terms of three years, two being appointed each year. At least two members of this board must be women, one of whom shall be a teacher. The department will be organized into such divisions as the commissioner with the approval of the governor and council may determine, but must include a division of public libraries, a division of education of aliens, and a division of the blind. The division of public libraries consists of the board of free public libraries as formerly organized, the chairman acting as director of the division. The division of education of aliens consists of a director, who may be a woman, and an advisory board of six members appointed by the governor with the approval of the council, the director for a term of five years, and the board members for overlapping terms of three years. The division of the blind consists of the commission for the blind as formerly organized, the head of the commission acting as director of the division. Such other divisions as may be organized will have a director in charge appointed by the commissioner with the approval of the advisory board. Hence the department of education consists of three divisions, administratively independent of each other, and a possible group of divisions with heads appointed by the commissioner. The old boards of trustees of five schools and the teachers' retirement board are continued in existence and are placed in the department.

The department of civil service and registration is organized in two divisions, a division of civil service and a division of registration. The division of civil service is under the control of a commissioner and two associate commissioners appointed by the governor with the council's approval for overlapping terms of three years, the commissioner to receive not more than $5,000 annually and the associate commissioners not exceeding $2,000 each. The three constitute a board for the preparation of rules and regulations and the holding of hear

ings on civil service matters. The division of registration is under the supervision of a director appointed by the governor and council for a term not to exceed two years at an annual salary of $1,500. As a possible means of coördinating the work of the department, the act provides that the commissioner of civil service and the director of registration "shall act as a board in all matters affecting the department as a whole." Ten state registration boards are continued in existence and are placed under the division of registration.

The department of industrial accidents consists of the old industrial accident board as formerly organized with its duties and functions unchanged.

The department of labor and industries is under a commissioner, an assistant commissioner, who may be a woman, and three associate commissioners, among whom must be a representative each of labor and employers. All are appointed by the governor with the council's approval for terms of three years, the associate commissioners' terms being overlapping. The commissioner receives $5,000 annually and the assistant and associate commissioners, $4,000 each. The associate commissioners constitute a board of conciliation and arbitration.

The

The department of mental diseases consists of the present Massachusetts commission on mental diseases. commissioner of mental diseases is the administrative head of the department.

The department of correction is under a commissioner appointed by the governor with the council's approval for a three years' term at an annual salary not to exceed $6,000. The commissioner, with the approval of the governor and council, may appoint, remove, and fix the salary of two deputy commissioners.

The department of public welfare is under the supervision of a commissioner and an advisory board of six members, two of whom must be women, all ap

pointed by the governor with the council's approval. The commissioner's term is five years, and the members of the advisory board are appointed for overlapping terms of three years, two each year. The commissioner is ex officio a member of the advisory board and receives an annual salary not to exceed $6,000. The department is organized into three divisions, namely: aid and relief, child guardianship, and juvenile training. Each division has a director, the directors of aid and relief and of child guardianship being appointed, removed, and salaries fixed by the commissioner with the consent of the governor and council. The director of juvenile training is a member of the board of trustees of the Massachusetts training schools, designated by the governor, and serves without compensation. This officer is, therefore, practically independent of the commissioner. The commissioner prepares and presents for the consideration of the advisory board rules and regulations governing the conduct of his department which become effective upon approval by a majority of the members of this board. Several previously existing boards are continued and placed in this department.

The department of health is the old department of health as now organized and the head of the old department becomes its commissioner.

The department of public safety is under the supervision of a commissioner appointed by the governor with the approval of the council for a term of five years at an annual salary not exceeding $5,000. The department is organized into three divisions - a division of state police, headed by the commissioner, a division of inspection, under a director known as chief of inspections, a division of fire prevention, under a director known as state fire marshal. The two directors are appointed by the governor and council for terms of three years at annual salaries not to exceed $4,000.

The department of public works is under the control of a commissioner and four associate commissioners, all appointed by the governor with the approval of the council. The commissioner serves for a term of three years, and the associate commissioners for overlapping terms of two years. The department is divided into a division of highways and a division of waterways and public lands. The governor designates two of the associate commissioners to have charge of each of these divisions, thus making a dual-headed administration of the divisions. The commissioner appoints, with the approval of the governor and council, a registrar of motor vehicles.

The department of public utilities is under the management of a commission of five members appointed by the governor with the consent of the council for overlapping terms of five years. The governor designates one of the commissioners chairman, who receives an annual salary of $9,000. Each of the other commissioners receives an

annual salary of $8,000.

The metropolitan district commission is composed of a commissioner and four associate commissioners, all appointed by the governor with the approval of the council. The commissioner serves for a term of five years at an annual salary of $6,000, and the associate commissioners for overlapping terms of four years at $1,000 each per year.

Plan Violates Principles Establishing Executive Responsibility

In summing up, it can be said that the Massachusetts plan of consolidation and reorganization is inconsistent with the principle of making one person fully responsible for the administrative work of each department. As has already been pointed out, it proposes single heads, either elective or appointive by the governor and council, for the administration of some departments, and for the ad

ministration of other departments it sets up boards appointed by the governor and council. Two departments

department of banking and insurance, and department of civil service and registration - are headless; however, each is nominally unified by a provision requiring the independent division heads to " act as a board in all matters concerning the department as a whole."

The Massachusetts plan also departs from the principle that department heads and other chief administrative officers should not be given a longer term of office than that of the governor. It provides that practically all administrative officers shall serve for terms of three or five years, and the members of all administrative boards shall be appointed for overlapping terms of from three to six years. Since the constitution fixes the governor's term of office at two years, he will never be able to control his administration by appointment, even if he is not blocked by action of the council, except he hold office for at least two successive terms, and perhaps then he will not have gained control until it is too late for him to accomplish anything.

Finally, the governor can exercise practically no control over the expenditure of appropriations under the plan of administrative organization set up by the Massachusetts Consolidation Act. The governors of Illinois, Idaho, and Nebraska have the power through the general control vested in their departments of finance and by reason of the greater authority which they exercise over the administration because of the organization under consolidation plans to enforce the proper execution of the appropriations.

There is in Massachusetts, as in the other states having administrative codes in operation, great need for constitutional revision. A comprehensive and consistent plan of administrative consolidation - one that establishes executive responsibility - cannot be adopted until the peo