Top-down policy implementation and social workers as institutional entrepreneurs: The case of an electronic information system in Belgium

Abstract

In this article, we focus on how social workers use their agency when implementing top-down policy measures as street-level bureaucrats. We report on findings of a case study that was conducted in Flanders, the Dutch-speaking region of Belgium, about the top-down introduction of an electronic information system (IS) in the field of Child Welfare and Protection (CWP). Starting from insights derived from neo-institutional theory, we explore how social workers perform a role as so-called ‘institutional entrepreneurs’ by initiating critical reflections about policy rationales. In our contribution, we show that, despite social workers’ awareness of being embedded in their own field or service area, they use their field-level expertise and day-to-day experiences to disengage from this context as well. Besides unravelling the lack of coherence informing the IS’s initial ambitions of transparency and efficiency, they constantly (re)frame their views and explain their alternative ideas with the aim of convincing other social workers and managers. In this vein, we conclude by highlighting the importance of ‘distributed’ forms of agency that involve a gradual process, which is co-produced by social workers as street-level bureaucrats in close collaboration with service users, other professionals, other organisations and policy makers.