Tobacco’s Tipping Point: The Master Settlement Agreement as a Focusing Event

Abstract

Focusing events have been widely referenced in policy studies literature as important drivers of major policy change. In multiple streams theory, punctuated equilibrium theory, and the advocacy coalition framework, they play a prominent role in explaining how major changes occur. Nearly all existing research, however, has focused on the very large and catastrophic events that catapult otherwise obscure issues onto the agenda, to the neglect of focusing events that may perform other functions. This article examines one such event: the Master Settlement Agreement (MSA) between the tobacco industry and the states signed in 1998. I observe that although the MSA focused substantial attention on the topic of tobacco regulation, produced major policy change, and shifted the policy image of the domain, it was not a typical focusing event. Drawing from the tipping point theories of Sociology and Malcolm Gladwell's The Tipping Point, I expand a theoretical distinction articulated by Baumgartner and Jones between “triggering” events and “consolidating” or “tipping” events to resolve this discrepancy.