Reconceptualizing layering—From mode of institutional change to mode of institutional design: Types and outputs

Abstract

Due to its popularity, the term layering is often used generically, and it risks being transformed into a catch‐all concept. Layering has become synonymous with incremental change, thus making it a synonym for change without any specification in terms of the change and its effects. To make the term more conceptually coherent and empirically useful, this article problematizes the historical neo‐institutionalist definition of layering as a mode of change and, above all, its use in the literature. It argues that layering should be conceptualized in terms of modes of institutional design through which different types of additions to the actual institutional arrangement can be activated to pursue not only institutional and eventually policy change but also stability. As an approach to institutional design, layering can be distinguished according to that which is layered and the results that layering can achieve in terms of institutional and policy effects.

Cognitive and Institutional Determinants of Public Policy Changes: A Comparative Analysis of Brazil and Chile

“…Moreover, Capano (2019) also criticized the concept of layering. According to him, the concept became a “catch‐all word” and is “the most common way that policymakers intervene in reality” (p. 590).…”

“…According to Capano (2019), the main argument to support the change in the meaning of layering is that the concept “has been adopted as a general label to define any type of additional change in terms of institutions and/or policy elements” (Capano, 2019, p. 593) and implies that “any chosen addition necessarily activates processes of institutional and/or policy change” (Capano, 2019, p. 594). Yet, according to the author, “layering does not necessarily cause change but rather can be used to lock in or stabilize an existing governance mode” (Capano, 2019, p. 593) 3 .…”

“…According to Capano (2019), the main argument to support the change in the meaning of layering is that the concept “has been adopted as a general label to define any type of additional change in terms of institutions and/or policy elements” (Capano, 2019, p. 593) and implies that “any chosen addition necessarily activates processes of institutional and/or policy change” (Capano, 2019, p. 594). Yet, according to the author, “layering does not necessarily cause change but rather can be used to lock in or stabilize an existing governance mode” (Capano, 2019, p. 593) 3 . Therefore, because layering does not necessarily always imply an institutional change, the author proposes defining the concept of layering simply “as a specific means of formulating policies through which ‘something new’ is added to the existing institutional arrangement in a specific policy field, no less but no more” (Capano, 2019, p. 594).…”

A dynamic theoretical framework of gradual institutional changes

“…Empirical studies of gradual institutional changes provide evidence for the existence of the above‐mentioned combinations of modes of gradual change: drift is followed by layering in Hacker () and Gildiner (); layering is followed by conversion in Béland (), Graf () and Palier (); conversion is followed by expansion in Falleti () and may also be observed in Howard (). Except for Graf (), the causal links between several modes of gradual change was not analysed in these studies (see also Capano ).…”

“…For example, Alfred Khan, Chair of the Civil Aeronautics Board in the US, began his competition reform in the American airline industry by converting existing regulations, but these measures were insufficient for Empirical studies of gradual institutional changes provide evidence for the existence of the above-mentioned combinations of modes of gradual change: drift is followed by layering in Hacker (2004) and Gildiner (2007); layering is followed by conversion in Béland (2007), Graf (2018) and Palier (2007); conversion is followed by expansion in Falleti (2010) and may also be observed in Howard (1999). Except for Graf (2018), the causal links between several modes of gradual change was not analysed in these studies (see also Capano 2018).…”