How does policy learning take place across a multilevel governance architecture during crises?

Abstract

Policy learning plays a significant role in shaping policy during crises. While scholarship has explored many of the mechanisms and outcomes of such learning, little is known about how policy learning takes place across different levels of a multilevel governance architecture. This is despite their prevalence and influence on crisis responses. Using a case of the Belgian COVID-19 policy response, we explore how policy learning takes place across different levels of multilevel governance within creeping crises, focusing on epistemic policy learning (learning from experts) as one of the most pronounced learning types within such contexts. By means of document analysis, supplemented by primary source data from expert and senior official interviews, we offer an exploratory account of how learning took place at the national and subnational levels. Our findings reveal how the inherent features of the COVID-19 crisis, and the existing multilevel governance architecture broke the policy learning process into smaller heterogenous learning processes at different levels. We find that decentralised approaches to learning provided the space for customised, yet often fragmented policy responses. We also find that institutional legacies, varying degrees of policymaker control over learning, and absence of common approaches to structuring and designing learning processes led policymakers in different jurisdictions to engage in varying policy learning processes. We take stock of these different learning processes and highlight their key features. We conclude by highlighting the implications of these findings for policy learning theory and practice.