Wind(ow) of Change: A Systematic Review of Policy Entrepreneurship Characteristics and Strategies

What lessons can we learn from 40 years of policy entrepreneurship scholarship on policy entrepreneurs’ strategies and defining characteristics? While scholars have offered important insights, many questions remain open. This article systematically reviews 229 articles that were published between 1984 and 2017. Our findings provide (i) an analysis of policy entrepreneurship characteristics by sector, policy domain, individual/group, government layer, and geographical spread, (ii) an empirically based identification and classification of policy entrepreneurship strategies, and (iii) a statistical analysis of the relationship between policy entrepreneurs’ characteristics and strategies. We conclude with an agenda for future studies that will continue to examine new theoretical approaches that advance our understanding of the role that individuals and small groups play in the policy process.     

Private Citizens as Policy Entrepreneurs: Evidence from Autism Mandates and Parental Political Mobilization

Growing bodies of research in the social sciences point to politicians, bureaucratic officials, interest groups, and other actors who serve as policy entrepreneurs. In this paper, we argue that private citizens can also serve a primary role as policy entrepreneurs. To analyze this phenomenon, we investigate the behavior of private citizens and their role in changing state policies surrounding insurance mandates for autism coverage. Using a thematic analysis of focus groups and interviews conducted with individuals active in the push for autism policy change, we demonstrate that private citizens meet all of the requirements identified for policy entrepreneurs in the existing literature. We then investigate when, why, and how these private citizens step forward into the policy process as entrepreneurs. We show that entrepreneurship occurs when private citizens have needed resources, a sense of duty to fix a policy status quo they see as unjust, and a stake in policy change. We conclude by discussing the importance of our findings to the study of public policy and their generalizability beyond autism policy.     

Social Constructions,Anticipatory Feedback Strategies,and Deceptive Public Policy

Elected leaders adopt “anticipatory feedback strategies” in designing public policies that generate support and forestall opposition. This contention is at the core of a social construction theory of feedback. Officials anticipate approval when policies allocate benefits to powerful groups socially constructed as deserving and allocate costs or punishment to groups viewed as undeserving, particularly if these groups lack political power. Designs for powerful groups that are widely viewed as unworthy provide mainly benefits in ways that are hidden from the general public who would not approve. For politically weak groups regarded as deserving, legislators generally design policies that provide promises, but not much in terms of material benefits. Often, deception will be used to protect or enhance this particular allocation pattern, including the reinforcement, perpetuation, or change in the social constructions along with the stereotypes, labels, stigma, and accompanying narratives. Using data from legislation introduced by the 2016 Arizona Legislature, we find that most policy is directed toward providing benefits to positively viewed target populations, as expected by the theory, and legislators employ deceptive feedback strategies that protect themselves. Feedback from the general public, which otherwise might be expected, may be precluded by the deceptive strategies being used.     

Start-up Competitions as an Instrument of Entrepreneurship Policy: The German Experience

The number of aspiring entrepreneurs in high-tech industries who successfully complete the transition from a nascent start-up project towards an operational new venture is comparatively low in Germany. Since the mid-1990s, policy-makers have initiated numerous start-up competitions (SUCs or business plan competitions) to facilitate this important step in the venture creation process. SUCs have two key objectives. They are aimed at increasing start-up activity by motivating potential entrepreneurs, while they should also help to increase the likelihood of subsequent entrepreneurial success through providing necessary entrepreneurial skills to prospective entrepreneurs. With our explorative study, we provide the first comprehensive empirical evidence from a cross-sectional survey of existing SUCs in Germany. Overall, 71 SUCs are identified which are analysed regarding their development, regional distribution, and main structural characteristics. Finally, we outline an agenda of future research questions concerning the effectiveness and efficiency of SUCs as an instrument of entrepreneurship policy.     

Institutions,Incentives, and Policy Entrepreneurship

Policy entrepreneurship is often used to explain agenda setting through reference to the behavior of individual “change agents.” But there are still gaps in our understanding of what motivates entrepreneurs. Rational choice theory emphasizes the importance of material and nonmaterial incentives; however, it remains unclear what role institutions play. This article aims to empirically examine the relationship between incentives and institutional encouragement of innovation. Using a case study of the federal government of Canada, I find evidence that incentives matter. Government agencies with many incentives are more likely to encourage innovation than agencies with few incentives. These results underscore the importance of institutions in determining the motivations of policy entrepreneurs, and suggest future research should focus on the interplay among individual, political, and institutional factors.     

The "Mouse That Roared": Agenda Setting in Canadian Pesticides Politics

Issue redefinition and venue shopping have been identified as key strategies for enacting agenda and policy change, but much work remains to be done in elaborating these processes. I argue that an important aspect of issue redefinition involves shifting not only the image of an issue but also the bases for considering those issues—what I call policy principles. Policy principles are the core values, beliefs, or guidelines attached to policies that help direct decision making. The emergence and acceptance of new principles by the public and policymakers can be a vital source of policy change, at times having far greater consequences for policy than redefining an issue. Venue shopping is also a multifaceted undertaking involving efforts by policy entrepreneurs and advocacy groups to keep issues out of venues they would rather not participate in as well as move decision making to new arenas. Moreover, while the literature suggests that shifting venues is usually a sensible strategy, sometimes venue shopping can backfire. A case study of the municipal movement to restrict the nonessential use of lawn and garden pesticides in Canada illustrates these theoretical points and shows the applicability of agenda setting models to contexts outside the United States.     

Public Problem Characterization,Policy Solution Generation,and Intra‐Agenda Connectivity

While policy agenda studies have extensively examined the interplays of various venues, one under‐explored area is the internal dynamics within an agenda venue. In this study, we focus on one of the important venues—news media—and investigate the inherent connections between how a public problem is characterized and how problem solutions are generated in media agenda setting. Drawing on agenda‐setting theories, we develop a typology to theorize the relationships between problem characterization and solution advocacy, and use a news dataset on climate change to empirically assess how issue characterization affects issue solution generation. Our logistic regressions demonstrate that the likelihoods of climate change policy solutions being proposed in the news are significantly influenced by how the media stories characterize the issue along four key attribute dimensions: issue image, scope, linkage, and narrative style. Key implications are discussed in the conclusion.     

“Windows of Opportunity,” Revenue Volatility,and Policy Punctuations: Testing a Model of Policy Change in the American States

The growing evidence of policy change patterns characterized as punctuated equilibrium has increasingly directed the attention of policy scholars to the question of what factors cause them. The present study attempts to address this emerging question by developing a comprehensive, multifactorial model and testing it with state budget data. Specifically, based on theories of information processing and agenda setting, it develops a conceptual framework that models punctuated policy change as a function of two main factors: institutional friction (consisting of institutional constraints, legislative streamlining mechanisms, information‐processing capacity, and bureaucratization) and policy windows (consisting of revenue volatility, change in party control, and budget cycle). In doing so, the study pays special attention to cyclical revenue fluctuations whose effect has never been subject to empirical test. Regression analyses reveal that policy window factors including revenue volatility, changes in party control of the governorship and the House, and a budget cycle play an important role in creating policy punctuations.     

TRUST IN THE TECHNICAL INFORMATION PROVIDED BY INTEREST GROUPS: THE VIEWS OF LEGISLATORS, ACTIVISTS, EXPERTS, AND THE GENERAL PUBLIC

The timely provision of information is crucial to the success of interest groups seeking to influence policymakers, the public and their own members. This paper examines the extent to which legislators, citizens, and policy area experts and activists trust the information provided by specific interests in the water resources managment area. It is shown that citizens and policy area activists are less trusting than are legislators and experts, and that they also discriminate more among information sources than either of those types of actors. On the individual level, multiple regression analysis is employed to investigate the extent to which partisanship, ideology, environmentalism and degree of informedness influence the level of trust accorded particular interest groups among citizens, legislators, activists, and experts.     

Social Networks and Policy Entrepreneurship: How Relationships Shape Municipal Decision Making about High‐Volume Hydraulic Fracturing

Well‐resourced and well‐connected individuals, or “policy entrepreneurs,” often play an important role in advocating and securing the adoption of policies. There is a striking lack of inquiry into the ways that social networks shape the ability of these actors to achieve their aims, including the ways in which network ties may channel policy conflict. To address these gaps, we analyze data from an original survey and an original database of policies to assess the success of policy entrepreneurs (PEs) active in a highly contentious arena: municipal policymaking concerning high‐volume hydraulic fracturing (HVHF) in New York. We use text‐mining to collect social network data from local newspaper archives, then use those data to construct municipal HVHF policy networks. Municipal anti‐HVHF PEs appear more successful when they operate in less cohesive networks, act as bridges to relative newcomers to the governance network, and have a larger number of network connections. Pro‐HVHF PEs appear more successful when they can forge high‐value connections to key decision makers. Policy entrepreneurs on both sides of the issue are more successful when they have a greater number of sympathetic coalition partners.     

Between Kant and Machiavelli: EU foreign policy priorities in the 2010s

The entry into force of the Lisbon Treaty invites and enables Europe to develop elements of a common foreign policy. Europe should resist the tendency of listing all issues calling for attention, and be aware that it will have to address three agendas, not just one. The first agenda is the Kantian one of universal causes. While it remains essential to European identity, it presents Europe with limited opportunities for success in the 2010s as could be seen at the 2009 Climate Summit in Copenhagen. The ‘Alliance’ agenda remains essential on the security front and would benefit from a transatlantic effort at rejuvenation on the economic one. Last but not least, the ‘Machiavellian’ agenda reflects what most countries would define as their ‘normal’ foreign policy. It calls for Europe to influence key aspects of the world order in the absence of universal causes or common values. While Europe's ‘Machiavellian’ experience is limited to trade policy, developing a capacity to address this third agenda in a manner that places its common interests first and reinforces its identity will be Europe's central foreign policy challenge in the 2010s. A key part of the Machiavellian agenda presently revolves around relations with Ukraine, Turkey and the Russian Federation, three countries essential to Europe's energy security that are unlikely to change their foreign policy stance faced with EU soft power. Stressing that foreign policy is about ‘us’ and ‘them’, the article looks at what could be a genuine European foreign policy vis‐à‐vis each of these interdependent countries, beginning with energy and a more self‐interested approach to enlargement. The European public space is political in nature, as majority voting and mutual recognition imply that citizens accept ‘foreigners’ as legitimate legislators. At a time when the European integration process has become more hesitant and the political dimension of European integration tends to be derided or assumed away, admitting Turkey or Ukraine as members would change Europe more than it would change these countries. Foreign policy cannot be reduced to making Europe itself the prize of the relationship. What objectives Europe sets for itself in its dealing with Ukraine, Turkey and Russia will test whether it is ready for a fully‐fledged foreign policy or whether the invocation of ‘Europe’ is merely a convenient instrument for entities other than ‘Europe’.     

Information Processing and Policy Dynamics

In this article, we trace the evolution of punctuated equilibrium theories of the policy process to the development of a full theory of government information processing. Noting that punctuated equilibrium is one realization of a larger theory of government information processing, we outline a research agenda for the study of agenda setting, policy dynamics, and information flows in the policy process. In doing so, we relate the study of government information processing to such important features of American government as inter-institutional dynamics and delegation in the policy process.     

Moral Panics and Punctuated Equilibrium in Public Policy: An Analysis of the Criminal Justice Policy Agenda in Britain

How and when issues are elevated onto the political agenda is a perennial question in the study of public policy. This article considers how moral panics contribute to punctuated equilibrium in public policy by drawing together broader societal anxieties or fears and thereby precipitating or accelerating changes in the dominant set of issue frames. In so doing they create opportunities for policy entrepreneurs to disrupt the existing policy consensus. In a test of this theory, we assess the factors behind the rise of crime on the policy agenda in Britain between 1960 and 2010. We adopt an integrative mixed-methods approach, drawing upon a combination of qualitative and quantitative data. This enables us to analyze the rise of crime as a policy problem, the breakdown of the political-institutional consensus on crime, the moral panic that followed the murder of the toddler James Bulger in 1993, the emergence of new issue frames around crime and social/moral decay more broadly, and how—in combination—these contributed to an escalation of political rhetoric and action on crime, led by policy entrepreneurs in the Labour and Conservative parties.     

Radon and Asbestos: A Study of Agenda Setting and Causal Stories

Employing Kingdon's model of agenda setting (1984) and Stone's notion of causal stories (1989), this article examines how public concerns about radon and asbestos reached the congressional agenda. Several conclusions about agenda setting and causal stories are offered: First, scientific consensus about health risks was a necessary, but not sufficient, condition for radon and asbestos to achieve agenda status. Second, media involvement and the presence of policy entrepreneurs were critical factors in the agenda setting process. Third, differing incentives within the policy stream (for radon) and the political stream (for asbestos) affected the speed by which agenda setting occurred, as well as the shaping of formal policy.     

E-mail Communication and the Policy Process in the State Legislature

E-mail has changed the policy process in state legislatures because political actors now have a new way to present their message to state legislators. What little research has been conducted on this topic examines e-mail communication generally and does not compare results by policy actor. Using an original survey of state legislators in eight states, we test for systematic effects of variables on general e-mail views and for effects specific to particular policy actors. We find that legislators have a nuanced approach to e-mail usage in the policy process with their assessment of its impact differing significantly for constituents, intermediary groups, and policy insiders. Only gender consistently shapes legislators' beliefs about e-mail with all groups, but institutional features, legislator characteristics, and legislator beliefs shape views on e-mail with different target groups. Clearly, legislators are attuned to the audience communicating via e-mail, and they value e-mail with each group differently.     

Microcredit as a Grass-Roots Policy for International Development

The failure of top-down development policies in the Third World has given rise to a variety of grass-roots, or bottom-up, development strategies to combat the severe poverty that continues to plague developing countries. Among these grass-roots approaches, microcredit has grown rapidly in popularity, scope, and impact over the last two decades. Microcredit provides financial capital for poor entrepreneurs who toil in the informal, poverty sectors in developing country economies. In addition to the thousands of predominantly nongovernmental organizations that offer microcredit programs, many national governments in the Third World are now seeking to integrate microcredit strategies into their development policy and planning. Accordingly, this article examines the microcredit movement, including its rationale and underlying premises, its impact on the poor, and its role in development policy.     

Framing,agency and multiple streams– a case study of parks policy in the Northern Territory

ABSTRACT

There is increasing interest in the role of agency in policy processes for creating effective change. In this paper I explore the critical role of policy entrepreneurs in both creating and capitalising on windows of opportunity through creative framing of issues. I combine Kingdon’s multiple streams framework of the policy, problem and politics streams with the three types of social movement framing – diagnostic, prognostic and motivational – to analyse a case study of pragmatic and innovative policymaking in Australian Indigenous policy. I find that pragmatic policy entrepreneurs used framing to actively refine available policy solutions, particularly in response to structural barriers, and played an active role in brokering the problem in ways to make it politically acceptable. This confirms the importance of ideational processes, and the critical role of framing, in creating windows of opportunity for significant reform.     

Campaign Promises,Democratic Governance,and Environmental Policy in the U.S. Congress

One important criterion for assessing the quality of democratic governance is the extent to which the policy process effectively translates citizen preferences into collective choices. Several scholars have observed a discrepancy between citizen preferences for strong environmental protection and weak policies adopted in the United States, indicating that the United States may fall short on this criterion. We examine one possible mechanism contributing to this discrepancy—legislator defection from campaign promises. Our data indicate that legislators in the U.S. Congress routinely defect from their campaign promises in environmental protection, undermining the link between citizen preferences and policy choice. We also find that legislators are much more likely to defect from pro‐environmental campaign promises, which moves government policy toward less stringent environmental programs. Finally, the propensity of legislators to defect from their campaign promises is systematic, with defection affected by partisanship, constituency influence, the influence of the majority party, and the likely consequences of defection for policy choice. These findings contribute empirical evidence relevant to the “mandate theory” perspective on how citizen preferences are translated into collective choices through the policy process. These findings may also complement research in comparative politics concluding that legislatures selected through single member districts adopt less stringent environmental policies than do legislatures chosen via proportional representation in that the mechanism for this effect may go through legislator defection from campaign promises.     

Government's Unequal Attentiveness to Citizens' Political Priorities

An accumulation of evidence suggests citizens with low incomes have relatively little influence over the policy decisions made by lawmakers in the United States. However, long before elected officials are asked to cast a final vote on a bill's passage, an equally important decision has already been made: the decision for government to focus its limited attention and agenda space on the issue at all. Therefore, it is possible that political inequality is infused earlier in the policymaking process at the agenda‐setting stage if the issues held important by some citizens are given attention while the issues held important by others are not. To investigate this question, we develop novel state‐level measures of citizens' issue priorities and find sizable differences in which issues poor and rich citizens think are most important and deserving of government attention. We then use bill introduction data from state legislatures to measure government attention and uncover evidence that state legislators are less likely to act on an issue when it is prioritized by low‐income citizens as compared to affluent citizens. These findings have important implications for our understanding of political equality and the functioning of American democracy.     

Global firms in local information societies: Work and employment issues for Europe

The strategies of large firms have a major influence on the evolution of the global information society because they dominate the markets for information and communication technologies. This paper examines the user rather than the producer role of large firms, and focuses on the surrounding issues relating to evolving patterns of work and employment. Its discussion of these issues and their policy significance reflects the perspective of the EU on what is effectively a global agenda on the future of work in the information society.