The politics of policy anomalies: bricolage and the hermeneutics of paradigms

Abstract

This article addresses three issues troubling predominant models of paradigmatic policy change and proposes an alternative perspective on the subject. The first issue pertains to the conflation of very specific, but difficult to operationalize, types of policy change in Peter Hall’s standard three-order typology for understanding policy development. The second has to do with the view that exogenous phenomena, namely shifts in the locus of decision-making authority, are necessary for ‘paradigmatic’ policy change to occur. The third issue stems from Hall’s strict adaptation of Thomas Kuhn’s ideas concerning the (in)commensurability of succeeding paradigms. All three problems are shown to be derivative of the fact that policy change is more complex than often assumed. Instead of conceiving of policy change in definite or ‘ordered’ terms, it is argued that analytical focus should be directed toward the hermeneutic contest that unfolds as agents patch together ideas in the attempt to identify and explain the sources of policy problems. This largely discursive conflict takes place as agents vie to influence the structure of ‘solution sets’ in a process of ‘policy bricolage’. The article advances a revised and more actor-centered formula for understanding types of paradigmatic and intra-paradigmatic policy change by developing a more precise understanding of different types or ‘orders’ of policy anomalies and the role anomaly definition plays in the construction of new paradigms.