Published online by Cambridge University Press: 27 January 2009
The theme of strong and weak states has recently figured largely in comparative political economy. However, significant variation across sectors in single countries in the degree to which the state is able and willing to intervene in the economy has led to calls for a disaggregated view of the state, with more attention devoted to the different levels – micro, meso, macro – at which the state confronts the economy. The concepts of strength and weakness must pay much greater attention to specific bureaucratic arrangements and the relationships with key societal actors which, in company with bureaucratic agencies, form the core of ‘policy networks’ at the sectoral level. The article uses the concepts of state capacity and societal mobilization to identify six ideal typical policy networks at the sectoral level. It elaborates on the organizational logic associated with these policy networks by examining them in conjunction with industrial policy. After distinguishing between two approaches to industrial policy – anticipatory and reactive – it shows how different policy networks emerge to support alternative approaches and how a disjunction between networks and approaches can produce policy failure.
1 See Dyson, Kenneth and Wilks, S., eds, Industrial Crisis: A Comparative Study of the State and Industry (Oxford: Basil Blackwell, 1983)Google Scholar, especially the essay ‘The Cultural, Ideological and Structural Context’ by Dyson; Katzenstein, P., ‘Conclusion: Domestic Structures and Strategies of Foreign Economic Policy’, in Katzenstein, , ed., Between Power and Plenty: Foreign Economic Policies of Advanced Industrial States (Madison: University of Wisconsin Press, 1977)Google Scholar; Krasner, Stephen, Defending the National Interest (Princeton, NJ: Princeton University Press, 1978).Google Scholar
2 For a useful summary of these criticisms see Wilks, Stephen and Wright, Maurice, ‘Conclusion: Comparing Government-Industry Relations: States, Sectors, and Networks’, in Wilks, and Wright, , eds, Comparative Government-Industry Relations (Oxford: The Clarendon Press, 1987), pp. 274–313Google Scholar. Sulieman raises similar points in his examination of the relationship between state centralization and state autonomy, see Sulieman, Ezra N., ‘State Structures and Clientelism: The French State Versus the “Notaires”’, British Journal of Political Science, 17 (1987), 257–79.CrossRefGoogle Scholar
3 Cawson, Alan, Holmes, Peter and Stevens, Anne, ‘The Interaction between Firms and the State in France: The Telecommunications and Consumer Electronics Sectors’Google Scholar, in Wright, and Wilks, , eds, Comparative Government-Industry Relations, pp. 10–34Google Scholar; Green, Diane, ‘Strategic Management and the State: France’Google Scholar, in Dyson, and Wilks, , eds, Industrial Crisis, pp. 161–92Google Scholar; Milner, Helen, ‘Resisting the Protectionist Temptation: Industry and the Making of Trade Policy in France and the United States during the 1970s’, International Organization, 41 (1987), 639–65CrossRefGoogle Scholar; and Underbill, Geoffrey, ‘Neo-Corporatist Theory and the Politics of Industrial Decline: The Case of the French Textile and Clothing Industry’, European Journal of Political Research, forthcoming.Google Scholar
4 Hall, Peter A., Governing the Economy: The Politics of State Intervention in Britain and France (Oxford: Oxford University Press, 1986).Google Scholar
5 Samuels, Richard J., The Business of the Japanese State: Energy Markets in Comparative and Historical Perspective (Ithaca, NY: Cornell University Press, 1987).Google Scholar
6 Boyd, Richard, ‘Government-Industry Relations in Japan: Access, Communication, and Competitive Collaboration’Google Scholar, in Wilks, and Wright, , eds, Comparative Government-Industry Relations, pp. 61–90.Google Scholar
7 For Britain, see Hall, , Governing the Economy, Part IIGoogle Scholar. For Canada, see Cameron, Duncan, ‘Monetary Policy in North America’, International Journal, 42 (1986–1988), 170–98.CrossRefGoogle Scholar
8 On securites, see Moran, Michael, ‘Deregulating Britain, Deregulating America: The Case of the Securities Industry’, paper presented by the ECPR Workshop on Deregulation in Western Europe, Amsterdam, 04 1987Google Scholar; Coleman, W. D. ‘The Canadian Securities Industry: A Study in Self-Regulation’, paper presented to the ECPR Workshop on Meso-Corporatism, Amsterdam, 04 1987Google Scholar. On agriculture, see Grant, Wyn, ed., Business Interests, Organizational Development and Private Interest Government: An International Comparative Study of the Food Processing Industry (Berlin: de Gruyter, 1987)CrossRefGoogle Scholar; Grant, , ‘Private Organizations as Agents of Public Policy: The Case of Milk Marketing in Britain’, in Streeck, Wolfgang and Schmitter, P. C., eds, Private Interest Government: Beyond Market and State (London: Sage, 1985), pp. 182–96Google Scholar; Atkinson, M. M. and Coleman, W. D., ‘Corporatism and Industrial Policy’, in Cawson, Alan, ed., Organized Interests and the State: Studies in Meso-Corporatism (London: Sage, 1985), pp. 22–44Google Scholar. On construction, see Grant, Wyn and Streeck, Wolfgang, ‘Large Firms and the Representation of Business Interests in the UK and West German Construction Industry’Google Scholar, and Coleman, W. D., ‘State Corporatism as a Sectoral Phenomenon: The Case of the Quebec Construction Industry’Google Scholar, both in Cawson, , ed., Organized Interests and the State, pp. 145–73 and pp. 106–24Google Scholar respectively.
9 Skocpol, Theda, ‘Political Response to Capitalist Crisis: Neo-Marxist Theories of the State and the Case of the New Deal’, Politics and Society, 10 (1980), 155–201CrossRefGoogle Scholar. On the concept of a state tradition, see Dyson, Kenneth H. F., The State Tradition in Western Europe (Oxford: Martin Robertson, 1980).Google Scholar
10 Moran, Michael, ‘An Outpost of Corporatism: The Franchise State on Wall Street’, Government and Opposition, 22 (1987), 206–23CrossRefGoogle Scholar; Young, Brigitta, ‘Interest Intermediation in the American and West German Dairy Industries: A Comparative View’, paper presented to the ECPR Workshop on Meso-Corporatism, Amsterdam, 04 1987Google Scholar; Hansen, Susan, ‘Industrial Policy in the American States: Meso-Corporatism or Interest Group Polities’, paper presented to the ECPR Workshop on Meso-Corporatism, Amsterdam, 04 1987.Google Scholar
11 See, for example, Cawson, , Holmes, and Stevens, , ‘The Interaction between Firms and the State in France’, p. 11.Google Scholar
12 Lehmbruch, Gerhard, ‘Comparative Political Economy of Neo-Corporatism: Inter-Organizational and Institutional Logics’, paper presented to the ECPR Workshop on Meso-Corporatism, Amsterdam, 04 1987.Google Scholar
13 We recognize that the concept of a sector itself may be problematic. First, the definition of a sector may or may not correspond to the industrial classification used in a given country. Where correspondence does not obtain, it is usually because the ‘sector’ is more narrowly defined than the government's classification. Second, research has increasingly sought to incorporate into analysis the subjective aspects of sector definition. Thus Wilks and Wright use the concepts of ‘policy focus’ and ‘policy community’ to capture these properties. The policy focus refers to a ‘commonality of product or products, service or range of services, a technology or range of technologies, a market, size of “batch”, and so on’. A policy community then refers to the group of actors or potential actors whose community membership is defined by this common policy focus (Wilks, and Wright, , ‘Comparing Government-Industry relations’, pp. 293–305Google Scholar). Pross also tries to capture some of this complexity when he introduces the concept of a ‘policy community’ with its attendant notions of sub-governments and attentive publics (see Pross, A. P., Group Politics and Public Policy (Toronto: Oxford University Press, 1986), pp. 96–107).Google Scholar
14 This is one of the messages contained in Sulieman, Ezra N., Private Power and Centralization in France (Princeton, NJ: Princeton University Press, 1987), p. 303Google Scholar. He writes here that ‘state power or autonomy varies across sectors’ and one cannot approach this problem in a formalistic manner without ‘the necessary empirical investigations’.
15 Katzenstein, , ‘Conclusion’Google Scholar, in Katzenstein, , ed., Between Power and Plenty, p. 311.Google Scholar
16 Katzenstein, , ‘Conclusion’, p. 316.Google Scholar
17 See Hall, Peter A., ‘Policy Innovation and the Structure of the State: The Politics-Administration Nexus in France and Britain’, The Annals, No. 466 (1983), 43–59, pp. 46–7.Google Scholar
18 Hall, , ‘Policy Innovation’Google Scholar and Green, ‘Strategic Management and the State’Google Scholar in Dyson, and Wilks, , eds, Industrial Crisis, pp. 161–92.Google Scholar
19 Zysman, John, Governments, Markets and Growth (Ithaca, NY: Cornell University Press, 1983), p. 300.Google Scholar
20 Hall, , ‘Policy Innovation’, pp. 46–7.Google Scholar
21 Sulieman, , ‘State Structures’, pp. 257–79.Google Scholar
22 This distinction among types of agencies is made by Lowi, Theodore, The End of Liberalism, 2nd edn (New York: Norton, 1979), pp. 79–91.Google Scholar
23 Hall, , ‘Policy Innovation’, pp. 46–7.Google Scholar
24 This point is made in a host of recent volumes including Hall, , Governing the EconomyGoogle Scholar. An earlier statement is contained in Lindblom, Charles, Politics and Markets (New York: Basic Books, 1977).Google Scholar
25 In their discussion of sectoral policy networks, Cawson, Holmes and Stevens refer to a similar variable, the ‘monopoly closure in state-group relationships’. See their article, ‘Interaction between Firms and the State in France’, pp. 30–1.Google Scholar
26 In attempting to define these categories we join forces with Cawson et al., who made a brief attempt along these lines in their article on the telecommunication and consumer electronics sectors in France', Cawson, et al. , ‘Interaction between Firms and the State in France’, pp. 29–32Google Scholar. At the same time, we depart from their effort in an important respect. First, their typology is defined based on two variables, state autonomy and monopoly closure in state-group relations (analogous to our mobilization variable). We find it useful to add the dimension of concentration of authority as a defining characteristic. As noted above, the circumstances are rare in which one agency or bureau assumes responsibility for a sector. Furthermore, the use of these three defining variables provides a more complete description of the organizational logic of the networks involved.
27 See Richardson, J. J. and Jordan, A. G., Governing Under Pressure (Oxford: Martin Robertson, 1979).Google Scholar
28 Allison, Graham T., Essence of Decision: Explaining the Cuban Missile Crisis (Boston, Mass.: Little, Brown, 1971).Google Scholar
29 Krasner, , Defending the National Interest, p. 27.Google Scholar
30 Streeck, W. and Schmitter, P. C. ‘Community, Market, State – and Associations? The Prospective Contribution of Interest Governance to Social Order’Google Scholar, in Streeck, and Schmitter, , eds, Private Interest Government, pp. 1–29.Google Scholar
31 The reader might legitimately ask why we call clientele pluralism ‘pluralist’ in these circumstances. We do so for two reasons. First, the emphasis in group representation is on narrowing group domains and on specialized groups acting in opposition to one another rather than in concert. Both of these emphases diner from corporatism as we note below. Secondly, we suspect that future research will show that clientele pluralist arrangements become particularly likely when states are weak and pluralistic on the macro level.
32 Lowi, , The End of Liberalism, p. 60Google Scholar. His notion of ‘sponsored pluralism’ is closely related to the phenomenon we are describing here.
33 Cawson, , Corporatism and Political Theory (Oxford: Basil Blackwell, 1986), p. 38.Google Scholar
34 LaPalombara, J., Interest Croups in the Italian System (Princeton, NJ: Princeton University Press, 1964).Google Scholar
35 See Atkinson, and Coleman, , ‘Corporatism and Industrial Policy’ for an example drawn from the dairy industry.Google Scholar
36 Cawson makes a similar point. Because meso-corporatist networks examine a restricted range of issues, ‘There is no presumption that meso-corporatist arrangements are tripartite in form, or that the interests they embrace are restricted to capital and labour’ (Cawson, Alan, ‘Varieties of Corporatism: The Importance of the Meso-level of Interest Intermediation’Google Scholar, in Cawson, , ed., Organized Interests and the State, p. 11 ).Google Scholar
37 Schmitter, P., ‘Neo Corporatism and the State’, in Grant, Wyn, ed., The Political Economy of Corporatism (London: Macmillan, 1985), pp. 32–62.CrossRefGoogle Scholar
38 For further discussion of this point, see von Beyme, Klaus, ‘Neo-Corporatism: A New Nut in an Old Shell?’ International Political Science Review, 4 (1983), 173–96.CrossRefGoogle Scholar
39 See in particular, Schmitter, P. C., ‘Modes of Interest Intermediation and Models of Social Change in Western Europe’, Comparative Political Studies, 10 (1978), 7–38.CrossRefGoogle Scholar
40 See Lehmbruch's discussion of this point in ‘Concertation and the Structure of Corporatist Networks’, in Goldthorpe, J. H., ed., Order and Conflict in Contemporary Capitalism (Oxford: Clarendon, 1984), pp. 72–4.Google Scholar
41 Marin, B., ‘Austria: The Paradigm Case of Liberal Corporatism’Google Scholar, in Grant, , ed., The Political Economy of Corporatism, pp. 89–125.Google Scholar
42 Schmitter, , ‘Neo Corporatism and the State’, p. 36.Google Scholar
43 Lehmbruch makes a distinction similar to ours between corporatism and concertation. See his article, ‘Concertation’, pp. 60–80.Google Scholar
44 Samuels, , The Business of t he Japanese State, Chap. 1.Google Scholar
45 Hall, , Governing the Economy, Chap. 7.Google Scholar
46 See, in particular, Nordlinger, Eric, On the Autonomy of the Democratic State (Cambridge, Mass.: Harvard University Press, 1983).Google Scholar
47 See, for example, Whiteley, Paul, Political Control of the Macroeconomy (Beverley Hills: Sage, 1986), pp. 175–8.Google Scholar
48 Laux, Jeanne Kirk and Molot, Maureen Appel, State Capitalism: Public Enterprise in Canada (Ithaca, NY: Cornell University Press, 1988), p. 126.Google Scholar
49 For a similar distinction, see the discussion of ‘interventionist’ versus ‘non-interventionist’ states in Wilks, and Wright, , ‘Conclusion’, pp. 277–8.Google Scholar
50 Shepherd, Geoffrey and Duchêne, François, ‘Introduction: Industrial Change and Intervention in Western Europe’, in Shepherd, G., Duchêne, F., and Saunders, C., eds, Europe's Industries (London: Frances Pinter, 1983), p. 21.Google Scholar
51 Kotowitz, Yehuda, Positive Industrial Policy: The Implications for R & D (Toronto: Ontario Economic Council, 1986), p. 34.Google Scholar
52 For some discussion of this chosen firm approach, see Zysman, John, Political Strategies for Industrial Order: State, Market and Industry in France (Berkeley: University of California Press, 1977).Google Scholar
53 OECD, The Semi-Conductor Industry: Trade Related Issues (Paris: OECD, 1985), pp. 67–9.Google Scholar
54 For a discussion of such a policy in British Columbia, see Marchak, P., Green Gold (Vancouver: University of British Columbia Press, 1983).Google Scholar
55 Pierre, Jon, ‘Industrial Policy and Meso-Corporatism: The Policy and Implementation of Terminating Three Shipyards in Sweden,’ paper presented to the ECPR Joint Sessions Workshop on Meso-Corporatism, Amsterdam, 04 1987.Google Scholar
56 Harris, Richard, Trade, Industrial Policy and International Competition (Toronto: University of Toronto Press, 1985), pp. 99–103.Google Scholar
57 The observation that industry associations accumulate over time is made most forcefully in Olson, Mancur, The Rise and Decline of Nations (New Haven, Conn.: Yale University Press, 1982).Google Scholar
58 As Ikenberry has pointed out, ‘a minimalist state strategy that involves enforcing market processes may be as efficacious as the juggernaut of extensive and systematic direct intervention’ (Ikenberry, G. John, ‘The Irony of State Strength: Comparative Responses to the Oil Shocks in the 1970s’, International Organization, 40 (1986), 105–38, p. 137).CrossRefGoogle Scholar
59 Pross captures this process well in his discussion of sub-governments in policy communities. See Group Politics and Public Policy, pp. 99–102.Google Scholar
60 Schmitter, P. C. and Lanzalaco, Luca, ‘Regions and the Organization of Business Interests’, Florence, 1987, mimeo, p. 47.Google Scholar
61 Wassenberg, Arthur F. P., ‘Neo-Corporatism and the Quest for Control: The Cuckoo Game’, in Lehmbruch, Gerhard and Schmitter, P. C., eds, Patterns of Corporatist Policy Making (London: Sage, 1982), pp. 83–108.Google Scholar
62 Wilks, and Wright, , ‘Conclusions’, pp. 291–3.Google Scholar