Tips for policy success: learn from ‘policy entrepreneurs’ and exploit ‘windows of opportunity’
Academic policy theory can seem daunting for practitioners. It's often complex, contradictory, and takes time to understand. In this post, Professor Paul Cairney cuts through the complexity to show how concepts like 'policy entrepreneurs' and 'windows of opportunity' help tell the story of policy success and failure. This post originally appeared on Paul's blog.
Policy influence is impossible to find if you don’t know where to look. Policies theories can help you look in the right places, but they take time to understand.
It’s not realistic to expect people with their own day jobs – such as scientists producing policy-relevant knowledge in other fields – to take the time to use the insights it takes my colleagues a full-time career to appreciate.
So, we need a way to explain those insights in a way that people can pick up and use when they engage in the policy process for the first time. That’s why Chris Weible and I asked a group of policy theory experts to describe the ‘state of the art’ in their field and the practical lessons that they offer.
None of these abstract theories provide a ‘blueprint’ for action (they were designed primarily to examine the policy process scientifically). Instead, they offer one simple insight: you’ll save a lot of energy if you engage with the policy process that exists, not the one you want to see.
Then, they describe variations on the same themes, including:
- There are profound limits to the power of individual policymakers: they can only process so much information, have to ignore almost all issues, and therefore tend to share policymaking with many other actors.
- You can increase your chances of success if you work with that insight: identify the right policymakers, the ‘venues’ in which they operate, and the ‘rules of the game’ in each venue; build networks and form coalitions to engage in those venues; shape agendas by framing problems and telling good stories, design politically feasible solutions, and learn how to exploit ‘windows of opportunity’ for their selection.
Learn from ‘multiple streams’ analysis
My paper on the ‘multiple streams approach’ shows what happens in the absence of two things you might want to see: ‘rational’ and ‘evidence based’ policymaking which takes place in a policy cycle with linear stages. If you act according to that hope, you’ll likely say the wrong thing to the wrong people at the wrong time. It would be better to adapt to the following implications of an agenda setting process in which framing is more important than evidence, and solutions chase problems (table 1).
Learn the meaning of timing and windows of opportunity
Most people would associate ‘timing’ with the idiom ‘be in the right place at the right time’. In agenda setting it means two more important things:
- Learning the right time to exploit emotional thinking in policymakers to help generate attention to a policy problem, not waiting for their attention to shift naturally.
- Producing policy solutions first, then waiting for the right time to attach them to problems. If a policy cycle existed, policymakers would identify a problem then spark of a series of stages, to select a solution, implement, and evaluate it. In the real world, policymaker attention often shifts before a feasible solution can be developed.
Learn from ‘policy entrepreneurs’
So, successful ‘policy entrepreneurs’ ‘lie in wait in and around government with their solutions at hand, waiting for problems to float by to which they can attach their solutions, waiting for a development in the political stream they can use to their advantage’ (Kingdon 1984: 165–6). Entrepreneurs are the elected policymakers or unelected influencers with the knowledge, power, tenacity and luck to be able to exploit ‘windows of opportunity’ when: attention rises to a problem, a feasible solution is available, and policymakers have the motive to select it.
Policy entrepreneurs seem to have particular skills or strategies, to frame issues well, build networks, and lead coalitions. However, Kingdon described them as ‘surfers waiting for the big wave’, which suggests that their environment is more important than their action. He was describing a large US political system in which different actors tended to be involved in different ‘streams’ or parts of policymaking (such as a President raising problems, and a bureaucracy coordinating solutions), no one was powerful enough to bring them together, and it took a lot of time for policy solutions to ‘soften’ or change enough to become acceptable to many actors in the system.
In modern studies, we can see some key differences: policymaking at a smaller scale seems to allow ‘entrepreneurs’ more opportunities to propose solutions and generate attention to problems; and, it seems possible to short-circuit the need to ‘soften’ policies by finding sympathetic audiences in different ‘venues’ or importing solutions that have a reputation for working elsewhere. Yet, most of MSA’s abstract insights remain ‘universal’, inviting us to adopt a counterintuitive strategy of producing solutions then chasing problems, and focus on framing and persuasion to reduce ambiguity and generate demand for evidence, rather than producing more and more evidence to reduce uncertainty in the hope that scientific evidence will win the day or speak for itself.
Posted by Luke Craven.