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.     

Policy Networks in Complex Governance Subsystems: Observing and Comparing Hyperlink,Media, and Partnership Networks

Methods for observing policy networks have not kept up with the development of new network analytic techniques required to understand governance in complex settings. We compare three unobtrusive methods for observing policy networks based on hyperlinks between policy actor web sites, on media reports, and on public policy partnerships. Observations of one complex local water policy arena with all three methods provide a comparison of the general as well as actor‐specific network characteristics in the three observed networks. The core network of actors observed by all methods has similar network level statistics, highly correlated relationships measured by Quadratic Assignment Procedures models, and the same significant network microstructures as measured by Exponential Random Graph Models. The full networks including actors observed by any method also exhibit similar actor‐level characteristics, although the correlations across networks are stronger for bridging capital measures than for bonding capital measures, and each method has different apparent biases. Once biases are accounted for, similarities suggest that these methods may provide useful proxies for each other and for other relationships that are more difficult or impossible to measure, particularly when combined to offset each method's biases. If so, they can extend the range of policy networks observable with limited resources across space and time.     

Ideology,Power, and the Structure of Policy Networks

This article investigates the role of power and ideology in the endogenous formation of policy networks. According to the Advocacy Coalition Framework (ACF), shared ideology (conceptualized as a system of policy‐relevant beliefs and values) is the primary driver of collaboration within policy subsystems. On the other hand, Resource Dependency Theory suggests that power‐seeking is an important rationale behind network structure, and that collaborative ties are formed primarily on the basis of perceived influence. Hypotheses are tested using a new method of egocentric network correlation, based on survey data of policy networks in five regional planning subsystems in California (N = 506). Results suggest that ideology is an important force behind network cohesion: Not only do policy elites systematically avoid networking with ideologically dissimilar actors but collaborative ties are also systematically formed among actors with shared beliefs. Power‐seeking does not operate on a network‐wide scale but may drive network formation among coalitions of ideologically similar agents.     

Multiplex Network Analysis for Complex Governance Systems Using Surveys and Online Behavior

Text analysis, web scraping, and other computational techniques enable policy network researchers to efficiently obtain objective measures of network connections. However, the extent to which these observational methods differ from traditional survey instrument‐based measures remains an open question. Focusing on a large regional policy network of 221 organizations, this study compares a measure of collaboration generated via survey instrument to two different measures based upon internet hyperlinks and Twitter interactions between network actors. We address two questions: (1) To what extent do objective network measures based upon observed online interactions and subjective measures based upon self‐reported relationships reveal the same inter‐organizational partnerships and structural network dynamics? and (2) How useful are online network measures for supplementing survey‐based network measures? We find a significant, but substantively small, correlation between survey‐based measures and online interactions. Thus, online network measures may complement survey‐based measures, but likely reflect different aspects of the overall policy network. We conclude by discussing the potential for multiplex measures of policy networks that draw upon multiple measures to more fully understand policy network landscapes. These results bridge and help to contextualize prior work on policy network measures and virtual policy networks within the broader context of complex governance systems.     

The Performance of Policy Networks: The Relation between Network Structure and Network Performance

The importance of policy networks has long been emphasized within the field of policy analysis. However, few attempts have been made to investigate the explanatory power of policy networks using the tools and theoretical concepts provided by social network analysis (SNA). This paper aims to address this need by determining if a relationship exists between the structural features of policy networks, their organizing capacities, and their performance. A comparative case study of four networks within the higher education policy sector confirms the assumption related to the existence of such a relation. It is proposed that an efficient and innovative policy network consists of a heterogeneous set of actors that are centrally and densely integrated. Furthermore, while the level of network heterogeneity is positively related to the function of resource mobilization in the process of policymaking, the level of centralized integration promotes the function of prioritizing. These findings are believed to contribute to our understanding of policymaking in contemporary society. The current paper indicates that a significant explanatory power exists in the concept of policy networks and that SNA is one way of advancing its possibilities.     

Comparing Policy Networks: Marine Protected Areas in California

While most of the network literature focuses on information and advice networks, there is increasing interest—particularly among Advocacy Coalition Framework (ACF) scholars—on ally networks and coordination networks. This article asks two basic questions: First, do information, ally, and coordination networks overlap with each other? Second, and drawing from the ACF, do policy core beliefs structure the interactions in ally, coordination, and advice/information networks? We pursue these research questions in the context of the California Marine Life Protection Act process. We find that ally and coordination networks overlap slightly more than information/advice networks and that policy core beliefs do a better job of predicting ally and coordination networks than advice/information networks. Thus, we show that ally networks can provide a useful proxy for coordination networks to identify advocacy coalitions.     

INTERNATIONAL NETWORKS AND ARTS POLICY RESEARCH1

There is a growth of networks in the cultural policy arena. Many of these networks have been formed to share information and to engage in comparative documentation and research. The International Federation of Arts Councils and Culture Agencies (IFACCA) is one such network, established with aims of consolidating the collective knowledge of arts councils and culture agencies, adding value to that knowledge, and improving the management and sharing of information on arts and cultural policy. Networks such as IFACCA impact on the research agenda in two main ways: directly, by undertaking, commissioning or collaborating on research projects, and indirectly, by highlighting the perceived information needs of their constituents or members. IFACCA’s main research programme, D’Art, is used as a case study to evaluate the direct impacts of the network, and this forms the basis for a discussion of the influence of such networks on the global arts policy research agenda.     

Network Location and Policy‐Oriented Behavior: An Analysis of Two‐Mode Networks of Coauthored Documents Concerning Climate Change in the Great Lakes Region*,†

This study explores how a scientist's location in science‐based policy networks can affect her policy‐oriented behaviors. In particular, we hypothesize that those scientists who fill structural holes in their networks will be more likely than others to engage in policy‐oriented behaviors. The network data are defined by scientists' coauthorship on policy documents regarding climate change in the Great Lakes. We employ a two‐mode network analysis to identify clusters of scientists who coauthored similar documents, and relative to those clusters, we identify those who fill structural holes by bridging between clusters. We find that those scientists who bridged between clusters were more likely to engage in policy‐oriented behaviors of policy advocacy and advising than were others in the network. This is an example of a link between network location and policy‐oriented behavior indicative of the broader phenomenon of how individuals exert agency, given structural constraints.     

Bilateral trade agreements as drivers of national and transnational benefit from health technology policy: implications of recent US deals for Australian negotiations with China and India

This article compares controversial health technology provisions in two important United States free trade agreements with developed nations: Australia and with South Korea. It examines the multinational corporate forces behind the medicines and medical devices components of these texts and their likely impacts upon Australian trade negotiations with China and India. It also examines the implications of some recent changes to US trade policy for this area in subsequent bilateral deals such as that with Peru. This article argues it is important that the Australian government change policy and, like the present Congress in the United States, now systematically approach such impending trade agreements with a view to assisting the partners’ regulatory frameworks to maximally enhance national and transnational benefit from their medicines and biotechnology industries.     

Putting People Back into Networks

This article argues that political scientists should spend more time observing policy networks, using ethnographic tools to capture the meaning of everyday activities. The first section reviews briefly the literature on policy networks, arguing for an ethnographic approach. To show how individual actors construct networks, the second section looks at the experience of consumers, managers and permanent secretaries of living and working in networks. The final section comments on what the fieldwork tells us about both network theory and ethnographic methods.     

Testing Policy Theory with Statistical Models of Networks

This article presents a conceptual framework for clarifying the network hypotheses embedded in policy theories and how they relate to macrolevel political institutions and microlevel political behavior. We then describe the role of statistical models of networks for testing these hypotheses, including the problem of operationalizing theoretical concepts with the parameters of statistical models. Examples from existing theories of the policy process and empirical research are provided and potential extensions are discussed.     

Bridging and Bonding Capital in Two‐Mode Collaboration Networks

Public management and policy scholars have empirically demonstrated that in complex policy arenas, governments depend on the collaboration of policy actors outside their direct control to produce needed goods and services. Government‐sponsored shared‐cost programs are one of the premier mechanisms to foster such cooperation, yet little is known about the inner patterns of participation in such programs and whether they are conditional on specific resource needs that partners may have. In this article, I study the participation of organizations in projects seeking funds from the Cooperative Funding Initiative, a program sponsored by the Southwest Florida Water Management District that finances projects dealing with the management of water resources. Through the estimation of a series of Exponential Random Graph Models in the networks that form when organizations participate in projects (two‐mode networks), I show that centralization around popular organizations results in greater bridging network capital, which facilitates the flow of nonoverlapping information from project to project. I analyze the implications of these findings and discuss how the formation of these bridging structures may enhance the capacity of the program to find innovative solutions to the problems the projects are designed to deal with.     

The Effects of Risk,Beliefs, and Trust in Education Policy Networks: The Case of Autism and Special Education

There are multiple theoretical accounts of how actors address problems of collective action in policy networks, but the two most prominent hypotheses are the risk and belief homophily hypotheses. The risk hypothesis claims that relational structures (e.g., bridging, bonding) depend on the benefits actors receive from uncooperative behavior, while the belief homophily hypothesis claims that relational ties form around shared policy beliefs. This study incorporates the case of autism and special education policy, a subsystem best characterized by Berardo and Scholz's (2010) conceptualization of a low-risk environment, to test hypotheses about the influence of risk, policy beliefs, and trust on the formation on relational ties in education policy networks. Utilizing data from a 2016 network survey of public and private special education stakeholders in Virginia, results from exponential random graph models provide support for the effects of bridging structures, beliefs related to the medical model of disability, and social trust on strong (collaboration) and weak (information/advice) relational ties in policy networks. The findings reinforce the importance of using policy networks to understand how actors build connections across multiple jurisdictions and policy sectors to mitigate problems of coordination in policy decision making and implementation.     

Reconceptualizing the Policy Subsystem: Integration with Complexity Theory and Social Network Analysis

The concept of the policy subsystem is an essential building block for several of the basic frameworks of policy process studies. Over time issues have become more complex, crossing subsystem boundaries, and so subsystems have escalated in their complexity as well. It is increasingly insufficient to study just one policy subsystem and so scholars have turned to studying boundary‐spanning regimes or policy networks. In this essay, we review the major contributions to developing the concept of a policy subsystem and trace its evolution into broader conceptualizations like issue and policy networks. We argue that the future for theories of the policy process is in more explicit integration of complexity theory and more effective modeling of subsystems with the utilization of social network analysis. In closing, we discuss the enduring nature of the concept of policy subsystems and highlight studies that continue using it in innovative ways.     

Micro‐Level Interpretation of Exponential Random Graph Models with Application to Estuary Networks

The exponential random graph model (ERGM) is an increasingly popular method for the statistical analysis of networks that can be used to flexibly analyze the processes by which policy actors organize into a network. Often times, interpretation of ERGM results is conducted at the network level, such that effects are related to overall frequencies of network structures (e.g., the number of closed triangles in a network). This limits the utility of the ERGM because there is often interest, particularly in political and policy sciences, in network dynamics at the actor or relationship levels. Micro‐level interpretation of the ERGM has been employed in varied applications in sociology and statistics. We present a comprehensive framework for interpretation of the ERGM at all levels of analysis, which casts network formation as block‐wise updating of a network. These blocks can represent, for example, each potential link, each dyad, the out‐ or in‐going ties of each actor, or the entire network. We contrast this interpretive framework with the stochastic actor‐based model (SABM) of network dynamics. We present the theoretical differences between the ERGM and the SABM and introduce an approach to comparing the models when theory is not sufficiently strong to make the selection a priori. The alternative models we discuss and the interpretation methods we propose are illustrated on previously published data on estuary policy and governance networks.     

Toward a Theory of Collaborative Policy Networks: Identifying Structural Tendencies

Support for the "democratization of the policy sciences" has led to the development of a number of frameworks and theories to enhance the normative, multidisciplinary approach to policy analysis. However, this approach has been challenged for failing to produce the objective empirical and normative standards implied by its scientific aspirations. One consideration that has been advanced under a variety of rubrics is "participatory policy analysis." This is a methodological proposal that expands the range of actors/stakeholders involved in the making and execution of public policy in a discursive or deliberative mode. While much of the research on policy networks is focused on the management and coordination of such networks (i.e., collaborative management), there is little attention on analysis of networks as a participatory policy analytical approach. We propose a theory of "collaborative policy networks" that examines not only the stakeholder composition of a group or the partnerships between any two stakeholders but also the way these stakeholders are embedded in various degrees of institutionalized structure and the discursive tendencies of exchange among them that leads to policy initiative, implementation, evaluation, and possibly termination. Collaborative policy networks are characterized by discursive properties, specifically reciprocity, representation, equality, participatory decision making, and collaborative leadership. We suggest that the results of such research can identify structural signatures of collaborative policy networks that serve as "stamps" of the common nature of such networks that, if fostered, can inform and improve the attempt of networks of partners to achieve policy goals.     

Regional Network for Quality Promotion: A Case-study of the Basque Country

Quality promotion as a means of improving competitiveness is a major objective in many countries. This paper examines successful practices in the Basque Country over an 11-year period, with a view to shedding light on the theoretical literature. Research on policy networks has produced useful results but we are still some way from a plausible, consensus-based theory of policy networks. Based on experience in the Basque Country, an integrated approach to understanding the antecedents and consequences of a regional knowledge-driven network for quality promotion is offered. Other regions in developing countries could use this approach to achieve successful policy networks. Although Total Quality Management implementation in public sector entities has been studied before, evidence about Regional Quality Promotion experiences is scarce.     

Collaboration and Culture: Organizational Culture and the Dynamics of Collaborative Policy Networks

This paper presents a theory of the role of culture in collaborative policy networks. It builds on the literature that analyzes the factors related to the formation, maintenance, and dissolution of collaborative arrangements by demonstrating the importance of hitherto undertheorized cultural factors. Cultural theory indicates that actors with different cultural viewpoints have distinct and predictable biases in terms of their expectations of collaboration and their preferences concerning how collaborative policy networks are structured. These biases, in turn, shape how collaborative partners are chosen and how collaborative relationships are maintained over time. The theory is illustrated with a case study of the rise and dissolution of a coalition within a housing policy network in Los Angeles. The case illustrates that cultural differences can impede collaboration even when organizations share similar policy goals.     

Mechanisms of Control in Emergent Interorganizational Networks

The delegation of decision‐making capacity from one actor to another—known variously as authority or control—is a central phenomenon of organizational sociology. Despite its theoretical and practical significance, however, the dynamics of control within disrupted settings (such as disasters) remain poorly understood. Here, we shed light on this question by a reexamination of historical data on multiorganizational disaster response networks, using recently developed statistical methods for robust inference from error‐prone informant reports. Specifically, we test competing hypotheses about the relationship of control during the response process to the structure of interorganizational communication. We find that both the realized and normative response hierarchies are likely shaped by coordination among both nonadjacent alters and along indirect channels. Our results suggested that the communication structure of these networks is consistent with a control at a distance model of command. This article makes a substantial contribution to understanding the role of network structure in the emergence of control between organizations in disrupted settings. Additionally, our innovative approach to network inference will guide researchers in dealing with error‐prone data in their own research on policy networks.