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Examining Gubernatorial Power, Influence, and Policy-Making in the Context of Statewide Education Reform in the South

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Examining Gubernatorial Power, Influence, and Policy-Making in the Context of Statewide Education Reform in the South THE GOVERNORS’ CLUB: EXAMINING GUBERNATORIAL POWER, INFLUENCE, AND POLICY-MAKING IN THE CONTEXT OF STATEWIDE EDUCATION REFORM IN THE SOUTH Dallas T. Stallings, III A dissertation submitted to the faculty of the University of North Carolina at Chapel Hill in partial fulfillment of the requirements for the degree of Doctor of Philosophy in the School of Education. Chapel Hill 2010 Approved by: Catherine Marshall, Chair Daniel Gitterman Thomas James Douglas Lauen Judith Meece © 2010 Dallas T. Stallings, III ALL RIGHTS RESERVED ii ABSTRACT Dallas T. Stallings, III: The Governors’ Club: Rethinking Gubernatorial Power, Influence, and Policy-Making in the Context of Statewide Education Reform in the South (Under the direction of Catherine Marshall) In a brief span of years in the early 1980s, Southern governors from Mississippi, Tennessee, North Carolina, Arkansas, Florida, and South Carolina spearheaded successful efforts to convince their states to adopt significant education reform. In so doing, they helped to establish the concept of the modern “education governor.” This study considers two central questions related to these events: 1. What contributed to the development of Southern governors into education policy leaders during this critical period? and 2. What lessons from these reform efforts and institutional changes might be applicable to broader questions of gubernatorial power and governor-led policy reform? The study presents a more fully-realized picture of the integrated parts of an education governorship than exists in current scholarship. It also introduces the concept of the executive leadership moment as a lens for situating changes in executive leadership within a broader set of historical forces. Finally, it suggests that future analyses of gubernatorial power will benefit from a consideration of governors not as isolated and independent actors within state contexts who are beholden to prescribed formal powers but instead as networked actors who are able to change their political environments and operate in policy contexts that are not limited by state or regional boundaries. iii ACKNOWLEDGEMENTS As the cases in this study demonstrate, it is unlikely that even the best of governors has the ability to bring about education policy change in her or his state without the aid of a competent and engaged support staff. Without a doubt, the conception, development, and completion of this dissertation would have been impossible without a similar level of commitment from a terrific team. First thanks go to the public figures who gave generously of their time and patiently answered every question put to them. Special thanks to Governors Alexander, Graham, Hunt, Riley, and Winter, who were an inspiration not only for this study but also for my own career in public service. Several colleagues in the School of Education at the University of North Carolina at Chapel Hill also helped to shape the study. In particular, I would like to thank Aaron Cooley and Julie Keane, who read through the original proposal and provided invaluable feedback. Thanks, also, to Mary Faith Mount-Cors, who insisted on the existence of our dissertation reading group, even though in the end we only managed to recruit two participants. Many faculty and staff members at UNC and North Carolina State University also worked hard to move this study from idea to reality. The study might not have reached the proposal stage without the early guidance of Dean Thomas James, who also made my interdisciplinary program of study possible. Wendy Borman at UNC and Glenn Kleiman at NCSU made sure that the research was funded via their sponsorship of several relevant iv education policy internships. My committee spent many hours not only reading through what turned out to be a rather lengthy narrative but also engaging in discussions throughout its development about methods, theories, and emerging realizations. My advisor, Catherine Marshall, deserves particular thanks for supporting the study from its inception, even when the author himself questioned its feasibility. Finally, I would like to express heartfelt thanks to my family for their enthusiasm and encouragement at every stage of the process. Ear scratches all around for Buck (1994-2008), Liddy, and Casey, my loyal and faithful writing companions. Fist-bumps to Hutch and Wells for providing timely and stress-relieving Lego breaks and front-yard baseball games. And my deepest thanks of all I reserve for Meb, whose patience, understanding, encouragement, and love made it all worthwhile. v TABLE OF CONTENTS LIST OF TABLES........................................................................................................... ... ix LIST OF FIGURES......................................................................................................... .... x Chapter 1. INTRODUCTION........................................................................................... ....1 Questions and Policy Significance ................................................................ ....2 The Rise of the Education Governor in the South......................................... ....4 Contributions to the Literature....................................................................... ....7 A Framework for the Research...................................................................... ....9 Methods, Data, and Data Collection.............................................................. ..11 2. METHODOLOGY, DATA, AND DATA ANALYSIS.................................. ..15 Overview of Methodological Strategy........................................................... ..15 Methodological Approach............................................................................. ..16 Data................................................................................................................ ..21 Data Analysis................................................................................................. ..31 3. TAKING THE LONG VIEW: THE HISTORICAL PERSPECTIVE............ ..38 Lenses for Analyzing the Historical Context................................................. ..38 Constructing the Executive Leadership Moment: The Historical Context.... ..43 Constructing the Executive Leader: Changes in the Governorship............... ..69 Moving from the Regional Level to Individual Narratives........................... ..81 vi 4. GOVERNOR-LED EDUCATION REFORM IN THE SOUTH, 1982- 1985.................................................................................................................. ..82 Moving Beyond Historical Analysis.............................................................. ..82 The View from the Individual Level: Converting Possibilities into Realities.......................................................................................................... ..83 Three Cases: Winter, Alexander, and Hunt................................................... ..90 Additional Case Studies................................................................................. 127 5. CONSTRUCTING THE EDUCATION GOVERNOR.................................. 129 A Framework for Understanding Education Governorships......................... 129 Evidence and Analysis................................................................................... 132 Summary........................................................................................................ 155 6. IMPLICATIONS FOR EXTENDING OUR UNDERSTANDING OF EDUCATION GOVERNORSHIPS................................................................ 158 Assessing the Executive Leadership Moment Concept................................. 158 Re-Framing the Governorship....................................................................... 164 Moving Forward............................................................................................ 183 APPENDICES..................................................................................................... 190 Appendix A: Additional Theoretical Concepts in More Detail..................... 190 Appendix B: Other First-Generation Southern Education Governorships of the 1980s.............................................................................. 202 Appendix C: A Second-Wave Southern Education Governorship................ 236 Appendix D: Data Sources.............................................................................243 Appendix E: Sample Two-Tiered Interview Question Template.................. 248 Appendix F: Summary of Initial and Revised Coding Scheme..................... 250 vii Appendix G: Relevant National and Regional Organizations and Selected Publications................................................................ 252 Appendix H: Evidence in Support of Previously Defined Characteristics of Education Governorships..................................................... 261 Appendix I: The Triumph of Values over Party Identity............................... 276 BIBLIOGRAPHY................................................................................................ 279 viii LIST OF TABLES Table 3.1 – An Outline of Chapter 3 .............................................................................. ..42 3.2 – Revenues for Public Elementary and Secondary Schools, by Source, 1969-1985, in 000s ....................................................................................... ..52 3.3 – State Revenues for Public Elementary and Secondary Schools in the South, by Source, 1969-1985, in 000s ........................................................
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