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Information to Users INFORMATION TO USERS This manuscript has been reproduced from the microfilm master. UMI films the text directly firom the original or copy submitted. Thus, some thesis and dissertation copies are in typewriter fitce, while others may be fi-om 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 numuscript 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 comer and continuing from left to right in equal sections with small overlaps. Each orignal 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 ai^ photographs or illustrations appearing in this copy for an additional charge. Contact UMI directly to order. UMI A Bell A Howell Infimnation Compaiqr 300 North Zeeb Road, Ann Art»r MI 48106-1346 USA 313/761-4700 800/521-0600 UNIVERSITY OF OKLAHOMA GRADUATE COLLEGE COPING WITH LIMITS: RESPONDING TO REFORM IN OKLAHOMA A Dissertation SUBMITTED TO THE GRADUATE FACULTY in partial fulfillment of the requirements for the degree of Doctor of Philosophy By RICK FARMER Norman, Oklahoma 1998 UMI Nusdber: 9905609 Copyright 1998 by Farmer, Rick D. All rights reserved. UMI Microform 9905609 Copyright 1998, hy UMI Company. All rights reserved. This microform edition Is protected against unauthorized copying under Title 17, United States Code. UMI 300 North Zeeb Road Ann Arhor, MI 48103 O Copyright by RICK FARMER 1998 All Rights Reserved. COPING WITH LIMITS: RESPONDING TO REFORM IN OKLAHOMA A dissertation APPROVED FOR THE DEPARTMENT OF POLITICAL SCIENCE BY \ ACKNOWLEDGMENT Writing a dissertation requires the help of many people. In particular I would like to thank my dissertation committee- Dr. Gary Copeland. Dr. Ralph Hummel, Dr. David Ray, Dr. Lucinda Rosenthal, and Dr. Wil Scott- for its feedback and encouragement. This work was truly a collaborative effort between my committee chair. Dr. Copeland, and myself. Without his confidence, assistance, and patience, I would have never achieved this goal. Several people contributed much appreciated editorial comments to this manuscript including: Dr. John Green, Dr. Chris Banks, Dr. Jan Vermeer, Dr. Steve Brooks, Michelle Henry, Brad Putnam and Virginia Farmer. Three Political Science faculty who did not serve on my graduate committee need special recognition. Dr. Brian Rader at Northeastern State University in Tahlequah set me on this path and encouraged my every step. Dr. Jon Hale taught me much about the connection between practical politics and political studies, and helped me gain valuable publishing experience. Dr. Harry Holloway was an instructor who trained both of them, therefore he was something of an intellectual grandfather to me. Best of all, like most grandfathers, he is a friend. The financial support that I received from the department, the graduate college, and the Science and Public Policy Program made this endeavor possible. I am especially grateful to Dr. Rajeev Gowda and Dr. Mark Meo for the iv years.of financial support and research experience they granted me. A dissertation about the state legislature would not be possible without the help of a number of people at the State Capitol. In particular. I appreciate the help of my legislators from Tahlequah- Senator Herb Rozell, Representative Bob Ed Culver, Representative Larry Adair- and Norman- Senator Cal Hobson, Senator Irish Weedn, and Representative Laura Boyd. These members welcomed me into their offices, took time to help me, and opened doors with other members for me. No graduate research experience would be complete without the commiseration of fellow graduates. I was lucky to have many friends with whom to share this experience. I especially appreciate having shared an office with Jeff Fox, and the research collaborations in which we have engaged. I also appreciate the opportunity to share ideas with my neighbor, classmate, and friend, Nathalie Gagnere. I trust these and other relationships fostered at O.U. will prove to be lifelong friendships. Of course, graduate school requires considerable femily sacrifice. For their encouragement and patience, I appreciate my wife Marjean and my son Nathan. Hopefully, as we share in the rewards of this effort, they will know that it was worth it. Finally, I would like to thank my parents Troy and Virginia Farmer for believing in me. TABLE OF CONTENTS ACKNOWLEDGMENTS ..................................................................................... Iv ABSTRACT ........................................................................................................... ix Chapter 1. INTRODUCTION ..................................................................................... 1 Overview of This Research Research Questions Hypotheses The Oklahoma Case Data and Methods Research Nexus State Legislatures Legislative Motivation Term Limits Legislative Reform Dynamic Model of Legislative Reform Chapter Highlights Conclusion Notes 2. UNDERSTANDING THE LEGISLATIVE PROCESS ......................... 27 State Legislative Studies Historical Overview Organization of the Oklahoma Legislature Oklahoma's Changing Political Environment How a Bill Becomes a Law; Legislation 101 Rules Traditions Conclusion Notes 3. MEMBERSHIP CHARACTERISTICS AND PREFERENCES .......... 61 Characteristics Ambitions Priorities Position Background Legislative Orientation Seniority Preferences Leadership Selection Method Power Distribution Leadership Qualities Conclusion Notes 4. TESTING THE CONNECTION BETWEEN CHARACTERISTICS AND LEGISLATIVE STRUCTURE PREFERENCES ................................. 92 Legislative Reform Dynamic Theoretical Model Mapping the Effects Bivariate Data Analysis Leadership Selection Distribution of Power Leadership Qualities Multivariate Data Analysis Multivariate Leadership Selection Multivariate Power Distribution Multivariate Leadership Qualities Principle Findings in Context Conclusion Notes 5. EFFECTS OF TERM LIMITS IN THE CURRENT MEMBERSHIP ......................................................................................... 148 Historical Roots of Term Limits Modem Legislative Term Limits Modem Term Limits Research Changing Demographics Effect of Term Limits on Members' Preferences Bivariate Analysis of Seniority and Dependent Variables Multivariate Analysis Seniority and Independent Variables Principle Findings in Context Effect of Term Limits Conclusion Notes 6. IMPLICATIONS ...................................................................................... 183 Legislative Reform Legislators' Motivation Term Limits Composition of the Oklahoma Legislature The Oklahoma Legislative Process Research Questions Coping With Limits in Oklahoma Conclusion Contribution REFERENCE LIST ............................................................................................. 210 Appendix 1. OKLAHOMA BALLOT INITIATIVE STATE QUESTION 632 217 2. INTERVIEWS AND OBSERVATIONS ............................................... 218 3. SURVEY OF MEMBERS OF THE OKLAHOMA HOUSE OF REPRESENTATIVES ............................................................................ 220 4. MEMBERS OF THE 46™ OKLAHOMA LEGISLATURE AND YEARS OF SERVICE .................................................................. 224 ABSTRACT As term limits were sweeping the country in the early 1990's, academics and pundits were speculating about the effects term limits would have on state legislatures. They could do little more than speculate, because most of the effects were still in the distant future. This dissertation is an early attempt to move beyond speculation and address, with empirical data, how legislative institutions are being affected by term limits. The study brings together several lines of research; state legislatures generally, legislative reform, legislators' motivations, and term limits. Each of these literatures contribute to the development of a theoretical model of legislative reform. The results of this study inform and in some cases challenge the previous work that has been done in these areas of research. The model of legislative reform posited here include internal factors like: members’ characteristics, professionalism, and intemal political culture. It also include extemal influences like: the constitution, the states’ traditional political culture, the current political environment, and the length of the term limits. Hypotheses were derived from the general theory that members seek to fulfill their ambitions within the workings of the legislature. Since members control the structure of the legislature, if they are unable to accomplish their goals within the current structure they will "twist if' until they can. Links between IX members’ motivations and other characteristics with their preferences toward legislative structure are tested, looking for changes that have occurred since term limits were imposed. Using Oklahoma as a case study controlled for the
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