JSTOR is a not-for-profit service that helps scholars, researchers, and students discover, use, and build upon a wide range of content in a trusted digital archive. We use information technology and tools to increase productivity and facilitate new forms of scholarship. For more information about JSTOR, please contact support@jstor.org.. Comparative Legislative Research Center is collaborating with JSTOR to digitize, preserve and extend access to Legislative Studies Quarterly. This research reviews techniques for measuring constituency opinion in policy congruence analyses. It introduces a new use of referenda votes for investigation of state-national policy linkages in the Progressive Era. Findings demonstrate the importance of constituency opinion and of regional and partisan influences in nationalizing major legislation in three policy areas: labor, woman suffrage, and prohibition. Analysis of historical congruency patterns also illustrates the complex interrelationships between democratic processes and policy outcomes, parallelling contemporary concerns.The theory and practice of representative government, encompassing normative, semantic, and empirical components of the political system, is a cornerstone of democratic theory (Fiorina 1974, 1).' Researchers often depict its operation in terms of the representative bond diagrammed in Figure 1. Though Eulau (1987) surely is correct in saying that empirical congruence is not the same thing as representation,2 nevertheless assessment of how constituents' policy preferences match their representatives' roll-call voting remains an important concern (Converse and Pierce 1986, 564; Uslaner and Weber 1979, 1983; Davidson 1969, 111; Kingdon 1981, 30-31). Fundamental to this model, therefore, is measurement of the link between elected officials' decisions and constituents' preferences (Mayhew 1974; Alford and Brady 1989; Pitkin 1972; Eulau 1987).Roll-call votes are readily available behavioral cues of legislators' policy positions and have lawmaking consequences. There is no constituency counterpart to this measure that can be used in studying policy congruence. Constituency opinion, generally thought to be ill-defined and vague, therefore poses serious measurement obstacles (Clausen 1973, 119). By necessity, political scientists have been inventive, devising many ways to assess grassroot issue opinions. I will briefly review five of the most important techniques and then illustrate how one of them, referenda votes, lends itself to new uses for research on state-national policy congruence.
Measuring Constituency Opinion
Demographic VariablesMany studies use demographic variables as surrogate measures of constituency opinion, though not without two major attendant problems (). First, there is no way to determine how accurately district demographic characteristics reflect district opinion without measures of the latter. Second, the technique makes it impossible to investigate the relative effects of demographic characteristics and of constituency opinion.Early seminal wor...