... ., • • • • •• rv
Proposed Organizat: 1. on " ••••••• IT
. Ad var~ t ages ... _~ ...•....... f '" .'. " • ' r ( ~. ,- - ••' .' , ~ •• f f • ~ ~ • , ,. r: v
Proposed .: Fu. nct ions .... If' • ,. • 11 ••••••• ~ •••• f ••' • ~ • ~ •• , ••• II' IV
Proposed ' rransfers of Functions." .•• , .•• ,." •• , ,. ~ IV
Proposed Organizati. on •••.•• _.,,, •••••••••• , ••••• , •••.••• IT
Advantages •.••••.•••••. ~ , ••••• , •• IV
. Pr oJ.) Ofj ad Func't i one; ~ ••.•• ~ ..... ~ .. ~ • ~ • ~' < II ••• If '! ... ~ ~ .' fI ...... , ... IV
. Proposed Orgarlization. II • _ ~ ~" • , ~,. •• r il" •• , •••• ~ ~ • ,. ••••• ". Dr
Ad vant ages . • . • • • • • • • • • • • • • • • .. • • • • • • • • • • • . .. . • • • .. • • .. • • • •• IV
Proposed Functions ••.•.• ,~.~ •.•.• r ~~ ••• f1~.' tr. IV
Proposed Transfers of Functoto: qs ••••.•••.•.• , ••• , ••• , ••• IV
Proposed Organization •.••••••••-••• " O' ••••••• , , IV
Advantages ~ 4! ~ • , • , l! 4: " ~ •••••••••• , • ,. rr
b.
c.
a.
a.
b.
o.
c.
a.
b.
c,
d.
a.
b.
c.
d.
j. Transfer of Emp loyes ~ f III .- 28
k. Transfer of Appropriat: ions .•••.•.••• f •••••••• ~ ••••••••• III 29
1. Reports III - 29
ill." Oaths * ~ ~ •• ~ ~ • ~ .' ~ •••• , ~ •••••• ~ ~ ••• ~ • • •• III 29
Department of Law '" . , ~ ~ , . ,. . j r , , • ,. • • • • • IV
Department of State ....".",. ~ . ~ . '" ! •• ~ • ! •• ~ • '" t •• f l' •• r .. ., .....-~ •• '" IV
Department
Department
Department
PART IV- DESCRIPTIONS OF PROPOSED ST$ DEPARTMENTS r ...
4.
2.
5.
6.
16. Detailed Descriptions of Proposed Administrative
: Departments " '" "•..• e' ••••••••• '" •• " ., ,.: • • • •• III - 30
GRIFFENHAGEN & ASSOCIATES
( Estab1: ished. 1911)
Consultants in Publ: ic Adml. nistrat: ion and. Finance
Chicago 1, Illinois
Deceml) er 15, 1949
To the Honorable
' i'he ChairxJ. an amI Menlbers
of the Special I~ egislat: i: ve
COTi.\ IDittee on state Operations
Boom 305 Capitol BuHding
Phoenix, Arizona
Dear Sirs;
1! e take pleaSl1re in transmitting herevrith OUY'
report entitlecl liRe port on General State Orgeuizati. on. II
YOl.. 1rS faithfully,
REPORT ON GEHERAL ST A'TE ORGANIZA: T ION
ForevJOrd
This re'Clort denTs Hith the structure of the orgall: i. z£' " Glon of the
state government of Arizono. In the language of the authorizing act,   the Dur  
TJose of the study reported upon in the fol1mling peges \" as to make II a thorough
investigation of the affairs and operations of the various departments an6 : In    
stitutlons of the > Jtateil and to flU'nish a basi. s for making 11 such recorrunendations
for consolidation, curta: i1ment of OI: ieration or eUminat. ion of depc: uctments as
l< lill effect the greatest efficiency and economje; s : in the conducting of the
affairs of the state. it This language "'! a f.; construed as calling for, end
emphasis lias pIeced on, devis: ing e plan of adm5nlstrative organizaticn of the
executjve department best adapted for the government of the st<~ te.
This report rev. ie1Js the ex: ieting plan of orgEmization and the allo cation
of the functions of the Etate government among the several administra   ..
tive departments and other agendes, and cons: i. ders the broader administrative
and operatinG ro. lationsbips among them. On the basis of this revieH and con sideration,
the repol't 81so pJ;' osonts a plan of reorgR. nization \ 0ith certain
alternativos and possible variations, This plan hDS as its objectivG the
s: Lnpl:. ification and clarifJ. cation of the organizati. on structure through reduc- Â 
tion in the number of Ggencios j through more logical an''] ol'derly divis: ion of
activities and allocation of femctions ariong agoncies; through tho concentra tion
of Hork of tho same general kind. in the same department or other a, g; mcy;
and through better prov. lsi. on for essential functions of administrntivG control
and service.
The study of tho ex. iscl. ng organi zation strTIcture of the state and
the design of the neH plan of orgElnization, described lator in this report~
I Â  Jere strictly blperSOl1al. The~ r were undertaken lJithout rogard to the personnel
of tho prosent official staffs of tho agoncies involved. None of tho conclu sions
or recommonda't, ions is intended as criticism., in any \< JaY, of tho officials
or other personnel of any oxistJ. ng units Df organization.
The report is prcsentod in s: Lx parts \< lith throe supplomentary
schedules. Part I of the roport describes the existing plcm of stato organi zation
and is suppleffiontod b~ r Schc:: d1JJ. e I of tho ApP8ndix~ Fol1o\< ling its
descriptive toxt, tho defects and vJOalmossos of tho existing organization
structure are explainod brief'ly, and somo of tho probloms invoLvod in an; y pro posod
nOvl organize. tion structuro are outlinod.
Part IT of tho report outlinos various criteria in consideration of
,," hich a sou- nO. and \ wrlwblo organizotion structur() should be dcvised unO,
discussQs somo of the; genoral problems that arc, or may be, involved in
developing and putting into offGct D. plan of r() orgc.~ l1ization of the state
govornmcnt.
Part III outlinos tho meJ.. n fonturos of tho proposed plan of roorgani zation
and doscribes some of the more importrmt goneral chnr. cw'toristics of the
sevorc} l proposod adminiBtrf1tivG dopartmonts.
Parts T',,' and V. present the proposedfunctiolls and internal orgarJ.~~ I: rtion of
oach of tho several administrc1tive dcp,;: rtments. Tho functions of oach proposod
dcpartmcmt aro outlinod, together Hith Q brief statoment regarding Gxisting
agoncies end their functions to bo placod ill tho proposed   dopartrnont. Pro-posals
arc made 1,. ith respect to managing authorities, and tho fu.."' 1cticns and
composition of bOel rds to bo attachod to, or af. f: i1iated "' ith, tho proposod do pf':
rtmonts. In some 1. nst8ncos, suggostiOY1S aro mado as to tho subordine. to
org2. nization units of depnrtmcmts. Those latter suggestions hmru not boon
basad on dctcilo0. studiol3 of oporl1t. ions, b1. l. t sro offorod ns logical arrEmgo-mants
undor \> I11icb tho proposod departmonts ce. n bogin to function undor tho
roorgrmi zat: ion plnn.
Part VI of tho roport discussos sovorn1. existing agcmcies of the
stato govornrilont vrhich prosont poculinr or cl. ifficult probloms in rolD" tion to
tho proposod orgnni, zDtion plan [', n   1 vJhich, for various rO;:-; 80n8, should probebJ. y
bo continued as indopcndont agenci. os in the; sonse thet thoy v. fould not bo
ino1udod in, or nbsorbed bjT, tho plcm for trw sovoral. ndministr," ti. vQ depp. pt...
manta. In this F', rt of the; roport; only thoso mdsti. ng Eteoncios nro discussed
that oro not covered Ildoqunto. l; y bv descriptions of thoproposod dopartmonts
prosontod in Parts IV and V.
Schedtllc II of tho Appendix i s intGn(~ od. to servo as a flnc1ing list
of principal o:: dsting [ 1gcnc1os of tho ox: ccutivo branch of tho stato govorn ment.
This schodul0 also indicntos tho pInco i. n 5c11odu10 III vIhoro [\ briof
doscription of tho f1. mctions and orgrcniu; tion of oneh such 2goncy cm" bo
found. Schodulo II f1. Jrtllor shm. s whore, in the bod; sr of tl10 report, nnd to
vihnt units the functions of oneh oxisting agonC;) T are proposed to bo allocated
in tho now plnn of organization.
Schedule III providos briof background descriptions of tho functions,
organization, <', nc1 othol" f08t1lI'OS of oach of thO existing agencies of tho
oxecutivo bro.. n: ch of tho stnte govornmont 1.{ 11: 1, ch Elro !, ecDgnizod for tho ' P'Ltrposes
of this roport.
PART I
smrr   IARY ANALYSIS
OF THE
EXISTING ORGlU'JIZATION STRUCTURE
OF THE
3T ATE GOV, E. RNlvlENT
1. Iptroduction
Tho purpose of PClrt I of th. i. s roport is to doscribe gonoral1; y tho
existing organization structuro of tho govern. mont of tho state of Adzona
and to point out principe. l bns: ic uoQ];;: nessos in tho prosont plall. An eJebora tion
of onch of tho principal bowie l, Jonl;; unssos ip tho prosent plan is pro   ,,  
sentod undGl~ a suiteble topi, e hoeding. Yina. lly, Q Slllionnry stntol! 10nt is in...
eluded to provido porspoctivo for violring pf: r'~ s' O. r this report to fol1oVJ.
G. £.~ 9. I...   £. i'Jo. ra0' 0l. Lof F~' l1ll'? tio1ll?: Tho basic concept of tho
sepo. rnt5. on of the logislntivo, jUdicinl, and oxecutive functions of govox'n...,.
mont 1ms OJipressed in tho fodoral constitution. This snme roquiromont for
soparntion of braced functions hos boon : includod in tho constitution of
Arizol1G, as : it has in the constitutions of other str\' tos, and is acceptod as a
funcJ. 2montnl prJncipJ.. o of tho Amor: Lcan form of government.
Articlo HI of tho Arizona stato constitl. ltion relat5vo to   tho dis...,.
tributi. on of powe: l~ s providos:
" The pOllOrs of tho gOVoI'J: 1..: mont of tho stato of Arizona shall be
dividod into throo soparoto c1Qpartmcmts, tho Logislntivo, tho
Executi. vo, ond   tho Judidal; and, oxcept nS providod in this
Constitution, such dop8rtmonts 1311.;:\ 11 bo sopnr: lto [ mel distinct,
end no ono of such dop<" 1rtmonts shall cxorci. se tho pOForB properly
bolongi. ng to oithor of tho othors. ll
b. Scopo of E8Ch Branch: All threo II dopnrtmcmtstl ( or brr:: mehGs)
--~.....,...-.-.... .....-.-----------
dO$ cribed in the procoding soc   tion oro spocificn. lly defined in tho constitu.-
tion. Excopt for tho defin: ition of tho o:;;: ocu'tivc 1' rnnoh, no q1.1Gstion arises
8S to the intent of tho const1tution.
7
I .- 2
Articlo IV provi. des tkt, oxcept for logialativo powors reserved
to the peoplo in the form of the initiat: ivo nnd reforendum, tithe logislativo
authority of tho state sholl bo vostod in tho logislntu, ro, cOl1sist. ing of a
Senate and a Houso of Ropresontl:\ t: ivos •••• 11
Articlo VI provides that It tho judi. cia;!. powo; 1;' of the state shall be
vestod in a Sup; 1;' omo Court, suporior coWLs, justi. cos of tho poaco, and such
courts inferior to tho superior courts ns may bo provid~ Klby 1[)\- l. 1t
\"[ hilo tho constitutional definition of the oxocutivo branch is
spec: i. fiQ, it is actually loss accuro. to than tho definitions rcgr. rding tho
logisla   tive and judicial brtmohes. Article V provides tho. t l! tho Executive
Department of the state shall consl. st of Govornor, Secrrybr3T of Sbto, State
Auditor, State ' I'x'oasuror, A, ttorney... Gonornl, nnd Snpo1' i. ntondont of Pt+ bJ,. io
Instruction•• ••"
An exact, lIteral i. ntorprot:: ltoi, ol1 of this uordJ. ng \ TonIc o~: c1. udo 011
othor officers and   omployos fl~ om tho Qxocutive branch. Since thero is no
provision for tho 8X: 03;' C1. so of state powors o~: copt through ono of tho throe
basic brEmchos, it must bo nss1. JTi1od that tho executivo brnnch ls fur mc,) re
extonsive than' this definition indicates. Tho logicaJ ossumpt: ion is that
the definition of the executive b1' onch h'loludos 8) 1 admini! 3trative ngonci. es
of ~ ho S~[ 1t() go~ er: rrJl? nt~) r, : i: n othor \ TOrds, 811 agencios not : in oithor tho
10g. 1. s. lntlvo or J uG: J.. c)]. al tranohe s.
As usod : in this rnport, thoroforo, the exocutivo brnnch means tho
establishment made up of oJl the officors, beards, cOJnmissions, depclrtmonts,
institutions, clivi. sions, blJro31.1s, ngoncies, and o. mplo;; ros ongo. god in tho
oxocution of tho 11:\ 1tls of tho sto. to at tho stnte lenrel, excopt those pa. rts of
tho logisln. tivo and , iudici. n. l brunches Rnd, nls\), (; Jccluding nny Ilgoncios,
officers, and enplo: 7os of tho political subdivisions of tho stn. to, such as
countios.
Such discussion as this roport contcins rogc: rding tho legislativo
ond judic:: Lnl br8. nchos is to bo found in   tho parngrcphs thr~ t fol10\- l imLlediato ly,
aftor \' Jhich tho roport is devoted to tho exocutive b: ecmch o. s broadly
dofined above.
8.. 82= T) J, U.. osit: L! JD..,. of th~ Logi~, lative Br~:
in this report, tho logislativG branch consists of a
l'oproscmto. tiV8S.
As monticmod proviousl; yr
sonc: to and e house of
Undor the constitution, tho sonc: to consists cf nineteon Honbers,
3. pportionod nncng tho fourteol, counties, eloctod nt 1[; 1' go \.!, ithin tho countios.
There is no idontical constitutional provisinn restricting tho size of' tho
houso of ropresontc: rtivQs to c specific r111Libor of Flon'bors. It is providod
that thoro shall be ol,] ctod fron oach county ono ropr':; son't:..'. tivo for oach
2,500 votes, or Hnjor fractions thoreof, Co. st in BD. ell cO'lmty for tho offico
of govornor at tho : last p. mcoc1JllB gOl1orhl clecticn. On the basis of this
formu. la, tho houso of roprosol'lto. tivos 11.01'[ hnB fift3T,.. olght I; 1onbors.
I
,
Enoh CCUIl'ty is d: ividod into as mm; y logislntivG districts ns thero
arc rGpreS \,:. i" lltCltl   VO co   t, o bo o'l""" l   ", O I"" ro""   t1-   " c''''- nty " nc" o'-' ch s" ch ' loa'; co'...,' t   l   "' C) L. I. P ... I . .. LvvVv ~." '\' •. 1 .. J. t., J l.;\.~ ,(,"~,... .. l. •• d.".. _ !...- t. ~ ,_...... G...... I;)-\-(.~_. , v j
clistrict is ontitlod. to oloct one reprosont~\ tive. Ench county is rodistrictod
not loss than s: ix months prior to 08ch rogular el. ection for reprosontntives.
W10n b; y' reason of the nwnber of votos cnst for the office of governor at tho
last preceding gonorcl ol, oction, tho county is entitled to but ono roprosonta...
t. l. vO ,)', t'l""' cr"., prc", C, O, r,>, nt" c". t, I   Ve'   ~.. L. 8 O. 1. OC'to~. r)'., n~ t   1. "<"'.". rgo. r,   (>., • l'•,,(,.., S bC'''" 1, 1 Ht- el.{ A' 1   t•~ 1c.", t C( h-"."-
stituticnc:. l previsions do not roquiro tho redistricting of cOUJ." 1' tios to make
fe1tlOr ropro sontatives.
b. W,. gif, 3lat: ly. Q. SOJlsiSJl@.: Tho constitution proscribos tl12t sosslons
of tho logislduro sl1':: 11 bo hold bionnio, lly cOj;' ll'loncing on tho socond Hondny
of Jo. nu. C\ ry next 8. ftor the election of iUenbers of tho legislaturo. Tho
. aovernor L1a~ T call a 8Doci0,1 session ' Hhonovor in his ju. dguon: t a sDoci31 SOSSi011
is adv: iSDhle. B\) i' 10VO;, it is roquirod thnt tho governor spocify   the svbjocts
to ba considerod at a special sossion and no lmlS Y: 1ny be onacted oxcopt as
relate to thc, subjects mentionod in tho call.
Tho torm of l; lolnbors of tho logislaturo is tiiIO YOG: i.~ s. Elections are
hold in Novomber of avon yoars, nnd tho regular sossion of the . legislature is
hold boginning in January of tho odd : roalJ following.
o. C() i1I. 29l.: pati. 2J. 1 _ L2   f~ l~\ t. 9..!, 9..: Originally, tho constitu. tiOl1 l) ro vidod
thnG monbors of tho J, ogislC: ltu: ro \. VQro to roooive ccnlponsoti. on at tho rgto
of sovon dollars 0. day for a poriod nut to oxcood Sixt3T days in any ono
$ ossion and :: 1so \ 101' 0 to rOcc) l. v: J l'lilc2ge Ol1G '', Jay, by tho shortost practicable
route, at tho rate ufhrol'). t; y conk; a milo. Thi$ preVision, ond all othor
constitutional provi sions end Imrs rog~ n:' c1ing tho COlilponsr:; t~. on () f logislators,
Ims ropoalod. by a constitutio1181. mnondnont initintod by tho pooplo, Hhich in', s
approvod [\ t; the g(; lloro. l olection hold on lJovoIlbor 8, 1932, ond bocm: lO affoc tiVG
on NovOL' 1bor 28, 1932.
' I'ho cux'ront ccmstit1Jt: ionnl. pi~ ovision prescri. bos thrrt nombers O. r tho
logislnturo shall rocalvo oight dollars a dn~ t for n pariod n\ Jt exceoding
sixty do. yf: l in nny ono rog1l1or sossion nnd for n period not oxcoocUng t, vwnby
days in an,}' one special session. Thoy nlso are C11titlod to recoivo milonco
0110 vnW by tho shortost prnctico. blo routo at the rato of tiJonty cents 0. nile.
In 19L.? [\ 1m" was passed \ Thich provided that n flny nOI: lbor or oIl;: Jlo: lOG
and offieor of tho legislature, Vlhil. o absont from his usunl plDco of rash.
donce in tho sorvico of the stcto during n session of tho 10g:: islrturo, shall
bo re: imbursod for his actunl nnd nOCC8sGry oxpondituros for subs. istol1cO and
lodging, net to oxcooc1the surn of ton dellers pOl' dey."
In 1949 tho provious StLl'tUtO i" rw C1Y: 1cncL:': 0 to provide thr. t If any menbor
of tho l( Jgislo. turo, \ 1hi10 a'bsant fr,)( 1 his usunl plnco of rodc1onco jn tho
sorvico of tbe stDto during a so,' 3sion of tho legisl,- rtLJX0 , shaD be roi: ibursGd
for his actual nnd 11oceS821':;' oy.; ponditl".. ros for s1,. lbsistonco, inc: icbntds, £\ 110
loc1g,> irw 11,') t to o', rc-'(~ rl + 1' 1(' 8' 11' 1 ;- f' s,,, ynn+ o'O" i' r1,\" 1"' 1"" D\ O'," -' I,.,,, '.,- uri <,' 11 0'-'''''. l'~" ons
"".   . Le , '" '" " J:,,". V"'~_ V, l. ... ~ • ,,_ . J .•. _"' ...." .... ...., j.~.-'- ....... '- J •.. l..._~. 4. P ....._ L- t,.~ c:, <"" J.. 4 t_ •• q , j. ..... tJ.~_, Jy v
or officers shall bo roillbursed fer such OXp0l1S0S in an nT~ lcunt not to oxcood
tho SUll of ton c   olla1~ s per d[~ y, for n por: Lod not to excoed sixty anys in
Llny ono X'ogulnr sossion and for 11 poriod of net to oxcood t\.! Ol1ty days in any
on0 spocinl sossion. 1I
I - 4
Although no lmJ cO'L1. ld bo found to support the pol: i. cy, it is tL.' 1dor stood
that employes ane! crttnohos of tho logislr'- ctlro 1: 1110 do not livo nvmy
froD homo during sessions receivo n flat foo of throo dol12rs pOl' day for
subsistence upon cortificc\ tion by appropriate DonDers c. f oo. c11 house.
d. Legisl2' tivo COLnnittoos: Tho S011Dte now has nbout tHonty- throo
stai; lding CO]'; 1JJ.: itt(; os,- an~ itho 1:''; Uso~: f' roprosontntives has approxi. rlD, toly
tHonty- six suoh connittoos gcmernl1y pD, ralloling those of tho sonn'to.
No provision is nOH mo. do for any pornanont, continuing intorin
comnitteos or othor logislnti\ To cgencios 1 but toqporary connittees of this
kind Inay bo and have beEm, cranted by onG Session to roport to tho no:;~ t. It
is not tho : intont of any COI! 1" 8onts in this : report to suggost any chcmc; o in tho
proc- oss by which such tompornry bodies may be created. They usue, J, ly hqvo n
special trm1s: tent purpose nnd [~ ro n usoful devIce for fulfilling that purposo.
G. ! l't8; 9..- 1-} os 0t.,. Emplovo. Â  .. of tho LogislatW'~: Tho con~ titution pro..
vides that tho toto1 pULlbor of attaehos or empJc) yos of tho sonnto shall not
exceed fourteen. Attachos and enployos of ' tho houso of ropros( mt[~ t. ives are
sinila: rly : restricted D3r tho constitution to not OXCGocl: i- ng a mUilber equal to
two- thirds of tho number of members of tho house. Host of theso attachos or
employes serve only during 10gis; J. ativo sessions.
Tho cOInponsct:\. cm of such atte. chos or omp'lpyos, excopt tho chief
clerk or sGcroto. ry of 08ch brC1nch of the legislature, 1. s 11nD, tod by constitu tional
provis~ on to a maximun of five doJ, l[:'.::,~ s pOl' c1a, Y-. Additional roimburso mont
for Gxponditures for subsistonco £ Ind lodging aro montionod in tho pre ceding
section of this report~
a, Â  YR- r, Pmo .. 9.~: Originally tho stato cOnEl'titu: tion providod thnt
the sUpr(;: clo court should consist of throe judgos. Hm- lOver, tho oonstitution
also providod thE1t tho nWJbor of judgep cO'LUd be inoreased by logislative
cwtion, and reoently the court lvas increased to fivo judgos. Tho judgos are
olocted at largo on nonpartis8. l1 b8110ts and Servo o\ rorlnpp: ing terrils of six
years.
Tho const: ituticm further proscribes thnt the judges shall appoint
Cl clerk cnd reportor of decisions for tho court "' ho nre ronovab; J. o at the
plea. suro of tho appointing authGrit: tos. In addition, tho plJprOOO court nOl,
has 0. small steff of stenographors,
': rho position of chief jus'tice is rotQted overy tlW yenrs, and the
position is held by oach justice in the l".$ t tHO ;)-' 08rs of his term.
Vacancies in the courts arc fi: J. 1ed by appDintT10nt by the governor until the
next gonoral olocticn nnd qunl: ifipation of a judgo 1;; 0 hold tho office.
I .- 5
b. Supertc? l' Cq.' Y£...' t.£: The constitution provi. des that there shall be
a superior court in each of the fourteen counties of the state. At least
one judge for these C01. trts must be elected l) y the voters of the county at
general elections on nonpartisan ballots. The term of office is four years.
Additional judges are elected to a superior court for every additional 30,000
inhabitants, or major fraction thereof', as may be provided by law. At present,
there are tl'! Onty superior court judges. Twelve counties have one judge each.
Pima Countj!- elects two superior court judges and Iv1aricopa County elects s: J. x
judges.
Judges of superior courts may appoi. n: t such court commissioners i. n
their respective counties as may be deemed necessary, and this pm, rer of tho
judges : l. s confe1." red spec5.. fical1y by the constitution.
The functions of court corrunissioners are prescribed by statuto and
include:
( a) Heari. ng and dotGrm. ining, in the absence or inab: i1ity of the
judge of a super:. i. or court, ex parte motions for orders and ' Hrits, except
orders for injunctions.
( b) Taking proof and reporting their COnCl1iS: 1.0nS upon any matters
of fact, other than an issue of fact raised by the pleadings, on \- Ihich
informat; ion is required by the cour   t.
( c) Taking and aPproving ' bonds and undertakings in actions or pro ceedings
in superior C01.: trts; oxamining the surotiostl1ore0l1; admin: ister ing
oaths; and taking affid( wits, depositions, e. cknov: lodgmont$ and proof
of deeds.
( d) Charging and collecti. ng the same fees for the performance of,
offic: te. l acts as notaries puhlic.
In addition to charging 2nd collecting feos, court commissionors
receivo a per diem foo, borno half by the stato and half by tho county, for
oDch day ( or part thereof) they perf~ rm services : in p. laco ;) f the jUdg~ s.
The consti. tution also prov; ldos that a clerk for tho sllperior cot. U't
i. n oach county shall bo oloctod at tho timo tho judgos of tho suporior conrts
are oloct, od and shall servo a foU: r-; j7oEtr ' torm..
By statuto it Is provided that oaoh judga of tho superior court
8ho. 1.1 appoint a court roportor.
c. J'usticos of tho Peacs: Tho constitutiorl, whi10 generally pro Viding
for tho office" s- ~ f5ust~' sof tho ponco" proscribes that tho nmnbor
to be elocted Ji'l. incorporntoc1 ci. ties, tmms, cmeI preoincts, and thoir dutios
and jU: dsdiction, sholl be provided h? 1m!. Sor: 10 broad . lirnit, ations in the
jurisdiction of justic(; s of tho poace 0.1" 0 nevertha10ss proscribod by tho
constitution. Justicos of the poace arc eloctod for fOl. lr-; roar torms.
1- 6
At prescnt thore arc approximctely 95 justiccs of the ponco tbrough    out
tho state. By recent sta. tuto, justiccs of tho peaco hnve C01. li1ty- wic1c
authority inasmuch as thc~/ In[' Y Lresido in any - orccinct in the countv, The
constitution specifical1~' r p: co~ i~ los ( 1) that ~ o~... ts of justicos of tho poace
phall not be courts of record and thoir jurisdiction is only that as is
affirmatively conforr(} d upon thom by InH and ( 2) that, ; in corto: il1 cases of
forcible entry and dOL2incr, the jurisdiction of the justJicos of tho peace
courts is concurront i< lith that of the suporim~ courts.
5. Executive Branch ___ 1= "" ----
As indicated previous1: r in this report, the OXeC1.1V1VO brrmch of the
state govorillllEmt is not clearly defined, According to the definition given
it for the purposos of thisJ;' oport, however, tho oxecutive branch comprises
2.11 of the agencies of the state govornll1Cmt not part of1 or includod in, tho
legislat. ivo tmd jud~ icial branchos.
Tho S'cnto constit. ution spec. ifically prosc: r> ibos tho follm. ring oxecu tivo
or administrntivo off. icers aDd agcmcios:
. Govornor
Socrottn~~" of state
statu auditor
StGto trommror
Attorney general
Superintendent of pub} 5 c instruction
stato O: XQl1L1110r
stato board of oducCition
Board of rogonts of tho Univorsity of Arj. zona
Corpol"' 8. ti on comIlis sion
Hine inspoct() r.
AlJ. of' the stOGO offic() rs listod above ( 1TO oJoctod for torms of
tHO yonrs, o:: copt tho state o: t: C\ lDinor Hho is c. PPOil1tod by the govornor, b; y
and \ lith tho advico ond consont of tho sonata, for e. term of tHO YOO: l~ S,
Tho constitution prov. l. GOS that thG st[~ tQ bom~ d of oducat: iol1 shaD.
consist of the govorno: r, tho suporintondcnt of public Jnstl'ueti. on, tho
prosidunt of th,:; Univo; csity of Arizona, and principals of the; stnto normal
schools, n11 ns ox officio mombors, and n city s'Lrooriiltcmc1ont of schools, n
principe1 of [ 1 high school, :.""\ 11' 5 c, county suporintcmdcmt of schools to be
appointod. by thu govorno: r, The prosidonts of tho state callegos at Flagstaff
n. nd Tempo serve ns membor;:; of the board. uithin tho constitutional provisi. on
roJnting to II principnls of tho stato nermal schools. lI
Tho consMtu: tion prosC" i'ibos thnt tho rogQDtfJ of tho skrto 1.4' Ti. vorsJ.. ty,
and the govorning hOt1ds of othoY' state educr: tion institutions, shall bo
appointed ty tho governor and tlwt tho govornor sho. J. l bo an ex offici, o membar
of the board of regonts,
In [ 1 comprohensivo artiolo, the cons" t: i. tution proscribos tho bo. sic
functions, nnc1 os- tnbliDhos the org1.1niz[ 1tion, of tho corpornt: ion corrrrnJ. ssion.
1- 7
Tho constitution nIso spocificelly provides for the n:' 1tion~ tl guard
of Arizona. Em- lOver, Gxcopt as a. l. roady indicntod, all othor exocutivo or
administr8t: ivo officors, off: icos, dopartmonts, nnd othor ngoncies of tho
executivo branch of tho state governmont hnvo boen estnblishcd by oxecutive
or administrativo action, or by st. J. to statutes.
' 1' ho fOllovJing administrative departments have been established
specifically by state statute ana are now operating:
Banking department
Department of health
High\. JaY department
Land department
Department of library and archives
Department of l, iquor licenses and control
Department of mineral resources
Department of public Helfare
Some other organizatj_ on units are connnonly referred to as 11 depart ments
," but they have not teen officia. J. Jy recognized as such in the statutes.
In add. ition   to the state agencies thus far mentioned, there are
approx: imetely 1; 2 bmn; ds, 19 cOTIlJJissions, 11. other plural bodies variO'lJ. sl~ 7
designated as councils, committees, or societies, and a large nurnber of other
officers, bureaus, institutions, and the liko vlhich make up tho over- all
structure of tho 0xecut. i. vQ branch of tho stato govornment.
This brief outl. i. ne presonts a eonsidoTebly ovorsimpli. f: i. ed p: icturo
of the organization of tho exocutivo department, In somo instances, it : is
impossible to detormine pos. it: ivo. ly v: hothor agendas should be . regarded as
distinct and separ~ rtG units o. f organization. About 115 separate organization
units are recognized for tho purposos of this roport.
stato administrative agencies vary greatly uith rO$ pcct to s~" zo,
type, designation, and rolationships to the govo: cnor and athol' units Hith 1/
, h1c11
thoy are affiLiatod. , some agoncies appoal..' to oporatc \ rithont supervision,
oxcopt such as may bo oxerc. isod nominally by tho govornor as chlof executive
and as tho appointing cruthority of tho hoads of those C\ goncios,
Tho governor : is 2. uthorizod, sometimos subject to sonate confirmation
or other restrictions, to appoint ILlost of tho administrative officors and
mombers of boards, COllllil:- 1s. sions, andindiv5dual managing otYicors. ' This doos
not mean that tho govornor a1:\ vays can oxerciso cont: col of tho agoncies of tho
OXQcutivQ dopartrJ1cmt, boc:\ 11s0 many of tho lJOards and COIDln: issions, in particu lar,
are made up Qf mombc: rs \' lhose torms arc; longor tb; ll1 t; hat of tho govornoT
and thoroforo only a part of tho momborship comas up for appointmont during
his torm.
Schedulo I, 1n tho Appendi. x of this report, proscmts a : Ust of tho
princ: ipal constitu: t~_ onal and st[ c- Gutory " lU1its of orgenization making up tho
stata govornmorrt. Tho purpo. so of this schodulo is to classify tho organiza tion
units according to tho form, nnd mothod of s;:; lection, of thoir managing
authoritio s.
I - 8
Schedule II of the Appendix proVides an al. phabetical finding list of
constitutional. and statutory units of state gover: nment organization,
" lith references to the place in the Appendix " lhere the basic rune...
and organization of eacb unit are descdbed and \ lhere, in t. he bod; sr of
report, proposals are made 1, lith respect to the allocation of their rune...
tions and their staffs in the ne\ v plan of organization.
Schedule III of the Appendb~ is devoted to presenting baekgrolJ. nd
regarding the same constitutional or statutory units of organ1 za tion,
includi. ng brief descripti. ons of the form and method of selecting manag ing
authorities, the prIncipal functions, the internal organization structure,
other features.
The governor : is a constitutional officer olected by tho que. li. fied
voters of the state for a term of two years.
The constitution provides that the governor II shall transact all
executi. ve business Hiththe ofCicors of the governmont, civil and mil; Lte, ry •••• 1I
His major functions and dutios also aro proscribed 0: 1 tho constitution and a
number of statutory flJ. nCt: i ons I'; tnd duties, largely in ampli. fication of t, hose
describod in tho const: itution, have bOOn added. Principal . f7Ulctlons of the
governor aro outlinodin the Appondix attaehod to, and made a part of, this
report.
It is considored that the gevernor I S tHo..,. ycar te: n; m is too short a
period for tho chief oxocutivo to accust()] 1l hi. mself to tho duties of his offico
and have adc3qllOte opportunity 10ft to put his policies :: lnto effoct. This
situation may be aggravated bytimo spent in campaigning for To- olection. Tho
term should bo longthoned to four ; yee, 1' s ~ and this change " rauld roquiro con.....
stitutional amcmc1mont. Tho advnn: tagos of longtllDuing tho governor's t; OI'In of
of.;: ioo are discussed at I:;£ oator . longth olsGl, rhoro in this roport.
The constiG'. xtion originally provi. doc1 that n : in caso of tho impoach,..
mont of tho Govornor, or his rumoval from offico, doath, ina1:: 1 lit: r to dis,..
chargo tho dutios of his offico ~ rosignation, or abscmco from tho Stato, tho
pouers and duties of tho office shall dovolvo upon tho , socrutaI'y of Stato
until tho disab: i1it:! COa1308, or during tho rcmainc) or of tho torm. 1I
' By concurro~ lt resolution of tho log: islaturo, ( J,[ loptoj by that body
and votod by tho poople, Section 6 of Article 5 TJEW nm. ondod : in Novombor, 1948,
to road as fol1oHI3:
" Soetion 6. In thoovont of tho doath of tho Govornor, or h: is
resignation, :) x: lUoval from offico, or pormanont disa1~ j.. 1Jt; y to dischargo
the dutios of the offico, tho SocY'cytnry of Sb'\ to, if 1101dinrs by olection,
shall succoed to tho ofrico of Govornor 1. L11til hi. s succossor d1al1 bo
olected and shall qualj., fJi • ; U tho Secretary of state bo holding othor \
criso than by oloction, or shall fail to ql181i. fy ns Govornor, tho
Attornoy Genoral, thc ~- 3t8to Auditor, the state : rreasnror, or tho
Superintondorrt of Public Instruction, if holding by oloction, shaIl, in
tho ordor namod succood to tho office of Govornor."
Anothor part of tho samo constitutional o. molldmont roads:
If In tho evant of thaLnpeachmont of tho Governor, his absenco from
the stato, or other tempor2: ry eli snbility to dis olwrgo tho duties of tho
offico, the povrors and duties of the offico of Govornor shall devolve
upon tho smuo porson as in tho cnse of vaconc::, but only until tho dis ability
coases, il
It is agrood 1.11 principIa that succession to tho offico of govornor
sho1. J~ d bo mado from olected state offj. cors. Howovor, tho proposod plan of
roorganization inc. ludes recommendations for appointmont by tho governor of
thoso administrative of. f: lcers now in the 1: i. ne of succession. As n consequence,
proposals aTC mo. dc 018m   Thoro in thi. s roport for substitution of tho prcsic1';. ng
officer of tho Bonete or of the houso of ropros8ntctivos as oloctivG stato
officors to f> uccood to tho office of govorilOr.
As indic2tod oRrl:: Lor in thi. s ruport, the executivo branch of tho
St3tO govornrnont inclndos approximatoly 42 boards, 19 commissions, and 11 athol'
pl1, lx'al bodios v[) riously doscr: i. bod as councJJs, committoes, or socioties. Tho
govornor makes appo. intmonts to at loast .31 boards, 17 commissions, o. no 5 othor
plural bCldios, rmel, in flddit: ton, nppoints Bono 26 othor stato officors or
omployos. In tho aggro; sD; to, tho govornor is cnl10d upon to solect and c. ppoint
2. pproximatBly 235 persons to ste-, to ngoncies, nlthough it shouJd bo undorstood
that 0,11 appointments may not bo mndu by a pc: rticul[ 1r govornor innsmnch as
tho torms of soma appointoo~ l Qxtend boyond tl10 Lorm of tho appointing governor,
or tho torms of appointoos moy boindofinitCj and bo carriod ovorfromtho
torm of ono governor to tl1n~ of another gOllornor,
6.
As indicatocl o[' rliorin this ropo: rt, omph2. sis in tho proposod plan
of reorg:: mi. zation of tbo sterLa govorm, lont h,.., s boon p. lncod on tho oxoCl~ tiv   o
braDel1, i118S1Uucll 38 t} 1cmost sar- i. ollS lJGf1. h: rlOSS8S or S: i. g11i" ficant dofi,. eicl" lCioE) . in
org2nization arc b() liovod. to o:\ 5., st i11 t11? tt ' brallc1: 1. T110 : feJ. loi, ri.. r. lg COl1Jl11Dnts
2ro cl: il~ octod at tllOf30 1 Â  . fonkllG8S0S and dofi. cioncies.
1, IollJT of tl~ o lTonl::', nOSSGS ill tI10 o} ci. s   til1g I) lnl1 of orgC: 1Tizati. ol1 nro
obvious and. SOHI0 otLors a:[" o not so roo. dily cpp2ront. Tho outstandil1[~
1 TO. :. 11n') O       cS,...... Q 0"""' ...: I(:: J   P" l   (~'; Ol 0   1- " Cl G'p .. t.. 1' 10   1 1.   ~ ' rr, f ~"'" f' 1 . " d Ii. c._'..; ,~, '.;.. .!. (.. 1" ...... ~ ..... _ 1 . '''.' .'.'. l. n p_. 3"" f1. t; 0   . GuGOi. . OWlng L~ ln S:
( Ll) Dispors. ion of authority C\ l1d responsibility r, mong too JTltmy
difforont govorning f'\ uthoritios.
( b) Il1o'!, ical P;.,~ ouping of r" ilnctiol1s ' vrUhin emd among tho o, goncios.
( c) Conp.' L3xity [\ DC inccmsi stone] . L. n tho forms of ngoncic s.
( a,) Â  . rn.-,, ppl' Â  OYP.,...' lq..,. 1\,.,"-, 1n" 0.11t01.. 0118,
commissions.
nnci oxcossivo numucrs, of boards Lend
( \ E ~~..
e) X 0111C10 OIl bonrd. s e~ ncl commissions,
COYiU'Tlents
tho so. mo
I - 10
' 1' hoso lvonlcnossos nro oxpla, inod under tho hoadings that fol" lmJ.
l '
" t ", ' f"\ ' . J.- q ," ~ a-'.~" ~ t . y\ ovor, dp u a cvr l"" ln OXvlon , l. NO.' 1..., V.....~ l... l, lg•   ~ i , Li SOff'i1v"-::" C~' .,... SOi:::-. iM O., -~ l.,~,: o'CUS. c.,;   1,('''', 1~ 1
basic dofocts f: rorl difforent points of vim. J,
Tho
of
7. Di8Porsi$ l of POVlors Among .!? liLcrront Governing Auth() riti.,. QJ3
It is cOl1sidorocl axiomatic tho. t all po. rts of any entorp: risQ should
bo subjoct to coord: i, uetod planning, mcmngemcmt, and control, subjoct, of
C01. trSO, ' t0 proper u.: J" OmOCraT• i" lC ClDe'cl: s an, Q'ba1enC081" nGJ~ 1lO 0,180 01,... gCJVOrDlnOnT• i
orgc: nization. 1' h18 is nocossary to provide aSf, uxrmco that tho difforent
parts cmi be operated harmoniously to offcct thair COInllon purposo. Ono e, f
tho most importnnt S01U~ CGS of oconomy and officioncy in tho administn" ticm
of an outorpdso as .1nrgo as that of the stato government of Arizona isp: po vision
for the consolid", tion, or, r\' t loast tho contJ.' n. l control, of certain
stnff sorvicosand faciJ., itntiYO 8. ctivitie s of kinds that ;:: n'o involved in ' tho
conduct of all or In. ost ngencios, no mattor ", hat thcd, r primary functions nay
boo
In tho state gOYOrDJilGht, 8. S a rosult of tho splitting up rmd
scnttoring of stato govornr'lont functions 8i1Cmg so jDDny di.:' indopcndont
or partly inoopond81rL 3uthor1tios, separate prov, isiOri: 3 havo to bOtUc; do by
onch nuthodty fo:~' such fU! 1ctiOlW and nctivitios as purchas" Lng, porsotl1101
mcmagomont, mnterial sto;: ces and c( mtrol, o. ne othor spedal. izod servicos, to
meet :: 1. ts OvlD noeds. Such inc1opcm, donce of autllOr: 1. ty makes Concerted action
('. c. 1c. o'r, c, 1A,' l"~ n0b' to ("...".... 11' uJ' cor"'"."' Y, i/' r   o   ) 1""......'. Jn."~ J'.. i... v. o' rJ.. J1, ......". I~,'~ n J."'!- m!"' J: r) C) S1S-, J.",- t.'_' le   C" r1>." CIt". y. r/'' re' c,~ 1..."' L1.( lo   1g- . UL_ ho, CJ (). Y......> CG'-." 1J t', r'.",,~ ....
tion of 1: 111:: 0 \. lOrk and rdnilar stnffs in the : interests of economy. Each of
tho spociali z, ed str:. ffs ,1 S nOCeEJSEol', i1; y sr, nllor than ~ 1() 111d bo needed for oon tralJzed
servico to the ontiro stato goverl1: mont, bnt in tho as'grognto they
are much gr'ente, r nnd morG expensive. Tho edwmtagol3 to bo socul,' od from
strmd[' rd: ized prnctlcos, cooperative endoavor, lnrgo.... sco. le bu:, y- ing, greator
spoQi, f. llization, division of labor, nndintorchango of special.' i zoc1 sorvices
aro largo1y lost.
Ono of tho primo Gxa: aplos of , ihd, night bo demo to CO'lO, 1110 fQcilit[ 1.~
tivc sorv. i. co nctivitios 1108 in tho fieId cf' rove: nuo admin: i. strnticm. Nenrly
ovary agcmc;) r in tho steto govornmcmt roceives nonoy frorn SOYilO sourco or athol'
and sovor£ ll r; gorlcios nro ongngcd in por: fC\ rming activit: Los Hbich ;": 1' 0 o, f mc'- jor
roVonuo proc11.1cI. ng chr\ ractor. ~ Jhi 1.0 1] cOllsidoro. bl0 l1UJJbor cf OlrlGSOS of
rocoi. pts can, not bo collectod by C\ f: Jing. 1o agoncy, Dt1Ch arm bo clemo to in-t
  v.. C.),. lp. ~'",,,' yt("' L" l, C) S   t collo.' c. '~- 1v'.. C' 11'"" ("."', C+ v1. °' V.• l_"' t. l" 1"..:;'' 1'-'. 1. _' P(~).', l' oY. o" I'i'.(--, J.~-... l. L..'./• l•• o   , , t 1~ 1' V"' '';,' 1".. 1C)-., 1""-...'\,'. J' t", io,_.. f ,, L1J   ' 1..., V'" u"' t( n. I, JV-." V"
institut: ions o. nc1 incidcmtnl foes connoctod \.; i".:, 11 I, l[ JD';/ stato officos ): lust
necossarily bo collectod in connocticm \. lith tho , Jork of tho rcsDoctivo insti-t'
11, J   " 1" 0" 8 "' 1,.... 1 " P,. t'J." en'" H--' f, TI'") V:)"'" ' 1   + _,.,_." 1,,: 1}..., • ' 1'   " ~ \ l''!' T .,' '~~ +"~ . r'\' l ' 1 ~. '. t   .......- l,,~, , r v, l;."" " .• " (). l. l.';'_' . U"',. CJ." v iJ',) U,!.',) " A; 011", 1,. 0 J prc, c"" LCo" D" L. U 0 COl}".;. J" Dd
nIl tax collocting functions and corte- in other reVenuo ccl1oct: inn functions
in n Si' 1': t1(, do, y'rLlClO   1' rt th'uc• roduc'in   ,:" t; 110 ' 111,,, 1) 0'" O'I" '' In'C''~ Cl" C'''' J"' 11T ,)' lVn "< 1")- l 1 5---' J ~,!.:'... (., '''', 1 - ,... 1 , ~. " - t:: J .. .. *""", J. ,. c:. e,-, J..... ," w ,1_ ' J I.. , ' ....... '-. J. . .1
this t;' TpO 0: 1' llork.
Ti. 10 stato tn~ h: COr: l: Ll. i.. ssi. orl is tI1Q prillCi~ po. l ngoncy o, f t} lG stato g{)\ rorn lilGnt
chargod Hith rospcmsibi. l.: ity for [; dministoring tn: x; cs, : lot estato taxos
nrc assossoe! and co11octcd by tbo cstr~ to tn: x: cCfaI.': TI, ssiollor, lnotorfuol ' ta,: r8S
nro bmdlod by tho high1t! f\ Y dOp'Tt; lent, ': 1. nd innurnnco proI: liur:; trlxos [ lTO col1octecl
by tho corporation cOIllri. ssion, Obviol1s1y, tho Hork of 8dclinLstoring tho twx
InHS of tho st'cto shou1d bo cOllplotoly coordinatodlf [ my r0uso118ble dogroe of
offectivoness in so. 1vinS tho revenue prcbJ, OT'ls of tho st[" to : is to bo attai:: wd.
I - 11
The stato auditor, the state troasurer, end tho tnx commissioners
0.1' 0 Glo~ tec1 to offico by populnr voto, and, honco, are in a large p: lrt com plotoly
independont of tho executi. vo and logisl:! tivo branches of tho govorn ment.
Each of theso officia1s oxercisos functions that undor ordinary c1r cumst1:
mcos iVould bo considerod as functions of tho exocutive branch of a
,., Â  ,; verrnnent and sub'joct to tho control of the chief oxocutive. Tho dispersion 6' ' "'- " ' -
of authority o. nd rosponsibi1. ity f~ finnnc: ial functions 8nong thoso indupon..,
dont officials is considorod 8, basic Hoaknoss : in tho presont orgon: ization
pla, n.
ill10thor important E1speet of tho 1-/ 11010 problom of tho dlsporsio11 of
pOl'lOrs mnong tho v::; rious state agencies has to do v! ith thotr vory nur'bor. It
is virtually impossihlo to achiove mw high dogreo of coordinatod planning,
Jnanngonont, and control of tho '!; wrk of 115 sopnroto ngoncios. It is Illost
cort8in that thoir numbar should bo roducod mnteri, nlly - dOioJ11 to n nunbor that
\. Jou1d. bo \, li'thin 2. nnncgoable cOlapass ~
8• Illogical, , Gl'OUR" ir, lg, of FUJlctions 1", 1, iG,'- hin fl", nd, k: lCmg Agencies ... .•. F .,'",",., , ...... ~, _,~
An nccoptod prnctJ. co in the crgAniznti on of an entorprise is th:: rt
of bringing togethor uno.') r CODT: lin supol'Yision, those functions that i1: l\ Tolvo
oporntions that ecn best be carrIod on togothQr by monns of sk. ff and
i'acil: i. tios ai' liko ki. nds. In the exoc1.: 1. tivo branch of the state governmOl1' t,
particularly, no consistont principlo seons to havo boon fol10woci : 1. n tho '
1' 1ctto1' of the grouping of fU11ctions under tho': luthor: ity of difforept odmini   s trativo
agencies. Tho lack uf cOl1f. dstonc3T :\. 13 notiCQ2blo in - t~' lO dJroctLons.
Functions involving liko oporot: i. c) lls aro H: idoly distr: ibutod aDioc; g difforent
c. gonci. os; and 1i. n] jko functions aro combinod undor tho sm~ lO ::\ uthoritios.
E:>:; anplos 1' 0adil; y c011J, d bo oxtol" ldod of tho scporc, t. ion of liko func tions,
hut only a fen.! nro J' 1ontioned to illustrcrto tbo condition;
( 3) PeI'sD11l1ol Hork is dividod nLlong a multiplicity of agoncios.
ngenC: IGS,
nooc} od
( c) Control Qnc1 l'-;: cl1cgOJ; lont of nutoFlotivo oquipmont rtro dividod
nmong T; 1any ngoncios heving such equ.. i. . pnont.
( d) GOrloral suporvisi() n of ' bUilding naintcnmlCo, planning, 2nd
prcgrrm1.' J. ing is docol1' tralizod c. r: xmg " Jnrious o. gcl1cios.
( 0) Livo stJoclc : il1S1Jac   t~ ions t"\ ro d.: iv: idod Q1':. 1011g 8" 1.011 : irlc1.0pOJldol1t
flgoncios as tho livo stock s:: mJ.. tC1l'y coo. I'd, shoop soni't::. r; y cCilEd,$ s: i, on,
stnto votorinariLm, : md tho Arizona CCLJr, li. ssiol1 of ngriculturo nna
hor- t5.. cul   curo.
Exmnplo8 of unlil:: c : functions, ofton incon;; Tuous and ovon : incclD. p:: rti blc,
in tI1G saI10 e. go: nc: r D. ra to bo f( H. L11. d il1 suc11 cnsos 8. S DrG doscri1Joc1
balml:
I - 12
( a) The highvray department is responsible for the collection of
gasoline and use fuel taxes and the administration of the revenue 1avlS
relating to these taxes.
( b) Dam certification \ wrk relating to the general control and
supervision of the vlaters of the state is performed hy the bridge and
dam certification d. ivision of the Arizona state hiEh\' Jay department.
( c) Licensing and regLllating the occupi'rtion of real estate
brokerage are carried out by the real estate department operated in fact
as a division of the state land department.
Numerous improvemonts in the current organization plan of the oxecu. Â tive
branch of the state goverrunsnt can be achieved by building up main do partments
along functional lin8s and bringing ,,[ ork of one type t06; other.
This reallocation of functions Hill avoid many duplications and losf30s of
opportLmitiesf'or securing the oconomies that can be realized through the
concentration of operating or administrative service functlons.
The state has not prOVided for central purcha:;:; ing and all of the
agencies are prrmittocl by laF to nogotiate thair own purchases. Furthermore,
the proceduros for conducting purchasing nogo'ti. atious vary among tho sovara1
agencies and, for tho most part, ;; rro not in accordance Hith tho best approvod
managoment practices.
The responsih: Llity for hoa1': ing appoals on asscs, sncmts is a quasi..,
judicial function "' hieh ShOl: J. d bo vested in a board composod of persons 1. rho
aro not involved in tax adndnistration. At present, thoso involved in bearing
such appeals arc also rO~ 3p( ms1ble foT' administoring tho corresponding tax: , lmIs.
The rospons: ihiJ5ty for post nuditing should be VGstod 1n cm inde pendent
auditing official \\ Tho uould bo elocted by and modo rosponsible to tho
legislaturo alla " 1ho iVould in no \> Ja; y- be involved in tho administration of' tho
affairs of tho stato.
Theill1po: ctcmce of' tho p~ obl() ms involved : in budgoting have not boen
accorded propor rocogn: ition 5n tho presont plan of organizl~ tion through tho
failuro to provido adoc'uo;' Go staff sorviQos for budgot pI'opnration and reV2JJH.
Such staff services rolative to budgoting as are renderod are provided by tho
state auditor's office, and tho pross of' other duties on tho time of the
auditor is such that . it . l. S impossiblo for hor to fill tho comblnod positions
of sto. to auditor and budgot of.£' icor. Tho ontiro subjoct of budgoting is
rosorvod for troatmont in anothor report, but nt thi. s point it is considorod
important to mcmtion that tho presc) 11t as, 3ignmont of rosponsibility for
bUdgoting is not a logical ono.
The prosont frammvork of tho c! goncio8 in tho exocutive branch of the
stato govornInerrt. is involvod end confused. Thoro a1' o Im. ut.: i- tud: i, nous agoncies
that vary among thomsc; lves in their form, in tho scopo of' thoir authority, in
their relai"; ionships to oach othol', on6 in thoir rolat. i. onships to highor
Quthority.
I - 13
Tho heads of the several ngoncies are of sevored types, arc con :
in vari ous different ways, and have l- licloly varying pOi. JOrs. HEmy of
agencies arc headed. by boards, com1' n1ss10n8, or plurol. bodies othoruiso
nnd somo by individual officers. Thoro is little consistoncy in
methods of appointmont of the membors of such multiple bodies, or of the
.... '-'< 40.... Â  officers. A tenure of off: ico is proscribed in most casas, but in
it is mado indefinIte. In most cases, subordinato omp. loyos are
by tho heads of the agoncies, but in somG instrUlcos such subordinates
8PP01. ntod. by highor or othor authority.
In Schedule I of the Appendix state officers, offices, departments,
boards, conmd. ssions, committees, and other agendes of the state gover l1Yilent
have been class; Lfied vithout attempting the very dU'fictut, if not impossible,
task of determining uhether or not each should be regarded as a separate and
independent agency. LikelVise, ISchedu~. e I makes no disti. nction bet\" een boards,
cOl11Ii1issions, or committees. All such plural bodies are listed under the
general classification for boards. Tempore. r;) r agondes, tho~! e agencies pre scribed
by la,,, but no\-! inoperative and informal 001;] il1ittoes : in operation, or
to \- lhich appointlncmts r.: ave been madE~ though the agencies may nOvl be inopera tive
for lack of funds or other reaSOn, aro   j. nclucled in Schodule J. The
classification used in this schedule is as folJ. o\- lS:
Numb,? r of ~ n£~~
7 A.
20 B.
1.3 (' ".
1 D.
2 E.
45 . Q
J.~ •
4 G.
0C} H.
15 T .~.
ill
Agenc1es headed by elected officers
Agencies headed by : individual officors
appointed by the governor
Agencies headed by individual officers
appointed by authorities other than
the governor
Agenc: L)(':) headod by boards, all mombers
of ,,[ hich aro appointed by the govornor
Boards \: ith all members elected by tho
people
Boards id: th all membors appo. intod by
the govornor
Boards \- lith all members appointod by
a'\ lthoritios other than tho governor
Boards ldth all members acting ox , 0
officio
Boards with smilO mombers acting ex
officio and some appointed
AD. classifications
The total of 115 Gxisting agoncios and boards \ 101.. 11c1 bo m. uch
greator if all s1.1bordinato orga: 11. ZaFLOn units established by statuto or ad ministrat:
ivG action also Hero included.
This sUl11Ilar3' tabulation, supportod by Schedule I, illustrates tho
complo:;::: 1. t;: r and inconsistoncy in tho forms of stato agencies, particularly in
the executive brcmch of tho state government. Furthormoro, thoro appGars to
bo no logical plen by   Hhich tho v2riations in   the form and composi. tion of
agencies can be rolatod to tho t; yuos of functions carried on, or to other
pertinont factors" ..
I - 14
Some boa: rds and cOl: JJli. ss: ions arc vQsted t'lith administrative or manage f"
lillctions relative to activities under their control, as Hell as vl: ith
ory, quasi- legislative, or quasi- judicial functions that ought to be kept
for bost results. Humorous examples can be cited, but it is con-that
a fo\.-[ 1' li1.1 illustrato tho Hoaknessos being doscribed. The in cO}
llJ.- nission, corporation commission, cr: lplo~ rrnent sccurlty cOnJmissi on,
and fish commission aro but a fG1< J of the state f s o. gencios hoaded by
bodios vlhieh also aro responsible fo: e the performance of V8riOUS nd-functions
for 1- lh1ch additional staffs are required.
Expori. ence has demonstrated rother clearly that, as a gonoral rulo,
or mcmr\ gorial functions cannot be exercised Vlith continuing
", t     t"('!~ l   , l'\ TOy) OSS b; l boards, commissi. ons, or other plural bodies. Hanagomont
undivided rosponsibi. lity for action on countless details rAther than
nnd moot; i. ng of minds. Divisj. ol1 of authorit; y, delo. ys : in action,
inability to fix rosponsibili. ty are COlilmon l. d1e~ 1 pm- Jors of oXGcutive
are given to a board, commission, or COlillilittoo.
} 1m< Jovor, it i. s dosi'ri. 1blo that certain f1.. U1ct1ol1s be exorcisod by
plural bodios, such as thoSQ functions involvod in g. l. v. in£~ advice, nlcl1cing r1J. 1es,
and conducting hoc: dngs; 2nd. tho asd gnmont of those functions to sueh agoncies
is appropriato providod administrntivG pOivors, functions ," and. o. ctiv: tties aro
not included.
It . is to be noted, DIso, thl~ t thoro arc at lcf: wt 75 boards or
similar plural agoncies 1101' 1 : in o~'~ ist; enoe .,. 2n excessive l11) Jabcr judged. by
nlmost any standard of roai30nnhlol1oss.
11. Ex Officio Hornboruhios on Boards and. Commissions --'.-.-""""""...__•__...... ¥.,. .-. '-, . ','
Tho currant organization plan provides for 0. rolativoly lEirgo
nUJnbor of ox officio m. emborships on var: ious bo[; rds and cODuniss: ions. For
0x,::: nnplo, tho govornor : Ls all ox o1' f1c10 mombor of at loest six boards or
Gcmm: issions. Other state officors, such as tho land commi ssionor, t: roc, suror,
aUditor, attornoy ge1J, orf, l, and superintendont of publi. c instruction o. lso
serve o. s ox offid. o members of plurw1 1, odios or as hands of othor offices.
Additional oxnmplos could 100 cited.
The stnto 2uc'U. t. or ,: md stato treasurer aro ox officio menbors of
sovoral 000.1' 0.8 or commissions and both officers 130rVG as ox off: icio mombors
of tho oonrd or " tr'lc   te: o<~ Nf oI-' 11A Y)" lll; l ' ic olnY'~ J.   O'" O   S I rotirc'p,,   > j_   t ''' una' " 1" hoc. 1"' nc- <..,.~ .- .. \. J '-. j ~ V_. u. ' 0...; . t ,~" _.. . ....,;/. , ",,' .,.",, J, ,. v_ l . J- 1 .... ' ' A. J. • l..,.{ J.
tions and activitios of theso agoncios all . i. nvoJ. vo somo f: inancial mattors.
But, f: i: nanc. i21 mattors : froquontly nro : lnvclvod in I; 1. Emy other agoncies . in vlhich
the state auditor ond strIte tronsurcr nro not dosignated to po. rticipato as
ox officio monbers. ' rho ly': r   t. iGJ. P[~ t: iOl1 of tho,' 30 fi~ lrmce offieors in tho acts
of o'Jards nno. col: lr. lls P1 " i1S, on t1hich acts the; y must .1ator pass in their
capacities as t~' oasm'( jJ' ane auditor, rospoct: ivol: r, dc) privo them of tho d1s intorect.
odnc: Js that thoso officers shol1.1d bo in a position to di8D} 87 in rela tion
to tho transnctions of such agonc: ios, Thoy ai   o not l.: ikolv to h~ vo th. g, t
iIr. pccrtiality in p8. ssing, AS control officors, on transQctions to 1.1hich they
aro part, J. os 88 nonl) ors of boards.
I - 1.5
Likmrise, tho nttornoy gonorLl). is in 0. sinil::- r position fran the
of rendering d: i. sintorostod legal ndvi. co to bon; cds or commissions
which ho is a momber. His advJ. co : 16 just as roadily avnilnble, [', S chief
officer, as it could bo DS a mO\ lber of any such boards or con: mlssions.
Froquently, attompts 0.1' 0 mado to justify tho devico of e: x: officio
on tho li; Tound that it provides a moans to koop stnto officers
of tho activities of vo. rious agoncies with lThich such ox officio
aro concorned. But ox offi. cio membersh: ips actu[\ lly tend to dissipGto
sponsihility by rendoring difficult or impossible mw cloar linos of
and rospons5. bilit; y. Furthormoro, tho timo and attonti on thc.~ t can
given to the man: r boards and COFllilissions of which busy m: ocutivos or
nrc LlOlTlbers cnn bo J"' lade nvailnble only o. t CI s:: cr:: U:': ice cof the
functions Clnd rosponsibilitios of tho officors.
An nc1IilinJstr8tor 1s somotimes also an ox officio Dlcnbor of a board
commission 1: 111i oh hCls oontrol o" or tho m'\ ttor s ho is cniled upon to ~ J. d) rj. nistor.
such a pleD, thoro is 8130 froquontly the tondonc3T or opporbmity to
"".,..,,'.,..., se function;; in an ox of. f: icio cf. 1pnoity, Tn bonrd clotor.:': lin:: rtions, vrhioh
should bo handlod in [ Â  m (,) x0cutive or adrlinistrntivG capacity as head
dop: 1, rtmont, () ffico, or cthor unit of orgallizfrtic'l1 ctbor them that of a
or COLl1: 1: 1. Ss: 1,- m. In such cnson nn officer mas hGVQ 2uthor: i. ty to o. pprovo
di. sapprove l~ is of'ficir: l nets, }) 1,811S, a11d, I;:!~ ogl"' EU1JS t} 1at 110 11. L, Tlscl.: f is
\ Â  rith cC1J.': rying out, and thus to escape rosponsibilit; y for his " tats
adrnim. strator.
Sumno. rv- stntonont e. s to Existj- ng . QE&:' l,. l~<: J. tion
-'"\""................. ,. '~,.,....-'._- -, ',., , ",~
Tho nntural results of such condJ. tJons ns havo boon outlined cannot
othor tbm fc: iluro to socura tho oconomy m'Kl offoctivenoss in tho conduct
of tho stntQ govornmont, pc\ rticularly In the O{ cc   : ltivo br::-;: 1ch, thi~ t a 1m: ifiod
nnd intogr, ltoc1 or[!; oniy; ntion tT01ud l: lako possible and f8cilitato.
Tho orgm15zc-; tl. on , structure of tJ}~) executivo bnmch is comple: x:. ' fho
splitting up of functions ClLl0ng differont indopendont or pertly indopondent
[ mthoritios norms oxtra oxpenso £' 01' such act. ivitics ns :; JUrchasing, flccount: Lng,
bUdgoting, Gnd porsonnel ndmin: i straticn. Similnr functions aro not brought
togothor in single agoncios in casos uhoro thoy should bo; and, on tho other
hnncl, vridoly di- f'feTont, nnd sonotimos i.. nconpctibl. o, r1mctions [ 1, ro VQsted in
cartain othor singlo agencies. ' rhoro arC) far too LlnnJT sopm~ ateJ ndninistra-tivo
agenci. os.
Thoro is l: ittlo consistency in tho Hny agenc. l. os 0.1' 0 hoaded, SOD10
baing under tho control of bonrds or comr; issions and sarno undor individunl
officers. Somo boards and comnissions nre restricted to ncm- m~ l: lin: istrativo
r1mctions, 1-- rhilo others nro activo in tho processes of de. y- to- c1ny ed; oinistra tion.
Thero are too Deny ox. ofi'icio nonborships on boards and cOlu:" i. ssions;
o. nd too marry puroly ministorial offic- ials m'o elected rcther than appointed.
Thore nre other fnults o: t tho present plan of orgo. nization tJhj. ch arc
greatly in noad of corroction. Subsequont PiTts of this report aro aimod at
Supplying a satlsff1. ctory plen to moet this aud,
PARr II
GENERAL CEITERIA OF A SOUl'll) PIJ'. JI o: B' ORGMU2JYl'ION
1. Il1. trocluction
The purpose of Part II of this report is to outline Val~ Jous crlte: C'i. a
that ' the EtU-' Gllo: rs bel. Ieve sho'U. lcl be COIlsidered tn detenrJ.. rllng speci., flc . fea   t1.; xes
of a sounet IlIan of gover; unent organizatIon, aml to discuss SO: Ole general problems
of d. eveloping ana. putting into effect a plan of reorganizati. on of the state
govertUllent.
2. General Ol) Ject::. ves of Y. t:' oposed. Reorganizatio: n. ~ ._.~_ r ...."_",!""-_~'''._~_'''''' ''' '.'''~' , ..' ..• " .. .~ •
J3jr the organization struct" UX'e of a government is meant not only the
aggregati. on of clepartments) inst. ttutLons, and other agencies, " but also the
arrangement by which these are related to one anothe: J:' and. Â  GO t, he higher offieers
anci agenc. Les of ( Urection anel control, the manner in which the; y are l? Jacecl uncler
managing autboJ::' ities, anclthe i'lay they are divJ,( led inte: l: nal1y into s1.- lbcl: ivisions
and set up " rithUnes of authority running clOim fl~ om the managing heads. The
planning o: f an organization implies decisions as to the aLLocation of funct: i. ons)
activities} staZ: f, and egulp: ment to various organiz8: tion units and, theiJ:' sub   ,
divisions cJ., oymto lnd.: LvlCLual positions. The elements of proposecl organiza   tion
struct" UX'e [) l'oposccl . in this report are con. fineel largely to top levels of author: it: r •
Ch<: mges in organization structure anel relf. 1ttc). ll. shl. ps are not proposerj.
merely for the salce of change. The pJ::' inciples that shauLl 1.) e 011servecL and
requ. i. sites that sho1.1.1( 1. ' be sup}) Ueel in setting liP a sound and economical c. rgenl    
zatlon for state government are eq: nal1y appU. c<:; b1e as stamlarcls \' lith wh: Lch to
measure the ac. Lequacy of an existing organization. rrheseprLnclples anJ. requ. is ..
ites can 1) e sto: tecL in a mun]) er of ways and expandecl to ' Ve: rying degree. Sue11
pri. nciples and recl't1. i. sites shoul0. ' be thoroughly unde: rstoo~ l an( l observed in eny
plaJl of Ol~ ganization : tf the plan is to have other than transito: r~ r signi.: flcc. nce
and. if : future plannLng and leg. i. slation \{ 1th respect to orge: nlzation are to have
consistent, gll: id. ecl dlrection an(~ e; ppropriate object: Lv. es. Unless nc,' l or enlo, rgecl
functions or staffs are fitted. into a sOLmd, consistent pLc1n, anin4Pp.. copriate
or uneconomical, organization stru. cture can be expected. to cont: i. nue o: l' arise
fl~ Orl fl~ ture plannIng and ad; justments.
a. In gcnera. l: In the development of the propo::; ecl plan of organiza tion
for the state goverL'llnerrt of . Arizona>, ' the authors aT this report have been
guideclby var: Lol. 1. S crlteria they believe shauLl be consliiered. : tn dete: nnl. ldng ,' That
features a goo< i plan of organizaM en shoulcl have. The ' Vo. ri. ous fUl1ct: ions e:;: er"
cieed. by   the stccte goverrl1Jl. ent 4ave ' been viewed in the light of these c: r. itel': i. a}
11h1lett Is an exaggeration to se:: l thm; t the state governmcmt eon'"
s't: itutes a si. ngle enterprise in tho sense of carryIng on only One line of en d.
eavor" nevertheless ~ tt i. s a single unit of' government esto, blished uncleI' one
conr: rtJtut: ionnl rlOCl: lL" 1ent and ' With one lav- lnaking boC'c;) r, Government co. nn. ot reach
J:; very subordina   te orgoni. ze: t: ion 1. mit engagecL in adminLstrat] on should,
have a 131.11810 acl1n5.:' listrative head. There shoulcl be clear lines of author: L'ty
from ' the top doym t; o each lOi'rest Unit head and tl1X'ough him to those persono
for ' whose supe: r'V1. sion heiB respomJ: i. bLe. LjJ{' e" irise ~ there nhou. ldbe ele[~ r chan nels
from t. l1e bottom to the top so th<:'. t each person " rill know' to " rhom he i. 8
l"' C'Sponsj'ble. The head of an orgo. nizatton unit should be given authority over
the head. s of all subdi, visJons of that unit and subordinates 811ou1c1 hcve i1uthor: it3r
commensUXG. te " TIth the1.: r . res~ peetive refrponsi." bili. ties.
c. Untt;) T .., anq. Coordination: The organiz6; tion should be unified Emel
: lntegratecl. Tt shQuld be so designed, as ' to fac: ilitatethe coorcLLllatl. on of Hs
se7eral activit: ies. All the ac. l): n: in: istrative i'TOri\: o: f a gove~ c: n: ment should. " be Bu1)~
ject to coordinatecl executive dtrection t:\. Ucl control. to the encl tl1, at resovrces
: In li1anpOwer and lYJ, one3T maJT ' be conserved, and harmorw of a1. r; l; sJ act ion.} [~ ncl eff'ort
may be sec1. tred. Ad; min:~ st: rative authority~ to bc most effective ul1(: 1e: r nor~ J1Q, l
cond, LUons) should be placed, in the hands of a single executive who 8hoa1( l be
held. strLctly aceountable for the satisf8. ctory and, economical conduct of the
affairs of the entire estc, Dlisl:!: ment fo]:' which he 1.$ resp011, f3ible.
II .- 2
Simp:: t. ieity and directness
Un: i. ty anct coordinatton
Hana- geable spaD: of control
Logi. cal allocation of functions
Sul) divis:). cminto subordinate organ.: Lzatlon units
Separation of e: xecutive~ jud. i. cial~ anc. l legislative funct: tons
Proper funotions of plUl~ al, bod.: ie$
Provision for continuity of policy
Provision for competent persotUlel
( 1)
( 2)
'-) u (
4)
( 5)
( 6)
( 7)
( 8)
( q)
./ "
opinions reached D, S " to the plan of ox'gnn: ization best adapted. to exercise the
involved auc1. to aco(: l111pl: ish ' the objectives sought. In outlining basi. c
of sound organization and developing a plan of organi. zation : in accorc1-
wi   th ' these cr: iteria~ the avthors have also been guic: 1ed by experience ga: Lnecl
their professional practice ovex~ a period. of several decades and lJy their
of organizat: i. on st, ructl1reS that appear to serve satisfactorily
slln: ilar circ) lunstances. The speoific cr: i: teria usecl as gu:~ des in the
of the propOl3ed plan of organizat.: ion are set forth in the fol1ow paragl'aphs
• ~ rhese c: dteria relate to:
' b. Simp:! J- city C'. net Def; Lnitene~ s: The strncture of ol'gan: ize, tion shoulcl
be simp1e ~ cle2cr; and. definite. ' l: he place in the organLzatlon structm'e of
essential aGtiv1. ty aril ftL.' 1ction should, lie fixec:. def'initely~ an0. the: i.~ e
shov. lcl 1) e no c: Lupllcatlon or ove: rlapping E:: lliOUg the functions aud activities of
organizati, on 1Xnlts~ either 6:(. 1. ong those of eql. l. i. valent rank or ar: onc tl: ose in
acljoi. n: Lng levels of authority. Main ctepartments or other agencies~ £: md, sub d.
ivisions thereof~ should. be held, to the minimwu munl) er }? l'Gctieable , vithOll''::; }
h()';' rever~ making a cUlJibersome combination of un'like funct5, cns merely ' to attain
paper siJ1rpl1city. ' I'he mU; ll) er of l. evels in the organIzation from the ' bottom
up to the top should. also be held to the Im- Test prEwticable mi, nilmun.
II '- 5
hi, gh level. of effectiveness in all its ' b: rc: mches unless those l) ranches
in" tegJ::'[~ te( l 01' coorclinntec1, ane" adr. o. iniste:: cecl lU~ cier uniform pol: iciec, and stand of
ope. ration, serv: i, ce, and Ol): tput.
Besides the provi, sions for executive control ancl coordJ. nati, on of
there is need. in large orgC:~ F: izationsfo: r central. mt. rrinistrative
agenci, es to provlcle £ Q:[' the common needs of 0.. 11 elepErt'tments or other
: for certain administrative or ove: rhead services. Such cent:: r'al agerlC. ies
intend. eeL to provid. e adeg, uate, un: ifiecl, and. integrated systeL1S for svoh
as. lmdgeting, accoun: ti. llg, c. udlt: i. n. g, purchasing, and. for selecting; ap and
compensating governrnent personnel,.
d,. HCU1e. geable Span of Control: The span of cmltrol to " be exercise( l
aclnrLl1: ifJti:: ntor s1101.1.1." cl " be' no' Irtderthan : Ls prc. ctica" ble for adequate supe: c ':
Phe numl) er of persons vTho can " be mc' 1, de responsible to an; y one SU1) er as
0. pnwttco. l matte. r, YOT. ies greetly with the kind of 110rk : irwo1vecLj
the l1wll1) er of s'taff assistants }? l'ovi. ded. j and vith the l1. lUil1) el' ( if persons
his own unit ' vitIl vThom he Dust cleal. In almost 011 CE\ 8efJ, Â  the mUllber
direct to anyone snpervlsor should ' be kept : relativel~ y small.
e. Logical Allocn: tion of Functions: The all. ocatlon of functions
no'tivitie, s- shOl.. lld " bernadeontheprlnc: i: p; Le of pL:'. cJ.. ng toget, her all funct: ions
acti. vi. t: i. esthnt can most effectively and. econom1ca, 11y be 11o. n:: 11e1 together
of similarity in cha. l'acter, sul) ject : rnatterj una. type of cl] eLll regulrecl.
In cOnfOril1. ity ' VTith this principle, one " bac; lsfo: t c, ssigning functiolJJ3
estul) L: ish depa: etrnents along funoti. onalLines. l! ol..; evc1', there are capes
[~ " broad. function cloes not seJ.~ ve as an adeq- u. e, te c; ctterion WJ well an cloefJ
type of operation. and. the type of staff need. ec1. tc,) perform the work. Fill'ther 
  there if:! no o" bjec   t : in D- Sf:. J: Lgn. lng Cv number of functions to a sJ, ncl. e orGc';}' llza-mlit
meJ'; elJ''' on the ground. that thODe functions have a cornraon pUl'pOSG or
where the operations : involved in the e) Cerci. se of Buch iv. nctionr:! ere
different as not to lend themselves to the same kind of cLircction.
So far as pl~ D. ctical) lej each unit shov: lcl " be sufficientl;)" large to
possi'ble the securing of ' the benefIts of the centralizatIon of eLL work
oue kind, or of s: im. i. loT kinds, in one place. The application c. f thLo pr. i. n   ..
leacls to the reQ'Uction of overhead for each u..' l.: i. t to D.. p: ro, ctica" ble m. ini. mum,
leveling of d. o. ily, monthly, seasonal, or other vG: riatlons in IfOrh: load. e,
comb: i: nation of fractional emplo; yment, the el:: UniTk'l. tion of lost or Ul1; prodUGÂ time,
m1. cl a reduction in the DJ..,' lOu: nt of necesso.. ry equipment 8. J.' 1d faci1: ities.
f. SlibcU. visiol1. Into Subord. inate Organization 1, Tnl: to: S1ibol' 1incte units
O)~. 0''' rl'l" ,.,'"- t   ,.~ o   "" s   tr" c   l-""" e shall; c1   1) e ()" f' c", f""' ic ~ e- n':;:- c. oiz-;:'''''- t- o   l')   l'   L"' nD' ...' r)')' c+' hc'Y' ,- o~ .,. i.~<... .... •~ , J,.... \. r". VL, 1"._, __',...... I ._ Ql,,~.. LJ,._" ... t., "", v l'.),-,. l..... '-'~''''" O ~"'   6'''';,. J............. L.
with the same or sim: ilr'T skills as to anOI"; the uniform appli. cat: i. on
stanclarc1: lzeo., methoo. s cmd the Interchange of em: plo~ res in leveling ofr Vlork~
In the subdivision of r~ un. it into su: bordino: te units Ccc1c1J. t5.. 0n£~ 1 rules
apply.
The basis of differentiation lJe" bveen sulJord: inete '\. mlts on the S2Jue
leve" l7 or e,(.' J1• 1• e' 1,.. LC.. T',;', l'. 1,. F.\. Y..... b.. e.... '   f' 1\. L0' D,. 1c. t. io'i'J'.' J t0.':>' ei)~ o0,   '~,   c~.""','')'' 1' 1''   '' L'     .'' C' l...'...~...'....~.. ot'"" i" o-,' JJ...) ' t( v.' f) Je.,. cJP~ cl. i. er.._, te~ le ....
prod. ucec1., type of skUl requi. red. j seL" viceprovi:: lecT, or any othel' £ 1 ' J1) l'C' 4
basis. 1! here only c.. few persons of a give'll skLU are x'eg, ll: i. recL for each
II Â  Â  4
sldlls needeel in the , Thole organization, the type of sldll usually will
oont: i~ olllng basis.
On any given level, or eohelon, all of the subordi. nate units engaged
in operations should. be on the same basis of differentiation vT. i'thin
pe.: rent unit. 13; y f1operationslt : is : meant the exerc: ise of the functions of
next hi. gher unit as elistinot from sUbord: inate units having staff func. Jeions
au: Jdliary) facilitative functions.
S'taff ' l. m. lts or faoHitat: i; ve units should have a cUffel'ent basis of
from that of operating units over vThioh they exerc: ise staff
iThich they render faci. l: itative servi. ce.
g. Separation of Exeoutive, Juclioial, and. Le. gislative Functiorl;~: In
AP1erican state governrJ. ent, there should be as oomplete a separat: ion as :;; os o::
f the executive, jUdicial, and legislat: ive branches of government, if
prevEJ,: l. ling concept of the proper e11vis1011. of governmental pOvTers is not to
rad: icall;) 7 changed.. It should be recognized. that there are an adnin: tstrative
operattng branoh, a policy- eletermining branoh, and. an aeljucUcatlng l) ranch
government anel that they should be kept aP8J. A t from each other) if~. th no : inter-of
authority and no encroacJ:: unents by one branch upon ' the juriscUction,
or fu,,' wtions of the other. This calls for a clear d. e. flni'tlon of po", ers,
: imposing o: f fixed. responsibil: i. t: tcl3, and the setting up of ln1rrlers against
in: f: t'i. ngement 0; 1:' one branch '\ xpon the proper sphere of actlvlty of the other.
h. ProJ.) cr Fu,," 1. ctions of BO_ D:, rds< C, olJIDl. is~ l:. o}~, ane~ O'tfler FhU"' t3. l Bo~ 1. ies:
commissions, and other plural bodies should not be gJ.' ven aclminlstrdtive
' l7here quasi.- leg: Lslative or quashjud. iel, al pmiers are to l) e exercised.,
where it is importat1t to prOVide administrators ' lVLth fOJ::'". illal sources of ad. vi. cc,
is appropriate to create plural bodies. rrhe te: J: 11lS aclvisory, quas: i- legifil1ative,
quasi- juclicia, l, as appliecL to governmental po"' e1' s, have the follm'ring mean-used
herein:
( l) Adviso: r; y l~ oyr:.;_ r asto ad~ i. nistration means the pOVTer to acl'V lse )
c01msel, or recommend specific courses of action on matters of
POliCjT or procedure, incluc'I.. ing pover to investigate O: Y,' cletermlne
facts, but exclud: tng pOiier to take act: ion on, or to carry out,
cou. rses of aotion reooll: llllend. ed.•
( 2) Quasi- legislative power means the pOtier ( cle: cived. from speci.. f1c
enabling legislation - and exeroised. by an agency of the executive
branoh of the government in amplification or interpretatlcn of
:; Juch legislation) to make substantive rvJ.. es or regUlations i{ hich
are external in aP1?~ ioati. on as distinguished from adm. inistrative
: J;' egulations vrhi. ch are . i, rrternal in applico; tlon,
( 3) Quasi- juclicial power mOe: tns the povrer ( derived from spec: ifio enabling
l. egislati. on, and. exeroiserl 0;) 7 an agency of - the executive bremch of
goveJ.~ Â  ament) to hear and adjudicc~ te con: trovers: ies involVing violati. ons
of alleged 1' i. ghts arising out of lav or out at rules or regulations
promu. lgated by Cluasi.- legislat: i. ve acts.
II - 5
Provision for Continuity of Polic~: There should be continu: l. ty
P" Z" Ucy and managen;' nt within the organization and its several
' the gains and lessons of each month and. yeex' . La perfect: i. ng the
and. the internal operccting policies and. proced: ures are not made
excessive costs of government " rill result. There. Ls a
the staff of any going enterprise lnvolvecl in the trai. ning
it has sectU'ed. and the lessons the; t : i. t has lea. rnccL from
anrl successes. Upon the higher officials in partie'! J. l£'~ r d. epend. s
rElsJlcnc:. l   b: LLity for carrying on from peri. od to pe'dod. A high price ifJ pe" id.
aclequate provision is not : macle for ca; 1:':-. l. nyi11g ove; r' aoqu: Lred. knovrledge an. d
for future guidance and. benefit.
Hirrtory fVJ.~ nishes st: r: iki118 proof that the great gainf.; that harte l) een
in the pl'ogreus Of civl. Lization heNe been ; 1:" ealize~ l2 n. ot through oyert'.) l, ons
establislled order and the sud. den estabUsluuent ofperfeGtecl ronnEl oyer but
: ra: the}~ by eonttnuous small iln: provemcnts J the benefi: ts of , r. hich have
held und [~ cLd. e( t to from year to year and. from generation to generation.
Each d. epartmen: t l £: 1. n. d ~ che organi; r. atiou an 0. vhole, should be prov: l. c1. ed
single JllQmlging authorit,' l or dtrecti. ng officer quaI: Lfied. for the admin- ./'
t,[: 1fJlnj : involve,} o.. ncl aieleel by adequate ccunse,,~ and. organized factlities ~
in supervis: icm. ' IDlen circulU:;: rtances seem to x'cqu., Lre the d. efjignati. on
bo[~ rcl or conillliss : Len as the authorityJ prov: ision snou. ldbe lllacle nevertheless
single executive to direct the ' twrk of the unit sub, ject to the polle;}"
and : rules o: f the ' board. 0:]:' cOTI. D: ll" iss: i. ons.
lTithout p: roper, qual Lfiecl. mrmageluent, no elrterl) rise or state o.. genc3T
expected. to operate suocessfully. The [~ ppoirrtment of too man; y offieiD_ le
short terms of offIce makes for too frequent interruption of the deslrCLble
of policyJ progrom, and service. Any legal. and trad. iti. oncl refrtl~ ic on
continuity of emploJTment dv, ring effective service sh() 1-~ lct l) e eliJ] 1. i. 11£~ tecl,
in their place the lair, prao   t: ice, an. d. popular acceptatwe shou. ld. be developccl
ideals to the con: tra. r;{.
j. P1' Cjvision for Competent Personnel: The persor'.. J. J. el of the GrgDnl za should
be o11c'sen on. the basis of f'itness For the " i- rorkk 1) 0 d. one, vhether
supervisory, technical, or Toutlne in chc, racter.
The best plan of organiz£', ti. ol1 strnctlU'e ShOlXld }) rovw. e the machi. nery
wl1, i. ch the personal efforts of these .... rho make up the service (- meL g1ye
the oTgnnj, zation can be given effect. Only through capal) l. e c:~ nd diligent
) properly ClJrecteC'~ J can an; y 111,. UIl8, n enterpr: Lse ' be conduotecl ef: fcetively
econonlical1;> r. If a basis and method. of select: Lon are r~ J? pl: Led that vri. ll in the
D_ ppo. in. tment o" fthe l) est <; l"!.. 1. alified. executiverJ avsiJ, able fer the varIous
SlXber'" li" i pcst. s, the levelG for compenca" tion fer those porJtr; shcnl1. cl be high
to o; tt: l:" D. ct, hold, ct. llJl rewcrd perS011, S a( l, equatel~ r trainee'. ana. 8uffi. ciently
to exercise the fu. nctions and ca; rr; y the respons. U1ilities as. slgncc1. to ther:: L.
Offi. cers and. employes should be chosen on the barols of their crpeeial
to perfo: l"' Ul the Cl. utles end. exercise the respcnsibil: Lt: tes of their
offioes or empl. oyrllents. Qualification reCluirements for offleers, to
II 6
shm, lid be lncorporatecl : Lnthe lavr. However) the clete: rm: Lnat: lon
qual: if: ice.: tl. ons possessed by an; y   : Lndiv: leluu1 that ma;;, r be appointed is
a matter of judgment of the a: p: po: inting authority, anel there may be room
eVD. oion of these regui. reln, en: ts. As a Gafegum~ d., provisiono shoul; l be : in-
1n the 1m'T that a sttctement of the qunlificati, ons and. experience
c8. mUc18; be proposecl for appointment be made a Inc; tter of record.
GeneraJ. Problems of 11eorgani zatioll
',...---,----. ,_."~-~.,~-~,--._..__..
a. The Problem of Change: In developi. ng c, plan of reorganizD. tion,
p1cctls should. ' be lEdd so as to cause the least o. isruptlon possnle of eX1 st relationshil)
S and ' t. radltiollS of service wherever this can be d. one irithout
alation of other criteria of organizat. i. on plann, ing.
Our: Lng the course of thei. r vork : in many different jlJ. riscUctlons, the
uthors have 01) Se; L"" Vcd that most persons ifnI agree in the E1Pstract that the
asonecl aFPUcatlon of the cr: iterLa listed. above 1- Tould. result in i. mproved
ernment organ: ization; but tha: t, i   Then it comes to certain speetf: ic cases, the
iteri. a are consic'Lered no longer e, ppllcabJ.. e for one reason or another. In
he: r " TOrds, troy change can ' be expected to meet v: Lth some opposi. 1: iion, because
ere are always those ivl} o are so relucte: nt to give up auJrth: i. ng to w: hic} 1 they
accustonecl fO; 1:' anything unfamLUar to their experience that they will 8: im1' 1;)"
go into the mer: Lts of ,\ y. hat is p: roposed.,
b. Influence of Tempor[ l+' y ComUtions: The criter: La set out in the
parngra. phs are8enerii: il~ r accepted' by ' authorities on the sl1. b, jec't of'
of governrn. ents as stand. ardB that shou1cl determine the gorm that
organizat: ion shoulcl talce. All too fl~ eqU6. ntly, however, stx'ict
' Y. 1C- LI,., C, V. iOn of ' these princlples, in any particular reorganization pro, ject J is
be : inte: d'eI'ed with lJy consideJ.~ ations of exped. ienc. JT aml athel' con al'
tel' 1poro. ry and. essentiallJ transitory characteJ.~.
It is recogn: izeclthat there J.' 1.<'}, y ' be need, on occasion for Ca: tllpl'omlse,
mal: i. ng a cl: iffe~ cenJ0 d. i. sposition of some office, boarl, aml fl.'. nctlon than
t'J. pplication of the criteria o: f sound organi. zat~ on " I'l'oulcl cl: ictate. If no
concessio11S 1- 1ere macle, ad. o: ption of any effective plan at all would ' be lllEi, d. e
if not : iJnpossLble, by cpposttLon to some of its minor ( letails. Com'"
of mlnorit1. es opposed to spec: Lfic items in arJY plan of reorganlzation,
buiLl up a JJw.. jority opposed to an, Y improvement at all.
But the: ce : is seldom a vn1ic1, excuse for swrender to proposc, l. s for
QODll: lJ:' c) miRP irith pr: i. nciple merely because of   the personcclit37 and. a'bi. 1ity of
officials vhc hold exist: i. ng of1' Lces for ' the time beIng. Fe ma~ r be
given case J o. purticularl;:, r strong and capal) 1e administrator , fUl
fOlmd to have the situation weJ, l. in hand. vrith respect to the Qdministrat. i. on
a diverse group of activit. i. er:; under pis control, e, nd. vrUl obJect to haVing
of them taken [ lvray from him in the interests of more effective organization.
an unusual case may ' be fmmcl in " l'rh1ch a boo.: rd. of ccmgenial and. e: xceptionally
is udlui, nlster: ing effectlvelYJ for the time being, a g. roup o: f
' t1~[ rt, in p~:' in, ciple, should be under the contj:' cl c. f 0. si. ngle executLvc.
11- 7
in. ' t11i, s
J?: l~ O- ..... Iv
all
d. Constitutional PrcvifJions: U Â  cl. lef3D ccnsti'tutioncJ.. chcnBcs 21' e
~   l", rl   ., ",' 11 '"-,, + Me '-' O'C'l'lc'es, e   N ,
+ nh "   l   I3' led. b" t ' l'" C"     ' l"'+   l   ' t,'     ""~") n 1Fl,,, t l, e o(.) n,- J. ll"..~""",,-,,) <:........_ \".". 1 ~ Jl.. l., c..",:" o, , . l,., _ Of, Jv.. U... l..,." J.. ~ ,1"- 1...../ 1. QU, lA. lJ.,. t...... ., 1.4.. u..; .....
In on137 a fevT cases " lT01.. 1.1c1 tho lualJility ' tu mal;; e conot5.' tutioJl,<.' 11 chnngco
n sc: t': icus bar: cie1' to c nound. orgo.. nizo, tion fro: nevnrk, hovever, since
instances ngencies compo. Tnble to the constitutional agenci. es " l1' oulcl
tote p. roYid, ed. under any suitnble pIG. Xl cf org[,> nL. mt. ion~
The p: Jx'}? ositlon : i. o aclvanced. often th2~ t   the enuj. ect D.. llc3.. 1) el3' t wny tc
em inc0111petent or a corrupt admin: istrat: ion io to strip o.., my   thepowero
appointLve officers end. vest them in plv, J:' t: tl bodies or . bl( lc, pend. ent
or in independent eleotive offi. cials. This lllethocl of d. eaU. ng 1rLth
or corruptneDs 1.0 gy. estionalJle. The avtho1' s consider the best
" lr. itb   the prOb: Lem is to remove o.. n incompetent or oorrupt officiD. l
nev election, reoall, or other Lleasures for removoJ, as recolilllenc" lecl
for COIling ,. i, th other ablwes cf pover discusoccl : in the p.: reood. ingpcrt>
cU. fficult to overcome objections made in those cases to the effect that,
the funct: i. cms ave ~') eing exe: rcised. satisfactorily', no changes should be
that o: f: fer only prospects of   theoreM. cal ad. vantages to be offset against
facts of e: ffective results of the m01D. en: t.
131Xt careful consicleration wLll show the Importance of follO" iJing " the
of pr: incilJle. The good. resultl3 froJn the perscm. nLLt; y- of a p; L~ esent
a1' o but temporary, whereas the fcrem of organizat: Loni. s iLltendecl. to
1" 01' a longtime. Defective org[ mization should not be perpetue; tecl merely
: LtD defects are, et the rnoI1ent, being oyercorae largely b3T the personal
of till c: ffice h01dc;!' " lfhO may clepart from the scene at any tiJile. Hore sco,
l plnn vr111. offset some of the ( lamage a poor [' clmiuistrator can do
certainly " I- rill not hinder a good. adm: i nist: rator •
e. Concentration of Execut. ive or Ad: minlstro" tivo rowers: It is saiel
thnt Cc major : functi. on of state- goverDJum{ t'slicm1cf be ( Jrgon: i. zed as an
unLt in ord. er that it mIl l) e subject to more popUlar Gcm: t: col and.
wi) l be botter [\.( 1J: il: LnLstore~ l them if organized aD pe.: rt of a reglllarly
lJlan of organizo" ttan. The c" uthors beUeve it is Q ml. fJtnke, generally
to set up wrIts lncLepen1ent of' the re8ulnl~ ly constItuted otate govern organizatIon.
Cn: L'riocl to i. ts 10g5. c[: 1 ccn. clusi. on, and hence to extre1Uos,
recognition of each lllo" jor fnnction as a sepD.. ro" te uui. t ( if f3t[~ te government
result literclly ln oho" as.
Tn the CLiscussion of bheprcposed. organization presented. later
a pln. 1' l : Ls presented. : i. n Sl1Jwr. l2, ry farrr: bnsed. on ' the assutlption thnt
con. stitutional onendments coulc' 1.. be secl- wed that are~ lee( le1 to renOVe
in aT1Y"' TC::; interfering wi. th the ' best paGai'bI, e orgunizatioll.. : But
Sone oppane: l: ts 0: 1': change in the organi. zatLon Qf state gove::-> nrllcnt may
that it is clangorous to S1ve one person toe much povTor. UsuD" lly thi. s
: in interpreted to lUOD.. ll titco much J? O\ Tert. o de h:: U" Iil. l/ I't ' becomec
abS1u-:- di'ty vThen it is tnken to mean " too : much pov; c;:' l.' to be an effective execu..
or a; ullinl£ j'tY'nto: l,~. The checks ' m the puwer of a chief executive and. other
offlcei'£; am1 adJil: Lnlstrators come thruqgh C-}? pl'opri. D,; te provls: tons for oe1eo..
and ),' Gmoval ancl tlu~() ugh denial to them of o" n;. v legislnti. vG pOvTers, [ mel net
making it hl, pC) 8onle for them to 1) c exeout: ivco and. ccc: bLl.. nil;,: rtrc. tors.
II - Â  8
be UnclCl~ stco( l clea, rl~ T that the authors o: f thLs report l'eccgnize ' the
lnyclved. in secm': il1g such aElenc'tments. The 1.. 1.1t: iTlate objecti. ve
this report is to present ' the plan as c.. model tOl- rord, i- J~ hich futtlre leg101a and
const: i, tutional cunendments may be d: irectecl.
e. Feclel'alApproval cfCht~ s . in state Agenclep.: In the event
fecleral 8.. pllroval or eIl1eudJuent of fecleral legislation : 1.13 requirecl to effect
in the functi, cns, organizo.: ti. on, managing authorit~ f, or ather matterc
to e: d. st. ing ste: te agencies J no really oatisfaoto: ry solutlcn of the
: ii'l'trod. noecl Can ' be offered.
It Is sl: tggested that : pl. ansbe deciclecl.. u}) on. tentatlvel;' lJ that bi'Us
clrafted, <:\ 111 that before such bills arc introduced., those featv. res on 1' 1h1. oh
approval or ohanges : in fed. eral legiBlatlon are requ: L: red be SU})' jiLitted
such approval. or ohange. If federal approval or change . in federal lm1
be securecl, ouch lrloc. l.: ificationo as are necessn, ry to meet fedorc, l ob; jeetions
to ' be mack.
All. otller course of action 1- 1culli. be toprocce:: 1 vllth legislation but to
concl: itlona1 clauses of such a character that an; y- provIsIons on 1' 7111ch
allprovl::~ l or chan.{ je iufecte. raJ. Im1 .1. S reguJl'ed. a1' 1c1 CQT1l." 10t be secured.
not go : into effect.
of. E-- l-._ ec.- ti. o- n. of state Adrninistro; tive Officers: One of the greatest "'''._-:,",-,'--.----~_._.._-"'~~---_ ..__._---.-...
secur: ing a fJimple ancL reQclily coor( Hnated strnctnrc for the cxecu-of
tl1(;; stnte govel'YJJ:; lcnt ie the eonst: itutlonal prc'Vis. 1, on for the
certain officers In this brGtlch vlhose funetiot1s ere plU'ely or largely
l'; leotlon is a- bont the least so: ti. sfa. ctory means for selectinG
c'fficers at the levels snbcJrd: i. nccte to tIlt);!:; of the cl:: 1~ ef executiv8,
tradi'tion of incl, ependent status tha. t appLtes to elect:: ve officers s'tc; ndl3
i. n t. he vay of progress tovw... rd an intcgro. tecl ndl1linistl'otive crg2; niza-
Even i. n oases vlhere there . is no
ccmbe nacle by statuteJ [ l problem
to the tern of officers , vho b. t: webeen elr; ctecl for definIte terrlS
1' lhose positions v10ulclbe e. li. miI: Vl" tell or subjecteJto moterial alterati. on
the pruposeci changes. In suchillsbal: l, CeS, it ), 1L1Y be necessary to POSt: ponc
effect. i, ve ctate of legiEJlationt: ro. ns: ferring the functions of an o. genc~ l wltil
clrrte of the expiration of the term of the incurnbc1l'G officer.
SurV'lary Stntellent As to Application of Cri'teria of Sound Orge. rtization:
~._~--~_." - '--~¥¥ '-:"
In applying the criteria hereinabove liE3' tecl <;' 8 guLl. es : in the clevelop ..
plan of organi. zaticn , fitllout the defects and. vrealrnesses of the present
a. n( l gJ. ving consLderation to mClIJ. Y problems of reorganization J the authors
const8J.: l: tly . in lrina. the ( les:: LrabLli. t; r of provid. ing fer the least : pcssi'ble
of ex. isting arrange: nents o. n( t relationships " he: 1' e they are at all
in najor reDpec   tB. Ch8. i' 1ges are not proposed. merely- fer the sake
In deVising the proposGelplan, tralitiOrlo of servIce o. l1cL 11ell.- estab oustctlS
h[~ ye been taken into account wherever it has been. possi" bletc e10
II ... 9
at '' che sw~ e t: imc doing consid. erEtble v: i. clencc to i'i'hat J in thc Jud. g: uerrt
authorsJ i- Tould. be a rmch more desirable o. J::': rangenerrt ao far as the people
o; 1' e ccncerned.. The ncv plan : is offered, as a cons   tructiYe prcI)() sal
scme of the Ll0; re ner: ious wedmesoes in the existing organi zation
supply at least the more important requ. i. s: ites fer r: l0re effectiyc ancl
ac1Di. nl. EJtration of the state gOYCr111l1ent.
PART III
OUTLINE OF
PROPOSED PLAN OF OEGAN, IZATION
The pwpose of Part III of this report is to outline a proposed pla. n
ion for the state government of Arizona. The proposed plan is de provide,
to the fullest extent praet leable, the requirements of an
ive and economical administration at the affairs of the state government.
also designed to avoi. d the major weaknesses and deficiencies of the
plan of organi. zation, as described in the precedi. n~ Part II of this
Succeeding parts of this report deal with the inqividl: l. al departments
other agendes that would be established if the proposed plan were placed
Proposed Legislation
The proposals in the succeed ing pages are j. ntended to present in out all
of the necessary elements of a complete and integrated plan of orgal1i ion
of the state government of Arizona for effective and economical
The most Practical and l'Jatisfactory i, my of pr- oviding for adoption of
proposed plan and for placing it in effect requires revision of the con "'+-'~+-
    '''' 5. on and statutes. In addition, an administrative code should l) e enacted
many features of the proposed plan of organization which would be
than attempting to insert spec ial provisions at the vari. ousplaces in
constitution and statutes vThere ' the eXisting units, agene: ies, and functions
be dealt with are now treated.
Separability of-! r0Eosals in the Plan
Many of the various elements of the proposed plan of reorganization
separable. There are possibly moot questions of allocations of specific
"'",~_. i_.' and of combination of activities that could be decided in different
than those proposed idthout mate; dal violence to the plan proposed. Some
the elements are closely interrelated, but, in general, the plan in its
elements, and anyone or more of the suggested changes, can be adopted
placed in effect regardless of the others.
Any : insurmountable objection on the part of any individual or group
legislators, ta:? Cpayers, administrative officialS J or other interests as to
specific ).~.' o2cBal invo~ ved in the compH!~ e plan, properly cannot be
ldered an objection to the plan as a ,., hole. The remainder of the plan, to
such objecti. ons do not apply, can still be adopted and placed in effect,
ugh with some less advantage than is to be expected from the complete plan.
Eowever, from another point of vi. ew, the elements embodied in the
OIllplete plan proposed may be regarded as interdependent, in that they repre hi:;
closely related elements of an integ. rated plan based on COnL1UOn principles
oughout, and designed to make possible the maximum benefits and economies
tainable from reorgani. zation.
Vie, Â  red in this light, failure to act upon some of the proposals wh. 5le
others in effect, where no difference in principle is i. nvolved , would
iJ, logj. cal andincons ~ i. stent. It would, in effect, be a denial of the appli Mon
in one place of principles that are acknowledged and applied in other
aces. piecemeal acceptance of some of the proposals also could be critic : l. sed
a denial to the taxpayers of the state of the pract: Lcal improvements and
nomies in the organization for conducti. ng the affai: rs of their state govern t
that they have a right to demand & nd expect 0 Questions of pr. inciple and
should not be decided in one way vith regard to one department and in
way with regard to another department.
The separation of the various proposals and action on but part of
or even on ind ividual proposals, is ~ Ln every way des i. rable if obstacles
,,,,,,,,,, e>: n+ the & oceptance and adoption of the entire plan presented. But such
in part i. s desirable only as compared with no action at 0.11, or wi. th
complete eccceptance of the proposals.
for Positive Aotion for Installatlon
It should be kept prominently in m: ind that such a plan of organiza as
is presented in this report can., lot be made fully effective merely by
passage of la" JS setting up what the proposed departments and other
ies shall be J prov. iding for their officers, and prescrib: ing in outline
i. r functions, povers, and duti. es.
There is also need for properly planned effort to make effective
practice the organ. ization that the plan proposes and that the legislature
M!' ports to put into effect. To make any plan of reorganization completely
f'fective cons iderable organizat ion work is required in the actual planning
d i. ntegrati. on of the i. nternal vJorking groups and procedures in existing
anches of organization, to fit them into the nov plan. Replanning and
~ allocati6n of office quarters, so as to bring the different un5. ts proposed
pbe consolidated into pgysical relatIon) plam1: ing changes in the office lo. y t
and actually carrying them out, coordinating the staffs and fitting them
pgether J f: Lxing definite respons ibilities in such a way as to develop a
pordinated system of carrying out the work, revising procedures, and the
ike, are necessary in order to " reave the separate branches of organization
ogether and to cause them to function as integra. ted u, nits in carrying out
eir functions as proposed under such a reorgan: i.~ ation.
III - 3
The proposed plan of organizatlon of the state government contem the
following main features:
a. Legislative branch
b. Judicial branch
c. Auditor general
d. Executive branch, includi. ng
( 1) Governor
( 2) Executive cabinet
( 3) Permanent secretariat
( 4) Administrative departments
(')) Miscellaneous independent agencies
Each of these main feaLures of the proposed govern. rnent organization
is C: Uscussed in parts and sections of this report that follow.
a. In: t: L~ ocluctOJ. 7 Comments as to Legislativlil Branch: This repoI't, as
., L, lJ.'., L., LI-, o, VC', L else'lTl1e: c" e,' fa intencled l) r: ima; l~ ny'to coY- erthe organizatLon, existing
proposed., of the executive branch of the state goverTlli1ent. Accordingly,
attempt has ' been made : in this report to treat in detail the fv. nctions ancl
ganJ. zation of the legislatUt'e. It is proposed. to establish an office of
ditor general ancl a legislat1. ve reference service which 1voulcl se: rve the
primaril3r and would be responsible ' to that branch of the state
These agencIes are discussed in SUbsequent sections of this : part
report.
Tt is clesireble at this point, hOvieyer) ' to d. iscuss some of the ' basIc
of the organ, ization and. operations of the state legislatm:' e) to out some
of th~ Frincilial wealmesses observed, and, to make reco: mmena.. atlons
suggestJonsfor improvement of legislative organization and o, peratlons.
b. ~ ize of the Ioegislature; An important \~' e8Jmess frequentlY i'ound i. n
organization of legi. slative podies is t, l~ e excessive size of the rueli, bcrship!
it may ' be extremely d. i: fficult, if not impossi'ble, to d. eterrnine scientifical the.
approprlate size of a state legislature both from the representational. ffil. cl
III - 4
Under tho presont constitutional formula for tho stnto of ArIzona,
of tho house of reprosonto, tives is open to periodic adjustment
probabl:." wi: U bo subject to ineroo. so from time to ti. me. It is ostimatod
tho rising populntion and voto of the state vrill roquire tho cloction
about ' 12 mombors of tho houso at the noxt genern} 81octi. on~ Thoro has
considerable discussion relntivo to changing 1. ogs1 provisions to limit
of the house of reprosuntntivos to [\ spocific maximum and a limit
of 60 membors has boon cited froquently.
points of Vi. OVl, thoro is 8 common conviction muong students of
_~''''''   Y'wm:'' Yl't   ., and mnong legisJators thomselve s, that mombor'ships tend to be
largo. Large legislative bodies aro likely to become umdoldy in pro adoquato
physical facilities, S10' l- 181' in deliberations, and more
_~.~': lrY1~ r..,."", in re8ching docisions and tr. king action thrm are the smaller bodios.
A smal. ler membershLJ! serves   to concentrate responsibility, : l11aJ' pC. l'L1: i.   t;
greater compensation for serVices, an, l p: covic" Les opportunities fo: r nv, merous other
Opponents of smaller 1egislativebod. ies cite such disad. vantages as
less representation, limitecl oIJportul1, ities to spread. the vlork inc: i. clent to con s:
i. dering ancl, enacting legislation, and. the greater force and effect of mombers
seeking an~ l upho. ld. lng spec1al interests.
HOvTCver, it, : is believed, that the advfuJ: tages of a Sl1la. llo' legisll3, tv.. re,
partiCUlarly uncler the conditions eXisting in Arizona vrith respect to relative
po:)! ulat: Lon and. over- all development 7 outl- Te: lgh such cli. sad. van: tages as mo.;;.' ' be
proposed. ancl suppo:: ctcd.. Therefore) it is TeCQllJJllEmdeci, that membership in the
house of rep: ce, sentatives be linrL'lJed to a'b01. rt 60 members o: r less as novr Fro posecl.
Hhilc the sizo of a logislntivo body should be dotermined on tho
basis of provi( lin~~ tjdoquato roprosontntion, considor,': tion Lelso should bo givon
to tho sizo of tho arel: 1 : it sorvos, the nunibor of poopJ. o rOl) rosontod, and the
nature of : Us jucisdiction. Tho mombership of tho sonato is not considorod
unduly lorgo. On the other hand it is boliovod tlutthe p: cosant, end probable
futuro, sizo of tho houso of represontativos based on the existing constitu~
tiona1 formula is, , mo ,. Jill bo, excossive. It is bolieved o. lso tho size of
tho house mombership C0. n bo reduced snbstant. isl1y Hithout oithor impcd. ring
its reprosontativ8 chm.' e. ctor or tho quali'ty of its logislativo functions.
A Inrgo momborship docs not nocossaril: l ~ lssuro the. t a logislotivo hody vrUI
bo fcdrl: r r0prosontntivo or that groator qu::< Lit: y of incLUllhonts or quanti. ty
of logislation can bo achiovod.
c. Regular Sessions; Com) 8J: ative ( lata. show that the laws of a large
majority of states authorize only bier,. nial regUlar sessions. Hm'lever, from
practical experience; i. ncreasing and, Just c. r'iticism 1. s ( Lev- elopinG as to the
efficacy of l) ien.. 11. ial sessions. This legislative schedule is beinG foUJ."' 1d. avrlnrard.
or impract. Lcal; particulrl. rly vlith respect to lyu,':~ 3eta: r; 7 and. other fiscal matte: m.
III - 5
Many' Ddvancages have been cited by proponents of biennial sessions
there is some measure of truth in most of them. It is sai. d that biennial
aid in reducing the legislature's deliberations 2nd other action to
most important matters, thereby cutting the cost and inc~' easing the
of legislation; that vrith tuo- year intervals betHean 1' eg1) 1ar
sions, more careful attention is given to draft: ing and enacting 1egis1a-because
repeal or revision may not be undertaken l,. mtn ti. JO years later
the absence of a speci. al session; that the approval of budgets and
of appropriations for a tHo-: lear period reduces the recurring efforts
state agendes in compiling estililates, preparing plans, and gathering
data; and that the less frequent sessions attract 13gJslators of
ty \- iho othervisc Hov: 1d find frequent sessions caus. t. ng excessive hard or
incompatib: Ll: Lty Hith respect to the: i. r other interests or businoss
Opponents of hi. onnia1 1egislative sessions 01a: i. 111 that the more
spaced 1' egu10r sossiorw have not LJ, proved the quality of legislati. on;
the biennial session does not reduce, but increases, the volrune of pro and
enactod legislation; that oxcossivG prossrlre and Horkload are
on logislators to considor and enact log5.. s1ation ], lh1ch has accu. l. J11.. uated
which mEl;)' be ovordue and urgont; that bUdgotary and othor gove- crunont
must bo dono for shorter periodS to rofloct accurately changing
and to permit lJ10rO froqucm't c11oc1;;$ by the logislat1. U'o on exponc1i and
porformancos; and thed:; highcr compensation and longor terms \. Ji11
morc capablo legislators than loss froquont .18gis. lativo sessions,
It is considored that, uhLIe thoro 0.1' 0 advantages in h() ld~ tng
regular b: iennial sossions, the disadvantagQs outuoigh tho adv:: mtagos and that
annual sossions should bo hold and such othor spocial. sessions should
be ca110d as may bo necossary. A, nnur:; l log; islative sossions Houla bo more
realistic in tho light of the lQgislaturo's record of special SOSSlODS as
cussad in succeeding pnragraphs, and more in 1.;\ Ccord Hith tho tempo of
modern government oporations.
( 1, Special Session~: Since 1912, vhen Adzona reached. statohood, there
have been 19 regular biennial legislative sessions. DurIng the sQ; C'Tle period. and.
through 1949, thore have been .' 57 special sessions. OnlY four legislatures had. no
special sessions and o'the:\.' s have had as many as siy. or soven. On the basis
of theso facts, it is beHoved. evident ' that the presc2' i. bed biennIal regular
Sessions havoproYed inad. eCluate to meet leGislative requirements ancl that the
schedule of biermial sessions cloos not GOnfOl" L1 to the continuous and chapging
no. ture of sta   te government functions and operations.
The advantages o: f annual legislative cessions h~. we not a11ra;> rs
been gainod b; r special session. s for at least one important reason. The con stitution
pl~ esc: ribes   that Hin calling such spocled sess: Lou, the Governor
shall specify tho slibjects to be considered at such session, ami at such
Sess: ion no Imm shall be enacted. ~ xcept such as relate to tho £ mb, jects
mentioned. in the call. If N1. unerous court decisions have held that " unless a
III - 6
nt 11 spocinl session is germane to somo Sl10; joct in tho c0.11, tho
is \! ithout pOHer to pass it. 1t This limitation on the scope of
subjoct matter of a special sossion, H11. i10 considered undes: i rable , is
uncommon.
HOvJOvor, if specis1 sossions are to be considered tho oquivalent
annual sossions, it is bo1iovod that this limitation on the subjoct mnttor
rospoct to 1,' lhich legislo: tion can bo considered and onacted shou. ld bo 1' 0Â Tho
stato constitution contains no oxpress stD: tOInOnt as to tho pOvlCr
prorogetive of tho logir; lnturu to cnI1 a spedal sossion and tho tnxthorit; y
  to . b, v,' l,'",, p}.' J.".",~ d" J'.. fL'   .' 1.. C.. i ",.,,.~. r1' . s   ts al-, 1- a' 1' 1~.
A. pnrociation of those Hoctlmossos Has confirmod to 8 considorablo
by a ~ ocGnG am. ondmont to tho constitution ".< ihich provides that the
shall call D. snGeia1 session upon petition of not less thanhro-
~ ~ ~ of the mombers of oach ~ lOUSO, ''' hich petition [ 1150 dosigl18toa tho dn.; e
convening tho sossion. Tho amondmont providos furthor that no limitat: ion
be p1a(~ oc1 on tho sllbjocts l'Illj ct. mcV bo considored by t;, O legislature.
limitation on tho log: i. slahITo to pass laus only thnt [' 1]:' 0 ' dit'd. n tho
of a c[', 11 for a spocirJ. session initiiJtod by tho govornor stilI rumains.
e. Length of Sessions: The sta..' te constLtution makes another i. rn.~
cUstill.'(>:-- tion oetvreen '- regUlar and special l3e8s. i. on8 whichpx'ecludes a
valid s1. ibstitution of a special session for an annual regUlar
Drescril) Lng biennial and. 81) ec1a1 legislative sessions} the state
does not spec. ifically anc1 d: Lrectly limit the Length of such
As a }} ractical matter} hO\ Tever, the length of sessions is ind, irect HmLte(
l ' by oonstituti. ona1} as i   relI as statutor; y'} liY'o'Visions limi; ting the
of Clays in sessions that legis:).. a'tors vill x'ecei. ve per d: Lem compensation.
occaBion} :: Lt has been found necessar; r or ( iesirable to exten~ l sessions peyoncl
limit of per d. iem compensation.
The lavrs of some other stQ.. tes have limitecl. the : freguencJT or length of
legi. slatiye sess: ions. In some instances annual salaries for leg. islatolos have
been el: iminated. on the ground that an important J. ncentive othervrlse \ fOulcl be
lacking to perfol'lll legislative functions w'ith dispatch and, efficiency. Ho",. ever,
the per d., tern form of cOlJlpens8, tion also has been critioi zed as cl1coUl'ag5. ng
longer sess: ions than necessary. Perhaps this vIas the purpose of the constitu tional
l.: imi'tation regard. ing the nU111be1' of days leg: i. slatc1:' s wottld. : receive
compensation.
Limithlg tho . Length of logiE31::! tivo sos. sians is cons: icLro< 1. 1n ndvisabl0,
i; Jith such n limitation action mlwt bc ' trJwn to drc'\ u: avunt tho
restriction; QonsidoraHon " md 011' lctmont of irnport"' nt Icgislatiop is cArriocl
oval' to another sossion; or I' 1attors nro dirrposoc1 of in 8 burry boforo
oxpir~ tion of tho sossicn uithout t:; doq', wto study er otbor 8ttontion. lhilo
logislativo jmns nro not confinocl to lLgislat" lITos in sossio11s uith fbr: oo.
mnximum longths, those liniktions do tend to ' lgc: rnvcito " situation vlldch
may not bo Hhol1y uithin tho pO" JOr of logislntuI'os to avoid or control.
III - 7
It is belJ. evecl that sessi. ons without l: Lmitat', on as to length a1~ e
to the present 60- d. ay biel1. l1.: Lal regular sessions and 20- day special
in that a jan 01' late sessi. on rush can be substantially reduced
eliminated 1' 1: l.. th proper plal1. l1. ing ancl schednling. ResponsnUi. ty for the
coneid. eration and entictment of legislation also can be more deflnite13;
fa1r13' placed. on legislators, as they are not bouml ' by arb, i'trm'y lengths
sess: ions 1' 1hio11 reflect no consicleration of variable legislative concUtions
or other government operat: i. ons.
f. Compensati. on of Legislators: The question as to the appropriate
amount of oompensation for legislators' is cl: ifficult of solution. If legisla tive
sessions are he1( 1 bienniallY for periods of s: i. xt~ t days or less, £ md feiT : if
any spec: ial sessions are held, the current per c11em compensati, on cloes not
seem. inadequate for legislators del" iving aelditional income from busines. ses or
occupations from ' Thich they oan absent themselves dUl'ing sessions i'r. ithout
material loss of such other inoome. HOi'lever, as sessions 1no1' 00,. 80 in length
or num1ler) even IJersons in these o: LrolJJustances ma~ T find it i, mpoBoible Or
und. eoirabl0 to part: icipato in the state government as legiolators. In an;,)'
event) the c\. n~ rent : l? er diem rate of compens['~ tion and, m; unerous special sessions
have made it virtual. ly impossible for salal'iecl perGOl'W of mod. est J:; J. Gans to
serve in the legislature and. tend. s to oonfine the J11eJ: nl) orship to- c, hose ' Ylho have
suffieient f1naYlOia1 inclepenclence. Thic s. ttuation is beHoved not to be in
accorel vith demooratic princ: i. ples.
Vlhile it I. lay not be Ir: cact: i. cable for tho state to offer componnation
'\ Thich 10 compctltive i'I' 1th that which legiolatol'o can earon in private lyusiness
or profesoimw) the sta: to should. prov: Lde sufficient conxpenoation : t: n koep. Lng
with the respomJibilit: les and rlutics of the office and. a . rec~ sonable living
::: tand. arcl for a Jegi. slator and hie fWl1: i. ly.
g. Term of Legislatoro: A majority of ntates elect otate senators
for fom"- year t, el' 1' lEl, 1~ 13~: U slUaLl mlnority of otates 0.1ec   t representO: Giyes
for longe:' c than tiro- year tCl' 111S. As a conseg, uence, in many states, senatore
serve i. n more tIlL'. Xl one regular sess: ion, il1111e -: i. n but a fe,{ 8tGtes do
representat: Lves se: l-. re in more than one regular session. On the other hanel,
a sul: mtarrtial n1U': 1ber of states clect the membcJ.~ sh: ips of bic8Jneral leg1s1a turesto
Gel~ ve terns of equal length. 1rT: Lthin the Geore of general obocrvu tiona
and studtes me. cle, no gr01. m. ds have been fonnel for recor; ll. ncnding a chan[ SC
from the equal terrll. s of office for members of each h01.: we in the Arizona otate
legislature. It iD believed that the main problel: l in the relatively ralj1c1,
turnover in memllerohlp oocasioned 1W the tva- year ter; m of office.
11, Le[ sisle~ ti've S'ts; ncling COI. JIl1i'ttees: Trle COIil; Jlex: Lt\ r a, net. volULle of
legisletive mattel~ s hD.. s- lc~( f sto.. t, e legislc'. tuies to orge. nlzc   th~ mselve3 along
functional LLnes " by fOl"' ln: l. ne stcmd. ing cCll]" littees. Not on~~ l dOCD the committee
system prov: Lele a cHv1sion of lo; bor in. the cons: Lclel'ation LLn. clpreparation of
proposed. lcgis1atlon~ " but it also offers greater opport: unitieEJ to take
advant", ee of vr!.. dcl;\ T differing : interests <:: mcL capabilities of indivicl: i.. lal 1e3101c,
tors; i. n that they can " be a8[ Jignetl to cormnittees cleaLtng vrLth lecisle, tive
L1atte: l~ s vrtth rc:: moct to Ilbich   ; ti", ex~ nect"" Q'   t   l   lev C("' 11 eve'Y'c'l"" C c""' Y') c"' e""+ . t.: ,~ " ,,- ,_.- ' J..: ........ c. J .~. ,., t.. .... ' .. u \.../ J, i ..., L -. l; l. LU
jud. gment [ mel make the most " lrorthvThilo contri'bu: ti. oll. c.
It is belioved that the middle grouno." rith : rospoct to those tuo
basic points of ViOH suggosts thert log: i. f; IatOl's' to: rms of offico should be of
sufficient longth to p01' mit reasonable; tim() in \ 1h1c1' 1 logisJ.. ators could dOli1. on strate
tho nabJr'o of their concepts enc'.. c;, ctions ~ The poopl. o also SilOUld havo
ac1oquoto opporbmitios to 3Dsoilbl0 and 0voJ. uHte tho log. isl.' 1t. ive record in
passing judgment on tho conp: Jtcncy ilnd productivonoss of their rop:.~ csunktives.
In the li!!, ht of conditions \ 1hic11 hnvo boen observed, it is bolicvoc1 tlmt tho
mombers of both houso;:; of the [: Jt[- d~ o log~ LsIC\ tur() shou1d be olocted to servo
. f01J. r-,~ ro[ rr torlns 211d, tllt: rL t~ 110 3clvnntagos to ' bo gaJ.. llcd frorf! [ l lCY1Gtb, o! 10d t~) T~~ l1. I~ O
11I: J4" Wi outvoigh any c1i. sC\ C1vnntn[!. os that DlC\;' l CCCTUO to tho plan. Consicleeation 0,180
should " be gi: ven to the une of " biennial electionn Lmcl sto. ggerecl te: r~); 1o of legiolc,.
tors t r reduce the 2. Lluurrt oJ' tl. lrT1Uver tn lc.; C; iolctiverleriberobllJ at o.. ll, y cne ti. 1 1C.
III - 8
the COlilll'littce
cond. ucti. ng
ex}) cr: Lence
In Erpec: Lfic te: clls. SO}.; le " f the ' Dl~ i' 1C") a' 1 c   1DJ" e ro tl"" co O.   I~ _ . J' ~"", j.:;: ..... ~ ........ __.,. 1 v .~ 0
s; ystcn include fJtud; ying special uattel's of prolJosec1. legislation;
ho.' 11' 1ne8 and. collecting data; apJl. ying 3J? eciallzecl knowledge and
At an early porioC1 of Ai'uerican constitutional governmen: t, thore
the lvidesproad beliof that only ammal elections of logislators 1' 1' 0Â fullimplomontation
of do; nocratic principlos. II- lthough such short
of offico for stato legislutors rarely exi. st today, vostiges of that
concept persist in many statos to the extent that legislators' terms
office are lilJ1ited to a roletively short period of t   "" o years. In some
a compromise 1ms boon dovised by providing for tho freq1. lOnt oloct5.. oYl
part, raLhor than all, of the mombers of legi. slaturos in order to nvoid too
or sudden a turnover in memborship as to dostroy, or fIl8tor: i311; r rostrict,
sirable continuity in logisl8, t: ive polic: 5. es. Ono of tho disadvarltagos
f01' this plan : is tbnt it sorvesto rotain in offico for a longer
thoso logislator, s \ 1ho 118ve lost tho confidonco of tho people.
Thoro is a considerablo body of opinion that short tOTlUS and
olections of legislators aCE} d:: i. sadvantagoous in that they em.. 1SO 1' 2s11
neodlQss and il1- nclvisod abrupt changos in logisls. tivo policios,
Qxponsos to condic. latos and tho poopl0, Dnd en undosirah1, o and
tunlOvor in logislativo momborship. It S8ems obvious that logislators I
office should not bo s. o sho:' ct as to lose tho bcmofJts of ox-in
offica nnd the groator opportunity for mombors o. f the logislah:: ro
p: i.~ oduotivc of so~ d logislntion bnsod on this oxporionce and tho groater
oftimo thnt \! ould be availcblc to annct logislation after adeqnato
of propo~; ed moc'surus. On ' eha athol' hand, legislators shouJ. d not havo
long tenure as to I'<.) OUCO und1.11:: r pOpUJ. DX' control over ropresontctivGS of
pooplo.
III - S'
individual logislrtors to logis18tivo l1. attors end pI'orJloms, 2nd rocormrrond action
to tho logislntiYD body to uhich mOl, 1bars of tho COI: ll: littoos bolong.
qual: ity cmd qU8. ntity ot ', Jork \ lono by tho cOI: lIdttoes Hill depand lnrgc; ly
tho nomborship 8nd. loc, darshi- p. Asido fran these rnthor obvious elements
cffoctiYO COIliIittee syst01}~ genarc. l observations sugco, St S0) 10 il: 1prOYCÂ that
cnD bo nado toincl'ansa tho offoctivonoss of this functional 01'-
It is boliovod. thnt, in accordance vith tho l10rilal t.:: mdoncy, thoro
too mnn; y standing COL1LiLttoes. Tho o1: i(] in. tion of sono, tho consolidntion
others, L1nd possibly tho croation of SOlle n01.1 conrdtto8s night lond not
to [) bottor distribution of cQ, JnittoG vJorkloc\ C1 but   tho connitteos 001.11d
be nora uniforrl1y supplied \ Â  rith bottor stnffs; conflicts in scbadules
committee meetings COl. Ud bG roducod or olininc1toc1j and responsibility' for
considorat: ion of Jogi slL~ tion could be fixod ' lore c1011+ 1,,/ in fovor cornnittoos.
Considoration should be given to ruorg:' nbil1g tho committoo system
provide corrosponcling conmittcos in both housos. This plan vJOuld
tho basis for joint Cot1' littoo action. The counittoo systOli1 1" ould bo
tho n1u'lbor and jurisdiction of tho ooyrr:. ittoos confor:. 1oo.
units oc" tho eXQcutive branch of the stato govornIJont.
Q p: Jr81J_ ol c. orlc~ ittoo o~~ g2n: i2Iatl. o11 wOl1.1. cl. Il1nl{( J I) ossiblo jo: irlt
othor juint oporntions, tho'ro1:;; reducing or olin5: nnting Dany
[ me< provicUng thD bnsis for npoc; cling up, iJ~ t() gr[\ tlng, nnd coar...
Hark of tho cOLFaittoos. In sULlllC\ r; V, it is hl. ghl, Y dosirC'blo to
systen Hith respoct to orgnni. zution,
: funct: ions, mOL'lborship, ::: m(~. tho IH~ o, since it is in couuittoo s
bi; Lls should rccoivo their i1C\ jor considol'ntions, conLrovcr: 3inl iseuo. s
bo rosolved, Gnd logislcctivc policios shrmJd bo doterrdnod. Tho
S5rston sbou1d be dovised to tho ond tlv, t bills \ i. ill roco: i. vo tIle
C() rOfll1 stud;,{ thn. t is v1rcunl1y : inpossiblo on the floor of tho
An inportr: mtfGntUl~(_; of tI10 co[ c: d. tteo SYStCi. 1 :: is tho pr[' c'GlcO of
public honri. ngs upon bills, rosoluti. om;, Gnd othor nattor's l'oforrod
then. Such r. lcarings should l:! nve 8S thoir prine objoctivo tho presontation
of facts and opinions not only by tho nomborG of cOlJn: ittoc; s but elso oS'
intorosted porccms or tho gcnorr'l public u. s \: 1OJ1. Tho significcmt 1' 010 of
corJJlittoos in detoTlduing logislativG polic:' l nnd 1:" ction dictcltes thnt tho
COEilll.' l'tteeD sboulcl 1:. 001) o. ccul~ ato rocords of ' tllQir J~ lo8ri: lgs and ot110r ~ procoo( 1. Â ings.
Those records should bo Dado avo.: Dablo to D1J. other Do-: bors of tho
1" 01" \... o., c..:.:... l,.. l;": '.. t'LIT~ O crn.. 1!..(, l. t.,   to - 1:. J. 1l,"-~, 0' (_' J)_"~_+ U~\'" n_+ V p,' r'-"._ cL" J".;.. c.\". l.~- c.,' ld", V, to   J t 1,1~.° V ( 0,:"~ l'J. n