The lessons of learning: Reconciling theories of policy learning and policy change

Michael Howlett, Simon Fraser University
Colin Bennett, UVIC

Abstract

Several different explanations of policy change based on notions of learning have emerged in the policy literature to challenge conventional conflict-oriented theories. These include notions of lsquopolitical-learningrsquo developed by Heclo, lsquopolicy-oriented learningrsquo developed by Sabatier, lsquolesson-drawingrsquo analyzed by Rose, lsquosocial learningrsquo discussed by Hall and lsquogovernment learningrsquo identified by Etheredge. These different concepts identify different actors and different effects with each different type of learning. Some elements of these theories are compatible, while others are not. This article examines each approach in terms of who learns, what they learn, and the effects of learning on subsequent policies. The conclusion is that three distinct types of learning have often been incorrectly juxtaposed. Certain conceptual, theoretical and methodological difficulties attend any attempt to attribute policy change to policy learning, but this does not detract from the important reorientation of policy analysis that this approach represents.