A196 the solemn responsibilities of legislation in Idaho for the next 2 years. If the world were at peace, the task ahead of us would still be serious. In a world torn with conflict the burden is immeasurably greater. It ia a time for standing together, for in days like these we must preserve every ounce of strength and conserve every resource against the uncertain future. There fs no greater resource than unity among our people. ‘We need to plan with calmness and delib- eration as opposed to snap judgments and hysteria. To do this we must be able to trust each other, not have to suspect motives, None can say how long the period of inter- national conflict will last; no one knows how deeply we may become enmeshed in the crisis, Each day's news brings more confu- sion, and more sense of beartbreak and terror. Against this background of chaos we begin today to set up our own State problems for examination. Iam not a person who speaks in generalities; I shall tell you plainly + »at I think. CIVILIAN DEFENSE The people of this State must be warned not only of atomic attacks; they must be warned that saboteurs or special aerial bombs could spread infections among people, ani- mals, and crops; and that colorless, odorless gases delivered by the same means could paralyze whole populations. Local communities should be urged to build up their health agencies at once for defense against disaster from atomic, biolog- fcal, or chemical warfare. Every city block and every county in this State should have a framework for defense set up for it. Since all laws are better administered at the local level, we should have our civilian defense locally organized, thus to secure bet« ter functioning and better protection. We must prepare all our resources and manpower for immediate mobilization if that becomes necessary. Up to now, our civil-defense program has been purely vol- untary. Two officers from the Sixth Army Headquarters in San Francisco spent 2 weeks in Boise a month ago and assisted in setting up 8 civil-defense plan for the State, a plan to be integrated with those of neighboring States. Gov, C. A. Robins appointed Col. Phillip Doddridge as director, I concurred in that appointment. Colonel Doddridge will have our plan Yeady for distribution sometime this week. I have approved an emergency request for $10,000 to pay the administrative costs of his office for the 6-month period ending June 830. A similar administrative budget has been approved for the next biennium. cosz OF GOVERNMENT The cost of government is always of ma- jor importance. In the midst of an unde- clared war against an evil that threatens our very existence, and at a time when we have not yet recovered from a previous ti- tanic struggle, our State revenues have reached their peak and are on the decline. Meanwhile our national debt has mounted to heights never before dreamed of. Our State tncome will be less this year and our Federal taxes to support the war will be much greater. This simply means that the State must spend less. However, there is a measure of satisfac- tion in the fact that a substantial free bal- ance remains at this time in Idaho's general fund. Government revenues can and often do shrink with amazing speed and Govern- ment functions cannot always be adjusted downward that fast. Obviously the safe course is to maintain a reserve or cushion of avatlable funds to continue the essential services of Government during periods of lowered revenue. That ts common sense. The estimated free balance in the general fund June 30, 1951, should be approximately $4,500,000, As your Governor, I recommend thet $2,000,000 of thia amount be set aside in the permanent building fund. This will protect the orderly program of construction at State institutions that the legislature of 1947 undertook. The possibility of demands upon Btate government for large emergency expenditures for civilian defense or for major catastro- phes appears to justify an appropriation of $1,000,000 from this free balance for such protection. Use of this money should be subject to the will and control of the legis- lature, but without the need of calling @ special session. The remainder of the free fund balance, in my opinion, should be preserved intact against unexpected shrinkages in State rev~ enue between now and June 30, 1963. It may be that the estimated general- fund revenues of $32,600,000 during the bi- ennium ig too optimistic. To arrive at this figure it was assumed that while excise-tax collections may show an increase, State in- come taxes will probably refiect curtailed profits with a consequent reduction of at least one-sixth in the next biennium as com- pared to that now drawing to 4 close. A substantial part of the reduction in in- come taxes will be due to the imposition of increased Federal taxes on incomes. These become items of expense in computing State income taxes. In a State like Idaho, where agriculture is an extremely {mportant in- come factor, the reduced net profit on ma- jor crops, such as potatoes, will be felt keenly. GENERAL FUND APPROPRIATIONS Budget requests for appropriations from the general fund as first submitted to me totaled $48,500,000. The first revision of these requests still totaled 47,000,000, leaving a gap of $14,- 500,000 between that total and the estimated general fund revenues of $32,500,000, which sum does not include State ad valorem tax receipts. The easiest and most comfortable course to close this gap would be to seek so-called new sources of revenue. However, I am convinced that there are no new sources of tax revenue. What may appear to be new gources are actually only new avenues of approach to the same purse from which must come all money for operation of all Govern- ment, local, State and Federal. That purse is in the hand of the individual citizen. It is he who must finally pay every cent of the cost of government while meeting with today’s 50-cent dollar the increased cost of his own living. I am resolved that Idaho shaJl not go into deficit spending during the coming bien- nium, and it is my earnest hope that the members of this legislature will joln me in this endeavor. Our State is solvent. We -must keep it solvent. Our people will have to get along on less and be proud to do 80. They must put aside pleasant dreams of free spending and focus on reality. And they must be ready personally to share in the cutting down-——it ls each of us, not some- body élse, who must reduce his ideas of what the State can spend on itself, Deficit financing as a planned policy is indefensible. Every department of State government must cut out spending for non- essentials, and I promise you the Governor's office will accept the sanre austerities that’ are asked of other departments. Practically 61 in every $4 requested from the general fund has been eliminated in acaling the budget down. It is my belief that the exiating tax system in Idaho when operating at maximum effect can produce adequate revenue for the conduct of all nec- essary functions of State government, as~ suming that these same functions ere also operated efficiently. Budget cutting ia mot painless cr easy. It is especially hard when you realize, as I do, that salarfes must follow the rising APPENDIX TO THE CONGRESSIONAL RECORD curve of living costa. With this In mind, and in this tme of high employment, I propose the economy of more efficient staf- fing of State offices. That 1s, we cannot cut salaries but we can eliminate personnel and insist that those retained do a day’s work for a day's pay. In facing the necessity of drastic cuts in the State budget requests, what government functions have the first claim on the tax dollars? Few will dispute the statement that the humanitarian needs of our people have the highest priority. The unfortunate men, women, and children who find themselves on our relief rolls and in our custodial insti- tutions must be cared for with preferment over other Government demands. PUBLIC ASSISTANCE I have made no cut in pensions and relief from the amount requested. This amount, while somewhat higher than that of the present biennium, is a revised figure. Living costs for recipients follow the same curve as do living costs for all other people. The de~ serving destitute must have more money to meet this rising figure. Taking care of the rellef load under this revised estimate will be possible only if the legislature will cooperate in clarifying cer- tain public-assistance gtatutes so that exploi- tation of rellef funds can be sharply checked. The experience of a neighboring State indicates that 1% 1s quite possible to rid the relief rolls of elderly pensioners not actu- ally dependent on the State. By so doing, more money should be available for the truly needy. I urge your favorable consideration of legislation to attain this end. EDUCATION: PUBLIC SCHOOLS Education stands next in priority, and in that category public schools have the right to prior consideration over higher education. The public school equalization request was for 9,000,000 from the general fund. A new transportation appropriation formwWa adopted by the State board of education at its meeting December 15, 1950, reduces State participation in public school equalization by an estimated 88,000,000, which action of the board I do approve. I therefore approve the sum of $6,000,000 from the general fund for public school equalization as the State’s full share in this ram. The transfer of the bulk of the transporta- tion cost to the local level may require the upping of county or district levy limits for this purpose. TEACHERS’ RETIREMENT FUND The budget request that three and a quar- ter million dollars be appropriated from the general fund to the reserve of the teachers’ retirement fund does not have my approval. On the other hand, it is my recommendation that the legislature reappraise this entire problem, keeping in mind that you are free to alter any program set up by a preceding legislature in the light of two things: oper- ating history and changed conditions. It is conceivable that amendments to the Federal Social Security Act that have brought State and other local government employees ‘under its coverage may be adequate for teach- er3 as well. At any rate this possibility should have a full and dispassionate study, something that may not be feasible during a legislative session. if there is even a remote ohanoe that the State might some day be unable to keep up with the continuous inoreage in cash require- ments for this program, this issue should be faced today, not later. The present solvency of the fund and its adequacy to meet any existing demands upon it are not in question. But now is the time to determine our future course while exist- ing reserves are adequate to pay back all personal contributtons, provide for prior
APPENDIX TO THE CONGRESSIONAL RECORD service benefits and meet any transition costs that might be involved in modifying the program. I repeat that I do not approve the budget request for 63,250,000 to be appropriated to the teachers’ retirement fund. HIGHER EDUCATION It has long been clear to the thoughtful that Idaho is neither populous enough nor wealthy enough to support four institutions of higher learning. It may come as a shock to some of you to learn that necessary adjustments have now been worked out between the State board of education and the university and State col- lege jointly, to permit these two institutions to absorb the functions of the North Idaho College of Education and the South Idaho College of Education. The new arrangement would become effective at the end of the biennium, which is June 30, 1951, and I do so recommend, subject of course, to your ap- proval, Owing to military demauds, curtailed en- rollments are due at both the university and the college, and thus housing and class- room facilities would still be sufficient for absorption of students from the Lewiston and Albion institutions. It is my belief that the young people who choose education for their profession will have greater and not lesser opportunities under such a program, The greater scope at the university and at the State college should attract more men and women to the important field of teach- ing. No additional funds will be required by either the university or the State college to cover the expense occasioned by the proposed absorption. I wish to touch here on the question of research work carried on by both our higher institutions. Some of this will have to be deferred, for resumption at a later, more prosperous period. Many activities that are justified in time of affluence must be reduced when revenues begin dwindling. Along this Hine I recommend that the work of the agricultural extension service, ad- mirable as it is, be made available only to those counties that feel it is of such value that they desire to bear half of the total cost. PUBLIC HEALTH I recommend particularly that you scru- tinize the program for public health in Idaho, In tho limited time I was able to give the subject, I became so involved in the intricacies of Federal matching funds that I cannot claim to see the picture clearly. I call your attention, however, to the mush- rooming of public health requests during the past several years, and I raise the question, Where is it taking us? SPECIAL FUNDS Cperations in State government that are financed from special funds are especially likely to be revised by legislative action, With this in mind, I have approved many special-fund budgetary requests on the theory that if they are not changed by legis- latjve action, some revisions can be worked out through consultation with administra- tive heads. LAW ENFORCEMENT The position that State government should occupy in the field of Jaw enforce- ment calls for careful study. Certainly one aim should be the acceptance of their legal responsibility by all county and municipal Officials and law-enforcement officers. I do not believe that our economy justi- fies specialists in law enforcement. In other words, State police will be expected to handle any phase of law enforcement. To increase the efficiency of our State sys- tem, the special session last year provided for fixed and mobile checking stations. It re- quires 24 men to handle these stations, and I have approved appropriations to activate this work in addition to a force of 25 regular State police. This adds up to what should be a highly efficient group of officers, men who are more than patrolmen, and who are Qvailable Wherever State law enforcement, rather than local, must be used. I assume that the State went into the lige uor business first for regulation and control, and secondly, for profit. Profits from liquor sales are divided be- tween the general fund of the State and the counties. Liquor-law enforcement, there- fore, becomes a joint responsibility of the State and the counties. One-half of 1 per- cent of total liquor sales has been set aside and earmarked for liquor-law enforcement exclusively. The $100,000 per biennium thus raised should be made available to the De- partment of Law Enforcement to defray the State police cost of liquor-law enforcement. Let no one construe these comments as implying a let down in that law enforcement which is the responsibility of the State, HIGHWAYS Few State government activities have the widespread effect that the construction and maintenance of State highways have. Because of the large stake of the Federal Government in our State land area, we re- ceive substantial sums each year from that source. However, one-third of the State's area remains in private ownership, and a heavy ad valorem tax burden for secondary county and municipal highways and streets is the result. Our mountainous terrain and our widespread, small population increases this highway burden. It is clear that any increase in funds for highways and streets will have to come from some type of highway-user revenue, and that 8 larger share of the tota)] highway-user taxes should be available to local units of govern- ment, especially to those local units that levy the maximum for road needs. It is mandatory that the legislature deter- mine which of two types of State highway administration shall be employed. If a single administrator is made responsible for a high- way program that spends $30,000,000 a bien- nium, then the salary ceiling that follows such responsibility must be raised. Or, if responsibility 1s to be shared by a group, there should bo clearly defined duties and authority. A tremendous volume of pressure has developed through the State following the authorization by the special legislative session of a highway advisory board. I have reached the conclusion that the present administrative set-up with an advi- sory board is unworkable. We need workable highway laws. I shall have more to say about this later. Long-range highway planning is always essential in the public interest. It ‘was never more £0. . Highway-user taxes have not kept pace with the needs for highway maintenance and construction. Through long-range planning» the fiscal needs of the entire State highway program can be determined. Highway-user taxes can then be adjusted to meet the costs of the program, Particular attention should be given to equitable distribution of highway costs among the several classes of highway users. I believe each class of users should pay its share of highway costs in proportion to the use it makes of the road plant. SLOT MACHINES Limitations under which cities and vil- lages of Idaho could permit or prohibit the operation of slot machines and punch- boards were provided by the legislature of 1947, If the present legislature decides that these acts should be repealed because such gambling devices are undesirable under any circumstances, I shall adhere to the state- ment I made prior to election. That is, if & proper bill prohibiting slot machines and punchboards, either or both, reaches my desk, I will sign it. Whatever you decide, I earnestly request that you do not allow gambling legislation A191 to consume a disproportionate share of value able legislative time. OCCUPATIONAL LICENSING | There is evidence that a number of revi- sions will be asked in lawa relating to occu- pational licensing. These will be presented for groups seeking to have the State regulate their professions and occupations but at the same time collect license feea which would be spent without State regulation. Some of these bills will probably create the equivalent of closed-shop conditions in these occupational groups, and it is impor- tant that they receive close study to deter- mine who is to prescribe the rules and regu- lations that will prevail. CONSOLIDATION OF UNEMPLOYMENT COMPEN= BATION AND EMPLOYMENT SERVICE As an economy measure to effect the save ing of possibly 650,000 in Federal funds, which, however, are collected annually from Idaho employers, to provide an integrated program without duplication of effort and as a safeguard against further growth of Federal contro) over State operation, I reo- ommend uniting the Employment Service and Employment Becurity Agency into one department. This combined department would be di- rectly accountable to the governor on ad~ ministrative matters of State policy and for efficient handling of all job placements, in- cluding placements of farm labor, veterans— particularly disabled veterans—and teach- ers, and for prompt payment of unemploy- ment-insurance benefits to those claimants who are entitled to them. Appeals would still be made to the Industrial Accident Board. Such a consolidation has already been effected in 44 States and is recognized by the Federal Government as 8 single program. Administrative funds of the two present agencies are provided by a single congres- sional appropriation and are received by the State in a single check. The tax rates supporting the reserve fund would be adjusted so that they will not exceed the minimum necessary to maintain solvency. An actuaria] study which has just been completed indicates that benefits can be raised and tax rates reduced while main- taining a safe financial position. Legislation incorporating these as well as some other desirable improvements, includ- ing such things as preservation of veterans’ experience rating rights and strenghtening fraud prevention in the employment security law, has been prepared for your considera- tion. In all this talk of cutting down, some will argue that certain State departments will be deprived of funds now available under Fed- eral grants or Federal aid. Federal aid is a misbrand. All money that comes from Washington, D. C., originally came from Idaho or some other State. When it goes to Washington a good deal of it rubs off before it gets back. Moreover, and per- haps more importantly, Federal participa- tion means Federal regulation with all the involvements of bureaucratic red tape. Tam asking every State office to operate on Jess money than it has requested, or else accept the responsibility of justifying its increased expenditures before the proper committees of the legislature. There are no exceptions to this rule. Iam not asking other departments to do what I am not willing to do myself. Accordingly, the combined request for the office of the governor and budget director has been re- duced substantially below the level of the past biennium. SALARIES Salaries of elective and appointive Btate Officials in Idaho are much more uniform than are the comparable duties and respon- sibilities of the several offices. If we are to keep on attracting capable men and women to the service of this State,
A192 it will be necessary for the legislature to re- view and to take action removing the in- equities of the system, INTERIM COMMITTEZ ON WORKMEN'S COMPENSATION Your committee on workmen’s compensa- tion and occupational diseases has completed ite work well in advance of the opening of this session, and its report is before you for consideration, It is desirable that this important study be given fullest attention by the legislature to the end that any action taken shall be for the best interests of all affected parties. UNDERGROUND WATER Regulation of watet is no longer a problem limited almost entirely to surface water. To- day we have not only underground water rights with which to deal, but we have rain- making as an extra complication. The sooner underground water rights are con- trolled by legislation the less troublesome they will become. The problem affects agri- cultural, municipal, industrial, and other in- terests and should have your careful con- sideration. DRIVERS’ LICENSES AND DRIVER TRAINING I urge you to enact a new drivers’ license law patterned after the uniform code, a law that will help reduce the useless slaughter on our highways. It ts clear that this kind of murder cannot be stopped by licensing alone, unless accompanied by driver education, I believe every high-school student should be taught to drive safely, should be taught the law of the road and the rights of others, and that such a course should be virtually compulsory. Such a course should not be Nmited, either, to the public school, Training on the law of the road should extend to adult classes so that individuals would know road laws before they are permitted to have a ariver’s license. The Automobile Dealers Association, au- tomobile manufacturers, and insurance com- panies have spent great sums for moving pictures on safe driving and are ready to cooperate with any program designed to save life on the highways. NO STRAIGHT BALLOT I urge the legislature to consider doing away with the straight ballot in our gen- eral elections. Under the present law, elec- tion boards are often obliged to make arbi- trary rulings, rulings that may vary from precinct to precinct. This type of confu- sion should be stopped. As a former member of the Idaho Legis- lature, I feel that I have some knowledge of what you expect of the Governor. I feel you are entitled to frankness and the clear~ est possible statement of my general policies. It is commonly believed that you are also entitled to leadership, and when I say lead- ership, I do not mean dictatorship. It is desirable that there be a full exchange of information between legislative leaders and the office of the Governor. By exchange I do not mean a one-sided giving. I mean a reciprocal connection. When you examine the budget, you will observe that I have taken action in every case. On page 8 in the budget book under “Governor’s action" you will see a column with the caption “Passed’—a column that could be used for “passing the buck.” You will find no entries of mine in this column, Right or wrong, I have given you my best judgment on every request. I wish to counsel you, as members of the legislature, to apply economy and efficiency in determining the value, the importance of, and the necessity for every piece of legisla~ tion passed. I urge you to reject evéry piece of proposed Jegination for which there is no desperate need. I request you to eliminate all duplicate machinery in the operation of the State's business. You must keep the proposed State budget within the present revenue available and re- ject all demands of pressure groupe to in- crease the benefits of legislation beyond the capacity of the people of the State of Idaho to pay the bill. We must reduce the tax burden in this Btate if we are to remain a scivent democ- racy while waging a new kind of war against totalitarianism. By their ballots the people of the State have brought us in session here, and have assigned to us the trust of conducting their government through these important and troubled times. May we be given the fortitude and the integrity to do what 1s right, in the best light that is granted us. The Primacy of Politics EXTENSION OF REMARKS HON. HOMER FERGUSON OF MICHIGAN IN THE SENATE OF THE UNITED STATES Tuesday, January 16 (legislative day of Monday, January 8), 1951 Mr. FERGUSON. Mr. President, I ask unanimous consent to have printed in the Appendix of the Recorp the presi- dential address delivered to the Ameri- can Political Science Association at its annual meeting in Washington Decem- ber 28, 1950, by Dr. James K. Pollock, of the University of Michigan. I am ad- vised by the Public Printer that the article will exceed the two printed pages allowed under the rule without a state- ment of cost, and that the cost will be $348.50, In view of the fact that the address contains much food for thought respect- ing our Government, I make the request that in spite of the added cost, the ad- dress may be printed in the Recorp. There being no objection, the address was ordered to be printed in the Recorp, as follows: THE PRIMACY oF POLITICS (By James K. Pollock) In presenting my valedictory to this dis- tfnguished association which has honored me by selecting me as its president, I should like to point out by way of introduction what has happened to this office, and there- fore to me, during the past year. I have heard of one of my distinguished predeces- sors some 25 years ago who had little else to do as president of this association than work all year on his presidential address. This was important work, and I have no word of criticism of it. But the association has changed, and today it leaves to the har- ried wearer of its presidential toga little time to reflect about the status of political science and his own impact, If any, upon it. An active association life, now happily cen- tered in our new Washington office, is enough to occupy the full time of your pres- ident, and universities as well as this asso- ciation might well take note. Therefore, in presenting my own reflections to you this evening in accordance with the custom of our association, I do so without the benefit of the generous time and scholarly leisure which were the privileges of some of my distinguished predecessors, ‘APPENDIX TO THE CONGRESSIONAL RECORD, Nevertheless I do base my presidential address today upon my own active partici- pation in the problems of government, as well as upon my scholarly experience. I have extracted it in part from the dynamics of pulsating political life. It has whatever authority I may possess after having been exposed these 25 years to the cross-fire of politics, domestic and foreign, as well as to the benign and corrective influences of eager students and charitable colleagues. This change in the nature of presidential addresses refiects, I believe, the new role of the political scientist and the development of our profession, r As our association moves into a second half century of activity, I am impressed with the seriousness of our responsibility. As I see it, our responaibility is primary because poll- tics is primary and central to every great problem facing us today. There is nothing new about the central importance of poll- tica, for Aristotle long ago referred to politics as the most sovereign of the eciences and as the master science. In his Ethics he pointed out that it is “politics that determines what other sciences should be studied in states; which of them should be learned by each group of citizens; and to what extent they should be learned * * * observation,” he continued, ‘shows that even the forms of capacity which are most highly esteemed— the art of war; the art of household manage- ment; the art of oratory—come under the control of politics.’ Considering the com- plexity of modern civilized existence, it is even more true today than ever before that political action is of primary importance. Little can be accomplished any more without reference to political processes. Unfortunately, however, political scientista in their study of politics have not quite kept pace with the complex responsibilities which have been placed upon them. In the Greek city-state, responsibilities were few and of rather limited scope. In the modern world, our responsibilities are very broad and very compelling. In the present state of national and inter- national politics, a special responsibility at- taches to Americans, Particularly in the last decade new duties all over the world have been thrust upon us. As a result of the war, the United States in various parts of the globe, is now performing services which a generation ago would have been thought im- possible. Our role in the creation and in the operation of the United Nations 1s like- wise of great importance. Our leadership in the programs of military occupation both in Europe and in the Far East have been a drain upon our resources and continue to pose seri- ous problems for the United States. The unprecedented American economic aid and technical assistance under the program of Economic Cooperation has not only been a boon to world economic recovery, but has demonstrated to us the possibility of con- structive action in raising the welfare level of human beings everywhere. More recently the point ¢ program and our leadership tn the North Atlantic Treaty organization, not to mention our fathering of programs in- tended to facilitate European integration and Philippine rehabilitation, illustrate the ex- tent and complexity of our international ac- tivity, and the measure of responsibility placed upon us. Our country, in a word, has been doing something new and distinctive and has assumed a role heretofore unknown to us. We have not always sought the leadership of these programs. This leadership has been thrust upon us and as a consequence we have not always done our best, although it 1s clear to me that our contribution has been very great indeed. In some cases it has been almost providential that we have had 8 Clay, a Hoffman, a McCloy, or a MacArthur to handle programs of great magnitude, com- plexity, and importance. Lacking the ex-
APPENDIX TO THE CONGRESSIONAL RECORD perience and the trained personnel to under- take great programs, we have often had to improvise and we have sometimes found that our intentions and our programs have been misunderstood and misinterpreted. Anyone familiar with our efforts to staff over- seas functions knows only too well how few Americans are really familiar with the other cultures of the world, and capable of working with them in a constructive way. Despite unprecedented American activity and generosity, both their country and the world are, unfortunately, still affillated with tensions. Our period has been well char- acterized as “the twilight of warlike peace.” We are now in the midst of great defense preparations at the same time that we are attempting to carry on life and business as usual. Everyone asks, “Will there be war? Shall we have inflation? Must we stand still in other areas while we are putting the country in a state of defense?” bed It is in this atmosphere, tn this crisix sit- uation, that I am called upon to discuss certain critical areas of our politics and to emphasize the responsibility of political scientists with respect to them. Such a dis- cussion, I believe, will serve to emphasize the primacy of political considerations. Let me speak first of the impact of our new world position upon our Government and our whole political life. Our new role in world affairs has placed new organizational requirements upon the State Department in particular but also upon the whole Government. In the words of the Report of the Commission on the Organization of the Executive Branch: “The executive branch today finds itself forced to develop positive foreign policies and programs involving not only the State Department, but many other departments and agencies as well and to deal cooperatively with other nations on a multilateral as well as @ bilateral basis. The Congress, in addi- tion, finds that the exercise of its traditional powers in the domestic as well as in the in- ternational field has made it a participant in the conduct of foreign affairs on an un- precedented scale. “The problems of Government organiza- tion for the conduct of foreign affairs are, therefore, not confined to the State Depart- ment alone but involve the organization of the Presidency, the State Department and the Foreign Service, the departments and agencies other than the State Department, the interdepartmental relationships and the relationships between the executive and leg- islative branches.” In the good old days, the State Depart- ment might have to handle a crisis or two every year; but now Mr. Acheson 1s faced with 4 major crisis almost every day. If the cri- sis does not develop overseas, it is almost certain to develop in some portion of the Capitol. Adding to the complexity of the situation is the greatly increased size of the Government as a whole and of the State Department in particular. Our Foreign Of- fice now is almost five times larger in per- sonnel than it was 10 years ago and in terms of appropriation, nearly 12 times larger. In the interdepartmental field, there are more than 80 committees concerned with eco- nomic, social, military, and other aspects of foreign affairs. Of the 54 major depart- ments and agencies in the executive branch, at least 46 are drawn into foreign affairs to &@ greater or lesser extent. Statutory inter- departmental bodies, such as the National Security Council, have assumed greater im~ portance. Certain units, such as the De- partment of Defense and the Economic Co- operation Administration, are deeply in- volved with the administration of occupied areas abroad and with financial assistance overseas. The Treasury Department, the Department of Agriculture, and the Com- merce Department are important in inter- XCVII—App.——13 national financial and agricultural matters, and also in connection with export control. Congressional participation in the conduct of foreign affairs has become particularly evident in the expanding role of the House of Representatives in connection with appro- priations for foreign programs. Under exist- ing constitutional arrangements and struc- tural provisions, the State Department has to operate under strictures and limitations which do not hamper any other foreign of- fice tn the world. When there is mutual cooperation and restraint between the execu- tive and legislative branches, progress is achieved, But past experience points to the need of several significant changes if our country and our people are to play a sig- nificant and important role in world affairs. There, political considerations are primary. Some of the necessary changes are organ~ igational in character and have been dealt with adequately in the recent report to which I have referred. When the full effect of the reorganization of the State Depart- ment recently authorized by Congress has been felt, and when time has been given to allow the Department itself to work out the fundamental changes in its internal organ- ization and personnel recently recommended to the Secretary of State—assuming always the support and sympathy of Congress—we will have a staff and an organization in our foreign office adequate to the traffic and re- quirements of our complicated world. In two areas, however, we shall need to make important changes. One is in the ad- ministration of overseas affairs; the other is in the position of the United States Senate. On the latter point I ahould like to quote from the Report of the Hoover Commission on Foreign Affairs and then add a postscript. The report said: “One serious procedural impediment to achieving satisfactory legislatiye-executive cooperation is the constitutional require- ment of a two-thirds Senate vote for the confirmation of treaties. No thoughtful student of the conduct of foreign affairs can ignore the consequences of this provision. It ie @ serious trouble breeder between the executive branch and the Senate in that such an inherently rigid rule encourages circum- vention by the Executive by resort to the procedures of executive agreements and joint resolutions. Attempts to use these procedures, in turn, involve friction hetween the Senate and the House of Representatives. An especially bad result is that the emphasis is directed to the question of whether the proper procedure is being employed, instead of to the substance of the issues before the Congress. The question of a change in the present requirement of a two-thirds Senate vote is deemed, however, to be outside the province of this Commission.” Speaking now as a responsible political scientist and not as a member of a Govern- ment commission, I should like to recom~- mend that the power of the Senate over treaties be modified in the light of present world and domestic requirements. Many of my distinguished colleagues have previously recommended an amendment to the Consti- tution by which treaties should be confirmed by @ majority vote of both Houses of Con- Breas instead of by a two-thirds vote of the Senate alone. Such a change in my view is eminently fitting and necessary. It arises not from any destre to lessen the effective- ness of the United States Senate, but rather from the necessity of bringing the present constitutional provision tnto accord with the requirements of present international life, both at home and abroad. When one con- siders the speed with which international developments are moving today, not to men- tion the procedures of other countries with which we are now having close and friendly relations, tt would seem reasonable to press at this time for a constitutional change, It is possible, of course, that difficulties be- tween the Senate and the Executive in for- A193 eign affairs can be eliminated by other means, but I think it is doubtful With respect to the administration of overs @eas affairs, I feel a special urge to press for some prompt retooling of this aspect of our organization for the conduct of foreign relations. The Korean War and the Beil report on the Philippines have recently been added to the new problems of the EOA, the North Atlantic Treaty organization, and point 4, to emphasize how the American Government has developed vast overseas operating agencies to alleviate suffering and to ameliorate economic conditions all over the world. Among other things, these new activities require a new type of public serv- ant. Without disparaging our military or diplomatic personnel, it is, I believe, quite correct to say that specialized administra- tive and technical qualifications are neces- sary for the successful operation of these huge overseas ventures. We have done, in my opinion, amazingly well under very try- ing circumstances. But I should be less than frank if I did not also say that the develop- ment of a corps of career men, trained for overseas operations, as distinguished from the training now provided for the foreign diplomatic and military services, is urgently required. The magnitude and importance of the problem {s grasped when one recalls that there are now almost as many Federal civil- fan employees outside the United States as in the city of Washington. Furthermore, it is no longer possible to have a unified foreign policy, if we do not have a unified administrative center in Washington under the policy direction of the State Department. The recent Gray report has shown very admirably how all aspects of American foreign policy, political, eco- nomic, and military, must be interlinked and a proper organizational home provided. It might be well to add that coordination and unification of all overseas administrative activities in Washington will be without full effect unless we achieve the same degree of unification under each of our foreign mis- sions abroad. It is just as bad to have sev- eral spokesmen for America in a foreign capital as it is to have several of them in Washington. We should also not forget that the appro- priations for providing participation by the United States in international organizations avd conferences exceeds the combined appro- priations of the State Department and the creign Service. In the active international arena in which we are now very well sup- plied—not to say almost overwhelmed—with all kinds of functional organizations and international conferences, it becomes in- creasingly important that our Government should promote efficient arrangements and procedures for our activities in these inter- national organizations. Otherwire, we will not get value received for our expenditures, and our foreign commitments will become confused. Another factor of supreme importance is the close collaboration between the State Department and the Department of Defense. Similar close coordination between foreign and military policy now, I trust, happily on the way to realization, will avoid the bicker- ing, the delays, and the fatal mistakes which characterized clashes between these two arms of our Government toward the end of the war and immediately thereafter. Finally, if in addition to this improvement in the structure and operation of our for- eign policy, we could at the same time achieve a more responsible and cooperative relationship between Congress and the State Department, we should then have the basis for a popular understanding and support of foreign policy which now seems to be lack- ing. In a well functioning democracy, the peo- ple must also be associated with polloy form- ulation. As long, however, as the responsible agencies of the Government continue to pull