The implementation of complex social policy: Institutional layering and unintended consequences in the National Disability Insurance Scheme

Abstract

In this article, we identify the unfolding unintended consequences which flow from one instance of policy layering in Australia's National Disability Insurance Scheme (NDIS). We show how use of a causal diagram, which highlights feedback loops and emergent properties, to map complex chains of causal factors can assist policy scholars and policy practitioners to understand the likely direction of change and possible responses. In the case of Australia's National Disability Insurance Scheme, our analysis suggests that the likely direction of change will work against two of the fundamental design features of the NDIS: providing participants with more choice and control, and ensuring all eligible Australians are able to access appropriate services and supports regardless of where they live. Our analysis points to the use of price regulation as the site of potential intervention because of the role it plays in subsequent feedback loops and the development of the two, unwelcome, emergent properties.

Market stewardship of quasi‐markets by street level bureaucrats: The role of local area coordinators in the Australian personalisation system

“…In the original design, the work of planning procedures was to be done by NDIA planners, and the work of plan implementation completed by local area coordinators (Australian Productivity Commission, 2011). Nevile et al (2019) documents the high-level political decisions that have influenced the changing role of local area coordinators within the scheme. The research draws on interviews with senior public servants and describes how local area coordinators came to fill a more procedural role within the NDIS.…”

“…The research draws on interviews with senior public servants and describes how local area coordinators came to fill a more procedural role within the NDIS. Government officials note that local area coordinators were "redirected away from community development to enrol participants and place them on plans" (Nevile et al, 2019). Nevile et al (2019) identifies this as a process of policy conversion, whereby the conservative Abbott government, driven by a small government agenda (Smyth, 2014), made the choice to outsource the local area coordinator function and cap the number of planning staff within the NDIA.…”

“…Government officials note that local area coordinators were "redirected away from community development to enrol participants and place them on plans" (Nevile et al, 2019). Nevile et al (2019) identifies this as a process of policy conversion, whereby the conservative Abbott government, driven by a small government agenda (Smyth, 2014), made the choice to outsource the local area coordinator function and cap the number of planning staff within the NDIA. The staffing caps within the agency sparked a national senate inquiry due to the negative effect that it had on the NDIA's capacity to implement the NDIS (Carey, Malbon, Marjolin, et al, 2018).…”

“…The staffing caps within the agency sparked a national senate inquiry due to the negative effect that it had on the NDIA's capacity to implement the NDIS (Carey, Malbon, Marjolin, et al, 2018). Due to the staffing caps within the NDIA and the ambiguity of the local area coordinator position at the time of early implementation, the local area coordinator position "was exploited to cover the shortfall of planners" (Nevile et al, 2019). This is considered to be a temporary shift in local area coordinator duties, with plans to return the local area coordinators to implementation focussed duties in the future.…”

The Elephant in the Room – Public Servants and Implementation: An Introduction

“…At a national level, there are likely any number of policy initiatives you can identify where well-intentioned policy ambitions were dashed through complex processes of implementation. For example, in Australia in recent years, we have seen significant concerns raised over initiatives such as the National Disability Insurance Scheme (Nevile et al 2019) and the National Broadband Network (Freeman et al 2019), where seemingly well-crafted policies started to come apart (or at least need some significant re-development) once they began to be put into place. This is not just a quirk of the Australian policy context, and within whatever national or local setting you are based, it is possible to identify a number of other projects that have failed to meet their intended goals and/or been hampered by problems during implementation.…”