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Shafer attended Yale University Law School, where he received the L.L. B. in
1941. Classmates at Yale included numerous individuals later associated with
civic affairs including Gerald R. Ford, William W. Scranton, Cyrus Vance, and
Sargent Shriver. Following law school Shafer was commissioned as an ensign in
the U.S. Navy serving from 1942 to 1945 as a P.T. boat captain and in Naval
intelligence. He later earned the rank of full lieutenant and received the Purple
Heart, Bronze Star, and the Commendation for Meritorious Service.
Following World War II, Shafer went into law practice in Meadville and was elected
Crawford County District Attorney, serving from 1948-1956. In 1958 he won election
to represent Pennsylvanias 50th State Senatorial District and served from
1959 to 1963. In the spring of 1962 Shafer agreed to run as lieutenant governor
with William W. Scranton of Lackawanna County. Aligned with the progressive
wing of the Republican Party, Scranton and Shafer defeated Philadelphia Mayor
Richardson Dilworth by 486,000 votes and took office in January 1963.
In the spring 1966 primary, Republicans supported Raymond Shafer for governor and the Commonwealths Attorney General, Walter E. Alessandroni for lieutenant governor. When Alessandroni was killed in a tragic plane crash before the election, Philadelphian Raymond J. Brodericka lawyer and prominent regional Republicanfilled out the ticket. Shafer and Broderick ran against Philadelphia millionaire Milton J. Shapp who secured the primary by defeating Democratic nominee Robert P. Casey of Lackawanna County. Despite Shapps aggressive campaign Shafer, trumpeting the Scranton-Shafer record, won the general election by 241,630 votes. The Republican Party maintained small majorities in both the state Senate and House of Representatives.
Shafers administration is perhaps best known for reforms that were made to the Commonwealths antiquated 1874 constitution. Another major theme of his four-year term was state government reorganization to better accommodate programs and policies that reflected the needs and demands of the times. Growth in state programs and spending for education and welfare also dominated most of Shafers tenure.
Shafer had campaigned on revising the Commonwealths constitution. In
the spring of 1967 he signed an Act authorizing a May 16 ballot referendum placing
nine issues before the electorate. These included permitting a governor to serve
two four-year terms instead of one, making the Secretary of Internal Affairs
a gubernatorial appointment rather than an elected post, making General Assembly
sessions a full two-years, repealing outdated constitutional provisions affecting
railroads and canals, and calling a constitutional convention to address reforms
that could not otherwise pass the legislature. Each measure was approved by
the electorate; in some cases by margins of 400,000 votes.
A bi-partisan constitutional convention convened in December 1967 and completed
its work by late February 1968. Once again reforms were placed before the electorate
to allow political subdivisions to elect home-rule, raise the ceiling on state
borrowing, subject all state financial affairs to audits, mandate that the governor
annually develop and submit a spending plan for state programs, establish new
tax rules - particularly for real estate and public utilities, and create a
unified judicial system under the Supreme Court of Pennsylvania. Though the
revisions were criticized for not doing enough to reform state government -
such as reducing the size of the General Assembly - they won majority approval
by voters in April 1968.
Besides constitutional revisions, state government was reorganized to more acutely
address issues prevalent in the late 1960s. In 1970 Shafer signed Act 275 to
create the Department of Environmental Resources. The agencys functions
included environmental and natural resource protection in addition to land,
water, state park, and state forest management, and mining regulation. The Commonwealth
also invested in programs to clean streams of acid mine drainage, long a problem
left over from a largely bygone era and industry.
Shafer signed Act 120 of 1970 to consolidate state-run transportation functions
housed in four separate agencies into the new Pennsylvania Department of Transportation.
PennDOT was given responsibility to develop and maintain a safe, adequate, and
efficient transportation infrastructure. Its creation coincided with the near
completion of Pennsylvanias portion of the nations interstate highway
system. By the end of Shafers term about 85 percent of the interstate
system was open to traffic across the state including Interstates 80, 81, and
79 (named the Raymond P. Shafer Highway). Shafer also authorized an equal employment
opportunity initiative to eliminate discrimination among highway construction
contractors.
With some reluctance, on July 23, 1970 Shafer signed Act 195 making Pennsylvania the first state in the nation to permit its public employees to bargain collectively, join a union, and strike. Act 195 superseded a 1947 statute that prohibited such activities. The law resulted from a study by the Public Employee Law Commission (otherwise known as the Hickman Commission) that recommended numerous changes in the relationship between public sector employees and employers.
Other initiatives of Shafers term included creation of the Pennsylvania Crime Commission as a unit of the Department of Justice and enactment of the Corrupt Organizations Act to prohibit individuals associated with organized crime from investing in Pennsylvania businesses. Shafer also enhanced the Commonwealths role in nursing home oversight - a growing business - by requiring the licensure of administrators. Amendments to the enabling legislation for the Pennsylvania Human Relations Commission expanded its duties to police discrimination in housing, education, and employment. Finally Shafer led trade missions to Europe, the Far East and South America.
Shafers popularity waned in the closing years of his term. In the election of 1968 his influence in the General Assembly was diminished when the House turned decidedly Democratic. For fiscal year 1969-1970 Shafer proposed a record $2.5 billion state budget, up from $1.9 billion the previous year. Most of the increased state spending was for education and human services including basic education, for which state spending grew by 71 percent during his term; higher education, which grew by 47 percent; and public assistance, which increased by 187 percent. To pay for the growth Shafer proposed a state income tax that won little public or legislative support. Instead, Shafer reluctantly increased the sales tax to 6 percent. His proposal to merge state health and human service agencies was voted down as well.
On the national scene Shafer was appointed vice-chair of the Republican Governors Association in 1969. He assumed the chair from Californias governor Ronald Reagan in 1970. He was the last governor of Pennsylvania who was ineligible for two consecutive terms. The election of 1970 pitted Shafers lieutenant governor, Raymond Broderick, against their 1966 rival, Milton J. Shapp. Though Republicans were united in the primary and general election, skepticism regarding Shafers proposed income tax, an insolvent state budget, and other factors eased Shapp into office by nearly a half-million votes. And, the Commonwealths house and Senate became firmly Democratic for the first time since 1936.
Shafer continued in public service after leaving Harrisburg. In 1971 President Nixon appointed him chair of the National Commission on Marijuana and Drug Abuse that issued reports in 1972 and 1973. He continued to speak on drug issues for several years afterward. From 1974 to 1977 he served as counselor to Vice President Nelson Rockefeller. He was elected to the Board of Trustees of Allegheny College in 1964 and served as its president from 1985 to 1986. He died December 12, 2006.
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