Explaining State Budget Punctuations: Policy Transparency,Political Institutions,and Electoral Incentives

What factors cause policies experiencing long periods of stability to be interrupted occationally by a short period of large changes? This study argues that electoral incentives might influence the search, supply, and processing of information on constituency issues, as well as the associated cognitive or institutional frictions, and thus determine the presence and variation of punctuated policies. This article develops and evaluates this claim within a systemic framework consisting of policy transparency, political institutions, and electoral incentives. For the purpose of identifying policy punctuations, this research uses the Generalized Pareto Distribution in the Extreme Value Theory. This study analyzes budget spending data collected from FY 1988 to FY 2008 for all 50 American states. This study finds that greater policy transparency is associated with larger spending stability. By contrast, greater gubernatorial competition is more likely to produce extreme spending changes. Electoral incentives shaped by public preference and political term limits have a profound impact on nonincremental policy changes. The impact of policy transparency is conditional on public preference, while that of electoral competition and legislative professionalism is moderated by political term limits. Particularly, a transparent policy consistent with public preference and legislative professionalism with term limits are more likely to give rise to punctuated policies, while gubernatorial (legislative) competition leads to less punctuated changes when governors (legislators) are subject to term limits.     

Framed for Compromise? The Role of Bill Framing in State Legislative Behavior on Natural Gas Policy

State legislative decision making on natural gas policy has become a balancing act, as legislators are forced to grapple with tensions between economically beneficial policies and environmental impacts. Despite increased public attention to the benefits and costs related to hydraulic fracturing, there has been little scholarly attention paid to how policy framing affects legislator behavior on this issue. We analyze recorded votes on bills relating to natural gas policy in Wyoming, Colorado, and New Mexico between 1999 and 2008; a time period spanning the recent boom. Using a novel database of bill frames, we create a ratio measure that accounts for the proportion of environmental to economic arguments within each piece of legislation. We find status quo–challenging, anti‐development policies can receive bipartisan support, as long as economic frames balance or are greater than environmental frames. Framing natural gas as a win‐win scenario where economic benefit and environmental protection can be achieved simultaneously is an effective legislative strategy. Using the case of natural gas policy, this study demonstrates bill framing substantively affects state legislator vote choice and implies bipartisan compromise is possible given the right balance of frames.     

Global Public Policy,Transnational Policy Communities,and Their Networks

Public policy has been a prisoner of the word “state.” Yet, the state is reconfigured by globalization. Through “global public–private partnerships” and “transnational executive networks,” new forms of authority are emerging through global and regional policy processes that coexist alongside nation‐state policy processes. Accordingly, this article asks what is “global public policy”? The first part of the article identifies new public spaces where global policies occur. These spaces are multiple in character and variety and will be collectively referred to as the “global agora.” The second section adapts the conventional policy cycle heuristic by conceptually stretching it to the global and regional levels to reveal the higher degree of pluralization of actors and multiple‐authority structures than is the case at national levels. The third section asks: who is involved in the delivery of global public policy? The focus is on transnational policy communities. The global agora is a public space of policymaking and administration, although it is one where authority is more diffuse, decision making is dispersed and sovereignty muddled. Trapped by methodological nationalism and an intellectual agoraphobia of globalization, public policy scholars have yet to examine fully global policy processes and new managerial modes of transnational public administration.     

Is State Gambling Policy “Morality Policy”? Framing Debates Over State Lotteries

The politics of so‐called “morality policies” including same‐sex marriage, abortion, gun control, and gambling have captured the attention of both the public and political scientists in recent years. Many studies have argued that morality policy constitutes a category of public policy that has distinctive characteristics (such as technical simplicity and less amenability to compromise) compared with non‐morality policy. However, in a recent contribution Mucciaroni argues that morality “policy” should instead be viewed primarily as a strategy for framing issues. Drawing on examples from the debate over gay rights, Mucciaroni finds that opponents focus on rational‐instrumental or procedural frames more so than engaging in “morality talk.” In this study, I seek to extend Mucciaroni's analysis to the issue of lottery gambling in the United States. Drawing on data from legislative records in four states, I find that lottery critics mostly avoid private behavior‐based morality arguments. Instead, they criticize government's role in sanctioning lotteries and denounce the negative consequences of gambling. Supporters, meanwhile, emphasize the potential benefits of lottery creation and the importance of allowing the state public a voice on the issue. The results indicate that rational‐instrumental arguments coexist alongside morality talk in state lottery debates, and that private behavior morality frames are on the decline while governmental morality frames are on the rise.     

“Blue Ribbon” Commissions,Interest Groups,and the Formulation of Policy in the American States

Despite the prevalence of state‐level commissions convened to make policy recommendations, research to date has not systematically investigated the ways in which these bodies impact policy or degree to which state‐level interest groups can use these institutions in that process. We argue that less powerful groups will favor these mechanisms and use them to get issues onto the institutional agenda and to increase the likelihood of legislative success. We also suggest that traditionally powerful groups will oppose the creation of reform‐minded task forces, but will likely use them to hinder policy change once they are formed. We test this assertion in an analysis of the creation and recommendations of task forces convened to study autism insurance mandates, as well as the eventual adoption of such mandates, in the American states between 2001 and 2010. The results suggest that public and industry groups influence the formation and recommendations of task forces, but that the latter appears to have a relatively larger impact. They also suggest that a task force recommendation has a large impact on the likelihood of adopting an autism insurance mandate and that neither the insurance industry nor autism advocacy groups have a direct influence on adoption after controlling for the presence of a recommendation.     

Framing Food Policy: The Case of Raw Milk

Policies governing the sale of raw milk—making the sales of raw milk more permissive—are gaining traction on the legislative agendas of dozens of states. This paper examines one contributor to this movement on the policy agenda: the role of competitive framing. By combining theoretical approaches from policy studies and political psychology theories of competitive framing, we offer evidence supporting the recent relative success of raw milk activists in several state legislatures. Using an Internet survey‐based experiment with a sample size of 1,630 respondents from seven Midwestern states, we show that a frame emphasizing consumer choice and food freedom is more effective than the frame that dominates among the policy establishment, that emphasizing public health risks. This is true in both one‐sided and competitive framing contexts. We further show that those previously aware of this issue were less influenced by the public health frame than those naïve to the issue. Our results suggest that the pro‐raw milk movement may be making strides on the state policy agenda because their frames are more resonant among the public. We also highlight the advantages gained from considering psychological and policy processes simultaneously to understand policy change.     

The Determination of Policy and Politics in the American States, 1948–1974*

The picture of the American state policy-making process which emerges from this analysis is one of a system where politics as well as economics matter a great deal. Partisanship and legislative competition are shown to have demonstrable effect on policy output. The control partisan preference exerts over policy decisions is severely constrained in taxing and spending areas, however, and is conditional on forces external to the model presented here. Surpassing the control over policy output exhibited by partisanship is the extent to which the electorate, or the electoral process, holds the parties responsible for policy performance. Apparently the public doesn't believe that “politics doesn't matter.”     

Studying Immigrant Policy One Law at a Time

This article shows that, in the study of immigrant integration policy in the U.S. states, it is critical to report data and coding decisions for individual laws. This analysis uses an updated and public database of law‐level decisions, which includes 2,703 legislative actions recorded by the National Conference of State Legislatures from 2005 to 2016. These data are used to estimate models of aggregate state policy activity in a variety of ways: as a single continuum of policy balance versus separate models of welcoming and hostile, lumping all policy subareas together versus analyzing a specific subarea, and lumping all years together in one cross section versus panel analysis. The results in these models differ enough to indicate that reporting codes for individual‐level laws is absolutely essential so that each researcher easily can construct the measure that fits his or her theoretical framework best.     

The Tortoise or the Hare? Incrementalism,Punctuations, and Their Consequences

In this article, we contrast the long‐term consequences of incrementalism and punctuated equilibrium. We test what the impact of each of these types of policy change is on long‐term budgetary outcomes for the American states. Policy scholars have applied both theoretical approaches to the study of budgetary spending as an extension of policymaking. Given the two contrasting paradigms of policy change, we develop the following line of inquiry: Does punctuated equilibrium create a different budget in the long term than incrementalism? We address this question through an analysis of American state budgets because the U.S. states provide a rich variation in both budgetary outcomes and political institutions. We use budget data from all American states across all government functions for the period between 1984 and 2009. We find that, first, state budgets and budget functions vary in their degree of punctuation and, second, the degree of punctuation in a state's budget function corresponds to smaller long‐term growth. Additionally, the kind of spending matters: allocational budget categories are more likely to exhibit punctuations.     

Constraining Bureaucrats Today Knowing You'll Be Gone Tomorrow: The Effect of Legislative Term Limits on Statutory Discretion

Do finite time horizons constrain a legislature's ability to control the bureaucracy? I argue that legislators subject to legislative term limits enact legislation with less statutory discretion today to ensure that their preferences are implemented by the bureaucracy tomorrow since most legislators will not be around to monitor the bureaucracy over the long term. Although past works suggest that legislative term limits decrease legislatures' rate of bureaucratic oversight, I find that term‐limited legislatures use ex ante means of bureaucratic control to a greater extent by granting less statutory discretion to the bureaucracy.     

The Impact of Temporary Immigrant Workforce Growth on Employee Verification Policies in the United States

The U.S. Department of Labor admits temporary immigrant workers to address labor shortages in local markets. Yet, do elected officials make it less difficult for some immigrants than others to secure employment in a state? Using U.S. temporary immigrant labor admissions data between 2006 and 2014, I examine the extent to which growth rates of main foreign‐born subgroups influence E‐Verify policies that require employers to authenticate the legal immigration status of employees. I find that state policymakers are less likely to enact E‐Verify policies in response to the growth of immigrants who work in specialty occupations (H‐1b visas). In contrast, the growth of immigrants working in nonspecialty occupations (H‐2a and H‐2b visas) increases the likelihood of enacting E‐Verify policies over time. The results suggest that policymakers release strict rules for employment only for highly educated immigrants who work in specialty occupations that offer higher paying salaries and career advancement opportunities. Disaggregating a monolithic foreign‐born population indicator into more specific class components provides an important contribution to public policy studies. Scholars will likely overlook the contrasting effects of specialty and nonspecialty immigrant workforce growth on policy decisions relating to immigrant employment.     

Employers as Mediating Institutions for Public Policy: The Case of Commute Options Programs

Scholars have recently noted the role that employers can play as “mediating institutions” for public policy. Mediating institutions connect the private lives of individuals with public policy concerns by communicating societal norms to members and providing social contexts that encourage a commitment to these norms. Despite the potential importance of employers as mediating institutions for public policy, little scholarly attention has been devoted to employer mediation behavior. Accordingly, this study examines two research questions. What factors influence an employer's willingness to mediate policy problems? And how effective are employers as mediating institutions? The mediation behaviors of interest relate to employer efforts to mitigate traffic congestion and air quality problems by enabling employee “commute options,” which are alternatives to single‐occupancy vehicle commuting to work. Drawing on theories of organization behavior, the study hypothesizes that self‐interest, organizational control, and association membership will affect willingness to provide commute options. The study also hypothesizes that employers providing commute options will have lower percentages of employees that drive to work alone. Both sets of hypotheses are supported by statistical analyses of data from a cross‐sectional mail survey of metropolitan Atlanta organizations.     

Empire forestry and the origins of environmentalism

When and where did the environmental movement begin? To understand how a public endued with the principles of laissez-faire reversed in such short order a century-old policy of government land disposal, this paper examines how public ownership of land came to be celebrated, with a newly defined professional corps of government foresters such as Dietrich Brandis and Gifford Pinchot feted as popular heroes. Hard-headed environmentalists and legislators found in empire forestry a ready-made model to construct vast areas of the public domain as a utensil for not only environmental but state purposes—industrial, settlement, and budgetary. The empire forestry matrix of government reservations, fire protection, and revenue-enhancing forests solved the tension between romantic preservationist notions and laissez-faire ideals and gave the compromise from which modern environmentalism emerged: it posed environmental problems and solutions as a means to construct the state. This article traces the international trail of modern environmentalism from India, under Lord Dalhousie's forest charter, to the British colonies in Africa and Australasia where it matured, and finally to Canada, the United States and other parts of the globe where environmentalism permanently entered the pantheon of democratic political creeds.     

The Changing Regime: Forest Property and Reformasi in Indonesia

This article explores the dominant explanations of the failure of forest management in Indonesia within the public discourse of the late New Order period. Drawing on a review of salient literature and relevant case studies, the major part of the article discusses the underlying historical, institutional and political causes of the failure of the state property regime. By taking a narrow view of the issues, public discourse during the New Order (1966–98) avoided discussion of the structure of property relations and the power relations that supported them. However, the forest fires of 1997–8 and the ensuing ecological crisis have revealed that the forest policy that allocated property rights over vast areas of the nation’s forests to well-connected conglomerates and politico-business families was inequitable and lacked legitimacy. While new legislative initiatives open up possibilities for co-management, the reforms so far barely engage with the underlying structure of property rights. These issues will need to be more thoroughly addressed if Indonesia is to tackle the bitter legacy of the Suharto period.     

Managerial Friction and Land-Use Policy Punctuations in the Fragmented Metropolis

Despite the portrayal of bureaucratic organizations as resistant to change, public managers have some ability to strategically move land-use processes out of incrementalism, even when bureaucratic lethargy acts as a drag. This article examines managerial influence in land-use policy by synthesizing theories of political markets and punctuated equilibrium. An information-processing logic is developed to explain why local government managers shift from “inward” to “outward” land-use management strategies in periods of environmental change. "Managerial friction” is defined as a strategic managerial adjustment producing punctuated land-use policy change in the face of environmental changing conditions. Hypotheses are tested using data on Florida local government comprehensive plan amendments and a Bayesian methodological approach. The evidence suggests managerial friction can be distinguished from the effects of environmental and political complexity as well as other forms of institutional friction, including management turnover, legislative institutions, and bureaucratic structure.     

When Do We “Just Say No”? Policy Termination Decisions in Local Hospital Services

This paper develops a two‐stage decision‐making model of the public policy termination process, which integrates political and economic influences on local decision makers. We empirically explore the model using data on the provision of local public hospitals in California over 1981–95. The results provide support for the model as we find that triggering events as well as characteristics of the local decision‐making context affect the termination decision. For the case of public hospitals, we find that lower state and local revenue growth rates increase the likelihood of termination, while decision makers in communities with a larger local health budget, more unionized public employees, and a larger private hospital sector are less likely to terminate local public hospitals. The implications for public policy and for our understanding of the termination process are discussed.     

Shopping or Specialization? Venue Targeting among Nonprofits Engaged in Advocacy

Studies of venue shopping have typically analyzed the case of an individual advocacy group or issue campaign rather than comparing venue strategies across multiple groups. Moreover, this literature focuses on interest groups and advocacy coalitions whose principal mandate is to influence public policy. Using original data, we test theories of venue selection among nonprofit organizations that report engaging in policy processes but the majority of which do not self‐identify as an advocacy group. Our analyses explore the “where” of nonprofit advocacy across three different venue types: branch (executive, legislative), domain (bureaucracy, elected officials), and level of government (local, state, federal). Like interest groups, we find that nonprofits shop among both executive and legislative branches and among elected and bureaucratic domains; however, they tend to specialize in one level of government. Geographic scope and revenue source predicted venue targeting, but most other organizational characteristics including age, capacity, and structure did not.     

The opinion–policy link in Australia

Whether or not policy is responsive to public opinion is central to questions of representation. Democracy by many accounts is premised on there being a strong correspondence between public opinion and policy. This link has not, however, been examined in detail in Australia. This article examines the policy–opinion link in a more robust way than that has previously been achieved in Australia, through the use of legislative data from the Australian Policy Agendas Project (APAP) and public opinion data from Roy Morgan. The article asks: is policy congruent with public opinion in Australia? In addressing this question, we examine to what extent policy accords with the preferences of the public. This in turn provides us with some answers about how representative Australian democracy is, as well as contributing to an international debate about the responsiveness of policy to public opinion.

政策是否要对舆论负责,这是代表制的核心问题。民主的前提往往就在于舆论和政策之间的息息相通。但在澳大利亚,人们并没有仔细地研究过二者间的关联。本文根据澳大利亚政策议题计划提供的立法资料以及罗伊摩根提供的舆情资料,对政策—舆论关联做了比以往充分多的研究。本文试问：政策与舆论在澳大利亚是否一致？我们考察了政策在多大程度上符合民意。这也为澳大利亚民主在多大程度上具有代表性的问题提供了答案,对于国际上争论政策对民意的回应问题也具有参考意义。。     

Ecologically Sustainable Development in a ‘Quarry’ Economy: One Step Forward,Two Steps Back

An overview is presented of recent work on the environmental changes impacting on Australia and the policy responses of the State and Commonwealth governments, especially over the last ten years. This period has seen a remarkably stable phase of conservative government administration in Canberra and consistent resistance to a strong environmental policy agenda, both domestically and internationally. Attention is focused particularly on rural and regional Australia, rather than on urban areas. The paper discusses the role of environmental issues in recent elections and also details the results of relevant opinion polls charting changes in environmental attitudes. The problems posed by the federal system of administration are outlined as are recent analyses and counter‐analyses of the state of the Australian environment. A more fundamental problem with liberal democracy and environmental values is also addressed.     

Masculine hegemony,the state and the incorporation of gender equity discourse: The case of Australian sport

Although the impact of affirmative action, equal opportunity and gender equity programs on the lives of Australian women have been explored in a number of areas, state interventions related to sport have received scant attention from public policy analysts. This paper examines how the Australian Sports Commission has framed its gender equity policy in the mutually reinforcing hegemonic discourses of masculinity and corporate managerialism. It is argued that the Commission's articulation of gender equity policy in terms of ‘market‐oriented individualism’ is both constituted by, and constitutive of, the shift from a ‘patriarchal‐welfare state’ to a ‘patriarchal‐managerial state’ in Australia. The paper also provides an example of the tensions between bureaucratic and feminist discourses in the state sphere.