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INFORMATION TO USERS This manuscript has been reproduced from the microfilm master. UMI films the text directly from the original or copy submitted. Thus, some thesis and dissertation copies are in typewriter face, while others may be from any type of computer printer. The quality of this reproduction is dependent upon the quality of the copy submitted. Broken or indistinct print, colored or poor quality illustrations and photographs, print bleedthrough, substandard margins, and improper alignment can adversely affect reproduction. In the unlikely event that the author did not send UMI a complete manuscript and there are missing pages, these will be noted. Also, if unauthorized copyright material had to be removed, a note will indicate the deletion. Oversize materials (e.g., maps, drawings, charts) are reproduced by sectioning the original, beginning at the upper left-hand corner and continuing fi’om left to right in equal sections with small overlaps. Each original is also photographed in one exposure and is included in reduced form at the back of the book. Photographs included in the original manuscript have been reproduced xerographically in this copy. Higher quality 6" x 9" black and white photographic prints are available for any photographs or illustrations appearing in this copy for an additional charge. Contact UMI directly to order. UMI University Microlilms International A Beil & Howell Information Company 300 North Zeeb Road, Ann Arbor, Ml 48106-1346 USA 313.761-4700 800,521-0600 Order Number 9130556 The development of the Black Elected Democrats of Ohio (BEDO) into a viable state legislative caucus Simms-Maddox, Margaret J., Ph.D. The Ohio State University, 1991 Copyright ©1991 by Simms-Maddox, Margaret J. All rights reserved. UMI 300 N. Zeeb Rd. Ann Arbor, MI 48106 THE DEVELOPMENT OF THE BLACK ELECTED DEMOCRATS OF OHIO (BEDO) INTO A VIABLE STATE LEGISLATIVE CAUCUS DISSERTATION Presentation in Partial Fulfillment of the Requirements for the Degree Doctor of Philosophy in the Graduate School of The Ohio State University By Margaret J. Simms Maddox, B.A., M.A. * * * * The Ohio State University 1991 Dissertation Committee: , Approved by Herbert Asher Adviser Gregory Caldeira Department of Political Science Samuel Patterson Copyright by Margaret Johnnetta Simms Maddox 1991 In Memory of My Father The Reverend John Wesley Simms 11 ACKNOWLEDGMENTS I am very grateful for the unyielding interest and encouragement of Professor Herbert Asher, my adviser, as well as for his guidance and insight in this research. Sincere appreciation is also extended to the other members of my dissertation committee. Professors Samuel Patterson and Gregory Caldeira. To my mother. Hazel Owens Simms, my sisters and brother, and my husband, the Reverend Odinga Lawrence Maddox I, I remain extremely grateful for their support of my education and for their understanding during this final phase of my research. Finally, I acknowledge Senator William F . Bowen, who has always been encouraging of my education, all the members of BEDO, and other legislative officials including clerks of the Houses and Senates nationwide for their willingness and cooperation enabling this research to take place. XIX VITA August 31, 1952 ............ Born - Clio, South Carolina 1974 ......................... B.A., Livingstone College, Salisbury, North Carolina 1975 ......................... M.A., Department of Political Science, The Ohio State University, Columbus, Ohio 1975-1977.. ................... Teaching/Research Assistant, Political Science, The Ohio State University 1977-1978.. ................... Systems Analyst, TRW, Jamestown, New York 1978-1980.. ................... Professor, Political Science, Florida A&M University, Tallahassee, Florida 1980 ......................... Summer Study Tour, The University of the West Indies, Trinidad-Tobago 1980-1983.. ................... Administrative Assistant, Ohio State Senator William F. Bowen (D-9), Cincinnati 1983- present .............. President, M.J. Simms and Associates, Inc., Management Consulting/Public Relations Agency, Columbus, Ohio FIELDS OF STUDY Major Field: Political Science iv TABLE OF CONTENTS DEDICATION ................................ ii ACKNOWLEDGMENTS ............................................ ill VITA ...................................................... iv LIST OF TABLES .......................................... ix- X CHAPTER PAGE I. THE FIRST EXTENSIVE EXAMINATION OF BEDO: A RACIAL PARTISAN STATE LEGISLATIVE CAUCUS ...... 1 Literature Review on Legislative Caucuses .. 4 Research Interests .......................... 7 Research Design: data collection, the personal interview technique, the questionnaire and first round of interviews, and the updated questionnaire and supplemental interviews ............. 16 Chapter Summaries ........................... 34 II. THE FORMATION OF BEDO ........................... 38 The Civil Rights Era and the Status of Black America: education, federal elections and the American Presidency, the Black Clergy and The Reverend Dr. Martin Luther King, J r ...................................... 40 Ohio from Statehood to Pre-Baker: Ohio redistricts, the 1966 Elections, and the charter members ............................ 50 BEDO Organizes: the 1968 and 1970 elections and the senior members, BEDO connects with the Congressional Black Caucus, the 1980s and the junior and freshmen members ........................... 69 V Initial Election Campaigns of the Charter Members and other members of the organization ................................ 85 III. BEDO AND THE OHIO GENERAL ASSEMBLY IN THE EARLY YEARS: From the 1967-1968 to the 1981-1982 General Assembly ............................... 93 Organizational Features of the Ohio General Assembly: structure, size, party composition and balance, and professionalism ............................. 96 Social and Economic Setting in Ohio ...... 112 BEDO's Reception into the Ohio General Assembly: .Some Perceptions ................ 117 Coalition Building in the Early Years: The 1975 Appropriations Bill, a case in confrontational politics and The Minority Enterprise Set Aside (Act 584), a case in coalition politics .......................... 135 IV. BEDO FUNCTIONS IN THE OHIO LEGISLATURE: FROM THE 1967-1968 TO THE 1989-1990 GENERAL ASSEMBLY ........................................ 14 8 Effects of. Caucus Size on Strategy: the 1975 appropriations bill (HB155), the Martin Luther King holiday bill (SB18), and South African divestiture bills ....... 154 Effects of Committee Assignments and Chairmanships on Strategy .................. 164 Other Factors Affecting Strategy, and BEDO's Relative Status in the Ohio General Assembly ..................................... 177 V. BEDO'S RELATIONSHIP WITH THE OHIO POLITICAL POWER STRUCTURE: FROM RHODES TO CELESTE ...... 187 BEDO's Relationships with Ohio Governors and Cabinet Appointees ..................... 192 BEDO's Relationships with House and Senate Leadership, Caucuses, and Colleagues ...... 203 Perceptions on Agenda: From Social Concerns to Human Services to Business and Economic Development ........................ 214 VI VI. A COMPARISON OF BEDO TO GROUPS OF BLACK STATE LAWMAKERS NATIONWIDE: FOCUS ON COMPARISONS TO THE MARYLAND AND ILLINOIS LEGISLATIVE BLACK CAUCUSES ............... 219 The Relative Status of Black State Legislators Nationwide during the 1989-1990 and the 1991-1992 Legislatures by State, Chamber, Group Size, Sex, and Partisanship: terminology, about the data; patterns in sex composition, state, group size, size of chamber, and partisanship of chamber; and other features .............................. 225 Comparisons of Constituencies, Configuration of Districts, and Legislative Features among the Illinois, Maryland, and Ohio Legislative Black Caucuses: constituencies and configuration of districts, variations within and across the three General Assemblies ................................... 247 The Relative Status of the Illinois, Maryland, and Ohio Legislative Black Caucuses within and across Five General Assemblies including Overall Findings: patterns in sex composition, state, group size, size of chamber, and partisanship of chamber across five General Assemblies; patterns in leadership positions; patterns in committee chairmanships and vice chairs; and overall findings..... 256 BEDO's Perceptions of other Black Caucuses, Its Successes and Defeats, and the Future of the Organization ......................... 282 CONCLUSION: .............................................. 294 Major Findings by Chapter ....................... 295 The Need for Recruitment and Training Programs. 307 Additional Research: th^ need for data on black state lawmakers ........................... 310 Significance of Study ........................... 314 APPENDICES .............................................. 319 A, Original Questionnaire ........................... 320 B. Updated Questionnaire ............... 331 VIX C. Questionnaire for Legislative Colleagues ....... 343 D. Questionnaire for Journalists ................... 34 6 E. Questionnaire(s) for NBCSL Survey of House and Senate Clerks .................................... 34 9 F. Questionnaire(s) and Data from Survey of House and Senate Clerks in the States of Illinois and Maryland .......................................... 352 LIST OF REFERENCES... .................................... 383 V l l l LIST OF TABLES TABLE PAGE 2.1 Black Elected Officials from the 1961-1962 up to the 1967-1968 General Assembly ................. 56 2.2 Ohio from