a line-item veto, but its use was forbidden on constitutional amendments and laws related to the classification of property for tax purposes. The governor's veto can be overridden by roll-call majority votes of both houses of the legislature; unlike in most states where a supermajority is required to override a veto. Budget Although setting the state budget is a legislative function in many states, Kentucky governors are required by statute to present a proposed biennial budget to the General Assembly for approval shortly after the beginning of its even-year sessions. The governor's budget has often been approved with few changes, but since the Republicans took control of the state senate for the first time in 1999, approval has become a much more contentious process. The General Assembly failed to pass a budget before the end of its session in both 2002 and 2004. In both cases, the state operated under an executive spending plan drafted by the governor until the legislature could re-convene and pass a budget. In 2005 the Kentucky Supreme Court ruled that the governor had no authority to expend funds without legislative approval, and that if legislators failed to pass a budget in the future, only expenditures explicitly authorized in the state constitution could be made. Administration and appointments Although the Kentucky constitution designates the governor as the head of the executive branch of state government, it does not specify the means of carrying out that role. Empowered to nominate all constitutional officers by the state's first constitution, that power of the office of the governor has been reduced in subsequent constitutions, as more of those offices became elective. Because the governor is not explicitly authorized by the constitution to conduct many of the functions necessary to administer the state government, the officeholder has had to rely on empowering legislation enacted by the General Assembly. With this in mind, Kentucky historian Thomas D. Clark wrote in 2004 that extensive executive powers had been granted through the creation of a large number of commissions that reported to the governor: During the past century and a half, and especially in the later 20th century, it would have been impossible for state government to operate efficiently without a broadening of executive powers. Through the years the General Assembly has created a myriad of commissions and turned them over to the governor to exercise administrative oversight. ... All of these commissions