Rethinking Lowi's Constituent Policy: Governance Policy and Direct Democracy

Abstract

The author develops the concepts of ‘governance policy’ and how it relates to existing public policy typologies, especially ‘constituent policy’. Although distributive, regulatory, and redistributive types of policy are well understood, scholars have long struggled with an appropriate definition to complete this four-fold typology. Lowi referred to this fourth type as ‘constituent policy’—conferring broad costs and benefits to society—as opposed to policy that affects narrow (often economic) interests. Lowi's conception of constituent policy assumed a top-down process of policymaking dominated by elected officials and administrative agencies. Governance policy represents an attempt to refine the concept of ‘constituent policy’. Governance policy has a prominent procedural component and can be initiated by a bottom-up process of policymaking, via citizen initiatives or interest groups, as well as by a top-down process through political elites. This author explores the history and social significance of governance policy. Cross-sectional data from the fifty states of the USA are used to statistically model explanations for the adoption of nine governance policies. Empirical analysis suggests that states with frequent usage of ballot initiatives are more likely to adopt governance policy, after controlling for other factors. The author also suggests that a Progressive reform tradition, measured by a moralistic political culture, may provide an important trigger for the initial adoption of state direct democracy mechanisms. This suggests that prior adoption of direct democracy mechanisms may provide a necessary intervening trigger for frequent reliance on governance policy.

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