Presented by Dr. Valentina Dinica
Institute of Policy Studies, Victoria University of Wellington
16/04/10
| Participatory Policy Analysis (PPA). A seminar on the potential usefulness of PPA models in helping develop optimal solutions to ‘wicked’ policy problems.Valentina gave an overview of the philosophical ideas behind why we might use participatory tools in policy development – essentially asking why, how and when should/could citizens be involved in the policy process – and the barriers to using such methods.The role of policy analysts as so-called objective experts, and their ability to be able to objectively measure or evaluate (think Cost Benefit Analyses etc) was questioned – which was interesting as this can underly arguments against public participation in decision-making processes.She also presented a case study of the Consensus Conference tool, which has been used extensively in Denmark and was (apparently very shoddily) used in NZ in 1996 and 1999 in the development of GM food policy. |
Philosophical basis
Policy analysis is full of assumptions, traditionally these are positivist i.e. objectivist and determinist
| Positivist | Post-Positivist |
| Reality is independent of our observations i.e. Objectivism | Relativity and contextuality of modern physics |
| Determinism i.e. measurability | Uncertainties and indeterminacy i.e. Einstein and the General Theory of Relativity |
| Foundations in Newtonian principles of science c.17C | Quantum theory and the uncertainty principle of Heisenberg |
| Positivism can be considered a cultural belief | ‘the very process of measurement creates that which we measure’ |
Examples of common positivist assumptions in policy:
- ‘evidence-based policy decisions’
- Fact-value dichotomy
- ‘it’s got to have numbers’ non-sense
- Risk-benefit analyses in instances such as NIMBY problems, biotech risks and other policy failures
Implications for policy analysis
| Positivist | Post-Positivist |
| Policy experts/advisors | Citizens and stakeholders next to policy experts and scientists |
| Scientists | ‘Optimal’ not ‘best’ solutions |
| Quantitative | Participatory Policy Analysis |
| Cost-benefit analyses | Qualitative |
| Objective |
Matching PPA models to meet challenges
- Consensus conference – live or internet
- Scenario workshops
- Parable to policy/narrative policy
- Simulations/themes ‘highlander method’
- Electronic meeting systems
Questions to ask:
Who are the actors?
Who does what/has what role?
Competencies of policy analysts relative to other stakeholders
At which stages are different actors allowed involvement and how is this valued?
Actors being:
- political decision-makers
- technical experts/scientists
- citizens
- policy advisors
- (note that lobby groups are a significant other actor)
‘Flows’ between actors – what is being exchanged?
- Knowledge, data, scientific findings
- Values, perceptions, insights, worries, questions etc
- Policy recommendations
The ‘sense’ of the flow – from who to who?
Some insights from cognitive science – interesting to consider in relation to how we see things and implications for policy development
| Cupboard brains | Fuzzy brains |
| Positivist | Post-Postitivist |
| Binary focus | See the grey |
| Evolutionary advantage – also aligned with neo-liberal and economic models | Beyond fact-value dichotomy |
| Interestingly, more associated with women and old people… |
In Positivist policy development
In positivist policy development, typically, values and goals, scientific data and information flow in one direction only, from policy analysts and experts to citizens. Citizens are only recipients of data/info.
In post-positivist policy development, the model looks the same but questions, clarifications, insights, information, and importantly, policy recommendations flow from citizens back to political decision-makers.
Although this is a simplified model, this distinction is important to understand, as it does touch on key differences in the ways in which citizens are/can be involved in policy development.
One participatory tool – the Consensus Conference
- developed in the US, used in Demark 22 times between ’97 – ’02
- involves an
- advisory committee – 8-10ppl from diverse groups, an overseeing role
- citizens panel – 10-20ppl, ask questions of experts, diverse views, backgrounds
- experts panel – citizen elected
- 3-4 days debate and deliberation
- Citizens chose the questions to ask of experts
- Time prior to conference to orient with issues
- Final report is widely published following press conference
Used in Denmark in 1999. Used, for example, around GM food policy. Consensus is not forced, rather exploration of the extent to which agreement is possible is encouraged.
It was used in NZ in ’96, then ’99, however the conference became more about awareness raising and educating citizens than having genuine feedback from citizens.
‘When you only have a hammer, everything looks like a nail’ – so true!