Policy capacity in disruptive times

ABSTRACT

In considering the widely held view that we have experienced an era of qualitative decline in policy provision, this paper briefly reviews four questions that appear to underlie such a view. Have there been identifiable transitions in deliberative processes, political practices and policy capacity in recent decades (and if so, what were the catalysts)? Has the relationship between policy practitioners and expert providers of policy advice changed (and if so, how)? Have channels of communication between the political/policy community and the research community deteriorated (and if so, why)? Has the political appreciation of public concerns and the public understanding of policy imperatives diminished? We use these to frame the results of a workshop in which researchers, policy practitioners and service providers participated. Our objective is to identify systematically the origin of contemporary policy problems, foreshadowing four articles that illuminate instances of success and failure in disruptive times.     

Voluntary Environmental Programs in the Public Sector: Evaluating an Urban Water Conservation Program in California

Solving conflictual environmental policy problems is increasingly falling under the purview of local governments and public agencies. Nonregulatory approaches, such as the development of voluntary environmental programs (VEPs), could offer a useful policy alternative as they often have greater political traction and flexibility. However, there has been little work examining the use of VEPs in the public sector. This article uses a new dataset from California to examine how political institutions affect decisions by local governments and public agencies to participate in a voluntary urban water conservation program and whether this program has improved the water conservation performance of its members. The results show that special district governments, private utilities, and water suppliers dependent on purchased water are more likely to participate in the program and to join early. However, urban water agencies that have joined the program have not reduced their per capita water use more than those that have not. These results underscore the influence of political institutions in public‐sector decision making and demonstrate that, as in the private sector, commitment to a VEP by local government and public agencies does not guarantee implementation or environmental improvements. While voluntary programs offer political and administrative advantages, in order for VEPs in the public sector to be effective they must be accompanied and supported by credible enforcement mechanisms, performance standards, and rigorous monitoring programs.     

Deserving to Whom? Investigating Heterogeneity in the Impact of Social Constructions of Target Populations on Support for Affirmative Action

The social construction of target populations has emerged as an influential framework for understanding the public policy process. In particular, target populations have been shown to shape the allocation of benefits and burdens by political elites. However, existing studies focus on the elite level, which overlooks whether public preferences are aligned with the allocation of policy benefits and burdens by political elites. Moreover, many studies treat social constructions as homogenous, which this paper calls into question. Using a nation‐wide survey experiment, I investigate variation in public support for affirmative action policies with randomly assigned target populations. The findings indicate that the public formulates policy preferences on the basis of perceived deservingness of target groups similar to political elites. In addition, the findings uncover heterogeneity in the effect of targeting on public opinion based on ideology and racial/ethnic group identity.     

PUBLIC PERSONNEL POLICY IN A POLITICAL ENVIRONMENT: AN OVERVIEW

Although frequently treated as apolitical by social scientists and practitioners, public personnel administration has always been infused with political considerations. Today, it is more widely recognized that personnel policy choices can have political ramifications of major consequence. However, this policy realm is characterized by a number of competing values espoused by different governmental institutions and private groups. The civil service reforms of 1978 created more coherent personnel policy and greater clarity among the various competing interests and participants. Nevertheless, the political environment of public personnel administration remains so complex that the issue of whether it is possible for public managers to manage lively is legitimately raised.     

Theories of and in the Policy Process

Like public administration before it, public policy has an uneasy place in the discipline of political science. The stress is most obvious in the distinction between theories that attempt to explain the policy process and theories that are useful to those who seek to operate within the policy process. Accommodating this stress within the disciplinary boundaries of political science poses a difficult challenge.     

ANALYZING POLITICAL FEASIBILITY: POLITICAL SCIENTISTS1 UNIQUE CONTRIBUTION TO POLICY ANALYSIS

Political feasibility analysis examines the actors and events involved in each stage of a political policy-making process and anticipates the likely resolution of a policy problem as it works its way through the policy process. Despite the prominence of policy analysis in the social sciences over the past decade or so, there has been virtually no scholarly work concerning the analysis of the political feasibility of policy proposals. Political scientists, because of their central concern with the design and effect of the policy-making process, have a unique responsibility to contribute a way to evaluate systematically political feasibility. While all policy analysts, regardless of their disciplinary backgrounds, need to be concerned with assessing political feasibility, political scientists should be particularly mindful of its importance in improving public policy. While anticipating the likely outcome of a dynamic policy process is necessarily a difficult task, an analysis of the political feasibility of a proposed alternative can provide insight into the nature of the policy process as well as identify the criteria that must be met for an alternative to be successful. This article discusses a variety of factors that need to be considered in assessing political feasibility. After arguing the need to design political feasibility analysis frameworks, this essay reviews political scientists' current treatment of political feasibility analysis and outlines a general way to undertake such efforts.     

Peace Protest and Policy

The tremendous fluctuations in public mobilization against United States nuclear weapons policy, a relatively stable policy over four decades, present a difficult riddle to social scientists. Since the dawn of the nuclear age small groups of activists have consistently protested both the content of United States national security policy and the process by which it is made. Only occasionally, however, has this protest spread beyond a handful of relatively marginal groups, generated substantial public support, and reached mainstream political institutions. This article examines the political cycles of peace movement engagement and quiescence, and their relation to external political context, particularly public policy. I begin with a brief review of the relevant literature on the origins of the movements, noting parallels in the study of interest groups. Building on recent literature on political opportunity structure. I suggest a theoretical framework which emphasizes the interaction between activists choices and political context. I then describe the cycles of peace movement activism and quiescence on nuclear weapons issues in the United States using mass media sources to delineate periods of mobilization. I outline a number of policy variables which may help explain protest mobilization. My conclusions address the importance of policy and political context in explaining movement cycles and the potential influence of protest movements on policy.     

Shift-and-Share Analysis of Spatial Development in Israel

The study of public policy outcomes is one of the major responsibilities of political science. While structure and functioning of political systems have always been a central concern of political science, the content of public policy is also an element of political life which political science must endeavour to explain. T. R. Dye The author is heavily indebted to Professor S. E. Finer of All Souls College, Oxford, for his encouragement and help. Yet he alone bears the responsibility for the outcome.     

Freedom of the city: Contemporary issues and policy influences on children and young people's use of public open space in England

Following a reflection of childhood experiences of public open spaces in daily life the paper moves on to a discussion about definitions of public open space. Contemporary policy related to children, young people and public open space in England are then identified. This context is addressed as policy which directly affects public open space and policy areas, drawn from other political drivers, which have an indirect influence on children and young people's use of public open space. There is some reference to evidence which has fed into some of these policy areas. Teenagers who are skateboarders are used as an example of one group of young people who experience other—legal, social and physical—controls on their use of public open space.     

The legacy of Atatürk: Turkish political structures and policy-making

Turkey occupies a peculiar position in both international relations and economic policy-making. On the international front, the country is still in many senses a frontier state defining a major part of its policy outlook in terms of a political metaphor that has as much to do with the Cold War of the past as the east/west divide of the present. In the economic arena, Turkey is still one of the increasingly rare emerging markets which has never really broken free from the high growth/high inflation spiral. This article seeks to explain these apparent anomalies in terms of political structures within Turkey. The problems facing Turkish policy-makers and their inability to triumph over them is related to the weakness of political institutions within Turkey itself. Turkish political parties lack the legitimacy, policy coherence or firm base of public support easily to embrace programmes which might be perceived to threaten either the historic international position of the state or the well-being of the clients of the large state-controlled part of the economy. This weakness derives from the manner in which modern Turkey was created in the first half of the last century, a process that produced flaws in political structures which the following fifty years of democratic experience has not entirely erased.     

Explaining State Budget Punctuations: Policy Transparency,Political Institutions,and Electoral Incentives

What factors cause policies experiencing long periods of stability to be interrupted occationally by a short period of large changes? This study argues that electoral incentives might influence the search, supply, and processing of information on constituency issues, as well as the associated cognitive or institutional frictions, and thus determine the presence and variation of punctuated policies. This article develops and evaluates this claim within a systemic framework consisting of policy transparency, political institutions, and electoral incentives. For the purpose of identifying policy punctuations, this research uses the Generalized Pareto Distribution in the Extreme Value Theory. This study analyzes budget spending data collected from FY 1988 to FY 2008 for all 50 American states. This study finds that greater policy transparency is associated with larger spending stability. By contrast, greater gubernatorial competition is more likely to produce extreme spending changes. Electoral incentives shaped by public preference and political term limits have a profound impact on nonincremental policy changes. The impact of policy transparency is conditional on public preference, while that of electoral competition and legislative professionalism is moderated by political term limits. Particularly, a transparent policy consistent with public preference and legislative professionalism with term limits are more likely to give rise to punctuated policies, while gubernatorial (legislative) competition leads to less punctuated changes when governors (legislators) are subject to term limits.     

Australian Foreign Policy under the Abbott Government: Foreign Policy as Domestic Politics?

While foreign policy featured prominently on the Australian political agenda in late 2014, the manner of Australia's engagement with the world challenges the idea of a ‘pivot’ from domestic politics to foreign policy. In particular, the government demonstrated a tendency to prioritise domestic political considerations, in particular public opinion, in its dealings with the outside world. This was evident across a range of issue areas: from the ‘internationalist’ agenda of asylum, climate change and aid to more traditional concerns such as bilateral relations with Indonesia and international security. This article explores these dynamics and asks what implications this has for both Australian foreign policy and theoretical accounts of the role and desirability of public engagement with foreign policy in international relations thought.     

Designing cultural policy in a postcolonial colony: the case of Puerto Rico

Puerto Rico became a territory of the United States in 1898 with the end of the Spanish-American War. In 1952, the island became a ‘Commonwealth’ through the development and approval of a local constitution. While this political status allows Puerto Rico some degree of autonomy, it nevertheless continues to subject the island to United States federal authority. For the last 60 years, discussions on whether Puerto Rico’s Commonwealth status is a permanent or transitional status has fuelled much of the political debate and public policy of the region, and has been highly influenced by political status ideologies: to become a state of the United States, to maintain the current status, or to become independendent. Budgetary, legal, and commercial dependence on the United States causes constant conflicts in the design and implementation of Puerto Rican public policy in areas such as education, law, and economic development. Likewise, culture has not been exempt from these debates. In fact, cultural differences have caused conflict at all levels – from the theoretical conceptions of culture, to cultural policy and arts management. Moreover, the implementation of cultural policies has also been subject to political ideologies and the concept of culture has variably been seen as an obstacle or strength for specific political purposes. In the midst of a sustained economic crisis, the current Puerto Rican government has proposed the development of a comprehensive cultural policy through a participatory process. The objective of this paper is to present this process as a means of analyzing Puerto Rico’s experience through the challenges in designing and implementing cultural policy within a ‘postcolonial colony’ scenario. This paper will place emphasis on the government’s role, cultural public institutions, and cultural production.     

Policy Feedback and Preschool Funding in the American States

The early childhood education policy community has been described as a “divided constituency” in which groups with the same underlying goals sometimes work at cross purposes. This article examines how this internal division affects the contemporary funding of preschool education. It finds that states with a relatively large Head Start community are significantly more likely not to fund preschool education and significantly less likely to dedicate preschool funding exclusively to a freestanding state program. These results suggest that the creation and political solidification of Head Start generated policy feedback. They contributed to an ongoing tension within the early education community as Head Start beneficiaries viewed the creation of a freestanding preschool program as a political threat. This political dynamic illustrates the more general way in which the existence of a public policy can alter the dynamics of future political action.     

Détente as a Strategy: Greece and the Communist World, 1974–9

The transition to democracy in 1974 was a turning point in modern Greek history. The two Turkish invasions of Cyprus and the emergence of the dispute over the Aegean seabed complicated Greek security dilemmas. Apart from cold-war challenges, including the traditional ‘menace from the North’, the country had to face a new threat that was coming from within NATO. The implementation of a détente policy was motivated by political as well as security considerations. In terms of national security, the ‘opening’ to the Communist bloc aimed to balance the perceived Turkish hegemonism and ameliorate Greek defence problems. Moreover, following the humliating military dictatorship of 1967–74, a multidimensional foreign policy was also demanded by the vast majority of the Greek public. Last but not least, an active regional policy could also aid Greece's effort to secure accession to the European Communities. The article will analyse and interpret the political and security dilemmas that were posed by the international developments of the period and the ways these interacted with Greek perceptions to shape Athens’ new détente policy.     

A Rhetoric of Change: The Language of the Howard Government's 2005 Work Choices Agenda

Understanding how public political discourse acts or does not act as a persuasive force in promoting and justifying political policy remains of critical importance. This paper presents a rhetorical criticism of the public political language used by the then Prime Minister John Howard and Minister Kevin Andrews, the chief spokespersons for the introduction of the Work Choices legislation. We demonstrate that these speakers drew upon a metaphor of evolutionary change as a means of promoting their legislation to the Australian working public. We argue that although this metaphor has persuasive utility, this merit was outweighed by the contradictions that arose when the metaphor was situated within a surrounding discourse promoting the concept of individual choice.     

What is to be done? Foreign Policy as a Site for Political Action

Foreign policy is a concept that has been neglected academically in recent years. Politically it has been given more attention, but mostly as a vehicle for ethical projects. This is a pity given that the content of foreign policy has expanded, through domestic and foreign affairs becoming more intertwined, that public interest is growing and that the area always involves multiple goals and complex trade-offs. It is argued here that foreign policy is in fact a crucial site for political argument and choice in the moden world, especially for democratic states, and that it is not enough to take a systemic view of international relations, such as those provided by neo-realism or globalization. Foreign policy provides us with a focal point for the debate about political agency—that is, how we may act on the world, and with what effects—which we avoid at our peril. This article analyses the nature of the political space represented by foreign policy, and the diverse kinds of strategy—some highly extrovert, others introverted and cautious —which states pursue in its name. Three cases arising out of the UK's experience, in relation to rogue states, the 'ethical foreign policy' and EU enlargement, are considered before a final brief discussion of the importance of foreign policy to the lives of the wider public.     

Local Media and Experts: Sources of Environmental Policy Initiation?

Research on the process of policy change often involves a direct or indirect analysis of the roles of policy entrepreneurs and the mass media. In Colorado, beginning in 1998, twelve communities decided to obtain water rights for recreational in-channel purposes such as kayaking and whitewater rafting. These water rights stirred political controversy within some communities in Colorado related to spending public money, appropriate uses of water, and the role of recreation in local economies. Using a comparative case study research method, this research analyzes the role that policy entrepreneurs and local media coverage of recreational water rights played in initiating policy change in local communities. The most critical finding from this study is that in communities where citizens acted as policy entrepreneurs there was more controversy, less positive media coverage, and more media coverage early in the process. This case contradicts the assumption that local media coverage helps to highlight policy problems within communities. It supports the idea that experts wield higher levels of influence than citizens in promoting policy agendas.     

Post-war smoking policy in the UK and the redefinition of public health

Current analyses of UK smoking policy within two frameworks--the 'heroes and villains' view of journalist accounts and a political science emphasis on rival 'producer' and 'issue' networks in policy making. It is often assumed that the US experience provides a universal historical model. This paper sees smoking policy in the UK as a case study in the relationship between 'scientific fact creation' and policy, which has also been emblematic of wider changes in public health ideology. The issue of smoking and lung cancer symbolized the post-war shift from infectious to chronic disease and the rise of a new 'lifestyle'-oriented public health. In the 1980s passive smoking brought a revival of environmentalism; in the 1990s the rediscovered concept of addiction symbolized developments in public health in which curative and preventive initiatives were entwined. Despite the rise of a militant 'healthism' within both anti-smoking and public health since the 1970s, British policy retained a dual focus, an emphasis on risk reduction as well as risk elimination in which policy networks were entwined rather than distinct. Some public health scientists worked in policy milieux, notably the expert committee, which crossed this apparent divide and which linked with industry. Connections between government and industry changed as public health 'treatment' brought the pharmaceutical industry into the picture.     

Problem Definitions and Policy Agendas

Problem definition is a key part of the policy process. Policy problems can be defined in different ways, and different definitions often compete for the attention of policymakers and for privileged status on the governmental agenda. This article uses different problem definitions of public education in Boston, Massachusetts as a case study of how different definitions vie for acceptance. Problem definitions that received the most attention—weak governance, inadequate school programs, and limited finances—achieved agenda status due to their high visibility, strong political sponsorship, and availability of viable solutions.