468 ADDRESSES AND STATE PAPERS

evolved within the executive branch to direct principal departments.
I seriously question whether these multi-headed units are always in
the best interest of efficient administration, although I have found
incumbent boards cooperative.

However, a functional flaw becomes particularly apparent when the
composition of a multi-headed unit is based upon staggered terms,
allowing a majority to remain in power well beyond the terms of
elected executive and legislative officials. This practice might en-
courage deliberate disregard of administrative controls and compro-
mise executive responsibility. Efficiency of a multi-headed unit is also
subject to serious scrutiny inasmuch as all policy determination de-
pends upon consensus and compromise. This, in some cases, could
lead to pet project logrolling among board members

My confidence in the administrative superiority of the single-headed
state department is so great that I believe only the most compelling
reasons should justify the extension of multi-headed units, and then
only if each Governor is granted appointment power corresponding
exclusively with his term of office. I would further support legislative
approval of each multi-headed unit including statutory identification
of its function.

Section 4. 24 Executive Clemency

I support the Draft Constitution's provisions concerning executive
clemency. I agree that gubernatorial power to grant a nolle prosequi
should be removed from our future constitution and that the stipula-
tion for newspaper publication of gubernatorial action in cases of
pardons should be deleted because it is superfluous.

STATEMENT ON CAPITAL PUNISHMENT
October 10, 1967

Since taking office last January 25th, I have given intensive and
careful deliberation to the question: Should capital punishment be
abolished in Maryland?

It had been my initial thought that I would appoint a committee
of penal experts and distinguished citizens to study the subject and
make recommendations. But I find it has been studied exhaustively,

and there is nothing new to be gained through a retracing of the

same ground. Most penal experts are in agreement that the death