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Chapter 1 Policy Change in the United States

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Chapter 1 Policy Change in the United States NATIONAL AND STATE DIMENSIONS OF MAJOR POLICY CHANGE: THE REAGAN ‘REVOLUTION’ REEXAMINED by HOLLEY ELIZABETH TANKERSLEY (Under the Direction of Arnold Fleischmann) ABSTRACT The body of literature investigating why, when, and how major policy changes take place in a federal system of governance is fragmented at best. Some scholars suggest that national policy changes are initiated by partisan realignment and institutional change. Others identify change as a simple matter of top-down intergovernmental implementation. Studies of state politics focus rather narrowly on variation or diffusion of policies among the states. The present study both challenges and combines these prevailing views by determining whether policies can change from the bottom up – with states as the catalyst for changes in both the direction and content of the policy agenda at the national level. The evolution of American federalism dictates the need for scholars to reconcile national policy outcomes with theories and findings concerning state-level policy innovation and diffusion, especially as the states grow in importance and power as a consequence of devolution. If the national government impacts state policymaking, and states influence one another to adopt similar policies, then it would stand to reason that states have a residual impact on national policy. To account for the role of the states in national policy change, this dissertation explores the causal relationship between Ronald Reagan’s policy agenda (1981-1988) and policy adoptions in the states during the Reagan administration. In doing so, this dissertation tests the theoretical possibility that public policy diffuses from the state to the national level, a theory that challenges the traditional depiction of policy diffusion as an exclusively top-down process. Results of event history analyses, along with Granger causal analysis based on both pooled regression models and vector autoregression, indicate that both the relative liberalism of state policy and the extent to which states adopted policy innovations had a significant impact on Reagan’s policy liberalism and policy agenda, while presidential influence on state policy adoptions was virtually nonexistent. These findings suggest that scholars should broaden the scope of studies of national politics to include the potential influence of states in a federal system. INDEX WORDS: Policy diffusion, Policy change, Policy agenda, State politics, State policy, Ronald Reagan, Presidential rhetoric NATIONAL AND STATE DIMENSIONS OF MAJOR POLICY CHANGE: THE REAGAN “REVOLUTION” REEXAMINED by HOLLEY ELIZABETH TANKERSLEY B.A., Birmingham-Southern College, 1999 M.P.P., Georgetown University, 2002 A Dissertation Submitted to the Graduate Faculty of The University of Georgia in Partial Fulfillment of the Requirements for the Degree DOCTOR OF PHILOSOPHY ATHENS, GEORGIA 2006 © 2006 Holley Elizabeth Tankersley All Rights Reserved NATIONAL AND STATE DIMENSIONS OF MAJOR POLICY CHANGE: THE REAGAN “REVOLUTION” REEXAMINED by HOLLEY ELIZABETH TANKERSLEY Major Professor: Arnold Fleischmann Committee: Paul-Henri Gurian Audrey A. Haynes Jeffrey L. Yates Electronic Version Approved: Maureen Grasso Dean of the Graduate School The University of Georgia August 2006 DEDICATION This dissertation is dedicated to my parents, Randy and Johnnie Tankersley. In memory of my grandparents: R.J. and Lillian Holley and Saul and Gara Tankersley. And for Uncle Bill: in the fulfillment of a promise I made a long time ago iv ACKNOWLEDGEMENTS As I near the end of my time as a graduate student, I find myself indebted to numerous individuals. While I can never fully express my appreciation for the support and guidance that so many have willingly provided, there are several people who deserve special acknowledgement. First, I must thank Dr. Natalie Davis and Dr. Bob Slagter, who introduced me to political science at Birmingham-Southern College. Without Bob, I would not have found my passion for government and politics, and would likely have been a lackluster pre-med major. Natalie believed in my intelligence and ability; she coaxed them out of me and helped me to grow in both knowledge and confidence. Thank you, Natalie and Bob, for your continued support, encouragement, and advice as I continue to journey through academia. My years at Georgetown University were made special by a number of mentors, but none impacted my choice of career more than Dr. Leslie Whittington. Leslie truly cared about three things: her family, her students, and making government work for those who need its help the most. She managed these three loves seamlessly, sharing her dedication with everyone around her. Her life, along with the lives of Charles, Zoe, and Dana, was cut tragically short on September 11, 2001. The memory of her love for life and dedication to the care of others remains an example for the type of professor, policymaker, mother, and friend that I hope to be. I have been blessed with a wealth of good friends; I have reached this point in my life because of the pieces of them that I take with me each day. Cammie Snowden has supported and v encouraged me at the most critical times in my life; she personifies strength and grace, and I am lucky to call her my oldest friend. Lisa Sperling has been my cheering section and my example of what a good friend should be; her friendship is one of the most valuable things I will take away from UGA. Thanks to Ben Moncrief, Troy Covington, and Alex Jones, who challenged my intellectual, debate, and dancing skills during our years at BSC; I would not have come out of my shell without you! Georgetown would not have been the same without Alicia Butler, Sinead Keegan, Maureen Lawless, John Gossart, John McInerney, Steve and Kyndel Winkates, and Eric Dahlberg (bless his heart, he can’t help it!). Thanks, y’all, for hours studying quant in the computer lab (proc freq!), dinners of chicken madness, and nights spent at the Tombs. I truly “grew up” in college, and the nine ladies who grew up with me have become my closest confidants and support system. They have believed in me even when I doubted myself, and they have allowed me to become the person I am today. We all lived together during our undergrad years and have never separated in spirit even though we are now all living throughout the country. A very special thanks to the ladies who comprise the “Core Four”: Chelsea Hull Larson, Dr. Heather Phillips, and Dr. Annette Bitto. Thanks for cinnamon sticks, bleeding towels, naked rooms, band parties, tears, laughter, and taking care of me after that unfortunate incident at the Pop & Ecosystems final exam. You are my heart! My success as a student at UGA would not have been possible without Geneva Bradberry and Heather Roberts. You have kept me going mentally, emotionally, and physically. I could not have made it through without your hugs, encouragement, and prayers. A world of thanks to my Dissertation Committee members: Drs. Audrey Haynes, Paul Gurian, and Jeff Yates. This group of individuals has never failed to trust my ability as a scholar; they have always allowed me to approach my work as I saw fit. Audrey – thanks for the vi encouragement; from my first day at UGA you have given me positive energy and faith in my potential as a political scientist. Paul, you constantly remind me that great scholars can also be great teachers and caring, nurturing individuals. I have learned the ins-and-outs of this profession because Jeff Yates has taken the time to teach me; thanks, Jeff, for being instrumental in my ongoing transition from graduate student to professional and for helping me to develop my research skills. Dr. Arnold Fleischmann has been an enormous influence on my education and career path. He has kept me motivated, disciplined, organized, and grammatically proper for four years. Every graduate student should be lucky enough to have someone like Arnie in her corner. He has been an unfailing supporter, advocate, and friend. His quiet belief in my potential has kept me going during the most trying parts of graduate school. I can only hope that I will earn even a small portion of the respect that I have for him. Arnie, it has been a joy working with you; I will miss you dearly. My big sister, Sharon Tankersley Wright, is a beautiful, brilliant, gracious woman. She and my brother-in-law, Jimmy Wright (AKA: Dr. Feelings) have been my own personal pep squad for many years. They have made me laugh during the tough times, given me good advice, and loved me unconditionally. They have also shared with me two bundles of love and laughter: Emma and Tank, I want you to know that you can do anything you want to do in life. Aunt Holley will be right behind you! I have learned a lot about life, love, and personal growth from my aunt, Glenda Tankersley. She has always given me a kick in the pants when I needed it most. She is my second Mom. Our bonds were strengthened by crisis and grief, but we have never looked back. vii Aunt Glenda, I may be walking through the valley of the shadow of death, but I’m not stopping, and I sure ain’t pitching a tent! To my parents, Randy and Johnnie Tankersley: words will never be enough. You instilled in me a devotion to faith, family, and friends that has served me well throughout the years. Your personal dedication to education was the catalyst for my own insatiable curiosity, and it created in me a drive to succeed and achieve. Seeing your selfless compassion and concern for others led me to study public policy in the hopes of finding real solutions for the everyday problems of all people, no matter what race, color, creed, or economic status.
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