John McCormick - Carrots, Sticks and Sermons: Policy Instruments and Their Evaluation

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CARROTS,
STICKS &
SERMONS

Comparative Policy Analysis Series

Ray C. Rist, series editor

Program Evaluation and the Management of Government
edited by Ray C. Rist

Budgeting, Auditing, and Evaluation
edited by Andrew Gray, Bill Jenkins, and Bob Segsworth

Can Governments Learn?
edited by Frans L. Leeuw, Ray C. Rist, and Richard C. Sonnichsen

Politics and Practices of Intergovernmental Evaluation
edited by Olaf Rieper and Jacques Toulemonde

Monitoring Performance in the Public Sector
edited by John Mayne and Eduardo Zapico-Gofii

Public Policy and Program Evaluation
by Evert Vedung

Carrots, Sticks, and Sermons: Policy Instruments and Their Evaluation
edited by Marie-Louise Bemelmans-Videc,
Ray C. Rist, and Evert Vedung

Building Effective Evaluation Capacity
edited by Richard Boyle and Donald Lemaire

International Atlas of Evaluation
edited by Jan-Eric Furubo, Ray C. Rist, and Rolf Sandahl

Collaboration in Public Services: The Challenge for Evaluation
edited by Andrew Gray, Bill Jenkins, Frans Leeuw, and John Mayne

EDITED BY

Marie-Louise

Bemelmans-Videc

Ray C. Rist

Evert Vedung

CARROTS,
STICKS &
SERMONS

Policy Instruments
& Their Evaluation

First published 1998 by Transaction Publishers

Published 2017 by Routledge

2 Park Square, Milton Park, Abingdon, Oxon OX14 4RN

711 Third Avenue, New York, NY 10017, USA

Routledge is an imprint of the Taylor & Francis Group, an informa business

Copyright 1998 by Taylor & Francis.

All rights reserved. No part of this book may be reprinted or reproduced or utilised in any form or by any electronic, mechanical, or other means, now known or hereafter invented, including photocopying and recording, or in any information storage or retrieval system, without permission in writing from the publishers.

Notice:

Product or corporate names may be trademarks or registered trademarks, and are used only for identification and explanation without intent to infringe.

Library of Congress Catalog Number: 97-45617

Library of Congress Cataloging-in-Publication Data

Carrots, sticks, and sermons : policy instruments and their evaluation / edited by Marie-Louise Bemelmans-Videc, Ray C. Rist, Evert Vedung.

p. cm.(Comparative policy analysis series)

Includes bibliographical references and index.

ISBN 0-7658-0546-4 (alk. paper)

1. Policy sciencesCross-cultural studies. 2. Evaluation research (Social action programs) I. Bemelmans-Videc, Marie-Louise. II. Rist, Ray C. III. Vedung, Evert, 1938-. IV. Series.

H97.C37 1998

320.6dc21

97-45617

CIP

ISBN 13: 978-0-7658-0546-1 (pbk)

ISBN 13: 978-1-56000-338-0 (hbk)

Introduction
Policy Instrument Choice and Evaluation

Marie-Louise Bemelmans-Videc

This book aims at offering its readers insights into the process of policy instrument choice and the role assigned to and actually played by evaluation in this process. The literature on policy strategies, instruments, and styles is quite impressive, both in quantitative and qualitative terms. The student of the field faces a complex variety of theoretical and conceptual approaches and analytical tools which hamper a good overview. Overview and insight presupposes an enlightening structuring of the field. The ambitious objective of this book is to propose such a structure.

It sets out to do so by offering a comprehensive analysis of categories and typologies in the literature, and a reasoned choice for a general typology of policy instruments which then is tested for its theoretical value and, to the degree a books size allows, for its empirical value. It looks at policy instrument choice from two angles: cross-policy sector, concentrating on one type of instrument, as well as context-bound by offering case studies of choice-processes where the institutional context is taken into consideration.

To the degree the studies are situated in different nations, the book also offers a comparative perspective. These nations are Sweden, The Netherlands, Belgium, England, Canada, the United States, and the Republic of Korea. The variety offered represents rather different histories and political cultures; the nations are alike insofar that, given their differing historical starting points, they represent forms of mixed economies, democratic political structures, and a high level of economic development.

This books first emphasis is on choice and evaluation; the comparative outlook should help to explain differences and similarities in those processes. The concept of policy style may be of some help in this regard as we shall see. As such, the book is a contribution to the literature on comparative public policy, which Heidenheimer et al. defined as the study of how, why, and to what effect different governments pursue particular courses of action or inaction (1990: 3). This definition implies knowledge of structures and processes through which government decisions are reached and of political cultures of nations and the nations relevant subsections as well as the multitude of actors engaged in public tasks. Should government inaction be considered a policy? Heidenheimer et al. suggest that government inaction, or nondecision, becomes a policy when it is pursued over time in a fairly consistent way against pressures to the contrary (1990: 5).

Heidenheimer et al. point at the diverse theoretical approaches in the literature on comparative public policies which offer varying explanations for policy choice (1990: 79):

• the socioeconomic theories that mainly argue that nations respond to the general processes of economic growth and social modernization with basically similar policies;
• the cultural values approach with special emphasis on the deeply embedded cultural ideas arising from the distinctive historical experiences of nations, such as the tradition of laissez-faire liberalism of Anglo-Saxon nations, the statist paternalism of Continental European countries, or the familial quality of organizational life in Japan;
• the political class struggle model where the fundamental dynamic of policy development is seen to lie in the contest between business forces driven by the imperatives of capitalist accumulation on the one hand, and workers and their representatives on the other;
• the neo-corporatist framework emphasizing the broader system of interest representation and its linkages to government through institutionalized bargaining. The capacity to frame, coordinate, and successfully implement policy is seen to be dependent on strongly organized interest blocs (labor, employer, professional, and so on) that are continually engaged in centralized negotiations with government on policy matters of mutual interest; and,
• the institutional-political process perspective: while other frameworks tend to treat policy as the result of outside pressures (socioeconomic, party demands, interest blocs, and so on) on government, institutional analysts put the state at center stage, paying particular attention to distinctive historical patterns in the formation of the nation-state, the way structures and capacities interact with other social actors and the feedback effects of policy on political alliances, party competition and other features of the policy-making landscape.

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