Pilots as projects: policy making in a state of exception

In spite of their widespread use in policy making in the UK and elsewhere, there is a relatively sparse literature specifically devoted to policy pilots. This paper contributes a novel perspective on pilots, by framing them in... [ view full abstract ]

In spite of their widespread use in policy making in the UK and elsewhere, there is a relatively sparse literature specifically devoted to policy pilots. This paper contributes a novel perspective on pilots, by framing them in terms of literature on temporary organisation and project management. Recent research on policy piloting has focused on the role of pilots in making policy work in accordance with national agendas. Taking this as a point of departure, the present paper develops the notion of pilots doing policy work. It does this by combining theories of policy formulation with literatures on temporary organisation, and illustrating using an empirical case. Our case is drawn from a qualitative policy ethnography of a local government pilot program aiming to extend access to primary health care services. Our case explores the collective entrepreneurship of regional policy makers together with local pilot volunteers. We argue that pilots work to mobilise and manage the ambiguity and conflict associated with particular policy goals, and in their structure and design, shape action towards particular outcomes. Pilot projects are considered successful if through them a clarified object of policy emerges with the means to achieve it. However, when the project ends, then policy objects are spread, detached form the exceptional conditions of their emergence. We conclude with a discussion of the generative but managed role which piloting affords to local implementers and the possible consequences for public management of policy making in a state of exception.