Ideas and Institutional Change in Social Security: Conversion, Layering, and Policy Drift*

Abstract

Objectives.In recent years, social scientists such as Kathleen Thelen and Jacob Hacker have introduced new concepts to assist in the understanding of institutional change. Fostering some of these concepts, this article proceeds to augment the theoretical debate on institutional change in social science and policy research. A discussion of Social Security development in the United States advances the article's main objective: to uncover the relationship between ideational processes and policy development. Methods.Qualitative and historical analysis is offered to examine three major policy episodes: the enactment of the 1939 amendments, the first mandate of the Nixon Administration (1969–1972), and the push for Social Security privatization that emerged in the 1990s. Results.First, the analysis suggests that, through the process of institutional conversion, the 1939 amendments and the Nixon‐era reforms altered the nature of Social Security. Second, the discussion on Social Security privatization stresses the impact of layering and policy drift on public and private pensions. Conclusions.The concepts of conversion, layering, and policy drift receive further empirical support through the presented analysis. Moreover, this article suggests that, for a full understanding of institutional change, a systematic analysis of ideational processes is necessary.