Title: Week 7.1 Policy Transfer, Policy Learning, Policy Convergence, Policy Diffusion.
1Week 7.1 Policy Transfer, Policy Learning,
Policy Convergence, Policy Diffusion.
2SUMMARY
- Refers to the evidence for - and causes of -
similarities in policy across regions. - A variety of terms are in use transfer is used
as an umbrella term for the rest. Learning may
be voluntary, convergence and diffusion may
suggest a relative absence of transnational
forces. - The actors involved are a combination of usual
suspects (elected officials, parties, civil
service, etc.) as well as policy entrepreneurs
and supra-national organisations. - The nature of transfer can be seen on a
continuum, from voluntary to coercive. This
includes indirect coercion which may suggest a
perceived need to transfer, often without exerted
influence. - A variety of policy-related factors may be
transferred from ideologies and wholesale
programmes to administrative arrangements or just
broad ideas. Negative lessons may also be
learned. - The level of transfer ranges from complete
duplication to broad inspiration. - Policy conditions, geography and ideology affect
the willingness to study other regions. - Transfer is most likely if the policy is simple,
the values of borrower and lender coincide and
the political structures/ administrative
arrangements are similar. - There is a clear link between the transfer
literature and issues of rationality, governance
and agenda-setting.
3What Is It? Convergence
- Starting point is evidence of similarities across
countries policy goals, content, instruments,
outcomes and/ or styles. - It could mean independent problem solving based
on parallel domestic pressures - But Bennet suggests not calling this convergence
4Policy Learning (Rose)
- Lesson-drawing across time (i.e. own experience)
and then space (other regions) - Extent of learning varies
- Negative lessons also learned
5Policy Transfer
- Umbrella term with overarching definition the
process by which knowledge about policies,
administrative arrangements, institutions and
ideas in one political system (past or present)
is used in the development of policies,
administrative arrangements, institutions and
ideas in another political system (Dolowitz and
Marsh) - Learning is one type of transfer (voluntary)
6Policy Diffusion
- Suggests more passive process?
- Refers to similar adoptions of policy without
evidence of emulation? - Associated with analysis of US states
- Note that a precise definition of all 4 is
elusive. - Differences may not be significant (bar e.g.
learning as a voluntary subset of transfer)
7Who Does It?
- Usual Suspects within political systems -
elected officials, political parties,
bureaucrats/ civil servants, pressure groups,
etc. - Policy entrepreneurs consultants/ experts
selling best practice (inappropriately), NGOs,
international policy communities and
professionalisation - Supra-national institutions EU, OECD, World
Bank, UN. Note that national governments can
perform this role with devolved authorities. - Note importance of exporting and importing
regions although this can change
8Why Transfer - Is it Voluntary?
- Remember the broader questions within political
systems why change policy? Who decides? Who
influences? - Additional discussion of the role of coercion
- Dolowitz and Marsh continuum of transfer
9 - Voluntary transfer following dissatisfaction
with policy or a natural tendency to look abroad.
Note that transfer search can be used to
legitimise existing policy. - Direct Coercive transfer borrowing country
influenced (effectively forced?) to adopt a
policy. Role of World Bank in developing
countries, but also EU in Europe. Influence of
MNCs on regulations. - Indirect Coercive transfer voluntary but driven
by perceived need for region B to change policy
because region A is an important market for
exports, they have a close working relationship,
there is a need to keep up. Region As
policies may also cause externalities a factor
for Canada (US) and Wales (England).
10Policy Transfer Continuum
11Discussion of continuum
- Transfer may contain voluntary and coercive
elements (implementation/ discretion?) - Perceived need varies and is subject to internal
political processes - Appearance of coercion may help governments
introduce unpopular policies
12What is Transferred?
- Policy goals, structure and content
- Policy instruments or administrative techniques
Institutions - Ideology Attitudes Ideas
- Negative Lessons?
- Note that policies can be transferred even if
ideology is different - Does it matter if the same policy outcomes are
caused by different processes?
13Degrees of Transfer - Rose
- Complete duplication possible if similar
starting points (e.g. US states) - Adaptation taking different laws/
administration into account - Making a hybrid from borrowing and lending
countries - Synthesis of one or more programmes
- Broad inspiration
- Repackaging?
14Bear in mind
- Loose boundaries between categories
- All elements can be contained in one policy area
- Single transfer or over period of years
- Note extent of change regardless of transfer.
Effect of transfer is total minus that which
would have happened?
15From Where Are Lessons Drawn?
- Learning from the past in ones own region, then
others - Lessons likely to be drawn from other regions if
there are shared policy conditions (particularly
economic conditions) - On geographical grounds (although proximity
subject to choice and technological advance?) - If there is a shared ideology (although remember
New Zealand and Wales)
16Attempt of and success of transfer affected by
range of factors
- If the policy is unique or based on inimitable
conditions/ organisations - Political structures e.g. note assumption of
federal welfare policy that state/ local levels
will supplement action - Resources to implement
- Simplicity of policy with clear cause/effect
- Knowledge gathered of policy and likely outcomes
- Interdependence (Wales Scotland and fur)
- When ideology/ values of importer/ exporter
coincide - Note links to rationality, incrementalism and
implementation studies
17Policy Transfer and Failure
- Discussion of implementation and policy failure
qualifies idea of coercion e.g. with the EU
there is discretion to implement directives.
There is power to coerce national governments but
how far down the line does this extend? - Dolowitz and Marsh discuss failure in a different
sense with 3 (non mutually exclusive) aspects
(example of CSA). Note the links to rationality
and implementation
18 - Uninformed transfer the borrowing country has
incomplete information on key elements of success
in lending country (e.g. the length of time to
phase in policy the role of the courts in
pressure release and ensuring discretion) - Incomplete transfer when those key elements are
not transferred - Inappropriate transfer when not enough
attention is paid to adaptation and/ or the
original policy aims of the exporter e.g.
addressing those in arrears rather than focussing
those who could afford to pay (to reduce PSBR)
19Summary of previous lectures
- Biggest constraint on change is existing policy
and power relations underpinning policy agreement
- Policy problems are produced/ framed, not
selected - Policy may be incremental with long periods of
stability - Comprehensive rationality assumption of central
actor undermined by MLG discussion - But potential for short bursts of intense
policy attention and change.
20Agenda-setting links to Transfer
- Important to look at source for new ideas, nut
these are subject to the same processes as any
other policy - Lessons are not just there they are subject
to framing when reported (e.g. success of smoking
ban in Ireland?). (Note relevance of
Schattschneider here). - The focus of lessons (e.g. which countries are
worthy of the effort?) is subject to competition/
selection - The pressure to learn will depend on the position
of an issue on the policy agenda
21Incrementalism links to Transfer
- Incrementalism focus of learning restricted to
most similar regions? Other searches unrealistic
given scope for radical change. - Governments learn from own mistakes and make
small adjustments. Outside searches are
therefore not automatic - Level of path dependence in transfer (e.g. Japan
studied police in Germany after importing law and
local government)
22MLG links
- Adoption of policy in one level dependent on
cooperation with another? - Does harmonisation take place at central
government level or sub-sectoral policy community
level based on expertise? - Example of harmonisation of clinical methods
fostered by clinical links? (Although note role
of e.g. Nice) - Devolution makes measurement of transfer tricky
potential to vary by policy area and level of
government
23Punctuated equilibrium links
- Lessons from elsewhere may be a powerful tool to
challenge existing policy monopolies - MLG link if case unsuccessful at one level of
government it can be pursued at higher level and
then transferred - E.g. case for smoking ban in Scotland helped by
experience of Ireland and elsewhere
24Issues with transfer literature
- Can we distinguish these issues from broader
literature? - Definition of transfer/ lesson drawing is so
broad is it measurable? - How is transfer demonstrated?
25Confusion of rational and voluntary?
- Dolowitz and Marshs Why Transfer continuum
conflates 2 discussions of policy change - Policy transfer can be entirely voluntary but not
rational - Note example of WFTC
- Bounded rationality des not necessarily suggest
coercion - Note that DM use it to mean a perceived need to
e.g. keep up. Maybe this means pressure for
change and less time to learn? - Surely this is different type of coercion than
exerted by e.g. World Bank?
26Who is coerced?
- E.g. imagine 2 advocacy coalitions one
voluntary approach to tobacco, one public health - Public health replaces voluntary as dominant
coalition and successfully achieves policy change - Is the government coerced? Surely depends on
which coalition key decision-makers were part of?
Or did they act as a referee selecting policy on
basis of new evidence? - Are we talking about coercion in terms of needing
to address an issue/ make a decision rather than
the decision itself?
27Final note value of transfer?
- Context for domestic decision-making
- Challenges temptation to view policy change only
in domestic context - Key question in any policy discussion was
transfer involved?