Policy Learning and Policy Change in a Context of Industry Crisis The Case of Chilean Salmon Farming Industry Verónica Roa Petrasic

Transcription

1 Policy Learning and Policy Change in a Context of Industry Crisis The Case of Chilean Salmon Farming Industry Verónica Roa Petrasic (veronica.roa@sussex.ac.uk) SPRU: Science and Technology Policy Research SPRU DPhil Day XVI 28 th May 2010

2 Outline Case study Research questions Theoretical framework and context of application Research methodology Contribution to the knowledge Generalisation from this research 2

3 Case Study The Chilean Salmon Farming Industry Features of the Industry Fast growth, high competitiveness and successful performance to rapid insertion into the global economy. In a short time (20 years aprox.) it became the second largest producer and exporter at global level. This condition was achieved through a range of factors, highlighting the commercial and technological upgrading, the development of capabilities in the supply-base and support institutions as well as export orientation of this industry. The historical production model for this industry has been characterised by high concentration and density which mean overcrowding of fish in farming cages as well as farming centres in a territory. content/view/full/

4 Case Study The Chilean Salmon Farming Industry Industry Crisis Between 2007 and 2009 the Chilean Salmon Farming industry faced a sanitary crisis produced by the infectious salmon anaemia (ISA) virus. The ISA virus is a disease that affects salmon. It exists mainly in the stage of sea development cycle. The virus is contagious between fishes from an infected fish to others and also for contact with contaminated equipment or equipment of people handling infected fish. This virus has been present in all global salmon producers (e.g. Norway in 1984, Canada in 1996, Scotland in 1998, Faroe Islands in 1999) and the disease is internationally recognised and standardized by the World Organisation for Animal Health. 4/virus-isa-y-moratoria-la-industria.html 4

5 Industry Crisis Case Study The Chilean Salmon Farming Industry The sanitary crisis revealed the fragilities of the Chilean salmon industry which include structural problems from the regulatory system but also some weaknesses in the private sector. At regulatory level reactive rather than preventive perspective prevails on sanitary and environmental issues as well as a lack of control and inadequate monitoring from the authority and a weak penal system. In the private sector an individual view to solve sanitary problems is accepted which considers a little consideration of the contamination of neighbour s production. 5

6 Research Questions 1. How has the process of regulatory reform been stimulated by the industrial crisis in the Chilean salmon farming industry? 2. How has the policy learning process triggered by the crisis in the Chilean salmon farming industry led to new policies? 6

7 Theoretical Framework and Context of Application First phase of the thesis: Characterization and Diagnosis of the System Second phase of the thesis: Analysis of Proposals for Government Intervention Third phase of the thesis: Policy Evaluation Political Stream Implemented Policy System Failures Behaviour of Actors and Conflict of Interests Negotiation of reform Approved Policy Implemented Policy (early experience) Problem Stream Policy Stream Policy Learning as a Bounded Rationality process Unexpected Factors (e.g. God and Devil Actions, Natural Disasters) Time April 8 th onwards 7

8 Research Methodology A. Characterisation and Diagnosis of the System (1 phase of the thesis) Corresponds to a preliminary investigation of the origins of the industrial crisis. Two analyses will be undertaken: a policy analysis and system failure analysis. This phase of the research will be based mainly on system failure analysis (Johnson and Gregersen, 1994; Malerba, 1997; Smith, 1997, 2000; Carlsson and Jacobsson, 1997; Edquist et al., 1998; Woolthuis et al., 2005) B. Analysis of Proposals for Government Intervention (2 phase of the thesis) Will conduct an analysis of the negotiation and decision making process within the policy learning process. The policy stream approach developed by Kingdon (1984) is the basis for understanding policy change in the policy learning framework of analysis. This phase of the research will be based mainly on policy learning as a bounded rationality process (Kingdon, 1984; Braun and Benninghoff, 2003). C. Policy Evaluation (3 phase of the thesis) A policy evaluation of the proposals and the resolution of the policy will be conducted. This evaluation considers the process of policy implementation and the early experience of the new implemented policy. Elements to be considered are for example whether i) the outcome (policy) represents a consensus to the interests of actors, ii) there are ambiguities in the policy with regard to implementation, iii) it will lead to a new structure in the industry, iv) it will incentive factors that will provoke other crisis in the future and v) the areas addressed by the policy. 8

9 Contribution to the Knowledge A. Theoretical contribution To better understand how policy learning and decision making process occur as well as the situations that stimulate those processes. To better understand how the behaviour and interest of different actors influence the policy making process. To improve our understanding about why industries fail and fall into crisis. B. Empirical contribution In the literature on Chilean Salmon Industry the importance of addressing industry sustainability has become a more relevant and vital issue since the sanitary crisis. The intensification of natural resource use as well as the rate of expansion of the industry put the environment at risk, therefore threatening the longterm development of the industry. The understanding of the reform of the regulation and the policy making and decision process triggered by the crisis becomes important. 9

10 Generalisation from this Research Generalisation from this research is related to 1. Intensive exploitation of a biological system rather than a sustainable one. 2. Priorities and interests of the industries to preserve their exports and maintain standards at global level. 3. The use of scientific knowledge in search of an effective institutional solution. 4. Criteria for the design and implementation of policies in terms of a proactive (i.e. preventive) versus a reactive perspective. 10

11 Some References Barton, J. (1997) Environment, sustainability and regulation in commercial aquaculture: the case of chilean salmonid production. Geoforum, Vol.28 pp Bennett, C. and Howlett, M. (1992) The lessons of learning: Reconciling theories of policy learning and policy change. Policy Science, Vol.25 pp Braun, D. and Benninghoff, M. (2003) Policy learning in Swiss research policy the case of the National Centres of Competence in Research. Research Policy, Vol.32 pp Carlsson, B. and Jacobsson, S. (1997) In search of useful public policies: key lessons and issues for policy makers. In: Carlsson, B. ed. Technological Systems and Industrial Dynamics, Kluwer Academic Publishers, Dordrecht. Edquist, C. (1997) Systems of Innovation, Technologies, Institutions and Organisations. Pinter, London. Edquist, C. (1999) Innovation policy A systemic approach. In Archibugui, D. and Lundvall, B. eds. The Globalizing Learning Economy, Oxford University Press, Inc. New York Edquist, C. (2001) The systems of innovation approach and innovation policy: an account of the state of the art. DRUID Conference, June Aalborg Hall, P. (1993) Policy paradigm, social learning and the State: The case of economic policymaking in Britain. Comparative Politics, Vol.25 pp Heclo, H. (1974) Modern social politics in Britain and Sweden: from relief to income maintenance, New Haven, Yale University Press Johnson, B. and Gregersen, B. (1994) System of innovation and economic integration. Journal of Industry Studies, Vol.2 pp.1 18 Jones, D. (1999) Bounded rationality. Annu.Rev.Polit.Sci, Vol.2 pp Kingdon, J. (1984) Agendas, alternatives, and public policies., Little, Brown and Co., Boston, Toronto. Malerba, F. (1997) Public policy and industrial dynamics: An evolutionary perspective. In: Edquist, C. ed. Systems of innovation: technologies, institutions and organizations, Cassel, London Sabatier, P. (1993) Policy change over a decade or more. In: Sabatier, P and Jenkins-Smith, H.C. eds. Policy change and learning, Westview Press Sanz, L. (1994) Policy choices, institutional constrains and policy learning: The Spanish science and technology policy in the eighties. Evaluation of Research and Innovation, Vol.10 pp Simon, H. (1954) A behavioral theory of rational choice. Quarterly Journal of Economics, Vol.96 pp Smith, K (1997) Economic infrastructures and innovation systems. In: Edquist, C. ed. Systems of Innovation: Technologies, Institutions and Organisations, Pinter, London Smith, K. (2000) Innovation as a Systemic Phenomenon: Rethinking the Role of Policy. Enterprise and Innovation Management Studies, Vol.1 pp Woolthuis, R., Lankhuizen, M. and Gilsing, V. (2005) A system failure framework for innovation policy design. Technovation, Vol.25 pp

12 Thank you!! Special thanks to my supervisors Matías Ramírez and Ed Steinmueller 12 ++