A Review of the Controversy Over County Executives

Abstract

IN THE steadily growing literature on county government in this country the most frequently discussed proposal is that of a unified county executive. It therefore seems somewhat strange that the proponents of the plan have never attempted to give a satisfactory answer to the objections raised against it. A survey of the literature of the field reveals general agreement on the desirability of county executives except for what might be termed the Kilpatrick and the Porter-Millspaugh-Lancaster schools of thought. Even within these schools some reorganization of county government is usually considered desirable, but not the establishment of full-fledged executives. Although much research has been undertaken to discover whether a county executive is necessary or desirable, it has usually been of a general character. Where case studies have been made, the conclusions have frequently lacked a statistical basis. Where statistics have been employed, they have been limited almost entirely to before-and-after comparisons in counties adopting executive plans. While all of these practices have their justifications, opponents of executive plans have rightly pointed out that the argument for executives is hardly conclusive until personal observations are fortified with readily obtainable statistical data and until before-and-after comparisons in executive counties are supplemented with similar time comparisons in comparable nonexecutive counties. It should be added that the opponents are almost as guilty on this score as those favoring county executives. In most instances the conclusions of the various research monographs have agreed; county executives should be created. The reasons put forth are largely twofold, although terminology differs. More effective coordination needs to be brought about. Lack of coordination has led to waste, inefficiency, confusion, and expense. The lack of popular control over county government arises to a large degree from the present irresponsible type of structure. A county executive would help to restore popular interest in county government.