How instrument constituencies shape policy transfer: a case study from Ghana

Abstract

The concept of instrument constituency provides students of public policy with a new analytical tool for the analysis of policy change. In this article, we use the example of cash transfer programs to show how this concept also makes a direct contribution to the analysis of transnational policy transfer. More specifically, the analysis shows how, over the last dozen years, actors forming an instrument constituency promoted the diffusion of cash transfers as a policy instrument from Latin America to sub-Saharan Africa and, more specifically, from Brazil to Ghana. This case study of Ghana's adoption of a cash transfer program is grounded in semi-structured, expert interviews conducted with both domestic and transnational actors. Overall, the analysis demonstrates how the concept of instrument constituencies can enrich the literature on policy transfer, a key source of policy change in both developed and developing countries.

Diffusion of CCTs from Latin America to Asia: the Philippine 4Ps case

“…Instrument constituencies assemble this set of stories and knowledge by producing information about the instruments and their performance, framing policy discourses, and providing resource support to potential adopters (Foli, Béland and Fenwick, 2018). Such information on the policies to be diffused is encapsulated in knowledge products in the forms of reports describing the idea, documenting the practices and demonstrating the effectiveness, which are typically disseminated in learning platforms like sponsored conferences, workshops and study visits that serve as a networking venue (Porto de Oliveira, 2017) for members of the instrument constituency.…”

“…These institutions then worked with both Brazil and Mexico in order to generate information on the success of the programs and to transmit packaged information highlighting the program's effectiveness to many countries looking to strengthen their social protection programs at low cost. The Brazilian model eventually found its way to many countries including Ecuador (Lana and Evans, 2004) and Ghana (Foli, Béland and Fenwick, 2018). Such diffusion in Latin America has been attributed to the pressures made by international organizations through a platform 'learning with your neighbors' , through establishing international professional norms, and financial incentives.…”

“…Thus, there is less country-to-country diffusion as was the case from Brazil to Ghana (Foli, Béland and Fenwick, 2018). Recipient governments like the Philippines may appear to have selected this set of objectives from a menu of documented cases from other countries; but it is vital to mention that alongside the conference, the Philippine delegation was briefed on the CCT by an international consultant, Mr. Tarcisio Castañeda, who had worked for the World Bank in Latin America, published articles on the experience of Colombia on poverty targeting, and was at the time based in Indonesia.…”

“…This observation reflects the case of Indonesia (Kwon and Kim, 2015) that equally benefitted from similar transfer mechanisms. However, it is not the case of countries that were directly influenced by the Brazilian model such as Ghana (Foli, Béland and Fenwick, 2018). Thus, instrument constituencies can be seen as critical in overcoming 'learning problems' such as translating practical experience into rules of thumb or decision-making heuristics (Casey and Gold, 2005).…”

“…Research on how policy transfer occurs in developing countries remain scant, challenging the validity of the policy transfer framework to extend beyond developed economies (Nedley, 2004). Those that examine policy transfer in developing countries (Lana and Evans, 2004;Porto de Oliveira, 2017;Foli, Béland and Fenwick, 2018) have revealed a pluralized diffusion process where individual actors legitimize the policies being transferred and the transfer process itself, but our understanding of the details of the process remains limited.…”