The challenges of taking office
Holshouser considers how budgetary operations can reveal new governors' lack of preparedness for their position. One acute challenge is the fact that incoming governors inherit their predecessors' budgets, a situation Holshouser approves of changing.
Citing this Excerpt
Oral History Interview with James E. Holshouser Jr., March 13, 1998. Interview C-0328-2. Southern Oral History Program Collection (#4007) in the Southern Oral History Program Collection, Southern Historical Collection, Wilson Library, University of North Carolina at Chapel Hill.
Full Text of the Excerpt
- JACK FLEER:
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One of the things that I take from what you were saying is that in a
sense, once you learned more about the budget, or maybe budget
developments became revealed after you were elected, you realize there
was a lot "surplus money" and so you were looking for
legitimate projects, nonrecurring. What does that say if anything about
how well people who run for public office are prepared to run the public
office?
- JAMES E. HOLSHOUSER, JR.:
-
Well, a lot of times they are not very well prepared. Now business people
if they are running a pretty good size business have had to deal with
budgets and how they operate their own business and there is some
carryover there, but not totally in that the state government has some
operations that are not ever going to be profit centers. We had a report
here at the Board of Governors yesterday and today about a North
Carolina hospital and the consultants were saying that there has been a
4.8% return on the state's dollars that have come in since
1990 or something like that. And I told them after the meeting, I said,
I don't think you are going to find the average legislator
that is going to relate to that because they are not use to thinking in
terms of monetary return on their dollars. They are used to providing
money for operating agencies that have a product they turn out that
doesn't make a return. So there is little bit different
mentality and you also have some different rules under which you operate
the state. You have got, you are required to go
out for bids on things and take the low bid unless there is some reason
to do otherwise and where business people really feel constrained on
things like that. Unless you understand how the state government works
in terms of having a surplus at the end of the year, some of which is
going to be from revenues exceeding what was estimated and that is
recurring money and that is available. Some of it is going to be unspent
money and that can't be spending in recurring because it
won't recur. So there are some practices that take people
awhile to figure out. You get a lot of help. I have to say that I
can't compare with anybody else but for me I got an extreme
amount of cooperation from people in the government. Now part of that
may be just been fear. I found early on I had to really be careful about
what I said to people lest a thought be taken as something that had to
be done right now. But the people in the budget office, people in the
Council of the State, went out of their way to accommodate. Part of that
was that I knew a lot of them already. And I knew at least a little bit
about what they did and what went on in those shops and I talked to the
budget people just countless hours as a legislator on the appropriation
committee because in those days the budget office was in the Department
of Administration. It was really considered apolitical and not the arm
of the governor necessarily but worked for the governor and the
legislature. Now you have legislative fiscal research over here and the
budget office is in the governor's office and they
don't always see eye to eye and I think that is more like
Congress, but I think it is not necessarily for the best. I
don't think we are going to change that. I think that genie
is out of the bottle. But it is not to say that any of the people that
work there are bad or anything. I think it serves the state better
probably to have one set of voices.
- JACK FLEER:
-
Now one of the practices that was in effect when you became governor was
that the outgoing governor, in your case Governor Scott, actually
prepared the budget.
- JAMES E. HOLSHOUSER, JR.:
-
That is right.
- JACK FLEER:
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What do you think of that idea? How did that effect your
ability to be governor?
- JAMES E. HOLSHOUSER, JR.:
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Well it my case as I said, I sort of lucked out in a way because if they
had proposed a budget that took up all the money, I would have had to be
proposing cuts in that budget in order to do anything I wanted. I felt
strongly enough about that as a problem though generically that when Jim
Hunt was elected in 1976, I met with him a week after the election. I
said I want you to have some of your staff people to get with the state
budget people before anything goes to the Advisory Budget Commission. If
you have got some things that you want to put into the budget, we will
get them in there. Because it seems to me that when the people have
elected a new person, they are bound to have some programs. It just
makes sense that they ought to have the prerogative of doing it.
- JACK FLEER:
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You had not been brought into any anticipation and preparation of
Scott's budget?
- JAMES E. HOLSHOUSER, JR.:
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That is right. And it is not to say that Bob Scott should have because it
was sort of a new situation there too. I think that if you look back at
the administration previously, he had not been particularly plugged in
with Dan Moore and Dan Moore and Terry Sanford hadn't been on
the same side. Terry Sanford hadn't been close to Luther
Hodges and if you just go on back and there has been sort of a history
of each person doing their own thing. But I can say this from what I
have heard from other states. We do extremely well
in transitions. I have just heard some real horror stories of outgoing
administrations not providing any assistance to the governor elect and
not letting anybody in the state government talk to the new people until
after they have gotten out of office. And of course, in elections when
an incumbent governor gets beat when he is running for re-election that
is much easier to understand from a human stand point. Somewhere along
the line you ought to let your sense of responsibility to the state say
that you have got to do it as a decent transition thing. I think we have
done generally good.
- JACK FLEER:
-
Would you recommend any kind of change in that relationship, that may be
even put into law, or that the out going governor essentially recommends
the budget to the first general assembly of the incoming
governor?
- JAMES E. HOLSHOUSER, JR.:
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Well, I confess I haven't stayed up nights thinking about this
and my notion is that you don't get to be governor until you
are sworn in. At the same time somewhere or another that first budget
that goes to the legislature really ought to be the incoming
governor's. You can't give him power before he
takes office. It may well be that what we ought to do is to have that
first session of the legislature start about the first of March and let
that budget process and not have the budget go to them and come in
January the budget is already printed and it is in black and white
sitting in the state warehouses some place. So I think you
don't want to deprive the outgoing governor of the right to
stay governor as long as he is in office but at the same time I
don't think you necessarily have to give him the prerogative
of presenting that in that budget. So I think that might be the way to
do that just every fourth year have the legislature meet in March.