Innovation_in_policy.pdf

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Jesper Christiansen and Laura Bunt

October 2012

Innovation in policy:allowing or creaii,

social complexi anduncerain in publicgoernance


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About Nesta

Nesa is he UKs innoaion oundaion. We help people andorganisaions bring grea ideas o lie. We do his b proidinginesmens and grans and mobilising research, neworks andskills.

We are an independen chari and our work is enabled b anendowmen rom he Naional Loer.

Nesa Operaing Compan is a regisered chari in England and Wales wih compannumber 7706036 and chari number 1144091. Regisered as a chari in Scolandnumber SC042833. Regisered oce: 1 Plough Place, London, EC4A 1DE

wwww.nesta.org.uk

Nesta 2012.

About MindLab

MindLab is a cross-miniserial innoaion uni in he DanishGoernmen ha addresses public problems hrough a

human-cenred approach. B means o creaie aciliaionand design-led processes, MindLab conribues o heransormaion o public ssems and serices o creae beeroucomes or ciizens and oher acors o socie.


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3 / INNOvAtION IN POLICy //////////

todas global nancial and social crises demand innovaion no onl

in public services, bu wihin he whole bureaucraic, adminisraive

ssem o public governance. In order o respond eecivel o a

changing conex o complexi and uncerain, governmens and

oher public service organisaions need o consider innovaing heprocesses and pracices o public polic isel. there is a consisen

need or acivel bringing creaive processes ino policmaking and

ocusing more on creaing valuable oucomes or ciizens han onl

on projeced and programmed oupus. ye innovaion inroduces a

dieren wa o knowing (or no knowing), exploring and planning ino

governance which creae ensions wih he saus quo.

this paper aims o rame discussion beween policmakers, researchers

and praciioners around he dilemmas and challenges involved in

developing policmaking pracices ha can respond producivel o

he curren crisis, sae o uncerain and wicked characer o public

problems. this creaes he need or exploring and esablishing new

principles o decision making inspired b digial echnolog, social

sciences, scienic experimenaion and he creaive ars in order o

rame dieren possibiliies and expecaions o wha governmens

can and should achieve. We ideni his as a par o an emerging

paradigm in public governance ha is sill ineracing uncomorablwih exising adminisraive ssems. the quesion is: wha kind o

processes are needed in order o creae snerg raher han confic

beween exising and new approaches o public governance?

Summary


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////////// INNOvAtION IN POLICy / 4

Wheher ou are a poliician, civil servan, ronline worker or an oher

kind o decision maker aking acive par in public governance, ou are

requenl reminded o he curren sae o crisis. the crisis is no onl

perceived o be nancial, bu is oen conneced o a growing pressure

on governmens o ac dierenl in addressing public problemsand in enabling economic growh.1 Increasing unemplomen raes,

enrenched inequaliies, persisen social needs and a rising demand

or public services more in une wih peoples everda lives are

coninuousl quesioning he exising was ha governmens provide

or ciizens.

the concep o innovaion as a necessi in he ligh o his curren

crisis has been a signican addiion o he insrumens o public

governance. For man, innovaion is seen as a direc answer o he

crisis isel. Bu raher han being a quick x o immediae problems,

his paper emphasises innovaion as an approach ha can help improve

he capaci o he public secor o deal producivel and coninuousl

wih public problems.

In his sense, i also represens a movemen in Wesern socieies, perhaps

long underwa, ha has called or radicall new was o organising

public service ssems o deal wih problems ha migh have beenpresen and persisen all along. thus, while here are varing views

as o wha he curren crisis acuall consiss o, i is cerainl raising

imporan quesions: are our public insiuions, our was o exercising

auhori and our dominan ideas o he social conrac beween he

ciizen and he sae serving he purposes we wan hem o serve? Are

he creaing he oucomes we wan hem o creae?

these quesions have resonance in he conex o oher challenges.

For example, how do we deal wih a growing environmenal crisis haundamenall quesions he susainabili o our wa o lie making

Introduction


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us more aware o eecs on social well-being, polluion and energ

resources? Or how do we ake seriousl he demographic siuaion and

he challenge ha i presens o dealing wih a much bigger elderl

generaion and limied resources o ake care o hem? Boh hese

quesions are co-dening he curren sae o crisis; he seem o impla ailure o agenc among public insiuions and organisaions. In our

view, his is he mos imporan par in undersanding he implicaions

o a crisis seen rom a public secor perspecive; a crisis no onl pus

he exising and known modes o dealing wih presen circumsances

ino quesion, bu involves a ailure o ac sucienl o undersand,

handle and change is implicaions.

the recen nancial crisis underlined his b showing he limied means

o governmens o conrol he global nancial markes. However, as henancial crisis has also highlighed, ailure o agenc is simpl no an

opion or he public sae. Is role as he las resor was brough o

bear b going beond he radiional limis o sae agenc and saving

privae banks wih public resources. In par, he nancial crisis led o a

blurring o boundaries beween public and privae secors in how and

where agenc lies. Bu more han his, i illusraed he premises or he

public sae in a sae o crisis; decisions have o be made despie acing

in a conex o overwhelming pressure, complexi and uncerain. In

man was, public secors around he world are acing a challenge o

reinvenion wih ver lile knowledge abou how o do i.

the legiimac o he public secor has hus become somehing ha

is a sake, reling on he abili o ac producivel and responsibl

in ver complex and uncerain seings. Wha in paricular should

characerise public inervenions under hese circumsances where, a

he same ime, consisen budge cus risk jeopardizing no onl public

producivi and posiive polic oucomes, bu also he general well-being and living sandards o ciizens?

this is no onl a quesion o making producive use o public

resources. this is also an emerging democraic problem (or crisis)

where represenaive democrac increasingl seems o consis o

more han casing a voe ever our or ve ears. these challenges are

becoming increasingl visible in he naure o man social problems

and, in he UK a leas, hin o civic unres and suspicion o insiuional

ssems he banks, he media, and governmen.2 A he same ime,especiall eviden in Denmark, a perhaps exaggeraed conrolling


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eor rom he public secor o ake responsibili o mos social

problems is increasingl creaing a sae o inacion in ligh o he

curren challenges.

Our argumen is ha he muliude o crises represens a pivo poin inhe undamenal ssem design o governance and public insiuions.

We need o reconsider he was we are dealing wih increasingl

inerconneced, cross-cuing and global issues, unspecied,

unpredicable and wicked problems, and increasingl localised values

and ineress o ciizens and communiies. While public managers

and emploees sruggle o navigae he cross-pressures o budge

cus, he insoluble characer o public problems has never been

greaer. these pes o challenges and problems are illusraing he

limis o welare services bound wihin 20h cenur models, based onan assumpion o he sae delivering services o passive ciizens or

commissioning specied soluions o well-dened problems. A healh

ssem dominaed b acue hospials; prisons designed largel o

conain no preven crime; social care services increasingl sreched

o provide sandardised care o an ageing populaion; all his wihin

an undersanding o ssems based on saic ormalism raher han

building and susaining ssemaic fexibili and dnamic relaionships.

We see his as a decisive momen; a momenum or innovaion and

aemping o make public bureaucrac a beer insrumen or

poliical auhoriies in order o creae beer oucomes or populaions.3

In shor, crisis seems o have a signican implicaion in he wa we

govern our public insiuions and organisaions as well as or he

dominaing poliics o adminisraion hemselves.

Governing in complexity building resilience for innovation

Man o he mos pressing challenges aced b goernmens arehose ha conound radiional bureaucraic problem-soling-ssems o problem deniion, adminisraion and resoluion.Problems like enironmenal preseraion, economic growh,unemplomen, homeland securi or healhcare are characerisedb heir complex naure, and necessaril cu across dieren policdomains, proessional secors, organisaions and poliical and

adminisraie jurisdicions.4 Necessaril, he wicked characer osuch public problems recognises he world in is social complexi,where public decision making inoles so much more han dealing


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wih echnicaliies.5 As John Dewe wroe almos a cenur ago,where the acts are most obscure, where precedence are lacking,

where novelty and conusion pervade everything, the public in all

its unftness is compelled to make its most important decisions. The

hardest problems are those which institutions cannot handle. Theseare public problems.6

Furhermore, some o he mos urgen and cosl challenges acingwelare ssems are hose ha require an undersanding o hepersonal, conexual and inariabl mulidimensional aspecs opeoples real lies. In healh, or example, supporing people liingwih long-erm condiions such as diabees, obesi or chronicobsrucie pulmonar disease (COPD) absorbs he majori o

healhcare spending.7 Designing eecie inerenions o helpmanage hese condiions requires empah owards indiidual andsocial experience in order o undersand he lie acors ha mighhae an infuence on a paricular indiiduals condiion. A he sameime, i inoles commissioning pes o serices ha are able oengage and collaborae more produciel wih a paien in order opracice sel-managemen, as well as building on indiidual and socialasses o creae ruiul change.

there are man oher areas such as preening long-ermunemplomen, helping older people o remain independen, reducingoending behaiour, or amil suppor programmes ha demandempah and aenion o peoples dail lies in designing policiesand pracices o respond. Such complexi can be idenied in areaswhere:

I is dicul o ariculae, or een ideni, causal relaionships(or mechanisms) where causes are muli-dimensional andinerconneced, requiring more inegraed inerenion acrossdieren serice silos, such as in proiding serices or ulnerableamilies or in supporing indiiduals wih muliple and complexneeds;

Issues are highl personalised or coningen on he liesle,circumsances or disposiion o an indiidual and hereore areun or comparmenalised ssems, such as in addressing

obesi or in reersing long-erm unemplomen;

Issues are consisenl eoling or wihou a clear end poin,


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and require open-ended inerenion, such as in long-ermcondiion managemen or in educaion.

these amoun o a se o polic areas ha highligh a need o plan

and creae ssems or unpredicable oucomes, where he characero wha is aluable needs o be explored raher han pre-dened.Wha does i mean o ac produciel as a sae in addressing hesesors o challenges where i can be dicul een o know wha heproblem is?

In hese conexs i becomes essenial o build up he resilience orinnoaion undersood as an enduring power or ransormaion,renewal and recoer and he abili o anicipae curren problems

and poenial oucomes more produciel. Innoaion as a concep isialised b a desire o imagine he world in is possibili and o pushcurren percepions o wha can be done. I is a wa o anicipainghe uure in a (sill) unimaginable and inangible sae which makesconcree processes, knowledge, means and resuls somehing haconsanl hae o be reinened and alidaed. In ligh o his, publicinnoaion suggess aiming o address problems in was ha are noe known, bu are aailable hrough exploring snergies beweenideas, compeences, acors, processes and inesmens. Innoaion isno an end or an answer o challenges in isel. Raher, i is a wa ocoping wih problems wih no eiden soluions.8

Co-producing outcomes

the complexi o hese issues underlines he imporance oundersanding wha oucomes maer rom an indiidual or personal

perspecie, raher han on he basis o wha he ssem proides.For example, or a amil coping wih man dieren issues suchas a consequence o unemplomen, poer or poor educaionalaainmen, deeloping heir own abiliies o cope and remain resilieno sudden changes in circumsance ma be he mos aluable andeecie oucome rom heir relaionship wih welare serices. In shor,he ambiion o goernmen becomes no he delier o serices,bu he achieemen o oucomes ha are inormed b local insigh,eidence and conex.

Paricularl gien he consrains on public nances, his capacior innoaion is no onl abou creaing beer producii, polic


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oucomes, serice experiences and srenghening democrac,9 bu isalso deepl conneced wih an abili o draw produciel and morebroadl on socies resources. Man public and social innoaioniniiaies impl a blurring o boundaries beween he public secor

and oher secors, and require new means o collaboraion wheherbeween he sae and ciizens, priae businesses, social enerprisesor ciil socie organisaions (see Figure 1). Curren polic reormsaecing he public secor impl a moe awa rom cenralised conroland regulaion owards decenralised, non-regulaor approachesand a sronger emphasis on he role or businesses, ciil socie andciizens in proiding public serices. Formal conracual relaionshipsare replaced b a more organic and inormal social ssem, ha makesuse o he resources o socie in a much smarer and (in heor) more

ecien wa. this concep o coproducion working ogeher oproduce public oucomes has had he awareness o goernmensor some ime, bu has been shown o be er dicul or publicorganisaions o aciliae and make a core par o heir operaions.10

Figure 111: The changing relationships of government in delivering

public outcomes

One reason wh his agenda has no moed orward is ha i presensan inheren conradicion o he mainsream approach o polic-

making, undersood as the rational guidance o human aairs.12 Iinoles a change in he echnique o goernmen rom launchingrigid programmes implemened rom he op down, o esablishing

Social

Sector

Private

Enterprise

State

Citizen

State

Citizen

Private

Enterprise

Social

Sector


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and aciliaing neworks as he primar capaci o sole problems,produciel share resources and learn an approach also oenassociaed wih neworked goernance.13

I also implies a signican loss o conrol or insiuions andorganisaions responsible or public goernance; a leas comparedo radiional percepions o how conrol is undersood and exercised.Coproducion inoles new pes o relaionships and dnamicsbeween arious acors o socie, in paricular a new relaionshipbeween ciizens and he public sae. the opposiional relaionshipbeween he public sae and ciizens he sae as delierer and heciizen as recipien or consumer o serices has been a eaure ohe culure o public decision making or some ime. this model builds

on he public secor mainaining conrol hrough deliering wha iknows o be bes or he ciizen or legiimae in relaion o currenbudges and crieria or ciil righs. Changing he ocus o he creaiono oucomes raher han deliering serices is hus problemaicbecause i inroduces a new compeiie landscape where he publicsecor is onl one knowledgeable acor among man. Conrol o alesser degree comes hrough knowledge-based auhorisaion basedon objecie acs and is more a quesion o aciliaing ariousproducie, collaboraie eors. Useul knowledge, as well as hepublic isel, is hus somehing o be coninuousl discoered. this iscriical since i requires a dieren engagemen and perspecie romhe public secor in undersanding he concerns, moies, alues andeerda lies o he ciizens, businesses and organisaions o socie.

Potentiality rather than rigid planning

In ligh o his, we emphasise innoaion and coproducion asinseparable hemes; and par o a moemen we ideni as a poenialnew paradigm o public goernance. In his conex o complexiand crisis, here is a need or public leaders and policmakers o beexplorers o he possible and become expers in managing new pes orelaionships and ineracion in conexs o complexi and uncerain.this role has o be undersood, explored and experimened wih iinnoaion and coproducion are o moe beond heor in publicsecor conexs.


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Currenl, hese new orms o goernance do not replace the oldbut interact with them, oten uncomortably.14 Een hough publicpolicmakers and praciioners are experiencing he limiaionso exising adminisraie and goernance approaches, wha is le

eels inangible wihin curren rameworks o adminisraion andgoernance. Consequenl, public innoaion pracices seem o becaugh in a curious middle-ground: on one hand he are producedand mainained wihin bureaucraicall conrolled organisaions haneed o be legiimised and alidaed using exising measures andsandards o analsis. On he oher hand, public innoaion pracicesare inherenl challenging he deaul raher han reproducing i.

Alhough his crisis in a sense proides a mobilising meaphor and

a legiimae momen or changing he undamenal ssems andmanagerial processes o he public secor, i does no oer cleardirecion in erms o specic acions, regulaions, laws or changesin public adminisraion, goernance and serice delier. Insead, iemphasises conceps ha rel on heir poeniali (innoaion,neworked, collaboraie, co-producion) as core in dealing wihhe crisis. the quesion is wheher and how hese poenialiies willachiee he space, suppor and legiimac o fourish wihin publicsecor conexs.

In he ollowing we aemp o ideni and characerise he principlesinoled in his process. We are paricularl ineresed in exploringhow hese are or can become applicable in he deelopmen o publicadminisraie ssems and goernance srucures. Wha could be heuseul process in exploring poenialiies and negoiaing dierengoernance approaches in producie was? We wonder how publicinerenions and iniiaies can become more abou creaiel driing

and aciliaing exploraie processes ha uncoer and make use ounapped poenial raher han being deoed o mainl susaininghe saus quo? the ollowing secion explores a se o principles haogeher migh proide a more erile ground or innoaion whenapplied in seings or public goernance and policmaking.


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1. Outcomes, not solutions

The Fredericia model

In he municipali o Fredericia in Denmark, a change inperspecie o a problem brough abou signicanl beeroucomes or elderl ciizens a a lower cos. this shi was goingrom silo-based serice delier based on percepions o ciizensneeds o a more human cenred approach, aciliaing ariouscollaboraie eors based on heir desires or heir own uureas well as building on heir curren phsical and menal capabili.Concreel, he iniiaie ocused on suppor socks an issue hais cosl since i requires home carers go o he homes o elderlciizens o boh pu hem on in he morning and ake hem o anigh. I is also a serice ha creaes a dependenc and unwanedserice relaionship since he elderl ciizen has o adap heir lie

o he schedule o he bus home carer. I he home carer comes a7.15, his is when he elderl ciizen has o ge up.

In he new serice idea iniiaed b Fredericia, ciizens ha applor help are oered paricipaion in an inensie rehabiliaion orraining programme where oer a period o six o eigh weeks,he are rained o ake care o hemseles. this includes inesingin wha has been called serice oerload sessions where socialworkers, phsioherapiss, nurses, docors and oher relean public

sa are engaged in collaboraie sessions wih he ciizen in ordero undersand his or her desires and ineress in relaion o heir

Innovation in policy new principles of

decision making


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phsical abili. From his, he will plan a rehabiliaion process hawill ge reised and updaed eer week o make sure ha he righcombinaion o proessional experise is inoled o improe hephsical healh and indiidual serice experience o he ciizen.

I is no onl a he ronline where he oucome ocus has beenesablished. Beore his iniiaie ook shape, Fredericia reorganisedheir municipal pracice on boh a poliical and goernance leel creaing innoaion and inesmens boards across poliicalboundaries as well as secors and proessional boundaries. Earlresuls rom his iniiaie include signican monhl budgesaings, beer serice experience or ciizens as well as beerronline sa experience now he are acuall conribuing oimproing he lies o ciizens raher han jus deliering a sericeo mainain he saus quo.15

the also had o realise he challenge in ocusing on oucomes. Here,ou are no soling a well-dened problem, bu ou are coninuousladdressing i b mainaining pracices ha are characerised b anempahic relaionship wih he concree siuaion o he ciizen. thisno onl poses a new logic in heir wa o working, budgeing anddecision making, bu i also becomes a new wa o hinking abou

scaling and implemening his pe o approach elsewhere. thelaer has become an immediae issue since he Fredericia model,as i is now called, is he subjec o naional inesmen o scale heapproach o municipaliies across Denmark.

Addressing rather than solving problems

In radiional public goernance, decisions are relaed o hedeelopmen o a specic polic, regulaion, law or guide or acion.Someimes he goal can be he decision isel being made hroughpoliical mandae or proessional experise. this raher saic wao dealing wih problems conceals a no so hidden premise whichpoins o he soluion as an endpoin o deelopmen, improemenor innoaion hrough he righ applicaion o eor, knowledge andsraeg. Public soluions are oen undersood as problems sricl

dened b public insiuions. thus, eors o sole hem are basedon projecs and programmes deeloped according o crieria ha are


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applicable wih curren ssems and procedures. In his wa, silerbulle soluions become possible because social reali ges squeezedino projecs where an inended plan in is heoreical shape can be puino eec hrough concenraed eors wihin a sable ssem.

Bu social reali does no pause or implemenaion jus as publicproblems are no solable in xed erms. Wheher he exis in ordero secure ciil righs, a well-uncioning job marke or reliable axregulaion, public serices are operaing wihin a wider ssem oorganisaions, infuences and inerenions ha in arious was aechese problems. In his sense, he goal is no some kind o redempionin relaion o he public problem, bu o search ou poenial was oaddress he public problem produciel. there is a need o make he

bes possible use o public resources o creae beer oucomes or hepopulaion raher han merel ensure serice delier.

In addressing issues ha are complex or where causaion is unknown,ideniing and haing an impac on oucomes is par o a coninuouspracice o addressing and working on he problem wih hose orwhom he oucome is inended. In his sense, public serices are amaer o coninuous aciliaion raher han implemening soluions:heir purpose, conen, limis and oucomes hae o be exploredhrough creaie and ssemaic ieraion and adapaion. thesepracices deelop oer ime and are relian on numerous people,ssems, organisaions, insiuions and sakeholders. the challengein a public secor conex is ha hese pracices are neer pereclesablished as a soluion o a problem, bu needs o lie coninuousland dnamicall wihin a communi o people in order o creae alue.

I one acceps his premise, i oers new crieria or success and new

percepions o wha he eecs o public innoaion can or should be.In recognising ha nished soluions o sabile problems do no exisin public secor conexs and ha bes pracices are no scalable in axed wa, he hard quesion hus becomes wha can we ranser andscale? Diusion and scaling are o a lesser degree abou implemeningbes pracice and more abou building he capaci o ssemaicallaciliae local learning and experimenaion processes o creaeinended oucomes. tha does no mean ha good ideas and concepsshould no be subjec o wide inspiraion, coping or diusion. I

means ha, wih he deliberae spreading o an good serice, weneed o ake he creaie learning processes inoled in inegraing


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i in a unique local seing seriousl. Mabe i makes more sense ohink o hese processes, no as spreading soluions or bes pracice,bu as inesmens in localising useul ideas in arious organisaionalconexs and auhorising enironmens.

In oher words, here is a need or being open owards how he ideacan maerialise in he paricular local conex and we should hus ocuson scaling cerain approaches, principles or mehods he processeso undersanding and deeloping serice ssems. this also hasimplicaions or measuring he impac o public inerenion. Raherhan assessing he ecac o an approach as a x all soluion, heprimar goal o measuremen and ealuaion is o learn; o shapeand adap pracice oer ime. Here, he challenge becomes how o

insiuionalise his adapie capaci in public goernance and explorehow his approach aecs perormance measuremen, ealuaion andaudi uncions in goernmen.


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2. Experimentation asan approach to

policymaking

Behavioural insights to inform policymaking

How can goernmens use new behaioural insighs o inorm

social polic and pracice? As adances in behaioural scienceand pscholog hae shown, he wa we ac can be counerinuiie o he assumpions o radiional polic insrumens.One example o his is a UK experimen o appl behaiouralinsighs o reduce raud, error and deb in ax collecion. Basedon hpoheses around wha would moiae people o aend odeadlines, guidelines and crieria or ax adminisraion such asusing more personalised language, highlighing social norms andlocal behaiour and rewarding desired behaiour he CabineOce Behaioural Insighs team worked ogeher wih releandeparmens o design eigh randomised conrol rials (RCts) oes how hese insighs aec pracice.

B making relaiel minor changes o communicaion mehods using more personalised language in leers, including saisics osocial norms such as ohers response imes, adaping he laouo orms he eams were able o es how useul hese insighs

were in preening raud, error and deaul in he public secor. theresuls were impressie: one rial inesigaing wheher inormingpeople how man ohers in heir area had alread paid heir axcould boos pamen rae adanced 160 million o ax debs ohe Exchequer oer he six week period o he rial. Oerall, herials showed eec sizes o up o 30 per cen in preening raud,error and deb hrough beer undersanding o human behaiour.16

the experimenal approach allowed he eam o adap and learn

rom heir insighs, making small adjusmens o pracice andmonioring heir eec. Randomisaion allowed he eam o es


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wheher he change in oucomes could be aribued o he changein inerenion, as opposed o oher conexual acors. O course,experimenaion as a basis or shaping polic or adminisering axand pamen ssems is er dieren rom using an experimenalapproach in educaion or childrens serices, or example. Bu he

principle o knowledge creaion hrough experimenaion, basedon deep undersanding and empah o human behaiour could wihin he righ boundaries inorm acion in uncerain conexs.

Policymaking in a state of uncertainty

Goernmens alwas wan o ensure ha public inerenion is aseecie as i can be in posiiel changing public behaiour, and his isespeciall rue in a ime o consrained resources. ye human behaiouris no raional and predicable. Our acions and responses are aecedb our experience, our paricular conex, our social neworks, socialnorms and personal belies.17

the main problem is ha he cogniie mindse rom which ciilserans end o ac is linked o cerain ideas o acual objecii.this means ha ciil serans are compelled o pu heir knowledgeo work in a wa ha, in he name o goernance, has o assume hahe public problem is and will remain addressable in a predicablewa. I ou wan o redraw he map, or radicall change public sericessems, ou canno onl use he exising known maps o inspire heprocess. As Bruno Laour phrases i: Whatever has been planned,there are always unwanted consequences or a reason that has

nothing to do with the quality o the research or with the precision o

the plan, but with the very nature o action. It has never been the casethat you frst know and then act. You frst act tentatively and then

begin to know a bit more beore attempting again.18

thus, he idea o experimenaion in relaion o public goernanceand polic deelopmen has connoaions o risk. this is o alarge exen undersandable gien he imporan responsibili oensure public accounabili and ciil righs hrough rusworhbureaucraic procedures and srucures. thereore innoaion, in ha

is oucome is unknown and unpredicable, is seen as risk in conraso known, predicable oucomes (and amiliar ailures) o curren


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pracices wheher or no he are successul. As a consequence, muchinnoaion sill ends o be carried ou ouside o he core operaionso public organisaions.

Bu wha i we could urn his on is head, and see inormedexperimenaion as he responsible oundaion or decision makingin complex seings? tha, gien he curren sae o uncerain,some o he legiimac o public goernance would come hroughpolicmaking as modelled on scienic experimenaion and a processo discoer.19 the experimenal approach is necessar becauseinnoaion inherenl desabilises exising operaional, organisaionaland adminisraie srucures; experimenaion necessaril challengesexising knowledge and experience in order o make new discoeries,

asking people o conend wih a high degree o uncerain. this is aodds wih he dominan culure o public goernance ha wans ominimise risk, wase and ailure.

this is where srucured mehods such as oresigh and proopingcan be applied o anicipae and rehearse he uure in a more acieand producie wa.20 Using hese mehods o creae a legiimaespace or experimenaion can be a wa o conain and manage riskand expecaion, and learn rom (lowcos) ailure where he causeo a problem is unknown, or where pracices sill are eoling. this isdieren rom running an iniial pilo prior o launching a ull programmewhich is oen he wa in which public policies are deeloped (andwhich has is own risks). When pilos hold prole, poliical capialand considerable inesmen, ailure can hae considerable coss.the expecaion rom experimenaion is no necessaril success, bulearning rom pracice.

the concep o bea is relean here. An esablished principle inechnolog deelopmen, bea ersions are an earl, proope ersiono a plaorm, ool or web presence. the expec o be imperecand exis as a working hpohesis or uure improemen. Bea is apowerul idea o appl o public policmaking. I changes expecaionso perormance and permanence o public serices, gien he signal oearlsage deelopmen and ongoing learning. Bea no onl welcomeseedback, bu proaciel encourages challenges and criique rom hepublic, poenial users, colleagues, parners, expers and oher relean

acors. I goes beond saic consulaion ino ongoing engagemen,ieraion, co-producion and collaboraion, seeking conribuions andsuggesions or how pracices could be improed. In his wa, ailures


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and complains become opporuniies or innoaion and learningsince imperecion become a legiimae and een expeced par o heprocesses deoed o he experimenal search or he possible.

thus, polices are and mus be perecible. this does no mean haconducing experimens as a par o public goernance is he goal orha experimenaion should replace all oher operaional approaches.We wish o highligh heir usabili because, b he er naure oaddressing public problems hrough polic and programmes, publicsecors are alread experimening anwa. the quesion is, i wewish o coninue belieing in our abili o oresee how our plans willunold in pracice or i we insead wish o accep he unpredicableconsequences ha go wih an aemp o inerene in complex social

realiies?


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3. Exercising a new typeof authority

Guiding public-private innovation

During he las e ears, poliical, adminisraie and operaionalleels o goernmen in Denmark hae had an increasing awareness

o Public-Priae Innoaion (PPI) dnamic and coninuouscollaboraion beween public and priae secors o innoae publicserices, lower he use o public resources and creae opporuniiesor business growh. Despie muliple aemps in he orm o ariousprojecs carried ou in municipaliies and regional organisaions, henew welare soluions are sill o creae an signican alue.

In 2011, he Danish Business Agenc (DBA) and MindLab weregien he ask o deeloping a guidance ool or PPI which wouldproide suppor or municipaliies and oher public organisaionswaning o work wih PPI. ye gien his mode o collaboraion wasa signican moe awa rom curren deelopmen pracices, herewas no blueprin or guiding pracice eiher a he miniserial leel(polic) or a regional or local leels (pracical). this had creaed asiuaion where he dieren leels o he public secor inerlockedeach oher in posiions o inacii. For his reason, he DBA andMindLab experimened wih a new wa o sharing responsibili

and inoling public emploees rom boh local and regional leelsawaiing he auhoriaie guidelines and ciil serans lackinghe abili o gie guidelines, in a muual process o learning andrehearsing uure approaches o PPI. the DBA hus ook on a newrole o aciliaor o an ongoing learning process, aciel ineracingwih is sakeholders and users.

In his wa, i inoled a new pe o auhori or he DBA ha noonl rerained rom posulaing ha he complex processes were

o be known in absolue cerain, bu also alered he picall


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Creating and facilitating authorising environments

While public problems are increasingl undersood in heircomplexi, accounabili in public bureaucracies is sill largelundersood hrough radiional models o auhori. the percepionha i is possible o reliee he world o he paricular problemcompleel is also refeced in an auhori role ha inoles hepublic secor as an all-knowing eni and, as such, has he abili oobjeciel sancion or alidae cerain decisions based on auhorisedknowledge. Consequenl, he proessional culure o public leaders,ciil serans, managers and ronline workers is one ha aluescerain, conicion and echnical compeenc, raher han opennesso uncerain. Changing his auhori role hereore implies hedeelopmen o dieren skills, relaionships and working culures asmuch as i requires dieren pracices. In oher words, anoher kind oauhori role one ha ocuses less on sancioning knowledge andinormaion, and more on how o aciliae and enable he generaion

o knowledge and eecie acion.

this role refecs a dieren wa o aking responsibili and exploringhow o ac mos appropriael as a public auhori gien he unceraincircumsances. Where he promps or public problems are unknown,auhori comes no jus rom haing access o superior resourcesor ormal powers, bu in undersanding he conex and condiionsha aec problems. For example, a docor prescribing reamenis endowed wih ormal auhori, bu in managing long-erm

condiions or in public healh issues ha require behaiour change,

opposiional relaionship beween he miniserial agencies andlocal public organisaions. Now responsibili was shared andconinuousl co-consruced b goernmenal, regional or municipalorganisaions hrough heir acie inolemen in co-creaing newknowledge and experience used o dene, rame and guide PPI

pracices. Insead o puing heir auhoriaie samp on pariculardecisions or acions, he DCA had o paricipae in coninuousprocesses o dialogue and knowledge sharing and aciel explorewha auhoriaieness could be and who should be inoled inesablishing he enironmen where i had o work.


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he experienial knowledge and paricular acions o paiens and hepublic are imporan mehods o use o ensure an eecie oucome.Consequenl, he public sae becomes a aciliaor or a nework leaderha manages risk, uncerain and social complexi b aciliaing

plaorms o collaboraion and knowledge sharing.

In ligh o his, we sugges ha a ke eaure o decision making incomplex public innoaion processes is a dieren percepion owha is auhorised. Inerenion becomes abou creaing a new,producie auhorising enironmen ha is held up b arious acors,dieren power relaions and inerconneced spaces o meaning andinerpreaion. the quesion is how we enable new approaches andpracices in public serice ssems while simulaneousl showing heir

acual public alue and, a he same ime, building he operaionalcapaci and adminisraie capabili o deelop and goern hemeeciel.21 I is a paradoxical challenge o enabling cerain acionsand decisions (in relaion o innoaion) wihin ssems ha boh heiradminisraie and operaional capaci is sill un o auhorise hem.

We appl i here o open up or a new pe o public auhori role.One ha, raher han conrol or speci acii and oupus, o alarger degree has o disribue arious eors and resources in ordero eeciel address problems in search o aluable oucomes heauhori o he sae is used o leer he collecie capaci or beerpublic oucomes.22 One where he public sae recognises isel as oneknowledgeable acor among man and hereore deliberael seekso draw broadl on he knowledge and eors o arious acors osocie as a whole. In shor, public goernance ha is concerned wihoucomes necessaril requires coproducion and collaboraion andeen creaing new publics and auhorising enironmens.

this does b no means rule ou ha public auhoriies a cerain imesdo hae o sep in and alidae or sancion cerain procedures oaddress he paricular problem. I is raher ha in public innoaionhere is no necessaril a direc causali beween auhoriaieknowledge and public inerenions since he reasons and condiionsor making decisions hae o be explored and learned raher han beknown ull or in adance.

In his conex, here is a role or policmakers o ensure opennessand eraci o inormaion, ensuring impariali and acknowledging


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dispue. Adances in digial analical and communicaion ools haepoenial here in organising inormaion much more dnamicall, wihhe sae exercising is auhori hrough aciliaing shared decisionmaking. In he pas decades, goernmens hae spen large amouns

o resources on enabling marke resuls. Now, he role o he publicsecor needs o inole enabling no onl collaboraion wih priaeacors, bu aciel encouraging enabling and auhorising new peso enironmens or collaboraion and co-producion.


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4. Re-thinking usefulevidence

Away with the red tape

young people beween 18 and 30 ears o age in Denmark are hedemographic group leas likel o be capable o doing heir axesonline. this surprising insigh made he Danish tax and Cusoms

Adminisraion (DtCA) parner up wih MindLab o ge a more in-deph undersanding o he experiences o he ciizens and heirencouners wih public secor bureaucrac. Under he headlineAwa wih he Red tape, he broad Danish goernmen agendawas o deregulae and eliminae unnecessar rules and digiise andsimpli complicaed adminisraie procedures and processes.While deregulaion oen ocused on seemingl objecie crieria,such as ime consumpion and he number o rules, his projecdeliberael aoided predening a rule or procedure as he redape. Insead, he sud examined ciizens subjecie experienceswih public secor regulaions, communicaion channels and serice.

the iniiaies ha hae been deised rom he sud sem roma design-drien process, which is characerised b ssemaicidea deelopmen and prioriisaion, he deelopmen o concepsand he descripion o specic proopes in direc dialogue wihciizens. these processes were all drien rom an inormaional base

coming rom conducing ineriews o be able o skech ou heserice journe and experience in concree and illusraie was.this inormaion led o arious iniiaies under he heading romdigial access o digial sel-reliance meaning ha usabili mus beundersood as more han jus a echnical soluion. In his wa, heDtCA and MindLab creaed a new kind o knowledge oundaionha se ou a course o addressing problems in a more human-cenred wa, creaing axaion procedures more in une wih helies o ciizens


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An imporan par o his was he use o audio clips and radiomonage. these where used o make he experiences o he oungciizens as iid and illusraie as possible. this resuled in ariousaudio represenaions o rusraed oung ciizens as he r odo heir axes online. Some o hese audio clips became consisen

pars o inernal meeings and workshops in he DtCA in heirdeelopmen work. these in-deph represenaions were o creaea new undersanding o engage decision makers in new was bdrawing hem closer o he eerda experiences o ciizens andappling a er dieren kind o knowledge abou he ciizenscompared wih wha he are used o. the audio clips became a newwa o colleciel relaing o he shared challenge b coninuouslaciaing ongoing proessional empah or ciizens experience. Inhis wa, he conribued o creaing a renewed sense o purposeand made new and useul decisions possible.23

Validating innovation

the shi o new pes o processes and eecs (innoaion) anddieren pes o roles, uncions, and aciiies (co-producion) haequie signican implicaions on he wa we hink abou he producionand applicaion o knowledge and inormaion. Paricularl, i seems oinole a undamenal discussion abou wha we consider as legiimaeand no leas useul eidence o work as a oundaion or acions anddecisions. to some exen, new orms o knowing (or no knowing)hae become poenial social asses o be explored, in order o enableproducie decisions in he process o changing (or innoaing) welareserices.

Here, we are specicall highlighing he need or nding was oinroduce less calculaed or angible insighs more ormall inodecision making processes. How can we, or example, make room ormore oucome-ocused iniiaies when ha picall will inole highlrelaional and localised processes making aluable eidence somehingha will depend on conexual acors raher han sandardised crieria?Or how can we suppor he applicaion o qualiaie insighs abouciizens in relaion o heir acual lie experience ha migh be o amore unnished and less angible characer, bu will oen proe o he

source o innoaie ideas?


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Building innoaion capabili in public goernance simpl requiresoher kinds o illusraions and represenaions o help decision makersrelae empaheicall o he people and he problem a hand, as wellas see heir purpose and possibiliies in a new ligh. Creaie mehods

building on ehnographic mehodolog, co-design approaches andsocial and ineracie media proide opporuniies o capure heexperience and insighs o ciizens, o add legiimac o inerpreaionand allow or processes o co-producing oucomes. this approachneed no be a odds wih more ormal ealuaion and eidence, as iproides a wa o promp he deelopmen o new hpoheses andquesions or research and experimenaion.

this also has o be seen in he ligh o he challenges inoled in

legiimising he pracical and uncerain realiies o public innoaionprojecs. Oen, public innoaion projec leaders are spending moreime on legiimising and gaining suppor or he projec isel wihin heorganisaion. taking ino accoun he pracical, conexual or emporalreali o innoaion projecs, he consequence is a subsanial amouno resource going ino managing expecaions o he process whilemuch less is spen on imaginaie experimenaion and learning rompracice.

Wha is paricularl challenging or policmakers in his conex isha (innoaion) polic no onl inens new orms o hough andoundaions or decisions, bu also inoles he inenion o noelprocedures o documenaion, compuaion and ealuaion.24 In hisligh, ou can cerainl ask wheher i is innoaion projecs ha ail orwheher he are ailed b wider neworks o suppor and alidaion.25A leas one signican challenge or policmakers seems o be o gureou how o suppor and alidae public innoaion iniiaies wihin he

exising rames o public legiimac. Wha should or could characerisehe ormalising processes hemseles in respec o eidence? Wewonder i no dieren leels or expecaions o eidence as well asoher pes o ssems and legiimising processes can and should beapplied wihin goernance pracices?26


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5. Designing for policy

Transforming early years

Public inerenions made in he earl ears o a childs lie can haea proound impac on a persons lie experiences, deelopmenand uure opporuniies. For a long ime, policmakers, academicsand praciioners hae adocaed a much sronger emphasis onearl inerenion as a wa o preen social problems deeloping,

proiding an imporan role or he welare sae. ye he pracice oearl inerenion and preenion sill remains pach in mos areaso public serice delier.27 Working wih he Innoaion Uni, Nesase ou o nd local auhoriies who were ineresed in aking anenirel dieren approach o proiding serices or amilies wihoung children, in order o deelop new models o earl inerenionand suppor serices ha delier oucomes amilies and childrenwan.

the transorming Earl years programme worked wih heseareas o ake a resh look a heir exising serice oer and usean experimenal mehod o design dieren, beer and lower-cos serices or local amilies. Using a disciplined approach oinnoaion, he eams worked hrough a deelopmen process hadrew on new insighs as inormaion o inorm serice design including using ehnographic approaches o undersand he needsand asses o local amilies and hen o proope he new models

wih amilies hemseles. Imporanl, his work was presened ascore o he operaions o he local councils, using heir core unds oes ou new was o working wih amilies, drawing on heir assesand adaping delier o mee heir needs.

In each locali, he proope serices based on insighs gaheredaround he paricular challenges aced b he local communi, andhe ull se o resources aailable o mee hem were er dierenrom he exising pes o suppor oered o amilies. For example,


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Rethinking the practice of policy

Experimenal and exploraie approaches o public goernancechallenge he desire among ciil serans o appl polic insrumenallb creaing pre-esablished, insrucie guidelines or deelopmen andimplemenaion. Polic in is insrumenal orm aspires o show direccausaliies beween he projeced plan, decisions made, acions carriedou and he paricular oucomes and resuls achieed. the concepo innoaion inroduces a new wa o anicipaing he uure in sillunimaginable and inangible saes which make concree processes,knowledge, means and oucomes somehing ha coninuousl haeo be reinened and alidaed. Innoaion consanl ses up new

horizons, direcions and incenies or decision making. Here, he basicoundaion or polic is no he producion o auhoriaie knowledgeillusraing angible pahs or roues o implemenaion. Insead, policor innoaion seems o be unolding more as an ideolog o progress;a mobilising meaphor dnamicall mainaining isel in ssems orepresenaion.

In his sense, polic or innoaion ress on a paradox. Innoaion policseems simulaneousl o suber insrumenal logics o polic while

remaining wihin radiional rameworks o policmaking. to someexen, i is mean o open up or he agenie powers and imaginaiecapabiliies o he people inoled. the quesion is wheher and how i

in Corb he eam is working wih a group o oluneer sreechampions rom he communi who will work wih whole amilieson a sree-b-sree basis, working alongside proessionals odelier a se o communi-led serices. In Reading, paren groups

encouraged he eams o proide suppor o amilies in he earlsages o pregnanc.

the principles o more communi-based, peer-suppored andrelaionship-ocused suppor are undamenal o hese new models,each demonsraing he alue o a deeper parnership beweenproessionals and serice users, born rom undersanding andempah. Implemening hese models has required enaci andcreaii on behal o he eams, being prepared o learn quickl,

es and ierae heir approaches unil he work or he amilies.28


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is possible o undersand polic as a dnamic concep is responsie ohe pracical realiies o how innoaion iniiaies ake shape.

the concep o design is useul in his regard since i akes his

dnamic relaionship as he premise in deelopmen processes. Unlikehe radiional undersanding o policmaking and goernance as heraional deelopmen o models, design is predisposed o more ieraiecreaion and sewardship, closing he gap beween deelopmen ohe model and is implemenaion. Raher han ormulaing a planha sis disinc rom pracical applicaion, i is in he esing andieraion ha he plan rul comes o lie. the consisen emphasison undersanding and using he archiecure o he problem as adrier in exploring possible was o addressing i will inherenl build

quesions o implemenaion and ssemic implicaion ino he designprocess. Polic, in his sense, can no longer be seen in is own righ,bu onl makes sense when seen in relaion is pracical oulook andconsequences.29

Design as a discipline is also more comorable wih complexi anduncerain, and is hereore commonl used as an innoaion mehod.though oer-simplied, a core srengh o a design approach is hai sars rom undersanding he archiecure o he problem; bohocusing on he concree causes and consequences inoled as wellas he inerconneced ssems and neworks inoled in dealing wihi. taking on dieren perspecies, asking new quesions, reramingchallenges can inroduce innoaion ino hough or acion processesb creaing a ension wih common inerpreaion. In asking dierenquesions, a design approach can poin o dieren rajecories oraddressing he problem.

Addiionall, in design, ormaion and implemenaion are ieraie.this means ha design is comorable being open ended or uncerain,using a se o bounded, disciplined echniques o es, learn and reisehroughou he creaie process. Prooping, skeching, blueprins arehe building blocks o design processes, using hese objecs o refecon and deelop an approach. And he associaion wih design as acreaie pracice is useul in his conex, as i proides he legiimacor experimenaion, innoaion and imperecion ha working wihcomplex oucomes demands. to iew polic as experimens in progress,

as he design approach does, remains an unapped opporuni inrelaion o polic and decision making, in creaing beer oucomeshrough public goernance and deelopmen.


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Wha does his mean pracicall or hose engaged in ring odeelop public polic? Wha deelopmens in curren policmakingpracice can come o beer embod hese principles? Where are he

mos appropriae places o sar i ring o inroduce innoaion inogoernmen and public secor conexs requires a dieren approacho decision making?

Signs of new principles in practice?

there is a lie opporuni o refec on he alue o hese principles,gien he changing shape o he public secor in boh he UK andDemark wo counries acing a common crisis in proiding a welaressem ha can remain susainable in ligh o rising demand andshrinking resource. In boh seings, here has been considerablechange and upheaal in he uncions and srucures o goernmenand public serices ha hae opened up debae as o he roles andresponsibiliies o public serans in deliering public oucomes. thisis alongside a number o eors ha aim o deelop new sraegieso public innoaion, design, digialisaion, inelligen demand and

commissioning. these sraegies hae huge poenial in driing no onla change in ools and mehodologies, bu a undamenal and principalchange in he approach o public deelopmen and goernance as wellas shedding new ligh on wha kind o perormance and eecs hainnoaion drien b he public secor can inroduce.

In he UK, recen polic shis owards more localised, decenralisedconexs or decision making, commissioning and goernance is inpar wih a iew o encouraging more innoaion in local seings ha

can respond o paricular conexs. Shis in commissioning praciceowards commissioning on he basis o oucomes, paing proiders

Implications for publicgovernance where

to begin?


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or resuls raher han paing on he basis o acii, and nancinginnoaion hrough alernaie sources o (social) inesmen in heor,creaes an opporuni or innoaion wih a ocus on impac raherhan oupus or acii. Goernance ha is concerned wih oucomes

applies dieren principles, leading ciil serans, commissionersand policmakers o refec on he mos producie role or hem opla in sewarding or assuring public oucomes.30 this also meansgoernmen is able o work more eeciel in parnership wih ohersecors o delier oucomes, and draw on resources rom priae andcommercial elds o nance he creaion o public alue.

In Denmark, here is wide recogniion o he need o creae he capacio drie public innoaion. the increasing amoun o labs in local

and regional seings, wihin goernmen deparmens and researchinsiuions are signs o his recogniion. Also, powerul narraies likehe Fredericia model and oher local innoaion successes do inspirepublic organisaions o seriousl consider and rehink he deelopmenprocesses, as well as he organisaional and goernance srucures,owards beer was o supporing more oucome-ocused iniiaies.this awareness also exiss on a poliical leel where new sraegies andreorms are pu o work o beer suppor local, pracice-drien ideasand iniiaies. For example, here are experimens wih ree councilsa a local leel o encourage more experimenaion and poenialinnoaion. Howeer, as wih preious innoaion programmes andsraegies, here are risks no signicanl acknowledging he deepchallenges o inroducing innoaion pracices presen o mainsreambureaucrac and public goernance. Innoaion processes do nonecessaril hrie b onl increasing deregulaion or inroducinginnoaion process models. I inoles a change in perspecie andmenali ha is sill ineracing uncomorabl wih exising decision

making srucures.

Change through evolution, not revolution

Bu een in he conexs o hese deelopmens, we are no suggesingha innoaion and he pracices here implied should be he deaulapproach o policmaking eerwhere, all o he ime. though heimplicaions o hese principles or public goernance are proound and

widespread, here ma be some areas o public polic where a moreexperimenal, open-ended approach o deeloping polic is no (or no


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e) appropriae, or sociall accepable. How much experimenaionshould we expec or hope or in areas o social policies? Wha sors oproblems lend hemseles o a more experimenal approach?

the quesion o where o sar is hus largel an empirical one, as i is anempirical quesion wheher ariables canno be meaningull denedand measured. Where here is a relaiel robus relaionship beweena dened problem and an eecie inerenion, a more radiionalapproach ma appl. Where here is more uncerain and complexi,hese principles migh more useull appl. these principles mahereore be worh considering in areas where:

there is currenl lile on oer, eiher due o underdeeloped

oerings or he emergence o new or newl idenied need,such as in amil suppor serices;

Wha is currenl on oer is no working, eiher rom a lack oake-up or lack o impac;

there is lile eidence o wha works in erms o ackling aparicular issue, such as in some areas o public healh;

the ssem needs o shi owards a more preenaieapproach, such as reducing reoending or preening hedeelopmen o long-erm healh condiions;

Commissioners are acing subsanial cus or changes o heircommissioning conex, requiring imaginaion and ingenui inhow o respond o local demand.

Valuing a different kind of leadership

Realising and acioning hese principles requires a new kind oleadership. For leaders wihin all arieies o public and socialconexs, leading innoaion can eel like a sruggle agains he widerbureaucraic ssem in order o creae he legiimac, space andfexibili or innoaion. Appling he principles explored in his paperdemands as much enaci and oresigh as deeloping a new ool,

serice design or produc. Ssemic and sraegic innoaion demandssrong leadership as well.


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Ensuring oucomes, aciliaion and sewardship, openness oexperimenaion and comor wih uncerain all require as muchsrengh in ision in leadership as more radiional approaches odeeloping and implemening public polic. ye leadership in hese

conexs migh look er dieren rom auhori achieed hroughconicion and cerain. I is perhaps, hereore, no jus a consequenceo dominan processes and pracices ha work agains innoaion inpublic goernance, bu he skills, leadership qualiies and compeenciesha end o be recognised as bringing auhori and assurance ohose in posiions o responsibili. From he examples menioned heresuch as he eams working wih communiies o ideni oucomesin transorming Earl years, or in Fredericia basing decisions on heaspiraions and capabiliies o serice users, i is eiden ha i requires

leadership rom assuming a dieren worldiew and openness o analernaie se o alues. the legiimac o decisions and acions arecoming rom seeing he world in is poeniali and a consisenmoiaion o explore new opporuniies and snergies raher hanreling on curren was o undersanding problems and challenges.

Furher o his, does realising hese principles o a new auhori role andcollaboraion warran a more disribued approach rom goernmenwhere he roles o he public secor are more ocused on coordinaion,knowledge accrediaion and sewardship han delier or conrol? Andi his is he case, how can goernmen begin o ealuae he ecaco heir inerenions hrough more disribued and more neworkedapproaches? Finall, o ask a undamenal quesion, wha does hismean or poliics or he campaign promises and adersarial naureo poliical leadership?


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Conclusion

In his paper, we hae explored a number o principles ha characerisea dieren wa o acing in order o embed more innoaion in decisionmaking and goernance. We argue ha hese necessiae dierenwas o hinking abou he goals, means and auhori o he publicsecor and goernmen in responding o complex problems hroughinnoaion. Bringing innoaion ino hese seings requires a change inhe wa in which he public secor isel operaes. this change inolesmuch more han merel reling on new conceps o inegrae naurallino exising goernance models and srucures. A cenral quesion

in his respec becomes how we go rom building innoaion unisworking separael rom he core operaions o public insiuions andorganisaions o building he resilience and capaci or innoaionbroadl in operaional compeencies and mindses.

In his sense, his paper can be seen as a deliberae aemp o reramehe concep and pracice o public polic. We see he applicaion andadapion o he e principles menioned here as a wa o no onlbecome more eecie and consrucie in creaing beer oucomesor ciizens, bu also as a wa o increasing he legiimac o publicinerenions. We sugges ha polic and implemenaion should beundersood as pars o exploraie creaie processes ha deal wihhe world in is unpredicabili and poeniali. the quesion is whakind o processes are needed in order o produciel incorporae hisapproach ino public goernance and where o sar in building a newculure o decision making.


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Acknowledgements

this paper is mean o sar new conersaions around he challengeso public goernance. We see is poenial alue, no in is analsis orargumen isel, bu hrough he dialogue ha i is making possible. Wewould like o hank man colleagues and riends or being such richsources o insigh and experience in his process. We are er graeulor he useul ideas, eedback and conribuions coming rom our experseminars a Nesa in London and a MindLab in Copenhagen as well ashe inspiraional eedback we hae receied ouside hese sessions.In paricular we wan o hank Bran Boer, Hasan Bakhshi, Chrisian

Bason, Marie Munk, Nina Holm vohnsen and Jocelne Bourgon or heirsubsanial conribuions. All errors and omissions remain our own.


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About the authors

Jesper Chrisiansen is Research Manager a MindLab and a ormerResearch Associae a Nesa. His work is mainl ocused on hechallenges and processes inoled in ransorming public sericessems rom a human-cenred approach. He holds masers degreesin anhropolog and journalism and is currenl compleing hePhD projec In search o new public utures ha inroduces newanhropological perspecies on he creaie processes inoled in hepolic and pracice o public innoaion.

Laura Bun is Lead Polic or Public and Social Innoaion a Nesa. Herwork ocuses on innoaion rends and imperaies wihin public andsocial polic and public serices, and he mehods and processes hacan srenghen he impac o innoaion in hese elds. Currenl, she isleading research on commissioning innoaion, he opporuniies andchallenges or innoaion in healh knowledge ssems and managinguncerain in public goernance and adminisraion.


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Endnotes

1. For a horough exploraion o hese issues, see Nesa (2012) Plan I: he case or innoaion-

led growh. London: Nesa2. Edelman (2012) the Sae o trus: he 2012 Edelman trus Baromeer.; Ipsos Mori

(2012) Undersanding Socie: eoling public serices, eoling public opinion. London:Ipsos Mori.

3. Bourgon, J. (2011) A New Snhesis o Public Adminisraion: sering in he 21s cenur.Kingson ON: McGill-Queens Uniersi Press.

4. Kel, D. (2002) the transormaion o Goernance: Public Adminisraion or twen-FirsCenur America. Balimore: the John Hopkins Uniersi Press.

5. Camillus, J. (2008) Sraeg as a Wicked Problem. Harard Business Reiew. (Ma2008), pp. 98-106.

6. Dewe, J. (1927) the Public and is Problems. Ohio: Ohio Uniersi Press. pp.121.

7. Nalor, C., Parsonage, M., McDaid, D., Knapp, M., Fosse, M. and Galea A. (2012) Long-ermcondiions and menal healh: the cos o co-morbidiies. London: the Kings Fund.

8. Chrisiansen, J. In search o new public uures. PhD hesis. Aarhus Uniersi/MindLab(orhcoming).

9. Bason, C. (2011) Leading public secor innoaion: co-creaing or a beer socie.Brisol: Polic Press.

10. Bole, D. and Harris, M. (2009) the Challenge o Co-producion. London: Nesa and nef.

11. Deeloped wih Joe Ludlow, Nesa Direcor o Impac Inesmens, a a seminar a MindLab inMarch 2012.

12. Sanderson, I. (2009) Inelligen Polic Making or a Complex World: pragmaism, eidence andlearning. Poliical Sudies. volume 57, Number 4, December 2009, pp. 699-719.

13. Harle, J. (2005) Innoaion in goernance and public serices: Pas and presen. Public

Mone and Managemen. 25 (2005): 27-34. Harle idenies hree dominaing paradigms opublic goernance in which public innoaion has been or is siuaed. She argues ha eenhough each paradigm can be linked o specic ideolog and hisorical period, he shouldraher be seen as co-exising, compeing paradigms ha co-exis.

14. Newman, J. e al. (2004) Public paricipaion and collaboraie goernance. (wih Barnes, M.and Sullian, H.) Journal o Social Polic. 33 (2): Pp.217.

15. See also: hps://www.redericia.dk//lmiel/Documens/Danske%20kommuner%20arikel%20no.%2022%20side%2028-30.pd

16. Cabine Oce (2012) Appling Behaioural Insighs o Reduce Fraud, Error and Deb.London: Cabine Oce.

17. Wilson, t. (2011) Redirec: he surprising new science o pschological change. PenguinGroup.

18. Laour, B. (2007): How o hink like a Sae, Pp.4.

19. Bakhshi, H., Freeman, A. and Pos, J. (2011) Sae o Uncerain: innoaion polic hroughexperimenaion. London: NEStA.

20. Halse, J. e al. (2011) Rehearsing he uure. Copenhagen: the Danish Design School Press.

21. Benningon, J. and Moore, M. (Ed.) (2011) Public value: heor and pracice. Basingsoke:Palgrae Macmillan Ld.

22. We are graeul o Jocelne Bourgon or his suggesion. See also Bourgon, J. (2012) A NewSnhesis o Public Adminisraion: sering in he 21s cenur. Kingson ON: McGill-QueensUniersi Press.

23. hp://mind-lab.dk/en/cases/awa-wih-he-red-ape-a-beer-encouner-wih-goernmen

24. Miller, P. and Rose, N. (2008) Goerning Economic Lie. In Miller, P. and Rose, N. (eds.)

Goerning he Presen. Cambridge: Poli Press. Pp: 26-52.


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25. Mosse, D. (2007) Is good polic unimplemenable? Refecions on he Ehnograph o aidpolic and pracice. In Jimenez, A.C. (ed.) the Anhropolog o Organisaions. Farnham:Ashgae Publishing Ld. Pp:451-483

26. Reis, E. (2011) the Lean Sar-up: How todas Enrepreneurs Use Coninuous Innoaion oCreae Radicall Successul Businesses. New york Ny: Crown Publishing.

27. Allen, G. (2011) Earl Inerenion: he nex seps. London: HM Goernmen.

28. Innoaion Uni and Nesa (2012) transorming Earl years: beer oucomes or amilies alower cos. London: Nesa; Goddard, C. and temperle, J. (2011) transorming Earl years:dieren, beer, lower cos serices or children and heir amilies. London: Nesa.

29. Boer, B., Cook, J. and Seinberg, M. (2011) In Sudio: Recipes or Ssemic Change. Helsinki:Sira.

30. Hallsworh, M. (2011) Ssem Sewardship: he uure o policmaking? London: Insiue orGoernmen.


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