Young, the governor assuming the position of recipient and not of leader.

Additional and Special Claims Appropriations

In addition to the budget and the two supplementary budgets, the Massachusetts legislature was called upon to make appropriations:

I.

1. Through special messages from the governor, and 2. Through petitions filed by private citizens, by public officials, and by members of the legislature. Governor Coolidge addressed a number of special messages to the legislature asking that immediate appropriations be made for the following emergencies:

There was no marked decrease in 1919 in the number of private petitions filed with the general court asking for appropriations of one kind or another. As has been common heretofore, a dozen or more departments attempted to secure through private petition appropriations which they had deliberately or accidentally failed to file with their departmental estimates. This was severely dealt with by Mr. Young and the committee on ways and means, and will probably not be repeated. Not allowing for duplications, the number of private petitions filed involving a charge on the treasury in 1919 was 212; they carried requests for appropriations aggregating $36,491,865.21, not to mention those which carried indefinite

amounts.

While some of these were finally carried through to

enactment, it was only by being taken up in the governor's supplementary budgets, or by being inserted by the legislature in the bills used on his budgets. Insertions of this kind took place only with the last budget, where an 18.6 per cent. increase was made. Nevertheless, almost the entire amount of this increase is due not to insertions but to the $150,000 increase in the item recommended by the budget for the administration of the bounty for soldiers.

Total Appropriations Carried in Seven Acts

During the 1919 session of the Massachusetts General Court total appropriations amounting to $39,337,913.63 were passed by the legislature and signed by the governor. These appropriations are contained in seven separate acts, three of which were based on the governor's three budgets; and four on his special messages. The following table indicates the basis of the various appropriations and the amounts carried by each.

APPROPRIATIONS OF 1919 SESSION

The significant facts with regard to the 1919 Massachusetts budget procedure are:

1. All appropriations were based on budgets as contemplated in the law or on executive messages. Not a dollar was otherwise appropriated in 1919. There were no "private appropriation bills." This must not be taken, however, as meaning that there were no private bills

which found their way into the treasury. It simply means that the only channel of entry they were able to find was through the budget bills.

2. The general appropriation bill carried almost ninety per cent. of the total appropriations of the session.

3. Ninety-seven per cent. of the total appropriations were disposed of a month before the end of the session. The appropriations of the last week were but three per cent. of the total appropriations, and these represented almost entirely matters which had been authorized by act or resolve earlier in the session. Ninety per cent. of the appropriations were passed soon after the middle of the session.

4. The general appropriation bill includes the appropriations for the legislative and judicial departments.

5. The total appropriations passed differ from the totals recommended by the House committee on ways and means by less than $20,000. They are, however, some $300,000 lower than the governor's recommendations.

6. The governor did not exercise his right to veto items in appropriation bills or to reduce items. He accepted every change made by the legislature.

7. The maintenance appropriations were not passed until almost five months after the beginning of the fiscal year to which they relate. In the interim the government was run on credit, at the rate authorized the previous year. This provision enables the budget makers and the legislature to have before them, when considering the budget, a full statement of the actual expenses for the immediately preceding fiscal period.

CHAPTER XIV

EXECUTIVE BUDGET IDEA AS EXEMPLIFIED IN
ILLINOIS ITS ACCOMPLISHED RESULTS

THE state in which the operation of the "executive budget" idea has been most fully exemplified in American law and practice to date is Illinois. It has operated more fully here than in the other twenty-two states which have declared in favor of the principle and passed laws for its adoption: (1) because it fitted best was better adapted and adjusted to the state governmental machine; (2) because the public opinion of the state was better informed as to what the executive budget was expected to do.

Recent Administrative Reorganization Makes Possible Operation of Executive Budget

The better adaptation and adjustment of the state machine on which the executive budget was fitted as a means of control came about through the adoption of the new administrative code, described above (Chapter X). Many other states that have adopted the executive budget as an instrument or mechanism of control have old types of administrative machinery on which the new controlling device does not fit and into which it cannot be geared to make it function effectively.

The better information and more favorable public opinion of the state was the direct result of a campaign of education conducted by Governor Lowden and his party organization in seeking the votes which brought him into office. His party was pledged to a thoroughgoing reorganization of the administration around executive

leadership, and to the adoption of an executive budget as a means of controlling leadership. The installation therefore as made in 1917 was more nearly complete, and was better understood, than other plans were in states where a new budget procedure was talked about and adopted as if it were a specific for all political ills the thought being that any budget, which had been recommended and that had the trade name executive" on it, would fit any administrative system.

Legislative Organization and Procedure Unchanged

While Illinois had a brand-new administrative machine, it had an old form of legislative organization and procedure. As in other states, the legislature had a set of rules governing its action which had been developed when the state was using the old administrative machine. It was very much like a company adopting steam tugs for canal transport, and retaining the rules governing the use of the canal and the control of its pilots which had been worked out when mules were used as the motor power.

The legislative organization and practice in Illinois was similar to that of Massachusetts, described above, in this: Its grist was actually ground by a multitude of standing committees, each of which had a separate hopper, and special burrs and bolts, for handling different kinds of material and products. It differed, in that each house had similar or corresponding committees, and contemplated that the same grist should be put through the committee mill twice: first in one house, then in the other; then if there was failure to agree on the grist a joint committee came together to put the stamp of approval on a mix that would be acceptable to the "party" steering committee which determined in the main what would be sent to the governor to have the trade-mark of the state affixed to it.

This was the more usual practice developed in state