A Study of the Political Process Leading to the Establishment of the Minnesota Center for Arts Education
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THE PROCESS OF POLITICS: A STUDY OF THE POLITICAL PROCESS LEADING TO THE ESTABLISHMENT OF THE MINNESOTA CENTER FOR ARTS EDUCATION A DISSERTATION SUBMITTED TO THE FACULTY OF THE GRADUATE SCHOOL OF THE UNIVERSITY OF MINNESOTA BY JAMES DOUGLAS HAINLEN IN PARTIAL FULFILLMENT OF THE REQUIREMENTS FOR THE DEGREE OF DOCTOR OF PHILOSOPHY DR. NEAL NICKERSON, ADVISER SEPTEMBER 2009 2009 JAMES DOUGLAS HAINLEN ALL RIGHTS RESERVED ACKNOWLEDGEMENTS The author wishes to thank people who generously contributed to the research design, writing, and completion of this thesis: Professor Neal Nickerson, my advisor for the completion of this thesis, was unfailing kind and supportive in bringing this project to a conclusion. I would particularly like to thank him for supporting my request to re-enter the Department of Educational Policy and Administration; Professors Arthur Harkins, Byron Schneider, and Darwin Hendel, for reading and offering helpful suggestions; The 27 informants who willingly shared their first-hand knowledge of the details of this investigation; My wife, Linda, and sons, Jeffrey and Steven, for allowing me to work on doctoral studies while also being husband and father. The research and writing of this thesis was divided into two time periods with an intervening period of personal medical issues, and I would like to thank Dr. Charles Sederberg and Dr. Tim Mazzoni for guiding the initial conceptual design, research, and writing. i ABSTRACT THE PROCESS OF POLITICS: A STUDY OF THE POLITICAL PROCESS LEADING TO THE ESTABLISHMENT OF THE MINNESOTA CENTER FOR ARTS EDUCATION The purpose of this study was to investigate the political process that resulted in the establishment of the Minnesota Center for Arts Education as a state funded educational policy option. This research identified the interest group actors who initiated the idea and the key actors who guided it through the policy arena, and analyzed the interactions of the participants from the political perspective of actors, goals, motivations, resources, strategies, arenas, critical interactions, and outcomes. This study focused on the executive and legislative arenas in Minnesota government. The study was bounded in time by the initial policy proposal set forth to the members of the Minnesota Alliance for the Arts in Education in 1976, and the final enabling legislation passed in 1989. The research methodology was a single case study with qualitative data gathered from interviews of 27 significant informants, archival sources, and the public record. The research found that human agency and personalization of policy were key elements in the policy making process and a constant factor in the dynamic interaction between Governor Perpich and state legislators. The concept of a state financed arts high school originated outside the K-12 policy subsystems and gained crucial support when the Governor attached himself and the resources of his position to the idea in 1984. The findings are significant for proponents of educational reform who believe that education policy options ought to be enacted on the merits of the idea and underestimate the importance of the complex interplay of human behavior: power, motivation, advocacy, executive leadership, and political strategy. This research concluded that the legislation for the Minnesota Center for Arts Education was enacted because of the effective use of resources controlled by the Governor and his staff, and a pragmatic understanding and implementation of political strategies during critical interactions in the legislative arena. ii TABLE OF CONTENTS ACKNOWLEDGEMENTS ................................................................................................. i ABSTRACT ........................................................................................................................ ii TABLE OF CONTENTS ................................................................................................... iii LIST OF FIGURES ........................................................................................................... vi CHAPTER 1 INTRODUCTION ....................................................................................... 1 Background of the Study ................................................................................................. 2 Statement of the Problem and Initial Research Questions .............................................. 6 Overview of Study Design .............................................................................................. 8 Definition of Terms ....................................................................................................... 10 Limitations of Study ...................................................................................................... 12 CHAPTER 2 REVIEW OF THE LITERATURE .......................................................... 14 Review of Literature on Policy Making ........................................................................ 15 Rational Perspective on Policy Making ..................................................................... 16 Organizational Perspective on Policy Making ........................................................... 18 Political Perspective on Policy Making ..................................................................... 18 Advocacy Coalition Perspective on Policy Making ................................................... 19 Formal and Informal Policies ..................................................................................... 20 Systems Perspective on Policy Making ..................................................................... 21 Review of the Literature on Political Analysis .............................................................. 25 Power and Influence ................................................................................................... 28 Sources of power ........................................................................................................ 30 A Conceptual Framework for Political Analysis of Education Issue Conflicts ......... 35 Blended Frameworks – a working model for this investigation ................................ 40 Review of the Literature on Fine Arts Education .......................................................... 42 Review of Literature on Case Study .............................................................................. 46 Conclusions ................................................................................................................... 49 CHAPTER 3 METHODOLOGY ................................................................................... 50 Setting and Data Sources ............................................................................................... 50 Archival Documents ................................................................................................... 52 Participants ................................................................................................................. 56 Human Subjects Review and Approval ......................................................................... 58 Interview Format ........................................................................................................... 59 Interview Protocol ...................................................................................................... 61 Metaphor Question ..................................................................................................... 62 Role of the Interviewer ............................................................................................... 63 Coding of Data............................................................................................................... 64 Triangulation of Data ..................................................................................................... 66 Data Display .................................................................................................................. 68 Analysis of Data ............................................................................................................ 73 CHAPTER 4 CONTEXT AND ORIGIN OF THE ARTS HIGH SCHOOL ................. 75 Multiple Policy Initiatives for Educational Reform 1976-1989 .................................... 76 Budget Rescission 1979-1982 ....................................................................................... 80 iii Gifted and Talented Education Movement in Minnesota 1978-1984 ........................... 83 Arts Education Advocacy 1972-1985 ............................................................................ 88 Origin of the Minnesota Arts High School Concept ..................................................... 92 Feasibility and Planning Committee Proposal 1978-1980 ............................................ 95 Gubernatorial Leadership in the Policy Arena .............................................................. 99 Policy Influenced by Perpich’s Time in Europe ...................................................... 102 Political and Leadership Values of Rudy Perpich .................................................... 103 CHAPTER 5 THE POLICY MAKING PROCESS THAT RESULTED IN THE MINNESOTA CENTER FOR ARTS EDUCATION .................................................... 110 Idea Initiation and Placement on the Official Policy Agenda 1976-1984 ................... 111 Initial Authoritative Action 1984-1985 ....................................................................... 114