The preparation of a German law on chemical substances 1975 - 1981 (Volker Schneider)

The organizations involved include international (USA, Japan, .,OECD), European (France, UK,.., EU), and German bodies. The technical term for the bodies is Actors.

A reconstruction of the activities may be structured into the phases: Problem shaping, Programme development, and Parliamentary definition (German: "Formulierung"). Implementation was not investigated.

The research identified 26 actors, and charted the amount of formalized interaction among them.
The actors were identified through literature studies, and by asking obvious actors.
Formalized interaction implied written evidence of recurring communication ( a 'stable communication channel'). The channels were also identified through written material, and interviews.

The research identified 20 arenas, that is committees, project groups, task forces, etc., where actors met to solve specific tasks, (and negotiate as well). Of the 20 arenas identified, about 12 were known through written material. The only source of 8 arenas was the interviews made by the researcher, that is: They were unknown to the outside world.

The activities of the task forces (arenas) were specified by means of agendas, or terms of reference of the task forces. The activities were conceived as a mix of rational problem solving and negotiation on exchange of resources. Through interviews the resources were identified, and through statistical analysis the resources were typified/ categorized. Three clusters of resources were revealed:

• Knowledge, including access to experts and (test) facilities
• Governmental position, money, access to decision centers, degree of organizational cohesion (organizational strength)
• Reputation (in media), ability to mobilize public opinion

Concepts of Political Science

• Actor (organization, political party, scientific body) with
• goal structure
• ressources:

- organizational strength
- technical knowledge
- image, reputation
• Political network
• Arena, where actors meet
• Agenda, defining items of discussion:

- exchange of information
- exchange of resources

Limitations of the theory: Lesson learnt in Slovenia (1995 - 99):

The theory conceives actors as holders of power relative to other actors of a policy issue network, and arenas as the places where actors meet, e.g. OECD working groups, Parliament, boards of organizations, and secret working groups.

Arenas in terms of commissions and working groups changed during the process. The legitimate agendas of the arenas were understood as largely determined by the actors who set up the arenas (working groups with their terms of reference).

The pace and direction of development was determined by the actors and their bargaining with their power resources of different forms: technical knowledge, position in governmental hierarchy, organizational strength, reputation relative to social dynamics, among others.

The reconstruction of the chain of events and the assessment of power resources, etc. were objectivized as far as possible.

The benefit of the approach of Schneider
is that a decade of events, spanning several countries and interest groups, is elicited into a tight, consistent record.

Furthermore, the law development process, or drama if you prefer, is treated with the same search for rigor that one would find in the natural sciences. Schneider's concept set and research design can thus be related to the positivist paradigm, surely a benefit for surveying studies with substantial mathematical/ physical component.

A limitation of the approach of Schneider
is, however, that such research design presupposes a practice of setting up commissions, etc. in pursue of quasi rational solutions of the actor's rather explicitly established goals.

Such practice demands a specific culture, namely

• a high level of bureaucratic maturity of the country concerned,
• a national appreciation of rational approaches, and furthermore
• a country so big that the national expertise in a specific field is generally objectivized and not the monopoly of a single person.

What can be concluded is, however, that the concept set of actors, actor networks, arenas, and agendas must be included in the theoretical basis of cadastral research.

(Quoted from Stubkjær (1999) Cadastral Research - Issues and approaches KART OG PLAN, Vol 59,  .. P.O.B. 5029, N-1432 Ås, ISSN 0047-3278.)

Case 2: Facility Mis-Management

• The actors and the issues
• Providing relevant evidence
• Assessing the organisational structure
• Setting clear objectives for change
• 'Playing the next card'

The development of the infrastructure of property rights

In natural science you can make predictions with a certain, estimated accuracy (e.g. trajectory of bullet)

In public administration (social science) the human factor (freedom) makes certain predictions impossible. An 'actor' is a person who is bound by certain rules/expectations, but who, also, has freedom of choice.

See the article Stubkjær: The development of national ..Comp., Envir., and Urban Systems, page 212 - 214.

• Experience show that a viable development stategy is not based on only one organization (or decision hierarchy)
• A 'policy broker' may bring some actors into a concerted/co-ordinated action.
• Involvment of local interests (place naming and signing, mapping for regional/local purposes) was important in Denmark

• Don't base strategy on only one decision hierarchy
• Establish a political-administrative network
• Analyze the ressources of the participating actors
• Bring at least some of the actors in a concerted action
• Include utility company(s) into the network
• Encourage the municipalities' territorial behaviour
• Avoid detailled mapping
• Establish a systematic, post address based system

Like in Volker Schneider's case: Asking those involved to tell about others involved, to list relevant actors.
 

Further discussion

1. Land policy.. a whole complex of socio-economic and legal prescriptions ..
2. Land administration activities .. the process of recording and distribting information about the ownership, value and use of land and its associated resources.
3. Land information management .. the FIG has defined a Land Information System ..
4. Organization and management
• Intergovernmental coordination .. depends more on personalities than on policies .. each their own priorities
• Centralization and decentralization
• The role of public and private sectors.. contracting, quality control, licensed surveyors
• Administration of cadastral data: Data exchange, pricing and copyright, privacy, liability
• Management of land administration systems: Staff training, management training
• Research .. all facets of land management.. important that universities update their education systems ..
• Consultancy and technical assistance
Recommendations Government must show commitment .. Key politicians must be involved ..Managers and staff .. must be well motivated and well trained ..