Toward a processual understanding of policy integration

Jeroen J L Candel,Robbert Biesbroek

doi:10.1007/s11077-016-9248-y

Abstract

The role of policy integration in the governance of cross-cutting policy problems has attracted increasing scholarly attention in recent years. Nevertheless, the concept of policy (dis)integration is still under theorized, particularly regarding its inherent processual nature. The main argument of this paper is that policy integration should be understood as a process that entails various elements that do not necessarily move in a concerted manner but may develop at different paces or even in opposite directions. To study such dynamic integration pathways, the paper proposes a multi-dimensional framework. Drawing on existing literature, the framework distinguishes four dimensions of integration: (1) policy frame, (2), subsystem involvement, (3) policy goals, and (4) policy instruments. For each of these dimensions, we describe different manifestations that are associated with lesser or more advanced degrees of policy integration within a governance system. Apart from offering an innovative theoretical approach that does justice to the dynamic and oftentimes asynchronous nature of integration processes, the framework allows for holding decision-makers accountable for promises they make about enhancing policy integration. Simultaneously, it is argued that the merit of lower degrees of integration should not be underestimated, as these may sometimes be the most feasible or appropriate for the governance of a cross-cutting problem.

Highlights

Many of today’s most pressing societal challenges including terrorism, food security, climate change, involuntary migration, or underemployment (WEF 2015) are crosscutting the boundaries of established jurisdictions, governance levels, and policy domains
The framework distinguishes four dimensions of integration: (1) policy frame, (2), subsystem involvement, (3) policy goals, and (4) policy instruments. For each of these dimensions, we describe different manifestations that are associated with lesser or more advanced degrees of policy integration within a governance system
Apart from offering an innovative theoretical approach that does justice to the dynamic and oftentimes asynchronous nature of integration processes, the framework allows for holding decision-makers accountable for promises they make about enhancing policy integration

Summary

Introduction

Many of today’s most pressing societal challenges including terrorism, food security, climate change, involuntary migration, or underemployment (WEF 2015) are crosscutting the boundaries of established jurisdictions, governance levels, and policy domains. Examples in the literature are abundant, including the problems of compartmentalization, fragmentation, competing and incoherent objectives, policy under- and overreaction, competing issueattention, and inconsistent instrument mixes. These integration challenges emerge when complex societal issues are confronted with traditional forms of subsystem policymaking within hierarchic governance systems (Jochim and May 2010; May et al 2006). Differences between subsystems generally do not allow for the coherent or holistic approaches that are needed to satisfactorily deal with problems of a cross-cutting nature (Jochim and May 2010). Rhodes (1991: 212) aptly characterized the governance of these ‘cross-cutting problems’ through sectoral subsystems as resulting in ‘policy messes.’ What makes the governance of cross-cutting problems even more messy is that many are ‘wicked’; in addition to cross-scale dynamics, these problems involve high degrees of ambiguity, controversy, uncertainty, and deadlocked interaction patterns (Rittel and Webber 1973; Termeer et al 2015)

Objectives

Conclusion