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SYMBOLS AND SUBSTANCE: HOW BLACK CONSTITUENTS ARE COLLECTIVELY REPRESENTED IN THE UNITED STATES CONGRESS THROUGH ROLL-CALL VOTING AND BILL SPONSORSHIP DISSERTATION Presented in Partial Fulfillment of the Requirements for The Degree of Doctor of Philosophy in the Graduate School of The Ohio State University By Valeria Sinclair-Chapman. M_A. The Ohio State University 2002 Dissertation Committee:: Approved by Professor Janet M. Box-Steffensmeier. Adviser Professor William E. Nelson C/ Adviser Political Science Graduate Program Professor Herbert Weisberg Reproduced with permission of the copyright owner. Further reproduction prohibited without permission. UMI Number 3049115 Copyright2002 by Sindair-Chapman, Valeria Michelle Ail rights reserved. UMI* UMI Microform 3049115 Copyright 2002 by ProQuest Information and Learning Company. Alt rights reserved. This microform edition is protected against unauthorized copying under Title 17. United States Code. ProQuest Information and Learning Company 300 North Zeeb Road P.O. Box 1346 Ann Arbor. Ml 48106-1346 Reproduced with permission of the copyright owner. Further reproduction prohibited without permission. Copyright by- Valeria Sinclair Chapman 2002 Reproduced with permission of the copyright owner. Further reproduction prohibited without permission. ABSTRACT Representing the policy preferences of any group is a complex and dynamic enterprise. Representatives make decisions about what group interests to publicly support and which legislative tools to use to communicate that support to group members and colleagues. The representation of group preferences can be substantive, i.e. narrowly-tailored to achieve tangible, relatively immediate, policy outcomes. Or. the representation of group preferences can be symbolic, i.e. broadly-tailored to give group members voice in the legislature. This study expands conventional approaches to black representation by developing a theory of symbolic representation that accounts for legislative activities undertaken with the objective of giving psychological reassurance to group members that representatives are working in their interests and responsive to their needs without the condition that measurable policy outcomes be an immediate goal. Using data I collected on House membersr roll-call voting behavior and bill introductions, as well as data from a recent national black opinion survey. I create several measures of substantive and symbolic representation to analyze how House members represent black interests at the policy-making and agenda-setting stages of the legislative process. 1 find that descriptive representatives (those sharing similar social characteristics, e.g.. race) and partisan representatives (those sharing the same party affiliation) represent black policy preferences differently depending on the stage of the n Reproduced with permission of the copyright owner. Further reproduction prohibited without permission. legislative process being examined and whether the representation is symbolic or substantive. Descriptive representatives1 use of bill sponsorship to advocate black concerns is essential to black representation. Importantly, rney are considerably more likely than their colleagues to advocate black concerns symbolical!}. Descriptive representatives behave less distinctively than their colleagues at the level of roll-call voting and occasionally cast votes that are contrary to the substantive representation of black concerns. New survey data shows that although blacks are generally supportive of black interest policy proposals, their preferences for symbolic or substantive policy proposals are marginally influenced by the type of representation—descriptive or partisan—which they receive. iii Reproduced with permission of the copyright owner. Further reproduction prohibited without permission. Dedicated to: Chris and David Chapman James and Serena Sinclair Jada Louise Lamb (1969-1997) IV Reproduced with permission of the copyright owner. Further reproduction prohibited without permission. ACKNOWLEDGMENTS I wish to thank my adviser. Janet Box-Steffensmeier for intellectual support and encouragement. Early on. she believed in the possibilities tor this project when I myself had doubts. Her enthusiasm about m y work and love for quality scholarship made this thesis possible. I thank William E. Nelson for reliably asking tough questions and helping me son through the answers. Prolessor Nelson's Knowledge is boundless and his intellectual demands have sharpened the focus of this project. His unwavering confidence and support have been invaluable since the beginning of my graduate career. I thank Herbert Weisberg and Samuel Patterson for lending their incredible knowledge and expertise to this project. These men generously rearranged their schedules to help facilitate the completion of this dissertation and their willingness to do so is greatly appreciated. I also wish to thank Katherine Tate for her support and encouragement throughout this project. Even after leaving my graduating institution. Katherine has continued to offer intellectual and personal insight. She has been instrumental in teaching me what it means to be a professional in this discipline. I also wish to acknowledge the support and assistance of my colleagues at the University of Rochester. Dick Fenno. Gerald Gamm. Fred Harris. James Johnson. v Reproduced with permission of the copyright owner. Further reproduction prohibited without permission. Richard Niemi. and Christian Grosce provided valuable advice and comments at various stages o f the writing process. A special thanks is owed to Lauren Parr and Bronwen Van Hooft for helping me get organized. For moral support. I thank Rhonda and Rick Parr. Angela Hemphill. Thehna Jackson. Sabrina Miller. Donald Wilson. Gloria Hampton. Melanye Price. Yolanda Keller-Bell. and more recently. Gay Byron. I am indebted to Gloria and Melanye for their willingness to shuttle paperwork back and forth to the graduate school while 1 was hundreds of miles away in New York. I am deeply indebted to Chris Chapman for his patience and support during the highs and lows of my completing this project. He was my partner long before this project began and for more than a decade he has helped me seek my own center and define who I really am. I thank my son. David Chapman, for his innocent demands to play in my office, type on the computer, and sit on my lap for a cuddle while I was working in the wee hours of the morning. Throughout this occasionally trying process, he has ever reminded me of life's greatest joy—to love and be loved in return. I thank my parents. Jim and Serena Sinclair, for their support—monetary and emotional—throughout graduate school and for their unending confidence that I could do this. I thank my brother. Tim. for his love, support, and listening ear. His confidence in me has encouraged me to always aim higher. I admire him more than he could possible know. I also thank Jada Lamb for her lasting friendship despite distances separating us through time and space. VI jtr " m i. Reproduced with permission of the copyright owner. Further reproduction prohibited without permission. I thank Paul Gariington and Heartsight for spiritual guidance and support as 1 neared the end of this project. And most importantly. I thank God for the divine plan that has allowed this experience to unfold exactly as it should. This research was supported by an award from the Madison Scott Memorial Foundation at The Ohio State University and by a Ford Foundation Dissertation Fellowship. I might never have started this research agenda, and certainly would not have been so creative in my approach, without the opportunities for learning and research provided