Are you a Policy Entrepreneur? How to promote pro-poor policy & practice? An ODI Workshop London, 16th March 2004 John Young & Julius Court Research and Policy in Development Programme www.odi.org.uk/rapid/ WS Purpose • Share experiences; • Learn about evidence-based policy and practice in the UK and Developing Countries; • Try out some simple tools for policy analysis and action; • Learn about other tools and approaches which have been used elsewhere, and about where to access further information and resources; • Develop a personal action-plan to improve the impact of your own work. WS Outline • • • • • • • • • Share experiences about your own work; The RAPID analytical framework; Try it out out! The RAPID action framework; Try it out! The policy entrepreneur questionnaire results; Some useful tools; Action planning; Evaluation & sources of further information. RAPID Programme • Desk-based literature reviews • GDN project: – 50 preliminary case studies – Phase II studies (25 projects) • ODI project: – 4 detailed case studies – HIV/AIDS • Advisory work • Workshops and seminars www.odi.org.uk/rapid Existing theory 1. 2. 3. 4. 5. 6. 7. 8. 9. 10. 11. 12. 13. 14. 15. Linear model Percolation model, Weiss Tipping point model, Gladwell ‘Context, evidence, links’ framework, ODI Policy narratives, Roe Systems model (NSI) External forces, Lindquist ‘Room for manoeuvre’, Clay & Schaffer ‘Street level bureaucrats’, Lipsky Policy as social experiments, Rondinelli Policy Streams & Windows, Kingdon Disjointed incrementalism, Lindquist The ‘tipping point’, Gladwell Crisis model, Kuhn ‘Framework of possible thought’, Chomsky 16. Variables for Credibility, Beach 17. The source is as important as content, Gladwell 18. Linear model of communication, Shannon 19. Interactive model, 20. Simple and surprising stories, Communication Theory 21. Provide solutions, Marketing Theory I 22. Find the right packaging, Marketing II 23. Elicit a response, Kottler 24. Translation of technology, Volkow 25. Epistemic communities 26. Policy communities 27. Advocacy coalitions etc, Pross 28. Negotiation through networks, Sebattier 29. Shadow networks, Klickert 30. Chains of accountability, Fine 31. Communication for social change, Rockefeller 32. Wheels and webs, Chapman & Fisher www.odi.org.uk/rapid/lessons/theory Existing theory – a short list • • • • • • • • Policy narratives, Roe Systems of Innovation Model, (NSI) ‘Room for manoeuvre’, Clay & Schaffer ‘Street level bureaucrats’, Lipsky Policy as social experiments, Rondene Policy streams and policy windows, Kingdon Disjointed Incrementalism, Lindblom Social Epidemics, Gladwell ODI working paper 174, 2002, Hovland, de Vibe and Young Bridging Research and Policy: An Annotated Bibliography. Reality • Linear logical → dynamic, complex, two-way. • “The whole life of policy is a chaos of purposes and accidents. It is not at all a matter of the rational implementation of the so-called decisions through selected strategies 1” • “Most policy research on African agriculture is irrelevant to agricultural and overall economic policy in Africa2” 1 - Clay & Schaffer (1984), Room for Manoeuvre; An Exploration of Public Policy in Agricultural and Rural Development, Heineman Educational Books, London 2 – Omamo (2003), Policy Research on African Agriculture: Trends, Gaps, and Challenges, International Service for National Agricultural Research (ISNAR) Research Report No 21 Group Task 1 • Discuss your own work - identify the main policy objectives & what you do to achieve them. • Appoint a secretary to take notes! Definitions • Research: “any systematic effort to increase the stock of knowledge” (NB: focus on science) • Policy: a “purposive course of action followed by an actor or set of actors” – Agendas / policy horizons – Official statements documents – Patterns of spending – Implementation processes – Activities on the ground The Analytical Framework External Influences Socio-economic and cultural influences, donor policies etc The links between policy and research communities – networks, relationships, power, competing discourses, trust, knowledge etc. The political context – political and economic structures and processes, culture, institutional pressures, incremental vs radical change etc. The evidence – credibility, the degree it challenges received wisdom, research approaches and methodology, simplicity of the message, how it is packaged etc Other models Some Key Questions • The external environment: What are the major external influences (war on terror; EU accession)? Who are the key international donors & what impact do their policies have? What impact do donor research policies have? • The political context: What is the nature of governance and democracy? What is the current policy narrative? Is there political interest in change? What is the capacity of and incentives in the bureaucracy (to use research)? • The evidence: What is the quantity, quality and relevance of research? Are the concepts familiar or new? How are findings packaged and communicated? Does it matter? • Links: What are the existing networks & intermediaries? Are links formal or informal; open or closed? How important are legitimacy and trust? Political Context: Key Areas • The macro political context (democracy, governance, media freedom; academic freedom) • The sector / issue process (Policy uptake = demand – contestation) [NB Demand: political and societal] • Policy implementation and practice (bureaucracies, incentives, street level, participatory approaches) • How policymakers think (narratives & policy streams) • Decisive moments in the policy process (policy processes, votes, policy windows and crises) • Context is crucial, but you can maximize your chances Evidence: Relevance and credibility • Key factor – did it provide a solution to a problem? • Relevance: – Topical relevance – What to do? – Operational usefulness – How to do it? : • Credibility: – Research approach – Of researcher > of evidence itself • Strenuous advocacy efforts are often needed • Communication – interactive. Links: Feedback and Networks • Feedback processes often prominent in successful cases. • Trust & legitimacy • Networks: – Epistemic communities – Policy networks – Advocacy coalitions • The role of individuals: connectors, mavens and salesmen (NB: our understanding remains limited) External Influence • Big “incentives” can spur evidence-based policy – e.g. EU accession, PRSP processes. • And some interesting examples of donors trying new things regarding supporting research • But, we really don’t know whether and how donors can best promote use of evidence in policymaking (credibility vs backlash) Group Task 2 • Choose one of your own, or one of the teaching case studies, apply the framework and “identify the key factors in each dimension of the framework and what else may matter – and what you might want to know more about. • Appoint a secretary to take notes! The Analytical Framework External Influences Socio-economic and cultural influences, donor policies etc The links between policy and research communities – networks, relationships, power, competing discourses, trust, knowledge etc. The political context – political and economic structures and processes, culture, institutional pressures, incremental vs radical change etc. The evidence – credibility, the degree it challenges received wisdom, research approaches and methodology, simplicity of the message, how it is packaged etc A Practical Framework External Influences Politics and Policymaking Campaigning, Lobbying Scientific information exchange & validation political context Media, Advertising, Networking links Policy analysis, & research Research, learning & thinking evidence Using the framework • The external environment: Who are the key actors? What is their agenda? How do they influence the political context? • The political context: Is there political interest in change? Is there room for manoeuvre? How do they perceive the problem? • The evidence: Is it there? Is it relevant? Is it practically useful? Are the concepts familiar or new? Does it need repackaging? • Links: Who are the key individuals? Are there existing networks to use? How best to transfer the information? The media? Campaigns? Putting it into practice What researchers need to know What researchers need to do Political Context: • Get to know the policymakers. • Work with them – seek commissions • Identify friends and foes. • Strategic opportunism – • Prepare for policy prepare for known events opportunities. + resources for others • Look out for policy windows. • Who are the policymakers? • Is there demand for ideas? • What is the policy process? Evidence • What is the current theory? • What are the narratives? • How divergent is it? Links • Who are the stakeholders? • What networks exist? • Who are the connectors, mavens and salesmen? • • • • • Establish credibility Provide practical solutions Establish legitimacy. Present clear options Use familiar narratives. • Get to know the others • Work through existing networks. • Build coalitions. • Build new policy networks. How to do it • Build a reputation • Action-research • Pilot projects to generate legitimacy • Good communication • Build partnerships. • Identify key networkers, mavens and salesmen. • Use informal contacts Paravets in Kenya 1970s - Professionalisation of Public Services. - Structural Adjustment → collapse. - Paravet projects emerge. 1980s - ITDG projects. - Privatisation. - ITDG Paravet network. 1990s - Rapid spread in North. - KVB letter (January 1998). - Multistakeholder WSs → new policies. 2000s - Still not approved / passed! Paravets in Kenya - Political Context 1970s - Professionalisation of Public Services. - Structural Adjustment → collapse of services. - Paravet projects emerge. 1980s - ITDG projects. - Privatisation Privatisation. - ITDG Paravet network network.and change of DVS. 1990s - Rapid spread in North. - KVB letter (January 1998). - Multistakeholder WSs → new policies. 2000s - Still not approved / passed! Paravets in Kenya - Research 1970s - International Research Professionalisation of Public Services. Structural Adjustment → collapse of services. Paravet projects emerge. ITDG projects projects.– collaborative action research. 1980s - Privatisation Privatisation. - ITDG Paravet network network.and change of DVS. 1990s - Rapid spread in North. The Hubl Study - KVB letter (January 1998). - Multistakeholder WSs → new policies. 2000s - Still not approved / passed! Paravets in Kenya - Links 1970s - International Research Professionalisation of Public Services. Structural Adjustment → collapse of services. Paravet projects emerge. ITDG projects projects.– collaborative action research. 1980s - Privatisation Privatisation. - ITDG Paravet network network.and change of DVS. 1990s - Rapid spread in North. The Hubl Study Dr Kajume - KVB letter (January 1998). - Multistakeholder WSs → new policies. 2000s - Still not approved / passed! Paravets in Kenya - Lessons • Political stagnation, professional protectionism • Practical evidence invisible to policy makers • Powerful individuals, “professional” interests • Bad timing - ITDG missed the boat – twice! • A “Tipping Point” • New champions • Collaborative policy-research What should ITDG have done • • • • • • • • Learned more about the political context Involved more policy makers earlier Collected more empirical data & used it better Seized the chance in 1989 Involved non-livestock policy makers Controlled the “club” Looked for champions Involved bilaterals and multilaterals Towards a Policy Entrepreneurs Toolkit • Toolkit for promoting evidence-based and propoor policy. • The RAPID framework itself • Useful tools for your work • Approaches to organisational development • Some examples of things we do? • Discussion: – What tools do you know that work? – Examples of when they have been used? Tools for applying the framework Overarching Tools - The RAPID Framework - Using the Framework Communication Tools - Communications Strategy - SWOT analysis - Message Design - Making use of the media Policy Influence Tools - Influence Mapping & Power Mapping - Lobbying and Advocacy - Campaigning: A Simple Guide - Coalitions Context Assessment Tools - Stakeholder Analysis - Forcefield Analysis - Writeshops - Policy Mapping - Political Context Mapping Research Tools - Case Studies - Episode Studies - Surveys - Bibliometric Analysis - Focus Group Discussion Introduction – The Policy Process 1. Problem Definition/ Agenda Setting 2. Constructing the Policy Alternatives/ Policy Formulation 6. Evaluation The Policy Cycle 5. Policy Implementation and Monitoring 3.Choice of Solution/ Selection of Preferred Policy Option 4. Policy Design Mapping the Policy Process • Aim: • • • • Describe: Who makes decisions? How? What ways, formal and informal, are policies made? Analyse: What are the different interests? When: Need a comprehensive understanding. General. Give you: Where are decisions made? Who are the Stakeholders? (NB: link to stakeholder analysis) – Arena: government, parliament, civil society, judiciary, private sector. – Level: local, national, international. Steps: Process description (formal & informal) + political influence ratings. Based on: Experience, literature, interviews, focus groups. [Sources: M. Grindle / J. Court ] Mapping Policy Processes Agendas Central Government Parliament Bureaucrats Civil Society State Government Implementation Civil Society Formulation Implementation Stakeholder Analysis High Why: Keep Satisfied • Understand who gain or lose from a policy or project. Engage Closely Power • Help Build Consensus. Monitor (minimum effort) Steps: Keep Informed • Identify Stakeholders. •Analysis Workshop. Low Low High Interest • (Develop Strategies) Forcefield Analysis • Specific Change • Identify Forces • (Identify Priorities) • (Develop Strategies) Political Context Assessment Tool Best for: • Systematically comparing national contexts • Thinking through political context issues Covers: • The macro political context • The sector / issue process • Policy implementation and practice • Decisive moments in the policy process • How policymakers think How to: • Representative from cross-section of experts • Individual – for thinking through (e.g. from Middle East) Interests Extent of Interests of Policymakers High Medium Low Public Interests 1 3 6 Personal Interests 5 4 1 Special Interests 6 1 3 Communications strategy • Identify the audience(s) – Assess specific information needs, likes and channels • Official / unofficial • Personal / impersonal • Identify the message(s) • Promotion – Develop and test material and media • Printed, AV, web, CD / Multi-use, multimedia, multichannel – Implement • Evaluate impact and change as necessary Writing Effective Policy Papers I Providing a solution to a policy problem Targeting a policy community • Structural elements of a paper – Problem description – Policy options (& criteria for assessment) – Conclusion & Recommendations • Key issues: Problem oriented, targeted, multidisciplinary, applied, clear, jargon-free. [Source: Young and Quinn, 2002] Writing Effective Policy Papers II Criteria for Assessing Policy Options Option A Option B Option C Effectiveness Very Positive Positive No impact Flexibility Very Positive Positive Positive Positive Positive Negative Political Feasibility High Medium Low Administrative Feasibility High Medium Low Time Short Medium Long Cost High Medium Low Sustainability Lobbying Elected Officials (General) • Targeting Officials: – Champions – Allies –Fence Sitters – Mellow Opponents – Hard Core Opponents • Inside vs Outside Lobbying: – Inside: Meetings – Analysis – Committees – Negotiating – Outside: Media – Constituency – Coalitions – Campaigns • Practical Tips See: www.odi.org/rapid/ See: www.wilder.org/ More / Other Sources • RAPID: http://www.odi.org/rapid/ • Strategy Unit's Policy Tools section http://www.policyhub.gov.uk/tools/index.asp • Mind Tools: http://www.mindtools.com/ • DFID (Development Tools): http://www.dfid.gov.uk/ • Wilder Foundation (lobbying & advocacy for NPOs) http://www.wilder.org/ • CEDPA (advocacy & networking for NGOs) http://www.cedpa.org/ Task 3 – as Individuals • Focusing on a specific piece of work where you are trying to influence policy or practice - do a Force-Field Analysis. • Specify policy change • Identify forces for & against • Assess weightings • Assess points of possible impact • Identify ways of achieving impact Organisational development tools • Knowledge, Attitudes and Practices: – The entrepreneurship questionnaire – Training & mentoring etc • Knowledge Management • Organisational development – Finance, admin & personnel systems – Strategic (action & business) planning – Fundraising & reporting • Building an organisational profile – Communications, Public Affairs and the Media Policy entrepreneurs Storytellers Engineers Networkers Fixers Building policy entrepreneurs Ashley Parashram Bernard Lawer Tetteh-Dumanya Dan Start David Redhouse Enrique Mendizabal Gerry Power Harinder Janjua Karen Iles Lydia Richardson Marta Foresti Michael Majale Mike Albu Monica Blagescu Patrick Watt Richard Graham Average 45 36 26 39 40 39 22 41 39 42 36 41 38 31 37 37 25 27 34 36 29 35 38 37 36 30 36 32 37 41 26 33 35 37 43 39 37 35 43 40 39 38 37 32 35 41 37 38 45 50 47 36 44 41 47 32 36 40 41 45 40 37 48 42 >44 = Low <30 = High <23 = V.High Policy process workshops • Looking at internal policy processes in organizations and role of policy documents. (What works in DFID?) • How: (i) Small, informal workshop – 7 staff; (ii) Identify processes for assessment - 8; (iii) participatory pair-wise ranking of factors influencing the success. • Worked quite well. • In DFID - agendas and processes rather than documents are key. ODI’s Knowledge Management Strategy • Building on existing processes: – – – – Project management Financial Systems Web/Intranet Tuesday Trading / Research Retreats • Specific new actions: – To improve learning – AARs, Peer-Assists etc – To improve information systems – Intranet-linked databases & financial systems – Building KM into HR systems – Obtaining & applying resources for KM Action Planning • An Action Plan is a sequenced plan of specific actions to deliver defined objectives. • It involves thinking through a series of questions: – – – – – – – What are your policy objectives? What are the major forces? Which ones can you engage with? Who are the key players? What resources do you have? Are there any other issues? How will you engage with the key players and what will you do? Task 4 – as individuals • Build on the force-field analysis you have already completed, to develop an action plan to deliver your policy objectives. RAPID - Next steps • Further research: – GDN Phase II studies – HIV/AIDS – How CSOs use research-based evidence – Action-research (does it work?) • “Institutionalisation” within ODI • Promotion, partnerships and capacity-building Other sources of information: http://www.odi.org.uk/rapid How you can help us • • • • Fill in the evaluation form Survey of other useful tools Opportunities for Action-Research Keep in touch