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Dall W. Forsythe - Memos to the governor: an introduction to state budgeting

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With a new foreword by New Yorks former governor, Mario Cuomo, this revised and updated edition of Memos to the Governor is a concise guidebook that takes the reader behind governmental fiscal gobbledygook to explain in clear, understandable prose the technical, economic, and political dynamics of budget making. At all levels of government, the budget has become the battleground for policymaking and politics. This book helps current and future public administrators untangle the knotty processes of budget preparation and implementation. Dall W. Forsythe, who served as budget director under Governor Cuomo, outlines the budgeting process through a series of memos from a budget director to a newly elected governor - a format that helps readers with little or no background to understand complicated financial issues. He covers all of the steps of budget preparation, from strategy to execution, explaining technical vocabulary, and discussing key topics including baseline budgeting, revenue forecasting, and gap-closing options. Forsythe brings fresh insights into such issues as the importance of a multiyear strategic budget plan, the impact of the business cycle on state budgets, the tactical problems of getting budgets adopted by legislatures, and, of course, the relationship between governor and budget officer. Memos to the Governor is a painless, practical introduction to budget preparation for students of and practitioners in public administration and public-sector financial management.

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Memos to the Governor title Memos to the Governor An - photo 1
Memos to the Governor

title:Memos to the Governor : An Introduction to State Budgeting Text and Teaching
author:Forsythe, Dall W.
publisher:Georgetown University Press
isbn10 | asin:0878406360
print isbn13:9780878406364
ebook isbn13:9780585225500
language:English
subjectBudget--United States--States, Finance, Public--United States--States.
publication date:1997
lcc:HJ2053.A1F67 1997eb
ddc:353.9/3722
subject:Budget--United States--States, Finance, Public--United States--States.
Page ii
Text and Teaching
Politics, Policy, Administration
Pursuant to its educational mission, Georgetown University Press publishes quality paperbacks intended for course adoptions at universities. Aimed at both undergraduate and graduate students, these books assist teaching in the related fields of political science, public policy, and public administration and management.
Page iii
Memos to the Governor: An Introduction to State Budgeting
Dall W. Forsythe
Georgetown University Press / Washington, D.C.
Page iv
Georgetown University Press, Washington, D.C. 20007
1997 by Georgetown University Press. All rights reserved.
Printed in the United States of America. 10 9 8 7 6 5 4 3 2 1 1997
This volume is printed on acid-free offset bookpaper.
Library of Congress Cataloging-in-Publication Data
Forsythe, Dall W., 1943
Memos to the governor : an introduction to state budgeting /
by Dall W. Forsythe.
p. cm. Includes bibliographical references.
1. BudgetUnited StatesStates. 2. Finance, PublicUnited
StatesStates. I. Title.
HJ2053.A1F67 1997 353.93722dc20
ISBN 0-87840-636-0 (cloth)
ISBN 0-87840-637-9 (pbk)
96-46214
Page v
To Deborah, Susanna, and Raquel, with love
Page vii
Contents
Preface
ix
Introduction and Overview
1
Memo # 1 You and Your Budget Officer
4
Memo # 2 Budget Strategy
10
Memo # 3 Preparing the Executive Budgetthe Technical Underpinnings
19
Memo # 4 Choices in the Final Phase of Budget Preparation
35

Page viii
Memo # 5 Budget Tactics: Laying the Groundwork for Adoption
47
Memo # 6 Going Public with the Budget
58
Memo # 7 The Legislative Phase of the Budget Process
68
Memo # 8 Budget Execution
79
A Final Word on Strategy and Tactics
83
Budget Vocabulary
86
Notes
92
Index
97

Page ix
Preface
This book grew out of a course on budgeting that I taught for three years at the John F. Kennedy School of Government at Harvard. That course, in turn, drew on my experience as budget director in New York State, working for Governor Mario M. Cuomo. My work and study during those years persuaded me that the traditional literature on budgeting understates the importance of several critical topics: the necessity to maintain a long-term strategic perspective in budgeting; the tactical problem of persuading legislatures to adopt sound budgets; and the influence of the economic cycle on state budgets. Those themes are recurrent strands in the "memos to the governor" that follow.
The memo format, together with the book's title, are drawn from Charles L. Schultze's accessible treatise on macroeconomics, entitled Memos to the President: A Guide through Macroeconomics for the Busy Policymaker.1 I hope that the use of this
Page x
format gives these short essays a point of view and directness that more traditional exposition might not convey.
Obviously, the intended audience is much broader than the prototypical new governor who is the recipient of the memos. For new students of state budgeting, the memo format should help them get quickly into the basics of the budget process. The section on budget vocabulary should also help prepare them for more technical material, and the notes highlight a number of the most useful sources of information and articles on state budgeting. More experienced practitioners and scholars should find new points of emphasis, useful examples of good and bad practice, and a practitioner's view of the relationship between governors and their budget directors. Finally, I also expect that from time to time even governors and their advisors will find the memos a useful checklist and reminder of key budget issues and problems.
The memo format does create some limitations. Most important, it does not lend itself to a full-scale survey of budget practice in all the states and so slights budget practices in states that diverge significantly from the norm. In Mississippi, Texas, and South Carolina, for example, the process of budget preparation is quite different from the executive budget process described here, since the initial budget proposal is produced by a board or commission rather than the governor. In Massachusetts, the legislature does not welcome participation by the governor after the executive budget is presented, so the idea of three-way negotiations is quite foreign to the budget culture of the Commonwealth. In every state, budget-making and adoption will differ in some details from the composite presented here.2 Nonetheless, elected officials and budgeteers in every state need to consider the central issues emphasized in these memosthe importance of developing a long-term budgetary strategy as well as a tactical plan for budget adoption, and the necessity of taking into account the impact of the business cycle on such strategy and tactics.
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