Showing papers in "Policy Studies Journal in 2010"

A Narrative Policy Framework: Clear Enough to Be Wrong?

Abstract: Narratives are increasingly subject to empirical study in a wide variety of disciplines. However, in public policy, narratives are thought of almost exclusively as a poststructural concept outside the realm of empirical study. In this paper, after reviewing the major literature on narratives, we argue that policy narratives can be studied using systematic empirical approaches and introduce a “Narrative Policy Framework” (NPF) for elaboration and empirical testing. The NPF defines narrative structure and narrative content. We then discuss narrative at the micro level of analysis and examine how narratives impact individual attitudes and hence aggregate public opinion. Similarly, we examine strategies for the studying of group and elite behavior using the NPF. We conclude with seven hypotheses for researchers interested in elaborating the framework.

Beyond Subsystems: Policy Regimes and Governance

Abstract: We suggest attention to policy regimes provides a fruitful means for joining the contributions of scholars who study policy processes with those who are concerned with governance challenges. Our research synthesis underscores the limits of existing theorizing about policy processes for problems that span multiple areas of policy and highlights the prospects for and limitations of governing beyond the boundaries of subsystems. We suggest new avenues for theorizing and research in policy processes based on the concept of a boundary-spanning policy regime. We develop notions about this type of policy regime within the context of the broader literature about regimes in political science, discuss the forces that shape the strength and durability of such regimes, and provide a variety of examples. This synthesis challenges the focus of policy process scholars on subsystems and broadens the traditional focus on policymaking to consideration of the dynamics of governing.

Understanding Local Policymaking: Policy Elites' Perceptions of Local Agenda Setting and Alternative Policy Selection

Abstract: Despite the increasing interest in policy agenda research in recent years, very few studies have focused their attention on the relevant processes at the local level. Drawing on agenda-setting research, particularly Kingdon's multiple-streams framework, this study examines the key forces and factors, as well as their relative importance, in local agenda setting, problem identification, and alternative policy selection. Data are collected from 271 in-depth interviews with local policy stakeholders in three U.S. Gulf Coast areas. Interview materials are coded using a protocol focused on capturing stakeholders' perceptions of the key elements and forces in local policy dynamics. Our interview data indicate that (i) governmental actors and various interest groups have relatively more influence in shaping local agendas than the general public, experts, and election-related actors, while the mass media are found to have little agenda-setting power in local policy processes; (ii) budgetary consideration and various forms of feedback to local government are more important than objective problem indicators and focusing events in setting local policy priorities; (iii) policy alternatives that are deemed compatible with existing policies and regulations are more likely to be selected than those relying on other criteria such as technical feasibility, value acceptability, and future constraints; and (iv) consensus and coalition building is perceived as the most important political factor in local policy processes. Limitations of our study and recommendations for future research are discussed in the concluding section.

Participation in Policy Streams: Testing the Separation of Problems and Solutions in Subnational Policy Systems

Abstract: The multiple streams theory of national policymaking has been influential in the study of public administration and public policy—if not without a fair bit of controversy. While some laud the model for its openness to the important role of policy entrepreneurs and the irrationalities of the decision-making processes, others criticize the model for its lack of readily testable propositions. This article identifies a series of testable propositions in the multiple streams model (particularly that discussed by Kingdon). We assess whether participation in local policymaking (focusing on school district policymaking related to violence prevention) is characterized by “separate streams” of participants or is dominated by organized participants like interest groups or policy specialists. We found evidence of unity (rather than separation) in the policymaking process and scant evidence of elite, organized interests dominating the policymaking process. The results call into question a key assumption of the multiple streams model.

Shifting Winds: Explaining Variation in State Policies to Promote Small-Scale Wind Energy

Abstract: States have increasingly taken leading roles in U.S. environmental policymaking over the past two decades. As laboratories of democracy, states have developed different levels and mixes of policies to address climate change, nonpoint source pollution, alternative energy, and other challenging environmental issues. Policy scholars have sought to explain variation in state environmental policy through two primary theoretical lenses: internal determinants and regional diffusion. While our understanding of state environmental policy adoption has grown to identify which variables are most important, less is known about how these variables interact in particular states to influence policy adoption. This study examines the interactions of variables from both theories to explain how state policies for small-scale wind energy promotion were adopted in three U.S. states. Our results highlight the nuanced role of citizen ideology, which may be important in contexts at either end of the ideological spectrum but less important in the middle—where economic development is more critical. Results also indicate that interstate competition may be over environmental as well as economic leadership. Interestingly, strength of the wind resource is not necessarily correlated with policy adoption for small-scale wind energy promotion.

Head Start's Comparative Advantage: Myth or Reality?

Abstract: In recent years, Head Start's prominent role in preparing low-income 4-year-olds for school has been affected by rapid growth in state-funded pre-K programs, some of which are based in public schools This has led to questions about the comparative advantages of these two approaches to early education An analysis of data from Tulsa, Oklahoma, indicates that the school-based pre-K program is more effective in improving early literacy outcomes, while Head Start is more effective in improving health outcomes The two programs are comparable with regard to early math learning Social–emotional effects are more subtle, but the school-based pre-K program has demonstrable positive effects, while the Head Start program does not

Are Members of Business for Social Responsibility More Socially Responsible

Abstract: This study examines the association between corporate social performance (CSP) practices and membership in Business for Social Responsibility (BSR) between 1992 and 2006. BSR is a business association that seeks to help its members adopt enhanced CSP practices. While there is an emerging literature examining voluntary initiatives as alternative policy mechanisms to regulations, most research is focused on initiatives that emphasize environmental protection. Further, studies suggest that membership in strictly voluntary initiatives tends to be associated with lower environmental performance because of “free-riding” behavior by participants. BSR differs along two dimensions when compared with other voluntary initiatives examined in the literature. First, it is a comprehensive voluntary social initiative that helps firms from diverse industries address multiple CSP issues simultaneously. Second, it might limit opportunism by not offering blanket certification to its participants. Our results indicate that BSR members exhibit greater levels of positive social impacts without demonstrating significantly different levels of negative social impacts. This suggests that participation in voluntary initiatives that avoid granting blanket certifications may be associated with the adoption of new corporate social responsibility practices but not linked to the shedding of entrenched routines that produce negative externalities.

Local Media and Experts: Sources of Environmental Policy Initiation?

Abstract: Research on the process of policy change often involves a direct or indirect analysis of the roles of policy entrepreneurs and the mass media. In Colorado, beginning in 1998, twelve communities decided to obtain water rights for recreational in-channel purposes such as kayaking and whitewater rafting. These water rights stirred political controversy within some communities in Colorado related to spending public money, appropriate uses of water, and the role of recreation in local economies. Using a comparative case study research method, this research analyzes the role that policy entrepreneurs and local media coverage of recreational water rights played in initiating policy change in local communities. The most critical finding from this study is that in communities where citizens acted as policy entrepreneurs there was more controversy, less positive media coverage, and more media coverage early in the process. This case contradicts the assumption that local media coverage helps to highlight policy problems within communities. It supports the idea that experts wield higher levels of influence than citizens in promoting policy agendas.

Greening America's Skylines: The Diffusion of Low‐Salience Policies

Abstract: The diffusion literature is replete with examples of highly salient policies spreading across subnational governments. However, low-salience policies that do not benefit from a groundswell of public opinion also spread across jurisdictions in patterns that appear similar to those of other, more well-known policy ideas. This research is an investigation of the mechanisms that propagate low-salience policies. I analyze the adoption of the U.S. Green Building Council's (USGBC) Leadership in Energy Efficient Design standard across 119 U.S. cities from 2000 to 2008. The investigation indicates that a knowledge broker, in this case the USGBC, occupies critical roles in linking a low-salience policy to a broader set of widely held societal values, developing a common policy vocabulary, providing a base policy that jurisdictions may freely adapt, and creating a diffusion infrastructure by acting as a communication hub for existing and interested jurisdictions to discuss innovations and progress.

Evaluating Comanagement for Social‐Ecological Fit: Indigenous Priorities and Agency Mandates for Pacific Walrus

Abstract: Governance arrangements such as comanagement are regarded by many as promising arenas for effective natural resource management. However, measuring comanagement's success at achieving conservation goals has been equivocal. Our research evaluates the lack of conclusive outcomes through a critical consideration of how different goals and values inherent in comanagement affect the institutional (or policy) diagnostic of “fit.” More narrowly, sustaining natural resources requires that management policies foster fit between the scales of sociopolitical processes governing resource use and the scales of ecological processes regulating a resource. Without a process that encourages such harmonization, theoretical and empirical evidence suggests that comanagement regimes are unlikely to accomplish long-term conservation goals. We use a case study of walrus comanagement under the U.S. Marine Mammal Protection Act to demonstrate that when the formal institutions preconditioning comanagement do not develop out of a deliberative process among comanagement partners, two major problems can arise: (i) Policy institutions mismatch ecological and social processes relevant to resources and communities; and (ii) data to assess the fit of institutions and support learning is more difficult to acquire. In our case study, both these factors constrain the ability of comanagement to foster walrus conservation or support the capacity of Native Alaskans to adapt to contemporary social and environmental conditions. Our research concludes that to achieve marine mammal conservation, previous institutional arrangements framing comanagement that are predicated on static conceptions of people and ecosystems must be redesigned to provide better policy fit across local to international priorities. To do so requires opening up deliberative spaces, where Western science and priorities are confronted with indigenous perspectives. However, the benefit of enhancing deliberation carries risks and costs related to trade-offs between the values of democratic process, and protections for both wildlife species and indigenous groups.

Educating Citizens or Defying Federal Authority? A Comparative Study of In‐State Tuition for Undocumented Students

Abstract: Recent years have witnessed a proliferation of state government policies addressing immigration-related issues. This article addresses an example of state policy regarding immigration: since 2001, 11 state legislatures have granted undocumented high school graduates in-state tuition status should they wish to attend public post-secondary schools, while 18 others have considered, and rejected, the same policy. We argue that these outcomes are largely explicable by the manner in which the policy is presented and debated within state legislatures, especially the terms in which policy targets are socially constructed and state jurisdictional authority is framed. We apply this framework to two states (Kansas and Arkansas) that, in spite of demographic institutional similarities, reached different outcomes on in-state tuition bills. The different outcomes can be traced to the manner in which policy deliberations in Kansas focused on positive evaluations of undocumented high school students, portraying them as “proto-citizens,” while in Arkansas debate became centered on the state's jurisdictional authority to enact such a policy, an issue frame that effectively killed the legislation. This article suggests the importance of both social constructions and issue framing when state legislatures become the lead actors in crafting immigration policies.

Governance, Policy Innovation, and Local Economic Development in North Carolina

Abstract: This article examines the extent to which local governments in North Carolina embrace innovation in their economic development activities. The study makes a distinctive theoretical contribution by examining the relationship between innovation in how economic development policies are administered and implemented (using concepts associated with governance and NPM), and innovation in what is substantively done (policy innovation). An analysis of the results from a statewide survey of local governments in North Carolina finds that certain governance/management variables are significant determinants of economic development policy innovation. An implication of this finding is that new ways of doing economic development may go hand-in-hand with new ways of governing and managing. Many of the governance/management variables are also positively associated with the use of a greater number of traditional economic development strategies and tools. This suggests that local governments may find it helpful to be innovative in how they implement economic development irrespective of the substantive policy orientation of particular strategies and tools.

Land Recycling, Community Revitalization, and Distributive Politics: An Analysis of EPA Brownfields Program Support

Abstract: This article examines social, economic, and political factors influencing the distribution of resources to local governments under the EPA Brownfields Program, an innovative federal effort to encourage the remediation and redevelopment of contaminated properties. Signed into law in 2002, the Small Business Liability Relief and Brownfields Revitalization Act provided the program with a congressional mandate, new tools to promote reuse such as liability protections, and increased funding up to a level of $250 million per year. This article contributes to research on environmental regulatory reform with an analysis of successful and unsuccessful local government applicants for EPA Brownfields Program support between 2003 and 2007. Building on prior research, we develop a series of expectations and an empirical model, and estimate the influence of program priorities, government and civic capacity, interest group pressures, and institutional politics. Results point to significant relationships between program priorities and award patterns. Contrary both to EPA's explicit commitments to equity and to analysis of pre-2003 award patterns, however, we find negative correlations between the proportions of local populations that are nonwhite or low-income and the likelihood of receiving an award. In addition, better-resourced governments and several dimensions of political representation show strong associations with the likelihood of winning awards. We conclude by discussing implications.

Assessing Measures Designed to Protect the Homeland

Abstract: Some general parameters are proposed for evaluating homeland security measures that seek to make potential targets notably less vulnerable to terrorist attack, and these are then applied to specific policy considerations. Since the number of targets is essentially unlimited, since the probability that any given target will be attacked is near zero, since the number and competence of terrorists is limited, since target-selection is effectively a near-random process, and since a terrorist is free to redirect attention from a protected target to an unprotected one of more or less equal consequence, protection seems to be sensible only in a limited number of instances.

Election Administration Reform and State Choice: Voter Identification Requirements and HAVA

Abstract: This research examines factors that have influenced state choices about methods of voter identification practices in the current environment of election administration reform. State voter identification practices have been an active area of state policy action since 2000. Rival explanations for state adoption of voter identification requirements are analyzed for three national election cycles following the 2000 presidential election. State voter identification practices are classified according to levels of relative stringency and in terms of variation from federal requirements for voter identification under the Help America Vote Act of 2002. State decisions to adopt more stringent forms of voter identification are significantly influenced by intrastate factors including Republican Party control of state government, traditionalist state political culture, and greater levels of racial/ethnic diversity. Federal review of election practices under the Voting Rights Act is positively associated with more moderate approaches to voter identification but is not significant over this time period.

Policy Change and Policy Stasis: Comparing Swiss Foreign Policy toward South Africa (1968–94) and Iraq (1990–91)

Abstract: This article investigates how concepts from the field of public policy, in particular the Advocacy Coalition Framework (ACF) initially introduced by Sabatier and Jenkins-Smith, can be applied to the study of foreign policy analysis. Using a most similar comparative case studies design, we examine Switzerland's foreign policy toward South Africa under apartheid for the period from 1968 to 1994 and compare it with the Swiss position toward Iraq after the Iraqi invasion of Kuwait in 1990, when the Swiss government imposed—for the first time—comprehensive economic sanctions against another state. The application of the ACF shows that a dominant advocacy coalition in Swiss foreign policy toward South Africa prevented a major policy change in Swiss–South African relations despite external pressure from the international and national political levels. Actually, quite the opposite could be observed: Swiss foreign policy increased its persistence in not taking economic sanctions against the racist regime in South Africa during the 1980s and early 1990s. The ACF, with its analytical focus on policy subsystems and the role of external shocks as potential triggers for change, provided a useful framework for analyzing the factors for policy change and stasis in Swiss foreign relations toward the selected two countries.

Arenas of power in climate change policymaking.

Abstract: This article investigates the potential linkage between particular policy design ideas and distinctive patterns of politics and power relations. The research examines a sequence of four cases involving the use of the cap-and-trade policy design principally to combat global climate change through the reduction of greenhouse gas emissions. Through the lens of arenas of power framework, the comparative case analysis suggests the existence of consistent linkages between particular cap-and-trade design ideas, and distinct patterns of political conflict and empowerment. The article concludes with a brief consideration of what the findings suggest about the national politics of climate change policymaking in the United States in the near term, and more important, an assessment of the implications for the further development and refinement of policy theory.

Aboriginal Performance on Standardized Tests: Evidence and Analysis from Provincial Schools in British Columbia

Abstract: Many indigenous populations are experiencing rural-to-urban migration. In making this transition, indigenous peoples are entering industrial societies where most income derives from wages or salaries, and formal educational achievement is crucial in determining economic prospects. This research analyzes the gap in test score results between Aboriginal and non-Aboriginal students in public schools in the Canadian province of British Columbia. It finds a strong effect of school quality, as measured by non-Aboriginal achievement, on Aboriginal achievement. It also finds a nonlinear negative relationship between Aboriginal achievement and the number of Aboriginal students in a school over the empirically observed range. It thus suggests a possible trade-off and dilemma between, on the one hand, policies that enable Aboriginal students to concentrate in a few schools able to provide a culturally sensitive curriculum and, on the other, policies to maximize Aboriginal academic achievement.

Policy Feedback and Preschool Funding in the American States

Abstract: The early childhood education policy community has been described as a “divided constituency” in which groups with the same underlying goals sometimes work at cross purposes. This article examines how this internal division affects the contemporary funding of preschool education. It finds that states with a relatively large Head Start community are significantly more likely not to fund preschool education and significantly less likely to dedicate preschool funding exclusively to a freestanding state program. These results suggest that the creation and political solidification of Head Start generated policy feedback. They contributed to an ongoing tension within the early education community as Head Start beneficiaries viewed the creation of a freestanding preschool program as a political threat. This political dynamic illustrates the more general way in which the existence of a public policy can alter the dynamics of future political action.

Building the Reservoir to Nowhere: The Role of Agencies in Advocacy Coalitions

Abstract: The purpose of the advocacy coalition framework is to explain policy change over time through an examination of the stability of advocacy coalitions within policy subsystems. Recently, scholars have confirmed that advocacy coalitions are held together by shared belief systems, specifically in distributive policy arenas. We contend that federal agencies, in distributive policy arenas, provide both the anchors and support systems for the development and maintenance of belief systems. This anchoring helps provide adequate resources, access to political institutions, ability to control administrative process, and/or the capacity to deliver public goods and services. We conducted an analysis of the policy changes that occurred during the implementation of the National Environmental Policy Act for the construction of the Bureau of Reclamation’s Animas-La Plata project. This is an example where administrators, through the management of information, were able to control the policy process. The analysis provides a needed replication of previous findings regarding policy change and offers new insights into how institutions are critical to subsystem stability over time.

Special Interest Capture of Regulatory Agencies: A Ten‐Year Analysis of Voting Behavior on Regional Fishery Management Councils

Abstract: This article tests capture theory by analyzing voting behavior on U.S. Regional Fishery Management Councils. Some seats on the councils are reserved for state and federal agency representatives; others, for political appointees. The political appointees primarily represent special interests (specifically, commercial and recreational fishing interests); a smaller number of appointees represent public interests. We use logistic regression to model the vote of state and federal agency representatives on the councils as a function of the votes of commercial interests, recreational interests, and public interests. We find evidence that some state agencies are captured by special interests from their states, but not systematic evidence across all states. We find that state agency representatives voted with commercial interests from their own state in five of the sixteen states in our sample; with recreational interests in three states; and with both special interests in two states. These ten states support the capture hypothesis; the other six states do not. We find no evidence that federal agencies were captured on the councils. We conclude that the gubernatorial-driven appointment process leads to capture at the state level by promoting voting blocs among state agency representatives and special interests from those states. Federal agency representatives, by contrast, are better able to maintain their distance from state-level politics on the councils, and thereby enhance their ability to vote independently on fishery management measures.

Policy Styles and Degenerative Politics: Poverty Policy Designs in Newfoundland and Quebec

Abstract: This article examines the proposal suggesting that policy designs are consistent with the social construction of target groups. Associated with policy design theory, the proposal pessimistically suggests that underprivileged citizens will be targeted with policies that do little to help them, creating a vicious circle of degenerative politics. This article argues that the prevalence of degenerative politics depends on policy styles. Significant where the adversarial style prevails, degenerative politics is less common in consensual systems. This proposal is examined through a systematic content analysis of action plans to reduce poverty in Newfoundland and Quebec.

Civic Science and Salmon Recovery Planning in Puget Sound

Abstract: Today, science and scientists as experts no longer hold sway as unquestioned authoritative sources of objective information in many policy debates. This has led to growing frustration on the part of government officials and scientists over their inability to have science exert as meaningful a role as they think appropriate in the consideration and selection of policy alternatives. Given this development, what can be done to restore or otherwise ensure that the appropriate science and scientists are integrated into the policy process so that they matter to policy outcomes? There is general agreement that traditional top-down, one-way (from scientists to others), linear models for conceptualizing the role of science and scientists in the policy process are not capable of capturing the changed political, social, and “scientific” realities of the contemporary policymaking context. Many have gravitated to the concept of civic science/scientists as a new and improved model. Yet, despite clear progress in reconceptualizing the role of science in the policy process, there are gaps in the literature when it comes to actual applications of civic science. As McNie correctly notes: “it is essential that we develop a more robust understanding of experience and practical experiments regarding how relationships [and institutions] are constructed and managed across the science-society boundary” (p. 29). This research develops lessons for civic science in the policy process by exploring an innovative collaborative governance effort by the National Oceanic and Atmospheric Administration Fisheries and the Shared Strategy for Salmon Recovery in Puget Sound (Washington). The integration of science into the salmon recovery process in this case relied on a series of actions that the Technical Recovery Team (TRT) took to bridge the traditionally separate science and policy spheres in order to increase the certainty of science impact, specific steps taken to establish and maintain the TRTs role as an authoritative, credible source of science, and the embrace of a results-oriented, adaptive learning approach.

United States–Mexico: The Convergence of Public Policy Views in the Post-9/11 World

Abstract: This article explores the state of public policy preferences between the United States and Mexico in the realm of foreign policy in the context of the post-9/11 world, democratic change within Mexico, and the immigration protests within the United States Specifically, we will analyze the differences and possible convergence of public policy views on the issues of terrorism, immigration, free trade agreements, drug trafficking, and foreign policy We find that although there are differences of opinion, particularly in the application of force in Iraq and on the benefits of free trade, there still remains a significant degree of positive convergence within the policy issues of terrorism, immigration, and drug trafficking Although there are institutional impediments to progressive policy change, future relations between the United States and Mexico do not need to be contentious as long as the focus is on the similarities, rather than the differences, in public preferences between the populations of the two states

Play nice or pick a fight? Cooperation as an interest group strategy at implementation.

Abstract: The open, multilevel nature of U.S. policymaking enables interest group activity throughout the policy process. At policy implementation, groups attempt to secure benefits or ameliorate legislated effects by devising cooperative or conflictual strategies to influence outcomes, especially when agency officials have discretion to design rules and negotiate agreements. Investigating group “street-level” activity with respect to the Endangered Species Act, this research finds that policy context and resources shape the degree of information and access available to groups, which influences the strategies groups adopt. Groups with access and specialized information will attempt to change or influence policy outcomes cooperatively. Groups with limited technical information are more likely to fight implementation.

Contemplating the Role of Precision and Range in Homeland Security Policy Analysis: A Response to Mueller

Abstract: In an effort to address some of the gaps in homeland security policy analysis—at present a relatively understudied topic from an analytic perspective—Professor Mueller offers an examination of policy decision making for a subset of low probability–high consequence events; particularly the idea of passive asset defense. This article provides a critical examination of Professor Mueller's work, tendering what we identify as a number of critical limitations with his framework and argues it does not provide an adequate basis for sound analysis in this policy area. We also offer several suggestions where one could build upon a portion of the groundwork his paper lays, especially in moving toward a greater appreciation of what terrorism means for an all‐hazards management system.

Symbolic Meanings and the Feasibility of Policy Images: Relocating Military Bases to the Periphery in Israel

Abstract: This article is aimed at crafting an interpretive policy analysis as a predictive tool by using the proposal to relocate Israeli military bases. Since the mid-2000s, the Israeli government has promoted a new plan to transfer military bases from urban areas and central regions to the southern metropolitan area in the Negev desert. The economic and operational logic behind the program is unclear and prompts serious debate about nationality, ethnicity, economic gaps, and the environment in the Negev. This area epitomizes marginality in Israel, both socially and geographically, and is characterized by conflicts between Jews and Bedouins. Thus, the program can be regarded as one involving policy images, where potential participants lack the information necessary for understanding the goals of the policy. This paper proposes a new methodology based on interpretive policy analysis for conducting a pilot study to evaluate the feasibility and practicality of the proposed program. We use this methodology to analyze the symbolic meanings that local organizations attribute to the program with the goal of predicting their response to this program. Thus, the relocation plan serves as a template on which to develop and test the IPA-informed evaluative methodology, which is applicable to other cases.

How Electoral Systems Can Influence Policy Innovation

Abstract: This paper argues that in certain areas of policy, electoral systems can influence policy innovation (how early countries will adopt certain policies). Electoral systems influence the number of parties that win representation and thereby influence the diversity of perspectives included in the policymaking process. It is argued here that this diversity facilitates elite and public consideration of new issues and ideas, and consequently, it leads to earlier debate and action on these issues and ideas. This dynamic is particularly relevant to controversial issues and ideas that major parties may be hesitant to address and that minor parties may be more incentivized to promote. In this paper, two issues/ideas are considered: extending rights to same-sex couples and making material sacrifices to protect the environment. I show that countries with more proportional electoral systems tend to act earlier to protect the environment and that they tend to be early adopters of civil union legislation. These results are also supported by World Values Survey data showing public preference patterns that support these policy outcomes.