Policy Design I: Degenerative Politics
, 12.08.2011
My masters thesis is comprised of policy and discourse analysis surrounding a water policy issue here locally. For my research I've been reading a book on policy design, which focuses on the content of policies (their target audiences, guidelines, rulings, etc.) to expose the role of social construction in policy.
I think it's important to understand how the current patterns embedded in our political process (including the influence from media, lobbyists, etc.) have created a degenerative system, where policy isn't used as a tool to solve issues in the interest of the public, but as a tool to discredit the "other side" and embarrass or weaken political opponents.
From "Policy Design For Democracy" (1997, Schneider & Ingram). All italics are from the text. My comments are in blue. Chapter 5: Social Constructions of Target Populations: Degenerative Policy Designs, p. 102 - 149
In degenerative ("politicized") institutional cultures, various individuals or factions use issues to further their own cause quite apart from any consideration of the actual merits of the issue itself. There may be little or no effort to find common ground or to pursue the public interest of the organization as a whole or of the constituencies it is expected to serve. Degenerative institutional cultures often contain "in" groups and "out" groups that attempt to frame issues in such a way that they can claim credit for themselves and embarrass the other side. Divisive and disrespectful language are common features of degenerative institutional cultures, (Remember charming Allen West?) and there is a marked loss of trust, civility, and collegiality. Public policy is not a means of solving problems or even resolving conflicts among competing perspectives, but is instead an instrument of power that can be used opportunistically by each faction to further its own legitimacy, popularity, or future power position. Interaction patterns are confrontational and competitive rather than discursive and cooperative. Communication styles tend to be antagonistic, deceptive, and secretive. The ethics and norms that guide cooperative interaction are largely absent. People do not have to be honest (just say, It was never intended to be a factual statement, and you're all good!), to state real reasons, to weigh empirical evidence in terms of the nature of the problem and the probable effects of the policy, or even to treat one another with respect."
Does this sound familiar to you?
Some policy-making institutions may exhibit degenerative traits on almost every issue they consider and others may seldom show these tendencies. We expect, however, that most institutions move from one to the other depending on the characteristics of the issue, the personalities of the participants, and the risks or opportunities offered by the various policy designs that might be devised as responses to the issue. Issues for which failed policy may constitute a severe threat to the institution itself may bring out a less degenerative form of politics--but even here there is no guarantee. If some persons or factions are so bitterly opposed to others or alienated from the institution itself, they may politicize even the most threatening issues in an effort to actually facilitate the failure of the institution (How about the freshmen congressmen who threatened to refuse to reach consensus during the ridiculous debt ceiling "crisis?"). The point here is that institutional cultures and policy-making dynamics are not permanent structural features, and a particular institution may handle one issue differently than another. The U.S. Congress, for example, often is able to consider serious foreign policy issues in a "nonpartisan" manner in which everyone seems focused on doing what is best for the country, whereas domestic social policy is much more susceptible to degenerative politics.
Participants within an institutional setting have the capacity to help direct policy making toward or away from degenerative styles. Leadership can shape the culture and standard operating procedures of an institution and attempt to construct issues so that they will be considered through a more cooperative, discursive policy-making process; or they can "politicize" issues and use them to their own advantage. Events from within or outside can create sudden "shocks" that unmask the dysfunctional characteristics of degenerative interaction patterns and grant participants and leaders the opportunity to bring about significant change. Nevertheless, the power of institutions to adhere to historical patterns of interaction that shape the beliefs and behavior of members should not be underestimated. Institutions have powerful effects on their members and newly inducted members are more likely to take on the culture of the institution than to challenge it effectively. (The crime that sent Martha Stewart to jail is apparently standard operation among congressmen, using information they have on companies they legislate about to get rich. Read about it here. A first-year congressman may come into Congress as a middle-class citizen, and within a year, amass millions from lobbyists and insider-trading. That's quite a lot of money to keep even fresh, idealistic freshman lawmakers from changing the institutional culture for the better.)
You've probably noticed that some of my comments are pointed at republicans, which I acknowledge. I think they are the guilty party at the moment, simply because we have a democrat in the White House who happens to illicit divisive reactions anyway (which could be for a variety of reasons, including racism). When George W. was in the White House, Democrats and the media were particularly nasty to him as well. The reality is that obstructionism is the name of the game, and has been for a while, but it seems to be intensifying. Any move on the part of one faction is immediately opposed, despite any possible merit, by the other.
I have no idea what to do about our degenerative political system. All I can say is from right here, things look mighty dire.
Sometimes I wish there was a "refresh" button for our political system.