Arenas without rules and the policy change process: Outsider groups and British roads policy

A key task of governments is to construct and manage systems of consultation whereby the vast array of interest groups seeking to influence public policy can be accommodated. Conventional wisdom holds that key insider groups secure for themselves special privileges, not least of which is an ability to prevent radical policy change. A concomitant view is that public policy emerges from relatively stable networks of actors who have some mutual resource dependencies. One reason why this paradigm is showing signs of intellectual fatigue is that it seems weak in explaining policy change. Yet, policy change does take place. Indeed, it is one of the characteristics of the 1980s and 1990s. This article examines an example of the traditional modalities of consultation failing to accommodate new interests, knowledge and ideas. This breakdown appears to have occurred by the use of alternative policy 'arenas without rules' by outsider groups, leading to a radical new 'framing' of transport policy. Moreover, government has failed to constrain the new policy issues in predictable and stable systems of consultation.