University of Kentucky UKnowledge University of Kentucky Doctoral Dissertations Graduate School 2005 POWER, POLITICS, AND THE 1997 RESTRUCTURING OF HIGHER EDUCATION GOVERNANCE IN KENTUCKY Michael Allen Garn University of Kentucky Right click to open a feedback form in a new tab to let us know how this document benefits ou.y Recommended Citation Garn, Michael Allen, "POWER, POLITICS, AND THE 1997 RESTRUCTURING OF HIGHER EDUCATION GOVERNANCE IN KENTUCKY" (2005). University of Kentucky Doctoral Dissertations. 353. https://uknowledge.uky.edu/gradschool_diss/353 This Dissertation is brought to you for free and open access by the Graduate School at UKnowledge. It has been accepted for inclusion in University of Kentucky Doctoral Dissertations by an authorized administrator of UKnowledge. For more information, please contact [email protected]. ABSTRACT OF DISSERTATION Michael Allen Garn The College of Education University of Kentucky 2005 POWER, POLITICS, AND THE 1997 RESTRUCTURING OF HIGHER EDUCATION GOVERNANCE IN KENTUCKY ABSTRACT OF DISSERTATION A dissertation submitted in partial fulfillment of the requirements for the degree of Doctor of Philosophy in the College of Education at the University of Kentucky By Michael Allen Garn Lexington, Kentucky Director: Dr. Susan J. Scollay, Associate Professor of Education Lexington, Kentucky Copyright © Michael Allen Garn 2005 ABSTRACT OF DISSERTATION POWER, POLITICS, AND THE 1997 RESTRUCTURING OF HIGHER EDUCATION GOVERNANCE IN KENTUCKY This study describes the policymaking process and policy solutions enacted in the Kentucky Postsecondary Improvement Act of 1997 (or House Bill 1). The study employs both an historical recounting of the “story” of House Bill 1 and a narrative analysis of opinion-editorials and policymaker interviews to reveal and explain how political power comprised both the perennial problem of Kentucky’s higher education policymaking – and the tool with which conflicts over power distribution were resolved. The study uses three theoretical frameworks (the Multiple-Streams, Punctuated-Equilibrium, and Political Frame) to explore the rise of restructuring on Kentucky’s policymaking agenda, its most contentious issue (separation of community college governance from the University of Kentucky), and how the conflict engendered by this issue was resolved. Use of rigorous investigative methods and theoretical frameworks resulted in understandings of not only what drove the policymaking effort but also the strategies that enabled the initiative to rise on Kentucky’s policymaking agenda and to be enacted. The study concludes: (1) the presence of a policy entrepreneur increases the likelihood of a strong change effort (and to its success if that entrepreneur is the governor); (2) issue definition, or redefinition, is key to reform efforts; and (3) while prior higher education policy studies and K-12 reform may soften up and prepare the policy community for discussions of reform, they have not been shown to affect the proposal development or enactment phases of a higher education restructuring initiative. Additional insights emerged from looking at the Kentucky case, informed by those of Kentucky Education Reform Act (KERA) before it, and of similar initiatives in Ohio and Illinois. This review suggests: 1. The impetus and leadership for significant change to a higher education system will likely arise externally versus internally 2. Redefining the issues of higher education in a way that changes participant’s perspectives and positions is an important factor in building support and opposition to an initiative. 3. Restructuring efforts, either intentionally or unintentionally, will ultimately have to address perceived and/or real power imbalances among institutions and between institutions and state agencies. 4. Redistributing power within a higher education system constitutes a change, but not necessarily an improvement to the system. The study concludes that opportunity data, research, and rational arguments to inform policy development from academia to inform and influence elected officials occurs very early in the start of a reform initiative – or even years prior. It also finds the opportunity for influence diminishes as debate over policy alternatives and enactment increases. This suggests reluctance on the part of academia to include elected officials in the issues of the campus may reduce opportunities for data, research and rational arguments to influence the opinions, policies, and decisions of elected leaders. The study recommends: (1) that academia should become more engaged, on a substantative and continuing level, with elected leaders, and (2) that researchers focus on how elected leaders form their ideas on higher education and how these influence and result in policy and political positions. KEYWORDS: Governance Restructuring, Higher Education, Policymaking, Postsecondary Education, Reform Michael Allen Garn May 6, 2005 POWER, POLITICS, AND THE 1997 RESTRUCTURING OF HIGHER EDUCATION GOVERNANCE IN KENTUCKY By Michael Allen Garn Susan J. Scollay, Ph.D. Director of Dissertation Richard Angelo, Ed.D. Director of Graduate Studies May 2005 RULES FOR THE USE OF DISSERTATIONS Unpublished dissertations submitted for the Doctor’s degree and deposited in the University of Kentucky Library are as a rule open for inspection, but are to be used only with due regard to the rights of the authors. Bibliographical references may be noted, but quotations or summaries of parts may be published only with the permission of the author, and with the usual scholarly acknowledgments. Extensive copying or publication of the dissertation in whole or in part also requires the consent of the Dean of the Graduate School of the University of Kentucky. A library that borrows this dissertation for use by its patrons is expected to secure the signature of the user. DISSERTATION Michael Allen Garn The College of Education University of Kentucky 2005 POWER, POLITICS, AND THE 1997 RESTRUCTURING OF HIGHER EDUCATION GOVERNANCE IN KENTUCKY DISSERTATION A dissertation submitted in partial fulfillment of the requirements for the degree of Doctor of Philosophy in the College of Education at the University of Kentucky By Michael Allen Garn Lexington, Kentucky Director: Dr. Susan J. Scollay, Associate Professor of Education Lexington, Kentucky Copyright © Michael Allen Garn 2005 To my grandmother Eva Bauer, who taught me it was okay to create, to my mother and father Phyllis and Rex Garn, who taught me everything, to my wife Dawn who gave me everything, and to my daughter Zoe who taught me life is about more than writing a dissertation. ACKNOWLEDGMENTS This dissertation, while an individual work, benefited from the insights and direction of several people. Miss Jones, my kindergarten teacher, who inspired me to learn (sorry about sticking that pin in your hand); Mrs. Corning, my 7th grade science teacher, who gave me an “A” for my report on Richard Wagner the German composer even though I was supposed to look-up Richard Wagner the English inventor; Mrs. Hulett, my junior high creative writing teacher, who taught me to love writing; A.V. Williams, my junior high journalism teacher, who taught me writing had rules, and might have done well to supervise more of my time in the school darkroom; Wayne Piper, advisor to my high school literary magazine, who inspired us more than our parents appreciated; Miss Jeanette Mason, my high school theater teacher, for letting me follow my instincts; Dr. Joe Dionne, my college Freshman Composition instructor who rewarded creativity over substance; Dr. Cass Gentry, my Masters advisor at Michigan State University, who helped me learn the ropes; Dr. Margaret Holt at the University of Georgia who got me started on this doctoral quest, Jim Wolf, and Bob Hart, also of Georgia, who also supported me; to Gary Cox who helped me feel a part of the “reforms;” to Governor Breathitt for his time and reflection (that will be missed); to Ed Ford, Crit Luallen, and Governor Patton who accepted my repeated visits with grace and candor; and my doctoral committee – Dr. Virginia Nordin who came to my committee late and left early; Dr. John Thelin who challenged me early and left late; Dr. Steve Clements whose enthusiasm encouraged me and whose counsel I depended upon; Dr. Terry Birdwhistell without whom I would have never continued; Dr. Beth Goldstein who taught me ownership and responsibility for my work; and finally, to Dr. Susan Scollay who embraced my naiveté early, whom I choose to believe was laughing with me as I waxed eloquent on innovation in higher education, and who told me this was really going to be fun – and was never wrong. iii TABLE OF CONTENTS CHAPTER ONE: INTRODUCTION ...........................................................................................1 Overview of the study .................................................................................................................1 Description of the study .............................................................................................................2 Identity, bias, and terms ..............................................................................................................6 Power and politics........................................................................................................................8 CHAPTER TWO: HISTORY & LITERATURE..........................................................................9 Governance of higher education ...............................................................................................9