Lacking a mandate, Gregoire decided to govern the way Gary Locke governed; ie., she did nothing for 4 years. "Like King Gary before her, Queen Christine neither sowed nor reaped, yet Solomon in all his glory was not arrayed as one of these."
When a governor does nothing, the bureaucracy runs things. If you look at the ferry issue and other issues, you see the guiding hand of bureaucrats, and it's been that way for 12 years now. Gregoire has handed governance over to unelected officials.
That's the issue Rossi should be hammering.