1916] OF THE SENATE. 45

what would be a broader and better conception of the divisions
of representative government. Under our present scheme we
are fast approaching a condition of invisible government, which
is much to be deplored. As I understand it, invisible govern-
ment consists of a division of its administrative functions into
such small parts that it is hard to see or identify responsibility.
There should be centralization of authority. The Executive
should be given more and complete powers in the exercise of
Executive functions and be held, accountable for their proper,
just and reasonable use. The Legislature should be granted the
broadest possible powers of legislation, and limited only by the
guarantee of fundamental human rights. The judiciary should
not have imposed upon it any executive or legislative functions,
even by implication, but should be kept free to exercise its judi-
cial powers in the full protection of the civil and political
rights of individuals.

Many of the important Boards of the State, such as the Pub-
lic Service Commission, the State Tax Commission, the State
Board of Health, the Bureau of Statistics and Information, the
Live Stock Sanitary. Board and the Bureau of Immigration,
will make full and detailed reports of their operations for the
year ended December 31, 1915, copies of which will be promptly
furnished you. It, therefore, seems unnecessary that I should
especially call your attention to them, realizing that when the
reports of these separate bodies are placed in your hands, they
will receive that careful consideration to which they are en-
titled.

Respectfully submitted,

PHILLIPS LEE GOLDSBOROUGH,

Governor of Maryland.
ANNAPOLIS, MARYLAND,
January 5, 1916.

[Which was read. ]