Policy Learning: What does it mean and how can we study it?

The purpose of this paper is to discuss the notion of policy learning, which is believed to be important for public sector innovation as a precursor (possibly a necessary element) for public sector innovation and a possible consequence of innovations adopted, creating a new cause-effect chain. Policy, in the broad sense of the word refers to a program of actions adopted by a person, group of government, or the set of principles on which they are based. For the purpose of this paper, policy refers to the set of principles and the program based on these principles, but not on the actions themselves. Consequently, policy learning refers to a ‘change in thinking’, not any change in thinking but a structured, conscious change in thinking about a specific policy issue. The learning may consist of a rethink but most often will be something with an existing frame (such as a better understanding of the effects of certain policy instrument). An innovation refers to ‘change in doing’, that often is the consequence of a conscious change in thinking, but not always. Sometimes practices change gradually and only later when reflected on they lead to a change in thinking and to a change in policy. Governments can and do learn. What is being learned, to what effect, by whom and how is not so simple and quite difficult to establish.
The primary purpose of the chapter is to introduce the concept of policy learning, and to discuss how it may be recognised and studied. The chapter presents different types of knowledge and learning that can be used to analyse processes of policy learning. This will be illustrated by examples from health care case studies of PUBLIN, in particular the case study of innovation in mental health care in the Netherlands. The chapter does not...

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