Appointed Policy Makers in State Government

Five-Year Trend Analysis: Gender, Race and Ethnicity

 

A Report of the Center for Women in Government & Civil Society
University at Albany, SUNY
Winter 2004

 

Highlights
In the aggregate, women's progress as holders of top-ranking
appointee positions in state governments has not been steady.
Between 2001 and 2003, women's share of executive branch
leadership posts dropped almost three percentage points, but
remained above the 1999 level.

Even as the 2000 census recorded substantial changes in the
race and ethnicity composition of the U.S. population, the
demographics of executive branch policy leadership changed
very little between 1999 and 2003.

African American women advanced substantially in the number
of policy leadership positions to which they were appointed by
the nation's governors.

African Americans, Latinos, Asian Americans, and American
Indians continue to hold remarkably few top advisor staff
positions in governors' offices.

White men lost the largest share of department head positions
between 1999 and 2003. The percentage of agency head posts
held by white women, African American women, and Asian
American women rose slightly.

Only five states (Massachusetts .96; Oregon .95; Florida .88;
Iowa .85; Missouri .83) are close to parity in terms of the
degree to which women are represented in top policy
positions. (Parity is achieved when the representativeness
ratio = 1.0).

In eleven additional states (Connecticut, Kansas, Kentucky,
Michigan, Mississippi, Nebraska, Nevada, Tennessee, Virginia,
Wisconsin, Wyoming) women hold about three-quarters of the
top policy posts to which they would be appointed, if the
proportion of women appointees were equal to the proportion
of women in the population of those states.

In nine states (Alabama, Georgia, Idaho, Maryland, Minnesota,
New Hampshire, Ohio, South Carolina, South Dakota), women
hold less than half the top policy posts to which they would be
appointed, if the proportion of women appointees were equal
to the proportion of women in the population of those states.

Dear Friend

Since 1996, the Center for Women in Government & Civil Society has published a series of reports as part of the Appointed Policy Makers in State Government project. Center researchers collect original data from the 50 states on the gender, race and ethnicity of two key leadership cohorts in the executive branch of state governments: gubernatorial appointees at the helm of departments, agencies, offices, boards, commissions, and authorities; and top staff advisors with policy-influencing responsibility in governors' offices.

We reported in 1997 that women held 28.3% of top policy leadership posts; in 2003 the percentage was 32.0%. A net gain of 3.7 percentage points over a seven-year period is surely a very slow rate of advancement, especially because it represents a drop of almost three percentage points from two years earlier. Furthermore, as indicated in this publication, only five of the 50 states are even close to parity in terms of the degree to which women are represented in top policy positions.

Much progress remains to be achieved before women hold the proportion of top-ranking gubernatorial appointments in each state to which they would be named, if the proportion of women appointees were equal to the proportion of women in each state’s population.

Later this year, the Appointed Policy Makers in State Government project will release additional publications, including a new set of reports, Women's Leadership Profiles, for every state. These reports present overviews, based on data from a variety of sources, of the current status of women in five major categories of political leadership in state governments: statewide elected officials; highest state court judges; department heads; top staff advisors; and state legislators.

Stay tuned and please let us know if we can assist you in any way to disseminate these reports.

Judith R. Saidel, Ph.D
Project Director
Executive Director
Center for Women in Government & Civil Society

   
   

Acknowledgements

We acknowledge with appreciation the Ford Foundation’s generous support of The Appointed Policy Makers in State Government Project

 

Project Staff

Judith R. Saidel, Ph.D.
Project Director

Julia Koschinsky
Senior Research Associate

Alison C. Olin
Project Associate

Haidy H. Brown Krista Roff
Graduate Assistant

Jamie Iuliano
Undergraduate Assistant

Krista Roff
Undergraduate Assistant

 

POLICY LEADERS

Images/APMSG2004/policyleaderspiecharts1999-2001-2003gif.jpg

Appointments gap narrows, then widens again.
Women's progress as holders of appointed executive branch policy leadership positions has not
been steady in recent years. Between 1999 and 2003, women's share of top-ranking
gubernatorial appointments increased and then declined, but remained above the 1999 level.

Images/APMSG2004/percentageofwomenandmenpolicyleaders1999-2003.jpg

 

Top-ranking African American Appointees Make Gains Between 1999 and 2003;
Other Groups Remain at Low Levels or Decline Slightly.

Even as the 2000 census recorded substantial changes in the race and ethnicity composition of
the U.S. population, the demographics of executive branch policy leaders changed very little
between 1999 and 2003. The percentage of African American appointees increased over the
period by 1.6 points. Latino/a and American Indian appointees remained at the same level.
Asian American appointees experienced a gain between 1999 and 2001, but fell below previous
levels by 2003.

Images/APMSG2004/raceandethnicity-apptpolicyleaders1999-2003.jpg

 

Images/APMSG2004/genderraceethnicity-apptpolleaders1999-2003.jpg


The lead story in these numbers is the substantial gain in the number of high-ranking executive positions to which African American women
were appointed by the nation's governors. Between 1999 and 2003, the number of African American women appointees across the
country increased from 50 to 66. State-by-state analysis reveals that, in general, governors appointed one or two African American
women in more states in 2003 than in 1999.

 

DEPARTMENT HEADS/TOP ADVISORS

Images/APMSG2004/deptheadsbygender-piecharts2003.jpg


Governors appointed women to chief executive and top advisor posts in record numbers in 2001. Two years later, women's share
of department head positions fell by 1.4 percentage points, but remained 3.5 points above the 1999 level. By contrast, the percentage
of women in policy-influencing staff roles in 2003 dropped from a high point in 2001 to slightly below the 1999 level. Across the
country, the total number of top staff advisor positions in governors' offices shrank by about 16% between 2001 and 2003. The
downward trend in the size of governors' executive offices may reflect, in part, the severe budget deficits that most states confronted
in those years.

Images/APMSG2004/percentagewomendeptheads1999-2003.jpgImages/APMSG2004/percentagewomentopadvisors1999-2003.jpg

Between 1999 and 2003, the total number of department head positions appointed by governors decreased overall by 4%.
White men's share of appointments declined by 5.9 percentage points over this period. The percentage of executive posts
held by white women, African American women, and Asian American women rose respectively by 1.9, 1.3, and 1.5 points.
Latinas lost some ground; two American Indian women served in governors' executive offices in 2003. In this study, the
"department head" leadership cohort includes individuals at the helm of departments, agencies, offices, boards, commissions,
and authorities who are gubernatorial appointees.

Images/APMSG2004/deptheadsbygenderraceethnicitytable1999-2003.jpg

 

The demographics of top staff members serving U.S. governors changed very little over the five-year period from 1999
to 2003. African Americans, Latinos, Asian Americans, and American Indians continued to hold remarkably few policy
advisor positions. White women lost the largest number of top advisor posts by 2003, although their share of total staff
advisor appointments dropped by only 1.5 percentage points over the period.

 

Images/APMSG2004/topadvisorsbygenderraceethnicitytable1999-2003.jpg

 

Images/APMSG2004/rankingwithinregions-womenapptpolicyleaders2003.jpg

 

 

Images/APMSG2004/rankingofstates-womenapptpolicyleaders2003.jpg

 

Images/APMSG2004/statebystatenumbers-apptpolicyleaders.jpg

 

Notes on Methodology

Original data on policy leaders appointed by current governors were collected from the states via a mailed survey and follow-up
phone calls as needed between June and November 2003. For the purpose of this study, “policy leaders” include the following
two cohorts of gubernatorial appointees who develop, influence, and advise on public policy:

1. Department Heads - including heads of departments, agencies, offices, boards, commissions, and authorities;

2. Top Advisors in Governors’ Offices - including such titles as chief of staff, government liaison, and press
secretary/communications director.

Only persons appointed by current governors and who have policy influencing responsibility are included in this report.

The study includes state-based representativeness ratios. These measures document the degree to which different groups are
represented as appointed policy leaders.

The representativeness ratio (rep. ratio) for women policy leaders is calculated by dividing the percentage of policy leader
positions to which women are appointed by the percentage of women in the state’s population. A representativeness ratio of
less than 1.0 reflects the degree to which women are underrepresented in top policy positions.

Representativeness is achieved when the demographic composition of top-ranking appointees mirrors that of the general population.
Representativeness theory is based on the presumption that demographic representativeness leads to programs, policies, or
decisions that reflect the preferences of demographically diverse populations.

 


Ordering Information:
The Appointed Policy Makers in State Government series and other Center publications are available on the web! Visit us for
a full list of publications and to download your free copy today at www.cwig.albany.edu

 

Additional Project Publications

Saidel, Judith R. and Loscocco, Karyn. "Agency Leaders, Gendered Institutions, and
Representative Bureaucracy," Public Administration Review, forthcoming.

Saidel, Judith R. and Riccucci, Norma M. "Women State Agency Heads and Their Leadership,"
Spectrum: The Journal of State Government, Vol. 75, No. 1 (Winter 2002), 18-19.

Riccucci, Norma M. and Saidel, Judith R. "The Demographics of Gubernatorial Appointees:
Toward An Explanation of Variation," Policy Studies Journal, Vol. 29, No. 1 (2001), 11-22.

Riccucci, Norma M. and Saidel, Judith R. "The Representativeness of State-Level Bureaucratic
Leaders: A Missing Piece of the Representative Bureaucracy Puzzle," Public Administration
Review, Vol.57, No. 5 (September/October 1997), 423-430.

 

About the Center

The Center for Women in Government & Civil Society is part of the Nelson A. Rockefeller College of Public Affairs
and Policy, University at Albany, State University of New York. Through research, teaching, training, leadership development,
networking, and public education, the Center works to:

strengthen women’s public policy leadership;

broaden access of women and youth to policy knowledge, skills, and influence;

advance equity for women in the workplace;

enhance nonprofit management and leadership;

inform policy makers and policy activists on issues related to women, children and families.


For further information please contact the Center or check our website at www.cwig.albany.edu.


Dissemination of information from this publication is encouraged. Please credit the Center for Women in Government &
Civil Society and send us a copy of materials in which the information is published.

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