Crucial Factors in Implementing Radical Policy Change: A Comparative Longitudinal Study of Nordic Central Agency Relocation Programs

Abstract

Why do public policies succeed or fail? The aim of this article is to contribute to answering this enduring research question in policy research through a comparative study of the variable efforts by Nordic governments to relocate their central agencies from the capital regions over a period of several decades. This was a radical redistributive policy program premised on a policy instrument – coercion – which was very alien to political systems characterized as consensual democracies. Hence, it is no surprise that only two out of seven relocation programs of any substance were successful. The really intriguing research question here is how any relocation program was achievable at all in a policy context where this was very unlikely. A broadly based multi-theoretical analytical framework linking interest groups, institutions, human agency in the form of policy entrepreneurship/design and situational factors is employed to solve this research puzzle. Findings from this study offer important contributions to the following research fields: comparative public policy, radical policy change and most specifically the so-called third generation of public policy implementation research.     

Policy Stalemate and Policy Change in Israel's Water Sector 1970–2010: Advocacy Coalitions and Policy Narratives

This paper seeks to explain policy stalemates that persist despite recognition of their risks and damages, as well as the factors and processes that enable a breakthrough and lead to policy change. The paper seeks to fill a gap in the Advocacy Coalition Framework (ACF) theory by supplementing it with Narrative Analysis (NA). We claim that NA provides a link missing in the ACF that is required for the transformation of “necessary” conditions—like external and internal shocks to the system—into “sufficient” conditions for policy persistence or change. We use the ACF to delineate coalition members and their belief systems and policy positions, as well as external, internal, and structural shocks to the system. We rely on NA to analyze the narratives employed in the public arena, which turn conditions necessary both for hurting stalemates and for policy change into sufficient conditions. We illustrate the benefits of combining the two approaches through a study of Israel's water policy during four decades (1970s–2000s) based on government records and on information from interviews with key players.     

Success and Failure in Environment Policy: The Role of Policy Officials

This paper reports on interviews conducted between 2010 and 2013 with senior officials involved in Australian federal environmental policies over the past 30 years. It examines whether they have a prior sense of whether an environment policy is likely to succeed and their experience of the key factors driving environment policy success. Most interviewees claimed a strong prior sense of policy outcomes, but their expression of the key factors indicating success (consultation, clear objectives, a clear mandate, and a strong evidence base) varies from the usual emphases found in the public policy literature. The research illuminates the ways in which the policy officials at times exert a greater role than that suggested by the Westminster conventions or the policy theory literature. Not emphasised in the literature, yet pivotal for success in the vexed space of environmental policy, was the self‐directed yet at times skilful policy ‘agency’ exhibited by officials.     

Territorial Representation and the Opinion–Policy Linkage: Evidence from the European Union

A key feature of federal systems is the representation of subnational units by “territorial representatives” in policymaking at the federal level. How do such arrangements influence the linkage between public opinion and policy outputs? I argue that policymaking under territorial representation should be systematically skewed toward opinion in those states where citizens care about a policy issue and have a uniform view on it. This claim is tested using a novel data set of policy change in the European Union (EU), covering 211 policy issues and 6,506 observations of opinion–policy dyads. Results show that measures weighting opinion across member states by how much national citizens care about an issue are better predictors of policy change than EU‐wide mean opinion. Moreover, congruence between state‐level opinion and EU‐level policy becomes more likely, the more salient and clear‐cut opinion in a member state is. These findings refine our understanding of the opinion–policy linkage under territorial representation.     

Dismantling Swedish Housing Policy

Today it is often argued that welfare state retrenchment is more or less impossible. Even politicians who advocate radical cuts in principle do not manage to execute them in the face of the strong opposition such proposals meet. However, Swedish housing policy has experienced radical change, resulting in big savings for the state budget and dramatically increased housing costs for citizens. In comparison with changes in other parts of the welfare state, the reforms have been radical. This article argues that Swedish housing policy is very complex and technical. Reforms met little resistance because the general public did not understand their effects. Even today, when the effects are known, citizens' knowledge about the policy area is too meager to allow them to understand that the increased cost of their housing is an effect of political decisions.     

Learning and Change in 20th-Century British Economic Policy

Despite considerable interest in the means by which policy learning occurs, and in how it is that the framework of policy may be subject to radical change, the "black box" of economic policy making remains surprisingly murky. This article utilizes Peter Hall's concept of "social learning" to develop a more sophisticated model of policy learning; one in which paradigm failure does not necessarily lead to wholesale paradigm replacement, and in which an administrative battle of ideas may be just as important a determinant of paradigm change as a political struggle. It then applies this model in a survey of U.K. economic policy making since the 1930s: examining the shift to "Keynesianism" during the 1930s and 1940s; the substantial revision of this framework in the 1960s; the collapse of the "Keynesian-plus" framework in the 1970s; and the major revisions to the new "neoliberal" policy framework in the 1980s and 1990s.     

Public Support for Climate Change Policy: Consistency in the Influence of Values and Attitudes Over Time and Across Specific Policy Alternatives

This study examines the factors that explain public preferences for a set of climate change policy alternatives. While scholarly work indicates a relationship between attitudes and values on views toward specific issues, the literature often examines general support for issues rather than specific policy proposals. Consequently, it is unclear the extent to which these attitudes and values affect specific policy considerations. This project examines public support for five climate change policy options in two national surveys taken three years apart. The empirical analysis reveals that time is a factor and that those who are liberal, have strong ecological values, report greater concern for climate change, and trust experts are consistently more supportive of the climate policy options considered here. The results shed new light on the nuanced views of the American public toward climate change.     

Public Policy and Behavior Change

Changing behavior is often necessary to tackle societal problems, such as obesity, alcohol abuse, and debt problems. This article has two goals. First, it aims to highlight how governments can try to change the behavior of citizens. Government can use policy instruments to do so, including incentives, bans and mandates, information campaigns, and nudges. However, the government should not be a manipulator that applies policy instruments without societal support. Therefore, the second goal of the article is to provide a conceptual framework that helps analyze whether public policies to stimulate behavior change are effective and supported by key stakeholders. This conceptual framework has five criteria indicating the extent to which there is effective and supported behavior change: the policy is (1) effective and (2) efficient, and there is support for the policy among (3) politicians, (4) implementing organizations, and (5) citizens. The article ends with suggestions to study public policy aimed at behavior change.     

Government, Interest Groups and Policy Change

Much of the British and European literature on the role of interest groups in the policy process focuses on their participation in policy networks of various types. Possibly reflecting the original development of the policy community and policy network 'models' in the late 1970s, these approaches tend to emphasize stability and continuity – of both networks and policies. However, the 1980s and 1990s have witnessed much policy change and instability in most Western European states. In particular, some governments have adopted a more impositional policy style, and interest groups have learned to exploit the opportunities presented by a policy process which is increasingly characterized by multiple opportunity structures. This is especially the case following Europeanization of many policy sectors within the fifteen EU member states. The article focuses on the possible causes of policy change, including the importance of state power; changes in the behaviour of interest groups as they adjust to and exploit the opportunities presented by multi-arena policy-making; the impact of new policy fashions, reflecting knowledge and ideas which can act as a virus-like threat to existing policy communities.     

Value Conflict and Policy Change

The analysis of policy change has produced a number of contrasting theoretical approaches, each offering a lens through which to view policy phenomena. This article suggests that the existing menu of approaches for understanding change can be usefully complemented by an understanding of the role played by value conflict. Using institutionalist analysis, I argue that the need to make value‐choices in a nondisruptive way shapes large areas of government activity, particularly in Westminster systems, and explains many observed patterns of stability and change. Building on work by Thacher and Rein, I describe and characterize six types of response to value conflict, giving examples of the role and implications of each. It is not claimed that all policy change can be understood in this way—simply that some types of change reflect the value‐based nature of public policy itself, and the fact that political and bureaucratic systems must evolve mechanisms for dealing simultaneously with thousands of competing and conflicting policy values.     

Channelling Protest in Illiberal Regimes: The Cuban Case since the Fall of the Berlin Wall

Abstract

As part of the strategy for better governance, the European Commission has taken steps towards improved consultation and dialogue on European Union (EU) policy with interested parties. Opening up the policy process and getting interest groups involved are considered important for the democratic legitimacy of EU policy making. This article examines the public Internet consultation on the Commission proposal for a new European chemicals policy, the so-called REACH system. Being one of the most consulted issues in EU history, the chemicals policy review is considered as a critical test for the participatory mechanisms provided by the European Communities. By analysing more than 6000 contributions to the consultation, it is demonstrated that it invited broad participation, although industry was considerably better represented than NGOs and other civil society associations. Moreover, an overwhelming majority of participants were national actors from the largest member states rather than transnational actors. It is concluded that online consultations can invite broad participation in EU policy shaping but it is unlikely to bring about equal participation from different group of actors. Therefore it raises concern when measured against standards of democratic governance.     

Climate Policy,Energy Resources and Subnational Policy-Making: Comparative Policy Study of Hawaii and Victoria

Abstract

This paper considers key drivers to climate policy development with an emphasis on the role of a jurisdiction’s underlying energy resource. The states of Hawaii in the United States and Victoria in Australia provide an insightful comparative case study given their differing energy resources: Hawaii has no native fossil fuel resources but abundant renewable energy options while Victoria has an economy traditionally reliant on cheap, plentiful coal. The Advocacy Coalition Framework is applied to analyze why the two states, despite the different incentives provided by their energy resources, developed similar climate policies in the earlier period of policy response to global warming. Analysis finds the stable parameter of energy resources is counterbalanced by other policy drivers including public opinion, leadership and, in particular, features of policy-making particular to the subnational level that provide a different context for climate policy development to that offered at the national level.     

Policy Preferences and Political Distrust: A Comparison of Norway, Sweden and the United States

Many modern democracies have experienced a decrease in citizen support for government in recent decades. This article examines attitudes toward public policy as a plausible theoretical explanation for this phenomenon. The connection between public policy and support for the political regime has received considerable academic attention in the United States. Yet very little comparative work has examined whether citizens' policy preferences are related to a decline in diffuse support across different political systems. This article offers a clearer, more concise theoretical specification of the hypothesized relationship between public evaluations of policy outputs and support for the political regime. After specifying the theoretical concerns more succinctly, the article analyzes data from Norway, Sweden and the United States for the quarter century from the late 1960s to the early 1990s. The analysis reveals that shifts in evaluations of foreign policy and race-related policies help explain change in political trust for all three countries despite differences in the political systems. Moral issues, such as abortion, however, have no impact on political trust in any of the countries.     

Democratic Governance: Systems and Radical Perspectives

How might we think about democratic governance? This paper distinguishes between system governance and radical democracy. System governance borrows the language of radical democracy while missing its spirit. It advocates increased participation through networks because new institutionalists suggest networks are an efficient means of service delivery. It advocates increased consultation to build consensus because communitarians suggest consensus is needed for effective political institutions. System governance is, then, a top‐down discourse based on the alleged expertise of social scientists. Radical democrats concentrate instead on the self‐government of citizens. Instead of the incorporation of established groups in networks, they promote a pluralism within which aspects of governance are handed over to associations in civil society. And instead of consultation prior to decision making, they promote a dialogue in which citizens play an active role in making and implementing public policy.     

UK Privatisation Revisited: Ideas and Policy Change, 1979–92

Privatisation in the UK was facilitated by the interplay of ideas, institutions, actors, and economic interests. The motivations of the programme were ideational and political, but the objectives were economic and administrative. Together these paved the way for the success of the policy. Although several rationales were at play in the unfolding of privatisation, the ideological predilection of the Thatcher governments underpinned this far-reaching policy reform. This explains why the Thatcher government did not reform nationalized industries within the public sector, but instead shifted them into the private sector. Privatisation succeeded because it was championed by new right policy entrepreneurs, was supported by interest groups prepared to support, or least not impede, such dramatic policy change, and when the public enterprise status quo was deemed in need of reform. Of course, ideas only act as a catalyst for policy change when an established policy agenda having withered, been worn-out or otherwise discredited, can then be successfully challenged.     

Gender Analysis and Community Consultation: The Role of Women's Policy Units

Community consultation has become a widely accepted part of policy development in Australia. In this article, we consider how, in an Australian context, consultation can be incorporated within gender analysis processes. Gender analysis refers to systematic procedures to detect and correct gender bias in the full range of government programs, projects and policies. We draw upon insights from a qualitative case study to argue that policy workers located within women's policy units could play a key role in designing and coordinating meaningful and inclusive consultation. We conclude that well‐resourced women's policy offices within Australian governments are essential to ensuring effective, equitable consultation exercises are included within gender analysis processes.     

Quantum Change in the Fragmented Metropolis: Political Environment and Homeless Policy in New York City

The dominant paradigm for understanding urban policy change has long been that of “incrementalism.” The incrementalist argument is that institutional fragmentation reduces coordination, and thus discourages what might be called “nonincremental” or “quantum” change. This article seeks to test the incrementalist understanding of urban political change. Is it possible that under certain circumstances fragmentation can encourage quantum change? We will test this possibility with an analysis of homeless policy in New York City. Briefly put, over the last 25 years homeless policy in New York City has developed in a series of quantum jumps with dramatic, short‐term changes in funding, administration, and policy “philosophy.” Policy change followed this trajectory even though New York City's political environment is notoriously fragmented. This pattern contradicts what incrementalism would predict, and therefore suggests that that paradigm must be modified. Urban politics, this study suggests, can sometimes display the nonincremental, entrepreneurial, and “ideational” characteristics that have been identified as typical of the national “new politics of public policy.”     

Economic models as devices of policy change: Policy paradigms,paradigm shift,and performativity

Can the emergence of a new policy model be a catalyst for a paradigm shift in the overall interpretative framework of how economic policy is conducted within a society? This paper claims that models are understudied as devices used by actors to induce policy change. This paper explores the role of models in Danish economic policy, where, from the 1970s onwards, executive public servants in this area have exclusively been specialists in model design. To understand changes in economic policy, this paper starts with a discussion of whether the notion of paradigm shift is adequate. It then examines the extent to which the performativity approach can help identify macroscopic changes in policy from seemingly microscopic changes in policy models. The concept of performativity is explored as a means of thinking about the constitution of agency directed at policy change. The paper brings this concept into play by arguing that the “performative” embedding of models in institutions is an important aspect of how paradigm shifts unfold that the current literature has neglected.     

Policy Feedback and the Politics of Administration

This article surveys the policy feedback framework developed in political science and clarifies its implications for public administration. A feedback perspective encourages us to ask how policy implementation transforms the webs of political relations that constitute governance. Administrators play a key role in shaping the political conditions of bureaucratic performance and the organization of power in the broader polity. At the same time, this perspective underscores that policies are more than just objects of administrative action. Policies are political forces in their own right that can alter key components of administration, including phenomena such as organizational capacity, structures, routines, authorities, motivations and cultures. These sorts of administrative themes have received little attention in policy feedback research, just as the political effects of policies have been overlooked in public administration studies. Bridging these perspectives offers a basis for exciting new agendas and advances in public administration research.     

Public Lands Policy and Economic Trends in Gateway Communities

From the mid‐1960s through 1980, major policy changes were adopted as a result of federal and state public lands protection statutes. This article analyzes the impact these policy changes have had upon the economies of gateway communities, a subject of limited discussion in the scholarly literature. One conclusion is that gateway community economies have become less dependent on resources extraction. This analysis finds that several factors––beyond policy change––have influenced the shift away from resources extraction. Likewise, there is the question over what economic mainstays have stepped in to fill the resources extraction void? For many gateway communities, it appears that the answer has been recreational tourism. The implications of this economic shift within gateway communities are explored.