PostprintThis is the accepted version of a paper published in Critical Policy Studies. This paper has been peerreviewed but does not include the final publisher proof-corrections or journal pagination.Citation for the original published paper (version of record):Persson, M. (2015) A policy problem that cannot escape its past: constraints on the reformation of safety policy.Critical Policy Studies, 9(2): 158-176 https://doi.org/10. 1080/19460171.2014.971038 Access to the published version may require subscription.
AbstractWithin many current policy theories there is a tendency to first identify change and then explain it. A retrospective analysis of policy changes risks missing continuous processes and struggles for change as well as mechanisms of resistance to change. Taking this as a point of departure, this paper develops an understanding of the policy process as a struggle over meaning, as a way to allow for a more nuanced understanding of the dynamics of policy change and continuity. This approach is illustrated by an analysis of the formation of public safety policy in Sweden. Alternative storylines giving 'new' meanings to the policy problem were strategically incorporated into the policy discourse. However, it is found that an ideational path-dependency of the policy constrains the possibility for problem reformulation and thereby also the possibility for policy change. The discourses that instantiated the policy problem not only affect the ways in which the problem is rendered thinkable for the purposes of its government, but also for policy analysts as well as the public. The analysis shows that it is crucial to understand the interrelations between different discourses (within policy, politics and research) to understand the mechanisms of policy change and continuity.