Multiple Partial Couplings in the Multiple Streams Framework: The Case of Extreme Weather and Climate Change Adaptation

In this paper, I draw insights from a detailed case study of adaptation policymaking to develop a novel interpretation of John Kingdon's original work that shows how policy entrepreneurs can couple the problem, policy, and political streams through multiple partial couplings. Researchers and policymakers often assume that extreme weather opens a window to adopt policies aimed at adapting to long‐term climate change. However, empirical evidence shows that crises can redirect attention to urgent, short‐term goals. Using the Multiple Streams lens in an abductive case study, I investigate how these competing forces interact to influence the policy process. By unpacking Kingdon's familiar “streams” metaphor and elaborating his overlooked concept of partial couplings, I illustrate how the policy entrepreneurs' strategy of issue linking explains Australia's adoption of the 2007 Water Act, one of the world's first major adaptation policies, at the height of its decade‐long Millennium Drought. Employing this novel theoretical understanding offers new insights into this important case. I conclude by developing tentative hypotheses for testing in future studies.     

The Policy Sciences of Social Media

Twitter, Facebook, and other social media are increasingly touted as platforms not merely for networks of friends and for private diversion, but as vehicles that allow ordinary people to enter and influence the many arenas of public life. On the surface, the disparate and shapeless population of “i‐reporters,” policy “tweeters,” and anonymous news web site “commentators” would appear to challenge the comparatively well‐defined cast of professional diplomats, journalists, and propagandists that Harold D. Lasswell identified as policy‐oriented communicators. However, to illuminate the roles and impacts of social media in politics and policymaking, insights from Lasswell's “science of communication” must be embedded in Lasswell's broader lessons on value assets and outcomes. A closer look at the so‐called democratizing functions of social media in politics reveals the influence of powerful intermediaries who filter and shape electronic communications. Lasswell's insights on the likelihood of increased collaboration among political elites and skilled, “modernizing intellectuals” anticipates contemporary instances of state actors who recruit skilled creators and users of social media—collaborations that may or may not advance experiments in democracy. Lasswell's decision process concept is deployed to discover social media's strengths and weaknesses for the practicing policy scientist.     

Auditing culture

This article explores the effects of the spread of the principles and practices of the New Public Management (NPM) on the subsidised cultural sector and on cultural policy making in Britain. In particular, changes in the style of public administration that can be ascribed to the NPM will be shown to provide a useful framework to make sense of what has been felt as an “instrumental turn” in British policies for culture between the early 1980s and the present day. The current New Labour Government, as well as the arm's length bodies that distribute public funds for the cultural sector in Britain, are showing an increasing tendency to justify public spending on the arts on the basis of instrumental notions of the arts and culture. In the context of what have been defined as “instrumental cultural policies”, the arts are subsidised in so far as they represent a means to an end rather than an end in itself. In this perspective, the emphasis placed on the potential of the arts to help tackle social exclusion and the role of the cultural sector in place‐marketing and local economic development are typical examples of current trends in British cultural policy making. The central argument purported by this article is that this instrumental emphasis in British cultural policy is closely linked to the changes in the style of public administration that have given rise to the NPM. These new developments have indeed put the publicly funded cultural sector under increasing pressure. In particular, it will be shown how the new stress on the measurement of the arts' impacts in clear and quantifiable ways – which characterises today's “audit society” – has proved a tough challenge for the sector and one that has not been successfully met. The article will conclude by critically considering how the spread of the NPM has affected processes of policy making for the cultural sector, and the damaging effects that such developments may ultimately have on the arts themselves.     

Exploring the Contributions of Cultural Theory for Improving Public Deliberation about Complex Policy Problems

In this article, we argue that the Cultural Theory pioneered by Mary Douglas can help resolve two pressing issues in the study and practice of public deliberation. The first of these issues concerns how best to structure deliberative processes (or “minipublics”) that have increasingly been implemented around the world. We use Cultural Theory's analysis of social relations to derive a hypothesis concerning the ideal design of minipublics, and outline research strategies to test the hypothesis. The second issue pertains to scaling out minipublics. We describe John Dryzek's and Simon Niemeyer's influential proposal for deploying discourses to make public deliberation more representative, and discuss the limits of their proposal. Furthermore, we show how Cultural Theory's analysis of people's cultural biases (i.e., collectively shared perceptions, beliefs and norms) may help overcome these limits and how the design of minipublics can generate trust in and legitimacy of public deliberation.     

The Politics of Cognitive Dissonance: Spin,the Media,and Race (and Ethnicity) in the 2008 US Presidential Election

This article examines the roles of spin, the media, and race (and ethnicity) in influencing voter behavior in the 2008 US presidential election. It invokes the concept of cognitive dissonance to explain how political strategists effectively propagandize – i.e., “reinvent their candidates” and “reinvent their opponents' actual record” – in order to successfully garner votes for their candidates. In particular, it considers spin and how spin and the media are used to shape public opinion by causing voters to distrust the veracity, credentials, and records of opposing candidates and to set the policy agenda. It also discusses how race, ethnicity, gender, and policy issues were used in the 2008 US presidential election campaign, and describes the impact of “spinning” on voter behavior and the election outcome. Equally important, it discusses the implications of the Obama victory for Canadian governance in two pivotal areas: domestic race relations and direct parliamentary representation of minorities. The article closes with a brief discussion of the symbolism attributed to Barack Obama's electoral victory by both American and Canadian voters.     

Participation in Policy Streams: Testing the Separation of Problems and Solutions in Subnational Policy Systems

The multiple streams theory of national policymaking has been influential in the study of public administration and public policy—if not without a fair bit of controversy. While some laud the model for its openness to the important role of policy entrepreneurs and the irrationalities of the decision‐making processes, others criticize the model for its lack of readily testable propositions. This article identifies a series of testable propositions in the multiple streams model (particularly that discussed by Kingdon). We assess whether participation in local policymaking (focusing on school district policymaking related to violence prevention) is characterized by “separate streams” of participants or is dominated by organized participants like interest groups or policy specialists. We found evidence of unity (rather than separation) in the policymaking process and scant evidence of elite, organized interests dominating the policymaking process. The results call into question a key assumption of the multiple streams model.     

FROM POLICY SCIENCE TO POLICY ANALYSIS: A QUARTER CENTURY OF PROGRESS?

This essay on the intellectual history of policy analysis traces the field from Merriam's concept of “intelligent planning” and Lass-well's vision of “policy sciences” to the present. Lasswell's vision is seen as a relevant if unrealized one in general dimensions. It is argued that the tie of policy analysis to traditional issues in political science is unbreakable and, because of this, attempts to develop an interdisciplinary policy science premised on the supposed unifying force of a common methodological core have led to fragmentation, not theoretical integration. The emergence of the synoptic/empirico-rational tradition and anti-synoptic/neo-pluralist traditions in policy analysis in the 1950's and 1960's are discussed and strengths and weaknesses noted. Divisions over the question of values and normative theory are highlighted. A concluding section discusses alternative views on the proper scope of policy analysis as an emerging discipline, contrasting the “handmaiden” and “ivory tower” alternatives. A six-dimension outline of a map for policy analysis as a field is presented and the continued utility of Lasswellian concerns emphasized in contrast to the stalemated debate between synoptic and anti-synoptic viewpoints in American policy analysis.     

Creative shifts and directions

The availability and “readiness” of culture as a mode of governmental control makes cultural policy a matter of great importance in any contemporary society. This is true not only in liberal democracies with established arts councils or cultural policies, it is also proactively pursued by a technologically advanced yet illiberal regime like Singapore, eager to position itself as the global “Renaissance City” of the twenty‐first century. What this “renaissance” model entails remains highly cryptic, not least because cultural terms and political markers are often elusive, but also because the very concept of “cultural policy” shifts along with the political and economic tides in Singapore. Drawing on a rarely cited essay by Raymond Williams, this article offers an historical look at cultural policy in Singapore – from its first articulation in 1978 to its present standing under the rubric of “creative industries” (2002). It considers some of the problems encountered and the societal changes made to accommodate Singapore’s new creative direction, all for the sake of ensuring Singapore’s continued economic dynamism. This article contends that cultural policy in Singapore now involves extracting creative energies – and economies – out of each loosely termed “creative worker” by heralding the economic potential of the arts, media, culture and the creative sectors, but concomitantly marking boundaries of political exchange. In this regard, culture in Singapore has become more than ever a site for governmentality and control.     

European Transfigurations—Eurafrica and Eurasia: Coudenhove and Trubetzkoy Revisited

The Eurasianist movement launched a theory according to which Russia does not belong to Europe but forms, together with its Asian colonies, a separate continent named “Eurasia” whose Eastern border is the Pacific Ocean. Similarily, in the early 1920s, Richard Coudenhove-Kalergi, the founder of the Pan-European movement, developed, the idea of “Eurafrica.” I compare the writings of Coudenhove and those of Nicolas S. Trubetzkoy and show how the idea of Europe was used as an anti-essentialist model of a cultural community. Though both “Eurasia” and “Eurafrica” may be understood to express cultural and economic imperialism, the sophistication with which both concepts are brought forward makes their interpretation as simple derivatives of chauvinism impossible. Both Trubetzkoy and Coudenhove refuse national “egocentricity” which “destroys every form of cultural communication between human beings.” Above that, Trubetzkoy and Coudenhove agree that cultural apogees have often come about through fusion. I discuss the idea of “convergence” in the context of Bergson's and Deleuze's biophilosophies.     

Drug or medicine? China's experience of Marx's opium thesis on religion

This paper tracks the changes in the influence of Marx's celebrated opium thesis in China. Marx's view that religion is “the opium of the people” was first introduced into China through propaganda associated with the Russian revolution. It became very influential among Chinese intellectuals and dominated the religious policy of the CCP for a long period. However, as the revolutionary party became the party in power after 1949, it was obvious that the opium thesis alone would be insufficient to deal with the religious situation in a socialist country. Although the “five natures” of religion thesis was proposed to explain the persistence of religion in socialist China, the opium thesis proved more powerful politically and resulted in a general attack on religion during the Cultural Revolution. Not until the era of reform and “opening up” was the opium thesis questioned. After the release of a major document entitled “The Basic Viewpoint and Policy on the Religious Question during our Country's Socialist Period” in 1982, the opium thesis was viewed as too simplistic an instrument for understanding “the problem of religion.” Scholars have argued that religion contains important cultural elements and can make a positive contribution to a socialist society in certain respects. After lengthy discussion, a consensus was reached that Marxist views on religion should keep up with the times and that the opium thesis was no longer compatible with contemporary Chinese society. Although different voices can still be heard on the issue, religion is no longer viewed as just a “drug” but rather as a kind of “medicine.” Marx's opium thesis has been replaced in China by a new theory, one that emphasizes that religion should and can adapt to the needs of a socialist society.     

Is State Gambling Policy “Morality Policy”? Framing Debates Over State Lotteries

The politics of so‐called “morality policies” including same‐sex marriage, abortion, gun control, and gambling have captured the attention of both the public and political scientists in recent years. Many studies have argued that morality policy constitutes a category of public policy that has distinctive characteristics (such as technical simplicity and less amenability to compromise) compared with non‐morality policy. However, in a recent contribution Mucciaroni argues that morality “policy” should instead be viewed primarily as a strategy for framing issues. Drawing on examples from the debate over gay rights, Mucciaroni finds that opponents focus on rational‐instrumental or procedural frames more so than engaging in “morality talk.” In this study, I seek to extend Mucciaroni's analysis to the issue of lottery gambling in the United States. Drawing on data from legislative records in four states, I find that lottery critics mostly avoid private behavior‐based morality arguments. Instead, they criticize government's role in sanctioning lotteries and denounce the negative consequences of gambling. Supporters, meanwhile, emphasize the potential benefits of lottery creation and the importance of allowing the state public a voice on the issue. The results indicate that rational‐instrumental arguments coexist alongside morality talk in state lottery debates, and that private behavior morality frames are on the decline while governmental morality frames are on the rise.     

A critical perspective on socially embedded cultural policy in France

This paper aims to show how in France, the synthesis of cultural policy and social concerns throws up a number of tensions and pitfalls. These tensions are perhaps most acute because these sorts of cultural policies are not merely about socio‐economic issues but are actually tied to France’s colonial legacy and the presence of a large and often marginalised population of migrants and their descendents. The pitfalls stem from the universalist starting point of French cultural policy, which, although designed to integrate “new” and migrant/postmigrant publics, emergent artists and cultural practices, seems to simultaneously marginalise them since it is already premised on a binary that opposes art as aesthetic expression and art as an expression of cultural (anthropological) identity or social cohesion.     

Putting the “art” back into arts policy making: how arts policy has been “captured” by the economists and the marketers

Abstract: This paper explores the current discourse about arts policy and funding and its placement within an economic paradigm. The models of “cultural industry” and “creative industry” are explored and how they affect arts funding discourse. Similarly the impact of the introduction of the language of industry and business to the arts sector is considered. If bottom-line arguments are used by funders, governments and critics to argue the merits or otherwise of arts activity, how does this affect arts practice? In recent times arts funding agencies have been restructured to reflect a market-driven agenda rather than an arts-driven agenda. The impact of all these issues is considered in the context of Australian arts' models in particular, but with reference to examples in the United Kingdom and the United States of America. The paper concludes with suggestions for a reassertion of core cultural values in future discourse.     

MODERNITY: A PROBLEMATIC CATEGORY IN THE HISTORY OF EMOTIONS

Emotions in History: Lost and Found by Ute Frevert is a lively introduction to some of the issues that historians must address when writing about emotions. Emotions in History notes some of the uses emotions have had in both public and private life, and it charts the changing fate of several emotions—particularly acedia, honor, and compassion—that have been either “lost” or “found” over time. Nevertheless, it suffers from a notion of modernity that obscures rather than clarifies. Making “modernity” the cause of changes in emotional ideas, comportment, and feeling, it cuts today's society off from its earlier roots and fails to see the continuities not only in emotions themselves but also in the mechanisms by which emotions have changed over time. Frevert's assumption that only the modern world has been interested in emotions is belied by eloquent learned writings on the topic in the medieval period (though not using the term “emotions”). Further, modernity is not alone in having effective mechanisms by which ideal standards of emotions and their expression are transmitted to a larger public.     

Are Debates about “Morality Policy” Really about Morality? Framing Opposition to Gay and Lesbian Rights

A growing number of studies identify “morality policy” as a distinct category of public policy and have tested several related hypotheses. This article reexamines morality policy as a conceptual category and an empirical phenomenon. As others have pointed out, we should distinguish morality policy from other policies by how political actors frame issues rather than by its substantive content. In the first part of the article, I argue that we should view morality “policy” as one of two broad strategies for framing issues, rather than try to fit it into existing policy typologies. Next, I move beyond viewing morality policy as a single, broad category by identifying several distinct subtypes of morality frames. In the second part of the article, I challenge a basic assumption of the morality policy paradigm—that advocates frame morality policy issues by engaging in moralistic discourse that reflects their basic beliefs and values. Gay rights issues are a strong test of this claim because the literature cites them as typical examples of morality policy, and gay rights opponents would seem especially likely to engage in “morality talk” in framing these issues. Very few studies of morality policy actually observe framing behavior and what it reveals about the political strategy of each side. Congressional and state‐level data reveal that opponents usually do not frame gay rights issues in terms of the morality of homosexuality or religious injunctions against it, even in most states where we would expect to find it. Instead, they emphasize frames that focus on alleged negative social consequences from gay rights and procedural arguments about who should make policy and how it should be made. Although many opponents of gay rights disapprove of homosexuality on moral and religious grounds, their framing behavior reflects more complex strategic considerations. I speculate that opponents deemphasize morality talk because it is politically disadvantageous compared with other kinds of frames, and because of greater acceptance of gays in society. In reducing gay rights debates to moral and religious judgments, the morality policy perspective obscures the complexity of advocates' framing strategies and ignores many of their most important arguments.     

Ethical Responsibility and the Historian: On the Possible End of a History "of a Certain Kind"

In this article I try to answer the question posed by History and Theory's“call for papers”; namely, “do historians as historians have an ethical responsibility, and if so to whom and to what?” To do this I draw mainly (but not exclusively and somewhat unevenly) on three texts: Alain Badiou's Ethics: An Essay on the Understanding of Evil, J. F. Lyotard's The Differend, and Edward Said's Representations of the Intellectual; Jacques Derrida and Richard Rorty have a presence too, albeit a largely absent one. Together, I argue that these theorists (intellectuals) enable me to draw a portrait of an ethically responsible intellectual. I then consider whether historians qua historians have some kind of ethical responsibility—to somebody or to something—over and above that of the intellectual qua intellectual; I reply negatively. And this negative reply has implications for historians. For if historians are to be intellectuals of the type I outline here, then they must end their present practices insofar as they do not fulfill the criteria for the type of ethical responsibility I have argued for. Consequently, to be “ethical” in the way suggested perhaps signals—as the subtitle of my paper suggests—the possible end of a history “of a certain kind” and, as the inevitable corollary, the end of a historian “of a certain kind” too.     

The Cultural Queasiness Factor: Intersections of Gender,Sexuality and HIV Prevention in Burma/Myanmar

The Ministry of Health in Burma/Myanmar considers HIV its first priority in disease prevention, and HIV prevention represents a significant element of the work of many of the international non-governmental organisations (INGOs) based in the country (CBI, 2006; Ministry of Health, 2008). Yet inBurma/Myanmar, as elsewhere in Southeast Asia, there is a “cultural queasiness” around HIV. This queasiness is a dis-ease of the emotions, transmitted through the ongoing linking of HIV transmission with “bad behaviour” (resulting, in part, from HIV prevention's own repeated use of a “risk group” approach). Indeed, the mere existence of HIV prevention work, inand of itself, sparks waves of cultural queasiness because it transgresses the norms regarding which topics are considered appropriate for public airing, and which are not. Through reference to empirical research involving in-depth interviews and observation of field work practice, this article demonstrates how the desire to minimise this queasiness can result in disavowal of the experiential and emotional complications so deeply embedded in HIV prevention and HIV transmission. Thus HIV prevention both is affected by, and reinforces, cultural queasiness.     

The re-examination of Chiang Kai-shek's returning virtue for malice policy towards Japan after the victory of the Anti-Japanese War

After victory in the Anti-Japanese War, Chiang Kai-shek issued the famous radio speech “Letter to Soldiers and Civilians of the Whole Nation as well as the Peoples of the World after the Victory of the Anti-Japanese War.” The main idea of this speech was long interpreted as “returning virtue for malice” (or “good for evil”), a basic principle of the Kuomintang's policy towards Japan. Many scholars who have considered the returning virtue for malice policy in the postwar period include the following major issues: first, China repatriated Japanese prisoners of war and the Japanese diaspora with mercy; second, China allowed the Tenno, or imperial, system to be preserved in Japan; third, China did not participate in the occupation of Japan; and fourth, China gave up the right to ask for war reparations from Japan. This article examines the above four issues to reevaluate the returning virtue for malice policy. The first issue seems to reflect the Chinese national character of being lenient with others. However, it was in fact due to Chiang's anti-Communist strategy and the declared policy of the United States of eradicating Japan's influence in China. With regard to the second issue, Chiang's attitude was merely to let the Japanese people make their own choice, while the fate of the Japanese Tenno system was entirely determined by the US occupation authority, on which Chiang had little influence. The third issue was mainly the outcome of Chiang's focus on domestic political struggle in the postwar era in China. As for war reparations, China actually made efforts to obtain them in the beginning, but had to give up its right eventually. The decision-making process in the Kuomintang government was restrained by American policy and subordinated to Japanese pressure. Thus, it is not persuasive to summarize the basic principle of Kuomintang postwar policy towards Japan as returning virtue for malice.     

A study of social‐market interventions in the shaping of the field of cultural production

A social analysis based on extensive evaluation of the Dance and Drama Awards programme reveals the social‐market political paradigm underpinning the formation of cultural policy in the UK underthe New Labour government. This specific intervention in the field of cultural production is placed in the context of broader government interventions in the cultural domain that seek to give respect to undervalued social and cultural groups. There is a political analysis of the characteristics of the social‐market political formation that underpin New Labour’s “affirmative” actions, and the political strategies informing the government’s “access” and “inclusion” agendas and their impact on the cultural and creative industries. The authors argue that the construction of a “social‐market” position in New Labour’s cultural policy represents an attempt to bridge or “hyphenate” the contradictory claims of social democracy, on the one hand, and economic fatalism, on the other. Despite the rhetoric of social and cultural “transformation”, the authors argue that a “faith” in the market prevents New Labour from transforming the political‐economic and cultural structures that generate economic and cultural injustices.