Garbage Can Model Of The Policy Process Essay ⋆ Political Science Essay Examples ⋆ EssayEmpire

The garbage can model was developed by Michael Cohen, James March, and Johan Olsen in 1972 to explain the decision-making process of “organized anarchies,” such as universities. Organized anarchies are characterized by problematic preferences, unclear technology, and fluid participation. Participants involved in decision making often do not clearly define their preferences and may not have strong preferences on the issues under consideration. In addition, participants are often unclear about how the overall organization’s processes work. They may understand their own functions well but usually do not grasp how their own responsibilities fit in with the larger organization. Instead of basing decisions on a comprehensive understanding of the organization’s processes and functions, decisions are based on a trial-and-error approach and anecdotal evidence. Finally, participation in these choice processes is relatively unstable. Participants can enter and exit the decision-making process freely, and variations in contributions stem from time and resource constraints rather than from features of the decision under consideration.

These characteristics of organized anarchies make a rational-comprehensive approach to decision making extremely difficult, if not impossible. Under a rational-comprehensive approach, problems and preferences are clearly defined, all alternative solutions are systematically evaluated, and decisions are made based on which alternative will best achieve the defined objectives and preferences. As described, organized anarchies are unable to utilize this approach. Instead, they operate as a “collection of choices looking for problems, issues and feelings looking for decision situations in which they might be aired, solutions looking for issues to which they might be the answer, and decision makers looking for work” (Cohen, March, and Olsen 1972, 2). Outcomes in these circumstances depend on the mix of problems, solutions, and participants that pertain to a certain choice opportunity (i.e., the content of the garbage can). Thus, context and timing are crucial factors in determining choice outcomes.

Although the garbage can model was developed in reference to universities, it has also been used to explain the governmental policy process. Perhaps the most well-known application of the model is John Kingdon’s 1984 multiple streams model of governmental agenda setting. In this variant, the organization is more structured than an organized anarchy, but the traits of problematic preferences, unclear technology, and fluid participation remain. Kingdon argues that three independent streams run through the governmental agenda process: a problem stream, a solution stream, and a political stream. The problem stream consists of various actors measuring and highlighting certain policy problems for the government to address. The solution (or policy) stream consists of the development of and advocacy for public policy proposals and reforms. The political stream consists of contextual factors that influence government officials and other political actors, like election outcomes, public opinion shifts, and interest group pressure. Like participants in the garbage can model, participants in the multiple streams model are highly fluid and include politicians, academics, interest groups, and policy entrepreneurs. The governmental agenda responds to these streams when a “policy window” opens, providing an opportunity for a particular problem and/or solution to move to the top of the governmental agenda. In this model, policy entrepreneurs play a critical role, actively seeking to join the streams, matching policy proposals to problems and political opportunities. As with the garbage can model, governmental agendas are better understood as the outcome of timing and context rather than of a rational-comprehensive approach to decision making.

Bibliography:

Cohen, Michael D., James G. March, and Johan P. Olsen. “A Garbage Can Model of Organizational Choice.” Administrative Science Quarterly 17, no. 1 (1972): 1–25.
Kingdon, John W. Agendas, Alternatives, and Public Policies. Boston: Little, Brown, 1984.
Zahariadis, Nikolaos. Markets, States, and Public Policy: Privatization in Britain and France. Ann Arbor: University of Michigan Press, 1995.

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