Theoretical foundations of the Programmatic Action Framework (PAF)

Abstract

This article introduces the Programmatic Action Framework (PAF) as a supplementary perspective in policy process research. It focuses on professional biographies of programmatic actors, policy programs, and programmatic identities as driving factors for policies. Programmatic actors are individuals in direct interaction with the state apparatus. Civil servants, politicians, and similar individuals under certain predictable circumstances form stable alliances called programmatic groups. These programmatic groups are bound by commitment to the creation and promotion of a specific policy program, a definable set of instruments intended to attain an explicit policy objective. This policy program, rather than more diffuse beliefs or preferences, provides the defining element of the social group and corresponding social identity for such programmatic groups. Programmatic groups compete with each other for legitimate authority within and across policy sectors by seeking to impose their preferred instruments. Homogenous career trajectories, continuous linkages, and a coherent and strong joint program are essential determinants for the formation and success of programmatic groups.