Performing social policy diffusion: Reflections on agents as social protection policy entrepreneurs in Africa

Abstract

A growing literature explains the diffusion of social protection policies and, in particular, cash transfer programmes throughout Africa since the early 2000s as a paradigmatic policy transfer process. Most contributions emphasise the central role of transnational development agencies in this process, which is typically characterised as ‘donor-driven’. This article argues that individual agents, notably consultants who were commissioned by agencies to perform various roles in persuading African governments to introduce social protection, played a dual role insofar as many also shaped the positions of the agencies that hired them. They achieved both by deploying a range of influencing strategies associated with policy entrepreneurship, such as rhetorical persuasion, demonstration, and advocacy events. Other tactics, identified by the author from in-depth interviews conducted with 26 influential agents, include ‘piggybacking’, ‘Trojan horse’, and ‘accelerator events’. Although these agents believe in the value of their work, some expressed concern about their role in driving policy changes in African countries that appear to reflect the ideas and preferences of the international community, rather than aligning with the policy priorities of national governments.