Do policies develop like scientific paradigms? On occupational safety and health legislation in Finland

Abstract. The article adds to the attempts to describe and explain legislation as an extended process. The case of Finnish labour protection policy is used as an illustration. It is argued that the labour protection policy is pursued in accordance with an established labour protection paradigm, which consists of the way of cognitively structuring the safety and health problem, of the accepted methods to deal with the problem and of the values underlying the policy. It is argued that the Finnish labour protection paradigm does not correspond with the real function of labour protection. Generally, the paper suggests that the paradigm-nature of public policies implies an inherent conservatism, allowing only partial adaption to social and political change.