Puzzlingandpowering in policy paradigm shifts: politicization, depoliticization and social learning

Abstract

This article provides a new framework for analysing the processes through which policy paradigms shift. It firstly argues that ‘paradigm shift’ is useful as a metaphorical conceptualization of radical policy change. However, it then reflects on the dominant ‘social learning’ approach, arguing for a greater focus on the political agency of policy actors. The article hence argues for a focus on a more diverse set of discursive processes driving change, including ‘rhetorical’ argumentation. As such, the article constructs a framework of the processes in and through which policy paradigms change using the concepts of politicization, depoliticization and social learning. (De)politicization, defined in terms of rhetorical acts that emphasize or deny the presence of political ‘agency’ in a policy context, can complement the social learning account by providing a framework that focuses on both discursive ‘puzzling’ and ‘powering’ processes. This generates useful empirical questions and a critical focus on the quality of deliberation in paradigm change.

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