The State and the Executive System

The administration is one of the most difficult aspects of government. In the enactment and enforcement of laws, the victory of the State is complete but not so in regards to administration the reason being that it is easy to see the advantage of the enactment and enforcement of laws but not the administration of domestic, religious and business affairs which should be kept to a minimum by government.

Originally, the State was a military organization. For many years, it was just a territory ruled by a king who was surrounded by a small elite group of warriors and court officials and it was basically rule by force over a larger mass of people. Slowly, however, the people gained political representation for none can really be said to be a member of the State without the right of having a voice in the direction of policy making. One of the basic functions of the State in regards to administration is maintaining peace and internal order; it has no other excuse for interfering in the lives of its citizens. To maintain law and order the State develops means of communication. Historically, the "king's highway" was laid down and maintained for the convenience of the royal armies not as an incentive to commerce. In almost all countries, the State jealously maintains the control of the means of communication and special freedoms such as those delineated in the First Amendment to the United States Constitution are rather limited. The State's original function of maintaining law and order within its borders gave rise to police administration which is a branch of the dispensation of Justice but on its preventive side, police jurisdiction has a special character of its own, which distinguishes it from ordinary judicial work. In the curfew, the State shows early in history the importance of preventing disorder. In early days, next to maintaining law and order, the State was concerned with the raising of revenue. This led eventually to modern State socialism. It was then useful to the State to establish a standard of weights and measures so that value could be generally accepted and finally the State acquired a monopoly of coinage. The regulation of labor by the State as one of its functions dates from the 15th century, when the Black Plague killed around half of the European population.

The invariable policy of the State has always being to break down all intermediate authorities and to deal directly with the individual. This was the policy until Adam Smith's The Wealth of Nations was published promoting a strong public reaction against State interference. By its own action, the State raised the issue of the poor or the State relief of the indigent. The State, of course, did not create poverty but by destroying the chief agencies which dealt with it such as the village, the church and the guilds, it practically assumed full responsibility for the poor without exercising any power over it. The Great Poor Law Report of 1834 showed that communism ran rampant in the rural areas of England. In newly developed countries such as the colonies of the British Empire, the State has refused to take responsibility for the poor and the relief of poverty in spite of the fact, that the poor classes lean heavily towards State socialism.

Recognizing the great power of the State, it is only natural that in times of great crisis such as an overwhelming calamity the people should invoke general State aid.

Political representation has helped to shape State administration. When the voice of the individual can be heard, the danger of arbitrary interference by the State is greatly reduced. To that extent is the increase of State activity popular. There are no hard and fast rules to limit State administration but it is a fallacy to believe that the State is the nation and what the State does is necessarily for the good of the nation. In the first place, even in modern times, the State and the nation are never identical. Even where "universal suffrage" prevails, the fact remains that an extension of State administration means an increased interference of some by others, limiting freedom of action. Even if it is admitted that State and nation are one and the same, it is sometimes difficult to admit that State administration is necessarily good. Finally, the modern indiscriminate advocacy of State administration conceals the fallacy that State officials must necessarily prove more effective in their action than private enterprise. Herein lies the basic difference between Public and Business Administration; the first deals with the public weal while the second deals basically in profit but both require a great deal of education and ethical conduct to avoid the mishaps inherent in the relationship not only of business and labor but also the State and the Administration.