On the whole, the live weight results make a distinctly more favorable showing for the low-protein rations than do the results of the metabolism experiments, although the advantage still appears to be slightly in favor of the high-protein rations, a fact which is perhaps explicable by their slightly greater energy content. The measurements of the animals in the Massachusetts experiments appear in general to confirm the live weight results. OF THE NATIONAL RESEARCH COUNCIL Vol. 2, Part 5 JUNE, 1921 Number 13 THE RESEARCH ACTIVITIES OF DEPARTMENTS OF THE STATE GOVERNMENT OF CALIFORNIA IN RELATION TO THE MOVEMENT FOR REORGANIZATION Prepared for the Division of States Relations of the By JAMES R. DOUGLAS, formerly Assistant Professor of American Politics and Administration and Director of the Bureau of Public Administration in the University of California 2. Present conditions surrounding research in state departments...... 303 III. The problem of state organization. 1. Present system in California.... 2. Movement for reorganization in California.. 3. Report of the Committee on Efficiency and Economy. 4. Report of the Tax Payers' Association of California. IV. Conclusions and recommendations..... 1. Place of scientific research in state government. 305 305 312 314 325 . 326 331 331 333 This following report by Dr. James R. Douglas is the first contribution from a study of the status of science in state government which has been undertaken by the Division of States Relations of the National Research Council. In this study the assistance has been enlisted of a number of men interested in the development and application of scientific knowledge in governmental agencies from the point of view of those who have made a particular study of theories of government, and also of men of science engaged in the administration of the scientific departments of various types of government. Without assuming responsibility for them, the Division of States Relations plans to publish from time to time reports which it is hoped will contribute to the discussion of the proper place and function of scientific research in state government. As this study is continued, it is hoped to show the extent to which the scientific departments in state governments constitute a resource for research, and also whether the present organization, relationships, and contacts of these departments are such as permit the highest development and most effective application of scientific knowledge as used by this form of governmental agency. The departments which are primarily considered in this inquiry are the boards of health, boards of agriculture, conservation commissions, fish and game commissions, and the offices of the state geologist, state forester, state highway engineer, etc. The need for exact knowledge in administration of public affairs has made the scientific departments of the states highly important parts of our governmental system. This examination of the organization and work of scientific agencies of the present government of California, as made by Dr. Douglas, is presented as constructive comment in the light of expert opinion upon the place of scientific research in state government. There may be difference of opinion as to the type or types of organization best suited to our needs. There can be no division on the question of desirability of a fuller understanding of the systems which we have thus far been able to develop. JOHN C. MERRIAM, Chairman, Division of States Relations, 290 I. OBJECTS, METHODS, AND SCOPE OF THE SURVEY This survey of the state executive and administrative departments in California was undertaken at the request of the Division of States Relations of the National Research Council, of Washington, D. C., and was conducted with two main purposes in view: 1. To ascertain to what extent scientific research has been made an active function of the various departments in the state government of California, and to learn the means available for the progressive application of scientific knowledge in the administration of these departments; 2. To learn what readjustments may be necessary to accomplish a better organization for scientific purposes. This latter purpose becomes a part of the whole question of the general reorganization of state govern ment. Three means have been employed in attempting to secure the information required to meet these purposes: a. By examination of the laws of the state and the printed reports and other publications of the agencies in question. In this part of the work the writer of the report was greatly assisted by five of his graduate students organized as an informal seminar and serving without academic credit. Acknowledgements are made in this connection of the aid of Miss Alice E. Cook, Miss Josephine Hoyt, Miss Gertrude Roddy, Miss Helen M. Rocca, and Mr. H. G. Schutt. b. By a questionnaire sent to the executive officer of each agency. This was accompanied by a letter of explanation amplifying what was desired and requesting co-operation with the National Research Council. Agencies which made replies were in the minority but included most of the more important departments. Most of the replies contained little more than the information appearing in annual reports. However, in a few cases, valuable additional information has been received. With one or two exceptions, a spirit of co-operation was displayed even where the object sought was misunderstood. One official, however, replied as follows, "I am not filling out the questions that you ask, because most of them are irrelevant, or I might say scientific . . . My opinion regarding commissions and bureaus is that they have too much scientific endeavor and not enough practical work; in other words, too much red tape. University men are responsible for much of this." This extract is given to indicate an attitude which is held by some, fortunately a very few, state officials, and which must be recognized as part of the problem of securing the extension of scientific standards to state government. c. Through interviews with the executive or other important officers of the various agencies. Experience in regard to this method of approach has been that little in the way of supplementary detailed information may be expected, but in some cases valuable ideas and side lights upon the problem in general may be obtained to assist in arriving at a proper perspective. Here again, a spirit of co-operation was in evidence, even where doubt was expressed as to results which could be expected. While enumerations and classifications vary to some extent, there are approximately 120 agencies comprised in the executive branch of the government of the state of California. In order fully to understand the situation of scientific research in the state departments there should be presented first an account of the composition, powers, duties, functions, internal organization, and relations with other agencies of those departments. Such a presentation is not possible within the limits of this report, and reference must be made to other sources for this information. The best available source is the report of the Governor's Committee on Economy and Efficiency of California, rendered March 12, 1919, which describes the state administration as it stood at the end of 1918. It does not include, however, the Department of Agriculture,-which in 1919 absorbed a number of previously independent agricultural agenciesthe California Industrial Farm for Women, nor the State Board of Bar Examiners, all of which were created by the Legislature of 1919. It does include the State Irrigation Board, which in 1920 was declared unconstitutional. This report may be obtained from the Secretary of State at Sacramento. On account of the nature of the present report a number of agencies have been omitted from the discussion for various reasons. One group has been eliminated because, while still appearing in the statute books and on the rosters, they are actually non-administrative in character or inoperative. Others perform functions of a special nature, often inconsequential in character. Examples of this type are the Commission to Investigate the Date of the Discovery of Gold in California, the Commission on Voting and Balloting Machines, the Tax Commission, and the Redwood Park Commission. Their existence is primarily due to the common legislative practice of creating a new agency whenever a new or special task is found to be done, instead of utilizing an existing agency fully capable of performing it. The practice may in part be due to the absence of any systematic and permanent scheme of administrative organization. In the case of special bodies for the investigation of current problems, it may be due to the non-existence of a legislative research department in the state government. Other groups eliminated from the present discussion are those dealing with the administration of public buildings and memorial properties, such as the Trustees of State Burial Grounds, the Guardian of Marshall's Monument, and the Superintendent of Capitol Buildings and Grounds; with institutional administration, such as state normal schools, homes, hospitals, and correctional schools; and |