We must remember that government is necessarily a cumbrous affair, however conducted.

The only occasion on which the governor is a part of the legislature is when he signs or vetoes a bill.  Then he is virtually in himself a third house.[12] As an executive officer the governor is far less powerful than in the colonial times.  We shall see the reason of this after we have enumerated some of the principal offices in the executive department.  There is always a secretary of state, whose main duty is to make and keep the records of state transactions.  There is always a state treasurer, and usually a state auditor or comptroller to examine the public accounts and issue the warrants without which the treasurer cannot pay out a penny of the state’s money.  There is almost always an attorney-general, to appear for the state in the supreme court in all cases in which the state is a party, and in all prosecutions for capital offences.  He also exercises some superintendence over the district attorneys, and acts as legal adviser to the governors and the legislature.  There is also in many states a superintendent of education; and in some there are boards of education, of health, of lunacy and charity, bureau of agriculture, commissioners of prisons, of railroads, of mines, of harbours, of immigration, and so on.  Sometimes such boards are appointed by the governor, but such officers as the secretary of state, the treasurer, auditor, and attorney-general are, in almost all the states, elected by the people.  They are not responsible to the governor, but to the people who elect them.  They are not subordinate to the governor, but are rather his colleagues.  Strictly speaking, the governor is not the head of the executive department, but a member of it.  The executive department is parcelled out in several pieces, and his is one of the pieces.

[Footnote 12:  The state executive.]

[Sidenote:  The governor’s functions:  1.  Advisor of legislature. 2.  Commander of state militia. 3.  Royal prerogative of pardon. 4.  Veto power.] The ordinary functions of the governor are four in number. 1.  He sends a message to the legislature, at the beginning of each session, recommending such measures as he would like to see embodied in legislation. 2.  He is commander-in-chief of the state militia, and as such can assist the sheriff of a county in putting down a riot, or the President of the United States, in the event of a war.  On such occasions the governor may become a personage of immense importance, as, for example, in our Civil War, when President Lincoln’s demands for troops met with such prompt response from the men who will be known to history as the great “war governors.” 3.  The governor is invested with the royal prerogative of pardoning criminals, or commuting the sentences pronounced upon them by the courts.  This power belongs to kings in accordance with the old feudal notion that the king was the source or fountain of