Although numerous theories have been proffered, to date activist boards are an empirically unexamined force in public higher education governance. Using the concept of institutional entrepreneurship, this case study examines the reciprocal role that board members and staff played in the organizational development of board activism. In the case of Massachusetts, policy makers were able to successfully negotiate the higher education institutions that mediate policy through the use of political skills, leadership, and political power. The implications for our understanding of board activism and radical change in public higher education governance are discussed.