The contradiction is particularly acute for Mr. Cuomo, an insider’s outsider who has sworn to remake New York’s troubled state government. Many of his transition advisers are members of the Albany establishment, though Mr. Cuomo has pledged to upend that very system

Image Ashok Gupta. Credit... Michelle V. Agins/The New York Times

His transition committee on job growth and labor, for example, includes George Gresham, the head of S.E.I.U. 1199, the powerful health-workers union, while his committee on health and education includes the presidents of both of New York’s major hospital associations, Daniel Sisto and Kenneth E. Raske. Together, the three groups have spent millions of dollars on television advertisements in recent years to reduce cuts to Medicaid services. (Notably, however, the committee includes no representatives of teachers unions.)

Aides to Mr. Cuomo said that the governor-elect sought to limit potential conflicts in part by confining the transition teams to the task of recruitment, although the economic advisory council by definition will be advising Mr. Cuomo on budget and other fiscal issues.

“Often, those with great expertise in an area also work for organizations who deal directly with the government in their areas of expertise,” said Josh Vlasto, a transition spokesman for Mr. Cuomo. “There is nothing wrong with having such individuals on the transition team, and we welcome their expertise and counsel.”

Image Daniel Sisto. Credit... Nathaniel Brooks for The New York Times

All transition team appointees were required to agree in writing to a set of ethics guidelines, including a broad prohibition on using their position on the transition to secure special privileges or advantages for themselves or others. None are prohibited from lobbying or contributing to Mr. Cuomo or his administration after he becomes governor.