Report of the Advisory Committee on Reorganization of state and local government in Arizona

              Com on
I 1 ! ' 3 , I',:?"-,
C0l\ 11'•• I
{ JI~' S
S1'
•
v Z S 1963
Part I.
Part II.
Part 1110
Part IV..
Part v.
CON~ rENTS
Intl'oduct. ion
state CentY'al Administration
County Government,
lVrel"' i. t System of Appointments
UnifoY'm Account:: l. ng
The COUy · t System and the Administr2tion
of . Tustice 0
Part VI. Legislative Reorganization
Part VII. Conclusion
Page
2
22
27
32
34
38
40
INTEODUCTION
Our state and local governments in Arizona, like those in
the other s tes, have grown and expanded to meet changing conditions
and to nr'ovlde new services vdtbout benef: i. t of an: 1 comprehensive
pre- arranged plan. City government has n t come to be a
ma j or lem in the st e, ~:,- nd adequate const itut lanaI l') 8. s is
probably exi~ ts fo!' coping with any situ8tlon which . is Ii. kely
to el in at field. In our' at e eounty govc:.' Y · ~ · '\ lYid s,
however, we seem to ve the typical decentrali irresponsible
organizat: lons wh have eome to be common. herit of most
of the states in Union.
•
Certain movements wh: i. ch have started since tbe
war od, directed toward reorganizi state and
COD governm s, ve been greatly st lat tax
ss, budget difficulties, ,;; md the economic distress
ve bf} en er1enc(::; 11 ing tbe pa rD: It:'! se
mov s J: lav8 l'E, ted ens e re","~' · ""
county sttt es.
~) ome tnt ( H'C some ac t 1' VIty in Arizona.
seems to r ell
direction of state county ernment
ion
lons
with
mat tex-,
8.
Our r'epc:: crt
natuI'E:\
sting
an intelligent for necessa
ie and economy.
as
C t- Lee s given COIlS rable · ~ o
s not had facilities or the to
survey oblem 1 it2 asnects.
( 1) rv~, tions
za t lOi1s
ea- t': j() X1S
is In
a c
co: ri. s: l. sts
Arizona; ( 3)
reSTW to a fev;
seone of
stt3. t e s;
116CE.: S
s
t
. P l 8{) x;> ganlz lons
elligen. t, non-s
be ava 1e
The committee dc"" sj. res to size
bE'; en necessa: ry, in all Les in wrdcJ:.' l S .. LK, llJU
va been made, that stimulus
pa lean organizations of interested citizen
to ort an. a enco · J. y · age those ! TIc:: m'o(:; rs of the
are : i_ nterest in ace : Tshing corrrpreb. enslve
in state ]_ ocal ernment. And we u tb
of the o'olem shall not be neglected.
P I ..
ADMINISTRATrVE SYSTEM OF
OBSERV I
F~ ESPEC! r
HECOMIvIEl-: rDNC IONS
IN CENTRAL
STA.. TE@
,...
t() B. te
nc impetus
sea ing inquiry
An era of steadily
sing ( 3 upon
aneies continues to be a cause
pe1"-
l'ovenue
: 1 st
one ern both to
of st~ 3te 8.,.,;".. CL'~.
pay e bi11.. Thus 1~ he - ta
officials are cell
a t the tax
rat:: i. ve s8-. r'vi ees
i c : tenc:' Y'
i
: tst
1 seY"' rtce
and. economy
l' 8t : lve
upon;
to stEtt; e t s
S Burv to
.... . wv..."" s nre Inistc8t: i. ve
Arizona's admjnl13tra­Arizona
to reorganize
( 4) ive
er states; ( 5) some results of
rative reorganizat ; ( 6) under1yir~ 1n01p1e13
at ive sat ion as exemplified
some twenty ates; ( 7) for a ough and
itatlve survey istrative or ni ion
Arlzona; ( 8) some of' tlie object es to ' be atta
s. n 8. ll. thoritat iva Ax': izorlB :' Lstra t i'va s') J: vey ..
in
: 5- n
by
ARIZOlJA I S PFESEIJ'f' ION
ini­dis-st
els
les
tces, eon: rni. sslon, eI~ 8,
may be c ss on
as: ( 1) Boards
At
() () 5: 1 I'~ d_ 0 :(" com1)',:: 1- s s : t 0 ~ n
single- headed or of
ll.(~~:; 10218 e T11e se
" tv\ je: rlt; l~ rl: l. rJ. e fl. r~ e
ss: tor18I" rJe *
or16 alee
, abOl. 1t
office1' or
rraJ: dng account b Con itut: tonals: nd st8tutorv
st: i:' at1ve ene s, AI'izona seerns to have 8. bout sev
tinct agencies for the carrv out
rnul t .9_ r:: t eus
8,.-' e denat
su. perlnt
sis of : ing sonnel
J~ . f- 3~ 6, ( Q.'..... ~. J.. - v 8.- P~.,,~".~ ,~ Q R_. s- tra'-",. tive
as fol : ( 1) The ex- officio t:' lpe; ( 2) the
r-' s'e ") C'""''''''''' l''' Y''''- i ( r. · . bief ~. o. · ersonnel '} is \, jt, !. v. L ....- .....> l.~ .... Cf~, ~
ernor ( O7J\ ~~~-. o' · .-- o" n. e- l
On
t119 se
out eleven
It is to be
commission consist
Gove, T'Y10r
e fOI' ov ing
usually
to
V storicsl , ArizoDR's istrative ization
Sf'OWS a tow;: tro. ever reasing agencies, c~ ceat
" opportunistically" in answer to demands result om the
ate's el conditions sistE,) rlC£: 1 varIous
ereats. Or ginally eleven 8
Constitution, e F at
isla turE;, ad. ott iona ones been crea
1921 ( nine aI'S after ssion as a state) fifty- two
st t ices and ies were . in existen. ce. 2 In Decembl': 1r,
1934 ( after irteen B more) ab sixty- nine a sbra-tive
st. Thus the trend to ease
has persisted. Governor Campbell remarked in 1921
" Little thought E~ videl'ltly W8.8 gj. ven, at the tj. me of their
creation as to the effect ir indlvidual erat: i. on mlgbt
have upon the state government as a ole,,') ~
1 .. Afouy · th - category might be ment ionea:;"- til~ lt'- rs;-~ U16se--'
les subordinate to another admini rative agency,
receiving its chief personnel throhgh appointment by the
parent agenc · y. Examples of this tYDe a1" e: ( 1) The Super'in-tendent
of the Girl's Home and the Purchasing Agent, 0 ted
' by the Board of Directors of ate Insti ions and (
Pres. ident of the Un.: iver'sj. tj' of izona, int by tl' 1El
University Board of Regents ..
2. See Spec 1 Message of' Governor Oa1' 11' 1:, 1) e11 of FebrUBY'y ' 7,
1921 to Fifth Arizona~ State Legisla J eciel Session.
Found Mes88. ges Bi(.:, nnial Veto andSpec18 , Tholnas E.. Camp-bell,
GoverIlCYl" O1"- Arizona , - Jan;- rl~'~ I92r- to Mar. 22, 1921,
e 23 to 29.
~\. Ib id. , p • 2: 3
•
Considering personnel se agenc s, it is
anmil~ that severel hundred rs6ns const1.\:; utlng the state's
adrnillistratlve forces are employed. What semblance of
a " merit system lt has been provided by which to recruit,
examine, appc: nhnt, transfer, promote, compensF. lte, and ret
the ate's nubIic administl~ ative servants? No rules ne : lning
to a it L stem" of civil service appear on the staiute
books. On the contrary, a. n examInation of budgets and audits
and an ear to the gro1.. uld indicate that : r- easons for- eiEn to a
" mer system" of Beified service domi e the field.
Has Arizona e at stem? The answer is " Yes", of
tb. e execvtlve t: vce.. By canst:!. tiona1 grant, Arizona I S
GOVernor has n em veto" in appropriation measures, 4
and by of 19J9, he is made re ons Ie for e ion
Bsion of a dget. cia1 Cod~
Iel':" lent 8. nc1 at r,' procedm: · e. 6
1
Y; a, tl), l." G
e 1 ~:: ll" 7, Se
F EtC. 6
of { 3
$
STJeC
bi1], at
isla. tura
., .
, Arizona, 2607- 2613.
ReviseO- OOae7- r928, 2614- 2631. The Dse and
the Financial Oode was as follows: First, to
rlations cia1 fu s except
set forth; seeo , to nro v lde all
kind st~ e enoy not rgeable to one
spec! funds name be naid out e general
ough appropiatioDs au zed
third, to enact that ind
ess a SDE:! ciflc amount was
oceeds
o for
w: itbout
such
I'O~" 1( 18 ,
csrrl over be
]) aghan L ( 1927), •••• A
of
fund,
: r-could
lillSr)
( 1) Jd. lSlJS()
v.
t) a rleG
Ariz, ona,
' 1 ( 1. ~ rJ E:~
IN ]"
8,:::; rve for 1
aI'e
Dattern
IJla. ee,
staneE: S,
1" 1 •
e Gove: r'nor
IrJ tlJes6
of strative organ-are
nearly al] independent
are 8ubje to no
Governor. It is tI~ ue
stan, ces of
more 1mT) ort
olnt-nlz8.
t:' Lon wjth
.,
1
ion,
ty.
for
H gr e1'
encies is impossib
Governor 1s in no position
he
the
r'ot yare
y scattered,
are not inated.
SE, eo
(-'! nc 8
govex'Drn'j: nt
att
nY' 8 leed?
e budg( jt
is tXle
metboG. s
ovv
f3; Fstem
leers; ( b) ifting
lit: leal squabbles
anti ted methods
a autbd » ri­of
the Arizona
to
t
n : io
at of
a v
system p itical squabblj. ng.
statement at carre
are ve essential
pr'
eO.
well
to
?
quest: ions m
1(;( 0;;:' l'E, 18tive
1.
tl:: f~ ser~' v: l ce
In the fourth p
to e ractices
ret ion, and yo
bIle sE'Fvants.
be an ( 1) Are
l'EJCY'ui tm,:; rt dismissal
rnc) rf3~
EL C: t'~ l e I · ~ s e
,..
- c-
( 2) S tb€ failvro to elessify 1: 1c seY'\! }) ositions
r'c-; 1. n ine i b r; itions r st e to: ( a) arrronnt of
" v'c(). Y. '~ l, r. y-,-',,:,_ ~':.: 1. ,• .(' Jn) j""•..' · 0o'".< 1' r "-,"- f_",' C_, c'J, 4. L. r'""'- U' " 1. , · I\ f~';) Jv.,,,~,, n~ n•~• j~ i, b.. · . l · ". 1i i-', n lIed?
( 3) To dn~ s the present system ce jealousies
rlCn-- c. O() l) er~ at: lC): rl j_ trl.~ 111 tl- J ~ 3 1,1: 1 of~ T> l. 1D l: te SE; l"' VH. rlt 81
( 4) Is pres stem entitled to be 081J a " spoils
st
1
ta
, let it be reBalled Governor ell in
er' a sween] conoemnat lon sta te f s ad-syst,:::
m.. To Wh! Olt: ts is true today?
: Lnuou s e nnmb r of in: 1.8-
t
Final
19; 21 r
ministrBt; jve
s
rease
ssure of terests
to sacrifice the we re
sa. ti 10n of 1dua
n1 tion? Is it not ossible to a
real economy and efflciency without fundamental refoY- rn of
administrative stY'' Ucttlres and financial inist: r'ation?
In the ' words of Governor Campbell, If.". Exp ence demon-
<>' F'Y'o'i- · es in Incn'' V in. stDnces t OU!' 11: 8. C[ 11ne1' · y is antiquated
and our metbods of administr8t:: i. o11. cumbersome, unWieldy,
eXDens:: lve, anll inefficient" .... Tbe evils res'lJ. ltant f: r- om
such a loss and unbusines 1 ike S;) Tstem daily become mOl" e
st. Where trl ey- e shouJd be harm , disc exists;
where there ould be eeonomy, ther'e is ext: ravagance; where
ere be effieiency, there is incapacity and a
slOWing down of ma 1 of govermnent. In some
instances, there is a patent lack of sufficient authority,
and in others too much authorlty aI' the inclination to
assume powers which should not rightfully be exercised. From
the standpoi of economy the s: i. tu8tioll i. s Ilt01' 6 ViC:: i. OUB.
DuplicHt1. on overlapoJ. ng are always exoens: i. ve, but doubly'
so when their ramificati ons extend into ev€~ ry form of st ate
endeavor" PrEtctices which would never be countenanced by
ivate business 81' prises have grown to be fixed and
accepted hB. vits with us.. TbeT'~ 3 is a woeful lack of coor­dination
and our efforts end services are disjointed, instead
of be: ing commectedly applied for the common good. fl6
ATTEMPTS IN ARIZONA ' 1' 0 REORGANIZE THE ADMINISTRATIVE ORGANIZATION
Certain notable attempts to reorgan1. ze Arizona t s admin­istrative
machine have been made, beginning in 1921. In hi. s
biennial message to the 1921 Arizona State Legisla~ ure,
Governor Campbell recommended administr- ative consolidation. ' 7
He then secured Mr. A. E. Buck, a staff member of the New York
Bureau of Municipal Research to prepare an administrative
reorganiza. ti. on plan for the state. On February ' 7, he
6. Governors Campbell' B Speela: I MeSsage- f, o-- Ffft11- iE":' lzona
state Legislature, Feb. 7, 1921. See Ope oit" , pp. 23- 24
7. Ope pp. 8- 9
submitted his plan to the Legisla tl.: tre accompanied by a
special message urging its adoption. This nlan proposed to
consolidate almost forty statutory admjnistrative agencies i. n
eight departments, as fol10\ l1ls: 8 ( 1) Milit8. ry Affairs; ( 2)
FinEUlce; ( 3) Agricnltllre; ( 4) Public Welfare; ( 5) Public Works
and Buildings; ( 6) Reclamation and Irri. gation; ( 7) Education
and Registr~ tion; ( 8) Labor and InclDstrYe These departments
were to be administered by single heads appointed by the
Governor and serving at h: i. s pleasure. A bill embe~ y~ ng
theip was passed by the Senate, but House Bil~ mbodying
the same plan apparently died on the calendar of the
Committee ? f the ~~? le House a! te7 beingfaY?~ 8b¢ y reported
out from tne C01: nmlC- cee to cn il; I'ias referred. · ·
During the 1927 session of the Legislf~ tu" re, : Ml". Elijah
Allen, a member of the House, int: r'oduced a bill ( House Bill
No. 25) to provide for the reorganization of the state
administrat : 1. on. This bill was practic9l1y ident leal with
the one introduced in 1921. This time it Y'eceived favorable
action by the House, but was defeated by the Senate.
In the T(~ Legis ( 1934), Senator P vms
instr'umenb~ ll onsorship: i. O D for ad. rnlnistrative
re zation and consol tiOll..' Under this plan ten
clep s ' were pDoposed t1S 11ows: ( l) : Health and Welfal" e;
( 2) Execu. tive; ( 3) Finance; ( 4) Husbandry; ( 5) C01: 1servation;
( 6) Public WOl"' ks; (';') Corpo: rations; ( p) Industrial Relations;
( 9) Pl. lblj_ c Util It les 0 It wa s simil~ 3r to the ear- lier plans .
in that departmentalization W,' lS pr- ovided 1th sing1e- hoaded
contI'ol; apDointment belng vested in Governor" This
measure also f led of legislative •
Among the objections l'aised against such plans in
Arizona are the following: ( 1) The plan is too revolutionary;
( 2) it will create too intive offices; ( 3) it
promises to la:' 1 foundat: i. on for hu. ilding a pol1t! cal
mach ; ( 4) it will more 8 e to rna tain.~ l
These objections in view of the expel'lences of states where
such lJlans have been 111 tion several Years, seem
to b the question, fOl' the rHO par- t. In re1. ation
to these ~ lttempts at admin. istl'ative reorganization, there
is evidence that they were accompanied by a lack of
sufficient favorable publicity; that was a lack of
sufficient 1nte11 ent lic opinion to lend sufficient
" pushll
•
1' HE IN. LUJ. H. h.. L ION OHGANIZ. Ail' I 0]\ 1 IN STATES
Beginning with Illinois in 1917, more than twenty states
have adopted cOluOY'ehensive : oJ 8. n8 of st; a te administ]: a tive
consolidation. Within the present era of depressed
ecomonic conditions, ffilCh states as Kentucky, Colorado,
l! 5" ( J. 1he ulan ViaS introd1J. ced ill the Senate as- Se: rl, sfe- Bill
125, in t; l1. e House as Hou se Bill 163; see , TOlJ, rnals of the
Fifth State Legisle of ArizonH, 1921" The Dlan Itself be
found ~ n IVles88g( 08 BiEHm: r~ lI__ v_ e · t; o and SpfcH,; lH1 b~\~!.. s .. E" Campbell,
ernor of Arizona, (> 29- 45
q.
9. An tion of Journals of Fif te Legislatu.: r · e
of A: r'izona, 1921 reveals thl'Jt the Committee of the Wnole
HOl) Be falled to ca st a vote of rEH; ord on th~. 3 mea sure.
However, I- t. E. Buck in s ADlvIINISTHAT'IVE CONSOLIDATION IN
AIlE GOVERNIYIEI\ rrrS ( 4th edit; ion, 1928) states that the Arizona
SenetE'l pas the but it was clef ed in the House by a
si11g1E:' J vote.
10. Senate Bill No. 45 and House Bill No. 82
11; See GoverrloY' Cam- nbs11 , s Special Message of Feb. 7, 1921,
Ope 6ii., pp. 26- 27
ia, North Carol ,
Moreover, several
to strative re
these are Oreg Iowa
, Oklahoma, Texas,
1' e
On"" Ol'eJ: lens: i. ve
Illinois
Il~ l : is
is
s
s rJo
e (). r
for
j 1
commissJ_ ons a Later
( J () r18 t ~ C't1C t . ion
trli75 , tli" Iic1~ T~() I1, S
to Enn ..
]-]-.
ization became, however, a
Governor in 1916e
., ''''' L f ,
e( O) Y' t8.. in
' IhJe : c (- 3' t 1-' , St. 1" 1
OH" nn(:,: nc:. J: lt 1
Idaho
COIlS ]-
Nebraska
ted
oirlt ec: t
Civil
in 1918. The
1.3
Go'\[ (, l': lX1. o: e
the Govex'nor
= 9-
for a fOllr ', year t(,,: rm. In 1920 occurred a revtsion, adding
four adm ist ive trnents.
\ vl t11
ion of the AdnJ istrative Consoli-two
surv by ecial nc s;
l',; conomy Efficiency cre , ott
No- vember, 1914; and S," lC , by
is ture, ort in
act ar' 8 as follows: ( 1) Cr- eation
1 of sixteen
dual, se
Gover'nor
body of
P: r.' Bvlous
dation Act of werB
f at by C 88ion
1912, which ol'ted
a Bnecia1 c ttee of
1918. The provisions
of fmu­denartments
isions: s Cl(:;) S
to e an a nistrat e code
esent in 1921 and was
oriz
JI() Vv8: t' 4S.
dooartm,,, nts were
cl off'ieer, oint the
with approval of Senate. The ten ectors
Governor constitute an j 8 ativB boa
GovicH'nor Hart B-I:;
: tn 1920.
Sllr) er', i: t s
adopt . l
were 8. b01: 1
Gov,,? r: nor
wi
Ohio
By virtue r( jCVH~ lJ1vU\.;. O..
ttee on Admlnlstrat
te DI'nn,.,'", m
e tOJ? S
/ 3.:(' e:
1
intE) cl
jo
t n
try e
~'" v
est in
i. D
1
the
te
t vv
an effective
in 1911 \ vhon a
C: 7I'nOr in
:' Lon b
aY' trtll: 3J: 1t s or
it on of rnany agenc
e~ i{: l st:
01. lt the abo
ReoI' zat:: 1 on
board control b
1 appo ed a c
possibl1it s. A ' plan fell' consol: idntjon w~:{ s
P s Association 1919. No action for
a p: r'ogram jl Hi21~ when () 1'[ 101' st rec: omXflEH1(: l(' 3( 1
pas of bills prOViding consolidation. The provisions
program adopted are as follows: The creation five
departments, the 0 of directors by
e ection of ini rat e offi
merit 8yst: em, .' 3nd a1terat ion ith a
, e eiv11 service cOimn1ssion. Eowever, the
pJan ss in 1921 was a shift, ich took van
- 10~
,
icultul'e, : i. e
natlJr reSOllrces,
to tl
t: l on s}:
•
( il
G th
eo: n, 8 0 1 i( 19~ t i (): tl 1' Jy.("\( t",."
EO
lJ~ h
of
1
(
EtJ'O 8
r- tme: nt s
O: Pio, are f
wht thel'(',?
stem..
( 2) tbi3 t
': rennessee
: 1. s \ iVa, 8
st
8. S
e
Governor
f j!' st st;,; In ;:, to X'( jOY'
in 1 , became an issue of the c
severe financial c tions in
n: 1 tr' t
of the
E:' ..
e
e SDrv
: tsl~ 1 tUY · ~: 3
1 tIl
e8t8~ l) li
was cY'eEited
a (~
ecntr'ol
Bueh to
zrition.
cClrm'c, enCi a t 10 ns Viere
A cO: rJ, sol t i 011 1:) 111 Vv't-: l S
l~ ste t. e
' 1 (~ " A" E. , J
1
foll p: r'ov: 1alons:
of tl1e d.(~ · 08vl · t~ rnen. t s ~ tl ' 00,'-','="_"
with a 1 h , all
Go'v ( j l-~ r1. O}'<' V1 t e ctmf : 1 : 1"' 1' n 2, t i crt
- 11~~
int
..
, X1,. L, e" C,,"' J
s, b'. CUH.... '" C"
, f: l
ent: s are
of tIle SerlB~
e
successor. new
i_ art rlOVv st
just: lce,
afftd r's, ,
1 :,' t (~ 2-, 1'* 6'\. 7 er1.1)_(;',
s sj_ c< n, s ar~ e
Gover- nor
I: n 191;:', e Governor of IVI oi. nt a eommlssion
whlch conduct a 8 of stN'tion. of state ..
In 1914 this ccmnr: tss: lon Ii two l'epOl"' t:' 3 reCO! I1!]" en., c
U; ll. l.~. l. Lstrat e can : i. dation tbe Rdoption of a
N Ing was achieved in the way of Bdootian until
after a sec 8u!, ve" JT and st1Jdy, tllis titne by an interim
" V'L! HlJ..!. ss: ion of trle leg. i slatuI'e.. The reorganiz, at ion act of
1925 est 1:' 1. s an execut council and thirteen depart-malts,
as follows: ( 1) Administration and firl8. nCe; ( 2) con­ser-
vation; ( 3) dairy and food; ( 4) agr: tcl. l1ture; ( 5) hi. ghways;
( 6) education; ( f,) health; ( 8) commerce; ( 9) labor and
industry; ( 10) taxatioh; ( 11) taxation; ( 12) rural credit,
~ r'c't ( 1~')' drn 1TJ n - e al~ a~ n'a'~ e~ 8 Ct J.. _~' t.. j , . 0 .. ,<.:: 1... 1::":; .!. ~\'. v . L- o.
South Dakota
Early 1- n 1922 New York Bureau of Municipal search
made a survey of the stete government and rec a
complete reorganization of the state administration into
eleven departments, which wou1d perform the funetions of
some eighty exi sting ird ~~ t: r'at i ve agencies.. No favorable
act ion erHTIe, however, unt 11 1925 w},,:, en anI;! paI'tial reorgani­zation
was adopted. Following Governor Gunderson's
recommendations, the 1925 legislature passed an act creating
a department of finance and a department of agriculture. Nine
existing administrative agencies were consoli. dated in tbe
former department and eighteen in the latter.. Each department
is headed by a secretary who is appointed by the Governor with
the Senate's consent.
New York
This state furnishes an examDle of the most extensive
- 12-
reorganization program probably yet undertaken by any state
government. The movement for administrative consolidation
began in 1915 w,:' Lth an extensive survey of the existing
condttions.. The agitation continued until 1927 when the
presant administrative consolidation plan went into effect.
A saries of laws was passed by the 1926 legislature
esta1t! 1ishi, ng eighteen departments, vrith tb, e plan tsk.: tng
effect in 1927e These departments are: ( 1) Executive
( 2) audjtg, nd control; un taxation and finance; ( 4:) law;
( 5) state; ( 6) public works; ( 7) conservation; ( 8) agriculture
and markets; ( 9) 1abo: p; ( 10) education ( 11) health; ( 12)
mental hygiene; ( 13) charities; ( 14) correct ion; ( 15) plibllc
service; ( 16) banking; ( 17) insurancl3; ( lP) civil service ..
Most of the eighteen oepRrtments have single administrative
! leads, trlough the organizat: l. orl i. s rlot 8~ S u..: nlfc>:. frn H, S It t;
been made. The Governor has f 8en of the departments
under his cli: pect supervision. He apDo. ints tIle heads of these
dep s with the advice and consent of the Senate.
Virginia
Survey and research relative to the Virginia situation
began in 1916. In 1926 the New York Bureau Munic 1
Research J: 11Hde a survey whlch Y'esiJ. lted in 1' e tlon
administrative consolidation. In 1927 an act was passed
resu1tlng in l'i2: 01' gf:' lnization of adm:, nistI' 9, t; J e mach: tnery ..
Twelve departments were created as follows: ( 1) rfaxati
( 2) Finance; ( 3) highways; ( 4) education; ( 5) corporations;
( 6) labor and indrtsti'" y; ( 7) agricutltLu'e tlo: r1j
( 8) conservations and dEJvelopme ; {: J) health; ( ) public
welfare; ( 11) law; (, 12) wO!.'], 1: m.:, n v s cornpensElt: ion ..
Col
Agitat Jon for (; onso1id.~" t ion began in Colorado in 1915.
In 1922 the New York Bureau of Munlcinal search be a
srrpv whl pesult in a plan foT' conso1 tio: n" ' Nas
not until 1933 t a was ed" The Oolorado
Ac1min. isG ive }! ode, passed in 19: 3: 3, pro'Tides s d. epa: 1:' tments,
as follows: ( 1) Executive; ( 2) finance and taxation;
( 3) atiditing; ( 4) law; ( 5) education; ( 6) state" An executive
cound. l is 0' 17 ld8el, consist e t} O\ Uj}' flOY', S'O) CY'e5t of
State, Treasurel', Auditor-" and Att 1. ms. k: ling,
pU. 1" crJ. as i: ng, adrn: 1. nrist: r · at e control of a1 oca t : ions and
expenditures, investigation of duplications of work, and
standardization a1" e duties of the CouncD...
Indiana
Gove: C'! 101" Jackson, inrrnediately following his election to
the offics in November, 1924, appointed a cormnittee of thr.? s
81' S to make a survey of\:. hri;') boards and commiss: i. 01' 28 of t; he
st..:: tte to deti: H'mine " which of them, from the standpoint of
economy or efficlency could be abolish( 0d OJ:' eOTlsol"_' j,''''.'''_"'''''
It was not until 1933 that a measure ov ~ lun
on a large Beale was passed.. By this measure eight departments
at'e establl shed, as follows: Execntive, sts. , R1u'iit
control, trea , law, :: i. on, public VlOl"' ks, and eom-rneree
and nstr'iT. The Govel'l1o: r' is f18. med as tbe 801e head
of the executive denartmEmt and a er of egen of tbe
boards plac< ed in charge of ': he other seven tment 8 e
Kentucky
KentlJ. cky seems t. o be the latest adheren gr" oup
administrat ively co: ns ced st,,:!. tes, enacted
legislat'!: ion to this f3ffe 1934. In 1922 Gr: tffenhagen
Associates Chicago were engaged to make a ehensive
survey of the existing situatioDe A two- volume lnted
of 1,379 Dages was presented and itted to the
1924 legislature. The Act of 1934 ' cpovides for a 21' of
departments and centralizes executive in e Governor.
CONCLTJSI ' TO BE DRAWN CON ION
s have act
cons
ly adopt plans
ems. A number' of trle reox'-
are so c lex as to
: i" pl. 3s of re" · ""''!''::>'"
tion. t~ ir dis qnce al ~ be
reform in the need for comDrom se. Every
r8 nJzatioTI ( OOVe: r1: 1e: nc has a mtl 11:; ude of enem:: 1es. Those
W] JO seem Ii lose Drest~ ige, posi. tins or pat~ oom: lge
comb e with thOse } est1, y b ieve that
will not serve lie interest; e
ra~ conserv~ tives, a S8cr st~ s
quo, also j to gio; t; 8u. ffiej. ent
states it has necea to c se,
v ions
E~ Et~ jler~ orl6.
\ lotors,
minCH- tty"
also . it . is to
or18 t; 11t3.. t
Constitutions,
officers.
dl) t1(':' 8 to
to eonsolidate
: r'(?
none at all, but
Otlt CO: t1sti ttl ti- o: r1a- l
S l' 16C
t, \ N': t
t 5- on. ne
: r~ EmH9mt) E~ r< ed
c OrlS()]
this mov for rearg zation,
a erenee statutory r
Const:. it1! tionl": l. 1 reform.: i. e ,
cases, only tial cons Idation because
as a rule" provide numeI'OU8 istrat
Where Oemst i tU. t ions, haV,,) left
the legislative s, it
of the dnties of Const! tiOD8]
departments. A
st~ a. te8 de8.1tllg iN'. J,
tut ad
It re ires no f express
it cannot be blocked by a
Only two states -- Massa
eir consti- tll i. ODS
consolidation. This leads to
cons tian is better
' 1') 9
tive
l. cb
tve
( OJ!' in ttH'; ILLINOIS
lous strative
of ans, wbich can
these Is ified
Another cone sian is \ 7
: have resulted in t
oitf: es: oIF" of
and the
far the
very fre ly longer
': ire almost . invr · iriably all
removals is carefully
et iCb. l I1is
i executive" as h
tion to New Jersey,
are S DIan.
other
ed
apgc;, ,> _ ,1 1);
In'd li. dUc, ..!_ 1 , j ,
E; l~ rlO r~ ~ f ell" e 1 r~
m:' nof't s
artment E::. tc
sol
•
8_ ( Jl~ l e : r~ e 11t s •
011
p c 1ms fav 1 a ements
reorganized f3. dministrative systems. The concrete Etcb
the form of better Ii I ed streets,
t s, t} J l-' at es [: ire I" e c()}? clecl,
are attribllt , in part, to t 1m
rna : lues.
A major objective
economYe Has it bee~ 8
r00rgsniza 1 movement j. s
ad? FOI~ Il. 1in(= is ere 13
cartS
rrl
- 1: 5-
GO'V E~ : r · YJ. or
., "' lirt J-" i I ,
: e lEttlo11S
on
ted
(~ ost,
l'; r
c ' 1
_-'_. (,~. 1. J~.- U\"., T cC'i
S S 1( in ) t n 41; • •
g CYV (':: 1~ 11tr\ e 1' 1t~
LI'
owances l · t S08ms
to
t
X' 8
Hrrrl. i is is
V Ie 11,
1
" J). IJ & . L
- I ,1'.
t
( SU. Cll
lie
() r:'( 1.0T~
c" j\ l1J
seerl t} Xi- S
a responsibiJity; as
,
~ t, CT't~;
I sit in
for S 8t,
for~ tl-) e r18xt
( 1 ) nlOl~ e
p
tton
t t1.. or: Lll
gc, n ersl]
eXee" Llt : lve
Gel"\] e: crlox~;
otf; }<.' . ts - to
a01: n[( 1 i s~:: j ort 011 C
. foJlcv/
orl
8 : s, t e S It
T-'. iY'EtC
Et y~ G t~ E:~~ Y* ( j \ i/ ~ l ( 1
t j., 011, iN}~): t eti
a. r" ( 3 be
S€ V
t: it
all
trat: ivE- J
as v\ i'ell
state. ads
to form a c iLet, tb
and cooperat ion.. th: 1: n
inciple calls for the placing
relat work on s Ie bureau
be1 single officers, d
Governor.
remov Ie the erno1'
for' adminis-
Governor in fact,
executive of the
B are called upon
the Governor for planrJing
tment, realization of the
of responsibility for closely
or iaion he s, the e
ct re oneib to the
Third, proper e tion of ter- ms of office of
adrn i r, -' t "' t"-' 8 {- lve o'j!' f" i " c~; T~ llR~ l~'- e" qer, t' iR""-~'- · '~ iiF, q~ · · f-'' 0
'
) 1" ' vear- te"':' Y. t". 1 ~ ~. d':'_ ~. J,.. C) . .. 1. - v ,&"., J,.. _. _.~.,__.. jo,.,.; _~ Q .... .... , l\~_,_'- · . J... e __... \;..< " \,._ ~. P _ .. 1. ...
ror the"" Gover- nor seems preferable, and tbe terms of the
department heads, if they are definitely fixed at all,
should be carefully adjusted with r to that of
Governor. It would seem thet departrnent heads should not
have longer · terms than that of the Governor, and it seems
20. " Y, 8wis7' 1, VTIIIfLlil- Draper, Memoranda and Briers, No .. r! 2,
Pennsylvfnda Commission on Constitutional Amenclrnent and
Revision, Journal ofyroceedings, vol. 2, p. 9le ( 1919).
- 18-
preferalhle to : be. ve them serve at the Gover- nor's pleasure ..
Experience indicates that tbis exception may be made; The
members of boards or commissions performj ng rnJ8 si- legislative,
quasi- judicial, inspectional, or advisol°' Y. fundtions under the
departments or otherwise may be appointed~~ or longer terms
than that of the Sovernor.
Fourth, plurnJ::£ eaded agencies, aE!~ boards or commissi£ ns,
are unde sirable aspur~ dminii3tl' 8. tive agencd_,," s e Boards
in the DliF91y- a- dnifnfsf: i; at f'ltec8:] ia · cIty aregena1:'!:' l. lly found
inefficient oil\' ing to division of pOi. l\;' ers and absence of
initiative and responsibility. Ex officio boards are almost
never effective : In the hlghest de e Whenev' 9r
si- legi t , quast- ju( 1. icial, ad' 118 , or i. D
functions vi thin a department, a hoa: rd. ;' 1i adve, ntage
be attached to the department to nerform anyone of these
functions. 21 - .
11 ::; ns based on attent and exam. ination
of Arizona's t- Hlminlstra t 5.' 11' 2 oY'gani jon se,:? m man-
(; to an att to scribe for its administ iva
il18 0 certain ills ext is v,
[ 1' J.[,; u'e 8. em has been roughly indicated
• But specifiCJ:" H1ss and deta. i cone eness can
a sur 88 only ter an authoritative
tjon ar'e
ext of
lar- or
In tVifO OJ'
major oblems inviti
as follows: ( l) The : oatm'e and
functIons that is funct: i. ans of
pe: J:' formane
agencies; ( 2) re
buck" relative to a strative functions
or more clea or by ttle mIDmbers of a plural~ hea
( 3) the existence and extent of undernourished
i om of
( 4-)
18 C ion of state's general
c lzenry ( rec strat iv E. 1 services) in a
b8_ ck- seat posit lY\ E1clsur actual ad.; nini
: 1(; e8; ( 5) t:' lees relntive to the
inist1' I" l. tive pel'sonnel 1:' eCl'u: i. tiIH1nc, exam
ointment, corrroensat ion" l:; ion, di 80: 1]) 1
: retirement of sevel" s. l hu. ndr · ed admilli c
S el~\ r s- - se e p. J: Aj:~ .4J.~.;:,::; ,(:> · .4!<~,, L · , trV1. · w•}.- ),• ( r':.:: Jc )
ent of financ as measured s
9" i't.' ing rice (' 7) s(~ rrt ir1ef: fie f18
~ : 3 ee Buck, A. ~ e-, Aaln:- coilP7" olfda
• 5= 6 ( 1928)
I ~~., L; t>",
J'nmental e , icieney;
l1ure to ion)
to: ne of
s 10ri
accountabil
r
vGCJ.~,~=" rds
( [: n'
d
( t' )\') he a
t . iv e lila t ~ 3 ~ p
re
and effic: iency as
What ') 1' Ac'e-" e''' t exi sts for au ~ - r' /', ",_, t ... T.. I ~/., J. J.
is reS1Jo! is! ble for 13: 001' 1801' it?
Ii suggestion? W1: 10
tal:
have
macle
state bnd
sear
majority of the states
,
ef) tJ f- tt-: y r._~
t1101} t: eCeC1Grlt
, simultan' 3a1usly,
aee,
8. X1Cl
to ave qClestions, as vve 1 as
A perusal of the sUJmnarlr:,; s
co] umn of 1"' 8 ~: mized
stems will t ese
ttLOtlt E? r, xee- ptl01' 1, lJY~ eced eOl1S()]. teo
si\. Te
It
0 · '-:, 11en18
e Yt () J:~ t e
fir' st
Et\ lth. oI~ ized
inquiry, fi : i
for otJ: H" rs of
the
' ch ve recent 8uthoriz
ive adm5ni ratlve surv
as foJ.. l()'\ Jvs: " t'.",(':":;
C ""'" n "'.. "" i" (,:> Y,
are
lac::!.]
: r~ Sit .. tJ..
lication
1;.:; 2
one
Pr: tnceton
socl s, tes
st 1" Et t'; ,101':\
r~ ece11t
co '" tHL: e H- l_ cd ' 1" ,;, ' J' lY"' l ('< ___ .... , •.- 1 _ '•.. 1 _ --,' J... a
ctf f' 8_ : 1:(' S { rJ.
Ette ·
of Chi
f of local
tr. 1J: t.\ ferE; 1t~ l! J
'!.' .. j u,, · _ S t: e 9.. t 1orl.
Loe' 01
, '\ 1' 01 .. XX'v'II, 3!?
r8 of errlor;. · ~ V. tl
- 20-
st of
renort s
s of
iil f S
..
ittGC orl ox-fll()
y., (} o\ rGr4rHnF~ t
(- j x · ,~~, J. j~ s s
Ii: 0 ,1,
special jo com « itte
gaYer t fUIlctionse
t:. ()
1 Y18. ELbl(~.
..
OYlti-
mo: ee,
1
Local ort
J. t 1. e: l ~ lr'ls,
1. 88
f
s is
to
llrrr;, e s t: r~ ict
8 te
, g~ ]_? 3SSel~
and North
or oraet
e: i ty s
ernment, however,
o tllt( 31r} E;( 1 f: l t()
8. to
nna,
it to 0
1! 10J'e Ol~ S S
Z9. t ' I, orl v\~ tt5
ctie~: 111y
,
E~: rncYVernel1t
f() j~& CE: 1.
ties
P
rrt s 1
o typ: tCb I
a bOn3" cl
ad. rnl Yli s r,~ l t l'v e
s(; y~ 11) er,
S been a MOV of increasing ro-
Manager Plan into our oounty This plan,
from Efie fil' 11aof city , ates
COile r~ at 1011 of C. O\ lYlt'; r el~ rlrfle! lt l) OVJe: r~ I~ e or18it). ilit · ~ V
in the hands a small elective county board which
apnoints a county l' to rect and
county's adm s i, ve work, qS tl1e ci er directs
the city admlnistratltn, and as
schools directs oi 8 001 system.
- 24-
plan is now operating in six ies in the landG It was
adopted in Durham Oounty, 01 ~: 1. n 1930; in
ington County, Virginia, in 1931; in San Mateo and
Sacrernento Count: tes, Calif , 1. ; and in All) ermaY · 1e
an. d Henrico Cou. ntj. es, Virginia, in 193; 3.. And imilar plans,
thOUgh less completely centr'alLdng control in ~(, Ettion
in several other places. movement is increas
v) l pr~. nc: ipal om) osit1. on has C0111e fr'om county
of ice co~ serv~ Eive politicians 0 aI- e nearly
Et s t 0 Ii ( j %~ H~ t~ j. () Xl S (. Y}" · :::; X": rlCr: 8
81,1
cAttw. trlB. t 5CI! J, b 0
9Y:, d
e rnE, rit 8vstem to our'
c~ r'rlrn t~~ 1" l t~ s, til] t tl. l e sit. 5 crl of
oen able, soFllir, to Dr- event :: its
e been able more or les8 ef
D wbere it has been
OVi! eVeI', a
oth I ov s in
e<: t'at ion, rrOl'(:'; or Ie 82
III
IYI6: r'it Systern () f Pj, o · ;'" l:".:') j rtL~~.~) i): . Gl2Mlli~ \ 1 ( Clt" v)
Officials ilnaZnmTofees: · :-- Inmos: tOf the - 1: arge'r--- CITL'ls of L~ he
~ the law TJroviaes for the omotj. on ~ j .
1 es on the
e law is
share of our
des ' 0: 11 i ty of
Arizona)
S bY'
fop
w
ion In
" I
: fs.. el J. l t 5.
AX': t ona," Sl; ell
, hO~ TeVGr, s em eveal
ct s of eo)) t 0''\/ or · r} n1(~ · ~ rlt e~ KJ.
C01" in'cy ernt' 6Ilt
b (; (;,:' 1) se of tb e 1"' lJ1'&, j : p s
c OU!' () lJnt · y- gover- nrnC3nts have fr' 0VJ
c oblems with vvhi to s. l.
Ot} lYC i esseE1rfU3
tl: r: lt18 C I:;' Sf:: BJ:]. . l.: y
( 1) 1" fLC; c1 Y'fJ.
f~ 11 1 l
() rl 1Jb. : ts erable to a11 CQuYlties.
(; lee 1.\ Te
SlAY' el'~,
0013,
t 11 ('; ' t
.,
. L
8,. I) EtJ:., t 1 san
T) 8. : t~ t : 1
C T
.,
. L
1 rd en
10 1 control
. ., a
~ J_ S
;:.~ el) c) rJ. sit.! il. 1
exc
mer: l. t
e C
eGlT' · riY'
1 s
ice
e
- 2' 7-
PIlL
U .. o ,_, '"'"', J' '-"..., . LcA-~, J,. ION S
TeTT)",- T- T" IT SYSTEM
S1' l\: rE
OFFICIALS
LOYEES.
LOCAL
OB
an
states,
e INel. 1
tJ:' Jere is still
business enterprise,
Is fbI' the services
In rE, C
sonnel
local
' ro
b:' l G
merj. t or ivil service
~) ttl to 3t~ 3tE; S
t is i. t is
gov8rYJffiEH' 1t is 8 Ssent 11y a
e. f f 1 c. i errt: .;' s t r~ fit : L orl '\' 11. ~ C.
8xper: teneed per.:> VUl."."",
(~ l~ : t s s,
se of O, lr state
pr'ofe S 85 onally nmnned
0"(' '!" - Zi'ede' , Of_' 1 u"-, r EOH" ,']' 11 ( J nl" Q ':;" v' ,"~,
.. 1.._ 4,). .••- ,,,:, 1.- ' Ii " J. l. _ ll-.~.' .. " ~_~ J, ,.,.\:.. J ...... , J.
Ei
of
ne
of <:" oolls
. ii T~: l Z OlJ~~ i e~
IJ8Y6 8 ..
: ftel(~
c · t.,< oeJ: Jts,
schooJ. s for the reform
e baneful ef cts
s t er! 1 of nVJ
O()
(): PCE- J-"
Jons,
to
t;}.~ e 1
service e
8
: Cor
Iso
seek
d: l. s
TJolJ. tle
osi
iS8t" 1 v
: 1
., ,~ , f ''' ji
1._ J .. ll !_-
tes
t; orm
< II 8.
lts
s
: 1 is
.~ ..
v 1> 0
11 to
Lion
el.~ tsses
e Onnri: 1- Ss 1. ell
st.: tlJtG e It
sen
unlt cost
oDe: t' 8tlcn Is };' c: c t,!}']
r t3 E) S orl. i · t is for Arizona
NGW rs
1.11,1 otjon OV, 3r
1 1 8erVl, ce
st't osjt : ions
. in all eOlHlties, 0 T' 100E11
81Jbdivis: lons w1 4 ch hav vote cted
the erJt sy st( 0m. e D vieI1 not
< c; u"",-, s the unit cost, it posfdb lit: i. cal
8ubdiv: ieions havl a roe t ely small er of IS
to secure benefits of the merit stem.
Part IV.
One :} S YlH of tJ: 1 e 3tEJ. te errcrnmcmt in Arizona
at the esent time is a ravle its stem
accounting. RespoDsibili keeping of adequate and
. int ligible sccounti records is not fixacl.. 0-
vision is for r periodic audits. Anm1al financial
reports of the ate tr'eastu'er and t he state au ( 11 tor- are
compl: tcat in many re ects not reeoncilable one ith
other.. Reports from same office from year to year are
c a. ble.
The situation lOtS to counties, cit: tE- lS, 8 othel" local
Doli- tical sub- divislons of Arizona is, if anything, vwrse
than that of tIJe sta te itself.. Each county and city is
typ: lca lly a law unto itself .. In fact, each change of adm1. nis=
tI' 9. tion, as oft; o. n as , rneans Il ,:; 11' 3. nge In the nethod of
accounting.. Many counties and cities not on1 · y keep inade­quate
records but even these a1' e frequentl · y poorly kept ..
Annual reports ape not comparable for the same goveJ:' nmental
sub- division one ye: u" to \ 01' little or no
comparison can be between orts of the':' several sub-diVisions.
the
s
111 and int ity
lowest bidder as is
p1' e8c1' 1' oo the na
( lepa. r< ftn1(~ y} ts
classlfl e~ lt :,. on
t used in budget
CEUl made at any time
enditUl" es
exnenditures.
comoet
best results are Ii ly to
te el'nment if responsibility fOI"
e acoount ree 1s c r i
i t or~ () r~ C;. t'< 1( 3r 1Il
o : f El 1" 11 f. lS pr~,:~ ict. i le, the
ould be performed in slJch c
It is beli. eved
be obta. ined for
the keeping of
in tbe ficc,
se
necess
ace( ill 8 e () ~(~ 1~ t~ .-, c.'.•~, '.'.'. ,-
in order t direct O · , jIU'Jc: l.. L
between actual receipts
for au orized reo ­for
periodic audits
OIl a b sis of eas1
on .:: 1. ':) sis t) f c() rrt:~ ea. ct to t116
f: c'( squently the ease sent $
Responsib. llj. ty anci. E, l) j foY' u: c er aeeouT: lt
CCIltl- 01 In tIle SeV( fl'l< f:- l1 C011r1, tles, e: lr) Ft It_ lc~ J E1.
poTit ic. 8.1 8D. b- di · v Is. i OIlS sti 01ll( 1 l) e ce: n. tr~~ 3.. 1iz stt- lt es
(~ se e}: e(~ 11f_:: Ilt : c- 6s'ults tl1. e 0 trnellC of
a corntn1. ss1on COffi} IOSe(: 1 1e ' D: r? ofesslol1ftl tlCC~() U_ rltt= trl'ts
to st'u, cly sittl, S. t= l. Y~{:: connl1elj. d 8. S; Tstem ( 1f llY1 or~ m
Tbls does
rIo eor18 tj OJ]
ace s . for E~, 11 e() 1} Yltl(: 38
not mean identibal ree
given to erenees size
same ssificatiorrs, however, carl be us
S€ lm9 re( 111il~~ 2: tnGrltS :: tS to il1Clr) S C9.. Il 1) 8 fox~ .9.11.
IJ (;:; 8 1.
Again, the 113. VJ should \ 3ither requlJ~ e 1 political sub-dlv
isiorlS tt ~ 1 eOC) tl st0 8~ < per~ i
to 800r t 1'- 1.
the Examiner reports expenditures made 1. n violation
of the law or other irreg~ larities.
- 34-
Part V.
OBSERV AT IONS AND RECOMMENDATIONS WITH RESPECT
TO IMPROVEMENT OF ' rRE STATE COURT SYSTEM
AND THE ADMINISTRATION OF ~ JSTIOE.
J1JDICI. 4. L RULE- MAKING.
ter~
8.1"(::: to
: Pi) s cl
Is upon e~ 11~ tUf31'< li t8. Orl
eix" rnf::?:(" lts, jll
es l) e erne ~ i1.1 () tllorr1. s,( 3: 1,\]"(:;, t:
Hules of urocedcu> e are effective and can be , justified
in the degree t th rerna mere means to an end.
to be atta is t11e pres atJ. on issues
, j. ust
The
os
means. litigants
t (=: J ~ 1., e
() 11 Ell1 tl1 (). r~ it: y
f 1 j
t .. L
AI'i 2", on9
. f"()(; e .....
of A: r'iz, ona It f" I'orn
Be
dy determinati. on of l: i. tigati. on
upon its Such rules shall not abridge,
enlarge or modify the substantive rights of an~ T
litigant. The Supreme Court shall cause such
rules to be printed and distr: i. buted to all members
of the bar of the state of Arizona and to all applicants,
and the sarne shall not become effective until!:; hirty
days after they have been so printed, made ready for
distribution and so distributed.
Sec. 2. All statutes relating to pleading,
pr'? cctice and procedu. re, now existing, sb. all, f: eorn
after the passage of the Act, have force and effect
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/
only as rules of court and shall remain in effect
unless and until modified or susuended by rules
prolTIulgated pursuelnt heret o.
( This staute is proposed after detailed study of similar
statutes of other states. It : i. s taken from the 19~') 2": sessi. on
laws of New Mexico and is proposed because of its brevity and
simplicity)
The Committee' s infol~ mation is not complete concering
the number of states in which the rule- making power has been
given to the courts. HmliJever, among the states which now hfl. ve
court rule- making power in procedural matters are the following:
New Jersey, Colorado, Conneticut, Delmvare, Washington,
Vi. rginia, Florida, Wisconsin, Mi. chingan, Rhode Island, New
Mexico, and Oklahoma. In England the rUle- making povver VIas
originall'y in the courts, 8.' n. tJ it s been eontinLl0usl: v excn'eised
by the com'"' t s since the ena ctment of the Judi cature Act of
1873. The national courts j_ n tlJ. e United sta tes have exerci. sed
the rule- making power in equ: Lty and_ in admiralty since 1842.
The New Jersey courts have had the ' oower s ce 1912, and the
Colorado courts have exercised it since 1913.
ORGli. NIZA'l'ION i\. ND ISTRATION OF
Because the state of Arizona has but fourteen counties
f0nd hut one at em of tr: ial C01.1rt s of 1' e cord and no large
cities, there can 9nd should be a simple and therefore most
efficient court organization in this state. Actua1lv we have
no CO'llrt organization at all. Admjrdstradvel y ltvve have a
series of slot- macbine tribunals from whicrl to- draw out
decisions or nrecedents from time to tlme9.. s facts are Du_ t
in by litigants. 1t There is : no connection between our courts
excent the common interest tbat they are enga, ged in a comrnon
pursuit. " We need a body of men competent to study the law
and its adminjstrstion functionally, to asc~~ rtain the needs
of the community and the defects in the administration of
justice not academically or apr10ri bnt in the liqht of
every- day judicj_ al experience I: md to V'lOrk out definite,
consistcmt lawyel'like programs o. f improvement lY
This 60tnlnittee recognizes tbat mere ch9- nge is not
necessarily progress. Too often impatience with evils that
are perfectly patent creates a tendency to rush to make a
correction. Very often ill- considered rem~ dies are lNOl'"' se
than tbe disease itselfe Further, owe are liv~ mg : tnan
evolving world Changes must be made to meet chl:: mgese
However, cb.': Hlges 8boulo be made in harmony with systems vvhich
bave already TJroved their worth and have stood the test of
time. Therefore, before we undertake to project a program
of . improvement for onr judicial organizat5. on t. n thJs stste,
whi ch in any event 11 involve changes in our st9- te consti-tution,
it is deemed advisB. ble to get some pecessary facts
and data about the agencies now in existaYlce a: nd I\ mctionl. ng.
This Committee believes that there a1' e certs. in and
d_ e.. t.:> I. n., i, et'cnsnge s W~._ lD.. c. n S, DO" L1Ld ' b e ma, u. e1.' In { v- 1l. le J• UAu'. lc• la1
machJnery in the · tate of Arizona. Probably these chsnges
should 5. nclude:
A. rrhe establishment of a ministry of justicE:, or
unified court in which jUdges may be readily
transferred from one part of the st~ te to another
as jUdicial business may reouire.
B. Changes should be made . in Oll!' method of selecting
judges, both i, n courts of record9nd i. n courts
not of record.
C. Qualif. icattons and salaries of judges should be
increased, and nerhans the jurisdiction of our
8uperior courts should be altered.
D. The admlnistral:; ion of ou: e c: ourts is a matter
quite distinct from the , judicial functj on
involved in ca ses de cided. In the field of
administration perh8ps the Arizona State Bar
as \: vell as e ; iudi(~ jary should part:' Lcipc. lte.
E. rPhe f\ mct'lons of a magistrate sitt ing as such
are not ; jud. iclal. Every judge UDon om rests
tbe obligation of de(? iding , judici~ 3.1 contro-vers:
ieslnv o1vlne; 1ntH otation and apol: ication
of the law should be trained in tr! e 18. w 9nd be
a member of the Arizona State Bar.
F. Arizona should require ever'Y apuli cant for admis­s.:
l. on to the state Bar to have a minimum educa­tional
requirement of at le9. st two ',' Tears of
college " vork and in addition thereto, three
years of law school trtdn: ing. l · i. t trle is
t; . iIne 26 states require 8D ch m5.. nimu. m educet ional
qualifications. The are: Alabama, Colorado,
Connecticut, Delaware, IdahO, Illinois, Kansas,
Massachusetts, Michig@ n~ Minnesota, Missouri,
Montana, Nevada, Nebraska, New Jersey, New Mex­ico,
New York, North Dal{ ota, Ohio, Penns; rlvania,
Rhode Island, Virginia, Washington, West Virginia,
Wisconsin, and Wyoming.
No doubt other changes are des.: trable. however, sLlch
alterations in our lavis should not be made witho- u. t some accurate
knowledge of the situation in Arizona. In order that these
changes or any chaJ: 1Q; es may be made ' intelJ i~~ l1tly concerning
the · whole system rather tilan piecemeal based upon guess work,
. it is recommended that there should be establisned in the
eta te a lTudicial Council with the functi on of stlldying the
situation and assjsting the Supreme Cpurt in the work of
admi. nistering the state's judicial system.
There are in Arizona at oresent two organizatIons or
institutions eh are cUrectiy concerned vdth tbe 8. dmjn: ls~
tration of justice. Those are the Supreme Court and the
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state Bar of Arizona. In order th. at these institutions may be
assisted in gathering scientific flata concernlng our judicial
s'ystem, it : ts recommended that the Legislature should enact
the following proposed statute, to wit:
Be It Enacted by the Legislature of the State of Arizona
The Supreme Court of Arizona and ~ he state Bar
of Arizona are hereby authorized and emnowered to create
a Judicial Council for the continuQus study of the
jUdicial system and administration of justice in this
state, Bud to assist tbe Su. preme Court in Promulgating
rules to regule te nleading, nract; ice ;:- inti procedure in
judicial proceedings in the courts of Arizona. The
Supreme Court shall make y · ules, not inc: onsi stant
vd_ th la\ N, for the cre8tion, government, dut ies, member­ship,
tenure of office of members, meetings, and
continu. ed existence of such Judicial Council. The
clerks of the \ 7.8rio118 courts, am') other offleials
therof, shall make to the Judicial Counc: i.. l so created
s1) ch report s fr'om t 1me to t 1me as trLe COUDC jl may
prescribe. Members of the JUdici. al Council shall
receive no compensation for their servic~ 3s, but shall
be allowed their actual expenses lIe engaged in
discharging their dnti. es as members of tbe Council.
At present 25 eta tes have judtcial councils ith varying
functions. fI'hey are: California, Connecticut, Idaho,
Ill: lnois, Kansas, Kentucky, Maryland, Mas88. SF) tts,
1iichigan, Missouri, New Jersey, New York, North Carolina,
North Dakota, OhiO, Oklahoma, Oregon, Rhode Island, South
Da' . k.," ota, m., e. xT"~ s, Vl.' Y; l>. 6o'. l. n i a, UtJ: 8'.~.. n ", a'}~ of: L.,,, 1.~' L~ · (.. Cll,.':: · , t · on, T~", e"~< t V1' . r" b},.'• 1,.' J. a,
and seonsi. n.
... 38-
Part VI.
OBSERVATIONS ON LEGISL. L\.' rIVE
REORGANIZATION.
B'icameral legislatures in state and city govern.> nents
have been under attack for many years.. Most ci. ty councils
have now corne to be unicameral bodies. And in 1934 the voters
of Nebraska adoDt~ 1cl a constitutIonal amendment which provides
for a one house- legislature to consist of not less th~ n
thirty and not more than fifty members.
The attack on two house state legIslative badies centers
largely around the charges: ( 1) that tIler'e is no real basis
for two houses; ( 2) that the two branches are essentially
duplfce tes of each other; ( 3) that in many stEt es the houses
have gro\ llm to be unreasonabl'y large and cumboT'some;
( 4) I'Phat instead of pY'ovi. diDg intelJ igent de 1iberat: i on anda.
gu. f". rs.. ntee against hasty enactment of ': l80 1a" I,'\ I's, as tb. ey
are supposed to do, the two branches actually foster
irresponsibility, , and unreasonable delay, and in the passing
of passing of desirable laws constitute a hJ: u.' 1. dieap;
( 5) that the system : is unnecessarily expens 5. ve.
In 1913 tbe governor of Arizona recommended the adoption
of a single chamber legislature, and a proposed ffin t to
th>: tt effect was defeated : in 1916. And con. s : iclerable study
of the matter has been made recently by Mr. Mulford Winsott,
Legislat; ive Reference Li. brarian at Phoenix.
The houses of Arizona legi. s1a tnre are both small, and
from that polnt of view need not be unwieldy. It is the
opinion of the comm: i. ttee that the Ciuestion of adopting
a unlcameral legislative arrangement is perhaps not of
urgent and pressing lmport! 3.11ce, though it is difficult to
fjnd any overwhelming justification for t.: he continuance of
the bicamel~ al stem here; and the feasibility of making the
ch8nge is recommended for serious onsiderat i') n.
One of the fundamental weaknesses or American legisla­tive
facilities is the lack of any responsible 8. nd definitely
accepted : l. ec~ der811 ip-- - a tot a1 absence of any arrangen]() nt for
comp~ ehensive legislative program- making. The governor
is expected to assume some leadership in the nreparation
and sponosring of a limited administ~ ation 1e~ isiative
program, but there is always considerable jeaiousy and
resentment among the members of the legislature ' with resDect
to this assumption of leadersbip by the governor, which
1.8 considered by many to be a usnrp, g. tion snd an encr'oachment
upon legislative perogative. Yet st~ e legislatures them­selves
have been very tardy in setting up their own leader-ship.
-
For some years the National Munj. cipal League has ad­vocated
the ~ 8tablishrnent of state legislative connc: ns
composed ofche governor and a flew members of the legislature
- 39-
to be on duty all the time and having the respons. ibility for
preparing for each legislative session a comprehensive pro­gram
for its consideration. And in 1933 two states adopted
legislstive councils along th: i. s line. In Kansas the new
legisls. tive council consists of 10 senators and 15 l" eppesenta­tives.
And in Mich. igan the newly established council is
composed of 4 members of the house of representatives"
3 senators, and the presiding officers of both houses- ­9
members in all.
' Th: i s neVi device has not yet been in operation long
enough to furnish a basis for an evaluation of j. ts
nract ic!:! l value. It repre sent s" however, an effort to
provide definite legislative leadership which has not yet
been developed 1. n ttd. s CO'Llntry. It ShOl11 d strengthen the
legislatures, and its fa. ilure would seem to ind1. cate thC=: tt
state legislatures as now organized were unable to provide
themselves with leadership. -
The Committee feels tbat no valid obj (" etion can be
opnosed to tb. e . idea of a leg. is1a tive eoune: i 1, qnd recommends
that sueh a dev: tee be establif: 3bed by the Arizona leg: islature.
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Part VII.
CONCLUSION
This report has sought, briefly but rather def. ir:. itely,
to set forth the nature and scope of the problem of state
and local government reorganization as it has confronted
other states and as it now confronts the people of Arizona.
The Committee has not been a1'" 11e to make a comprehensj. ve and
exhaustive survey of Arizona government wbicl1 needs to be
made befoY'e a detailed progY'am for reorganization of its
adm: i. nistrative mac1dnery can be reasonably and intelligently
evolved.. And the G onduct of such 8. survey is recommended
as hej. ng besically necessary.
In certsin aspects of the ' Droblem, however, the situation
seems to be so C]. e. ar.~, y apparen1~ - an" n remeO0l" 8.. 1 prl" ncl" p1_ es 1" Ch
have been tried out : in otber st8tes seem so thoroughly adaptable
to our C8se that the Committe has ventnred to l'l' 1ake Y- ather .
definite and snecific r~, commendatlems.. It is recommended
that the principJe of tbe clty manager plan of novernment
be extended to county gOV( 3rnment i. n Ariz ona. It is
Y- ecommended that a compr" ehensive merit system of apDo: lnting
and promot ing sta te and local govermnent offled2. ls and
employees should be adopted. It is recommended tt: at a
system of sta te centY'fl} ized f'inancial 81Jdi t ing and c ontro]
for all state and local government agencies be worked Ol1t.
It is furtl1er recomrnenclecl that the state supreme court be
given compr(~ bensive power to maIze y'u 1es of procedur- e for
the tr:. tal courts, Gild tbat a judic: ial e01. u1c: ll be created
by law towol'k iJvith t11e supreme court and the State Bar
AssociHtjon 1n evolving a unif' 1. ed . judic: lal admlnlstnation
for the state.. And it is also recommended that the
Arizona legj_ slatvre establish a smell legislative council
comDosed of the gover- nor- and a few member's of E-) ach house
to serve as a permanent program- making agency for the
Iegislatdre 9nd to provide definjte legislative leadership.
Such reorganization of stato 8. nd cOl1nty admin: tstrative
macbinery has been accomnlished in otber stEltes, and su_ ch
as tbe Committee believes to be needed in Ariro na have had
to be consvmrnateel in sp: Ue of the potent opposition of
inflvent5al, : interestpd, ,< ind 1-,: 188,11 ps er, d conservg-tive
grouns and cClriser- v8. ti'l} e elements.. '}' he reorganizations
have been brandee] ever'ywbere, during the perjod of their
con, c;:;" J'.. ae< rat · v · · J. ons, as ! uln-" t\ m." erJcantI , Iimonarc1c-'" laIII , Iut" n" oem• ocr- a1- v' lcH ,
and IldarlgerOllsl! .. And those who l1nc1ertake to lead the move­ment
in any state [ laVe had to be prepared to be ch8racterized
by the oppos:: ltlon H8 f! dreamerst!, Ilranicals H
, gnd II imnract: ical
idealists". .
Perhaps it is not to te eXDected that amy reol'gardzat: ion
which is likely to be made in any state will prove to be
a panacea for all bad government. Yet, it is significant that
no state wh: ich has made a cornprehensive reorganization of
its governmental m8cb, iner~ Y' has ever at! EJndoned. it*
January 1935
Respectively submitted,
Committee: