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Christoph Knill ,
Yves Steinebach  and
Dionys Zink
Christoph Knill
Affiliation:
Ludwig-Maximilians-Universität München
Yves Steinebach
Affiliation:
University of Olso
Dionys Zink
Affiliation:
Ludwig-Maximilians-Universität München

Information

Type
Chapter
Information
Triage Bureaucracy
The Organizational Challenge of Implementing Growing Policy Stocks
 , pp. 349 - 356
Publisher: Cambridge University Press
Print publication year: 2026
Creative Commons
Creative Common License - CCCreative Common License - BYCreative Common License - NC
This content is Open Access and distributed under the terms of the Creative Commons Attribution licence CC-BY-NC 4.0 https://creativecommons.org/cclicenses/

Index

accumulation ratchet, 7
additive effects, 31
administrative attrition, 168, 276
administrative burdens, 2, 57, 205, 275
administrative capacities, 6, 9, 12–13, 15, 17–19, 21, 86, 226, 228, 241, 250, 254, 267, 272, 276, 286
administrative tasks expansion, 21, 127
administrative tradition, 45
analytical sensors, 15
anti-termination coalitions, 26
austerity, 121, 125, 151, 186, 239, 257, 267, 269–270, 276
below the surface, 127
blame for implementation failures, 3, 16, 26, 34, 68, 87, 212, 239, 258, 269, 272
budgetary autonomy, 40
burden allocation, 53, 57, 93, 95, 128, 132, 172, 176, 215, 219
bureaucratic overload, 2–3, 13, 15–16, 18, 222, 241, 289
overload vulnerability, 3, 29, 34, 50, 63, 67, 69, 74, 77, 80, 82, 86–87, 89, 107, 109, 115, 119, 180, 194, 212, 235, 242, 267, 273
capacity variation, 13
chronic overload. See also implementation problems
climate change, 1, 55, 121, 137, 202
collaborative, 13, 76, 85, 114, 119, 203, 227, 263
competence allocation, 214–215
competition among political parties, 4
configurative explanations, 25
Covid-19, 106, 144, 190–191, 198, 226, 249, 255–257
decentralization, 27, 44, 51, 59, 62–63, 70, 77, 90, 98, 214, 219, 227, 244
delegation structures, 27, 38, 68
demand for state intervention, 4
demand revolution. See demand for state intervention
democratic governance, 14, 18, 117
advanced democracies, 26
democratic government, 4
democratic institutions, 5
democratic responsiveness, 6, 14
Denmark, 7, 19, 45, 50, 55, 57, 63, 65, 69, 73, 86–87, 126, 139, 209, 271, 284, 292
2007 Strukturreformen, 68
Act on Municipal Activation, 59
A-Kasser, 58
Association of Danish Jobcenter Directors, 82
automatization of routine tasks, 62
Coastal Protection Act, 54
communal anchoring, 51
Danish Agency for Labour Market and Recruitment (Styrelsen for Arbejdsmarket og Rekruttering; STAR), 59
Danish Energy Agency (Energistyrelsen; EA), 54–55
Danish Environmental Protection Agency (Miljøstyrelsen; EPA), 53, 56
Danish Nature Agency (Naturstyrelsen; NA), 55
Ecollabeling Denmark, 54
Employment Councils, 82
Environmental Departments and Units of Municipal Administrations (MEAs), 54, 57
Environmental Maritime Protection Act, 54
environmental policy, 51–53, 55, 62–63, 65, 68, 80, 83
Environmental Protection Act, 53
Environmental Protection Agency, 55
Extended Total Balance Principle (‘Det Udvidede Toalbanceprincip’; DUT), 84
Job Centers (Jobcenter; MJC), 59
Labour Market Policy Reforms, 59
Law on Active Social Policy, 59
Local Government Denmark (Komkunernes Landsforening; KL), 70
Municipal Environmental Administrations (MEAs), 65, 275
National Forest Programme, 56
Payments Denmark (Udbetalling Denmark; PD), 58
Service Check Reform, 59
social polic, 57
social policy, 52, 63, 80–81, 83
special claimant groups, 57
Structural Reform (Strukturreformen), 57
surface implementation, 79
Water Supply Act, 53
Watercourse Act, 53
Welfare Agreement, 59
de-prioritization, 115
distributional discrepancies, 53, 97
distributional policies, 5
emission trading, 112, 126
entrepreneurial administration, 294–295, 297
environmental policy, 19, 44, 49, 51, 54, 77, 80, 87, 92–93, 102, 114, 147, 171, 173, 192, 215, 237, 239, 276–277, 279, 281, 285
esprit de corps, 30, 46, 75–76, 108, 179, 186, 200–201, 208–209, 263, 267, 283
EU Emissions Trading Scheme (ETS), 131
EU Water Framework Directive, 66
European Commission(EC), 40, 52, 68, 70, 74, 91
Environmental Implementation Review, 254
European Court of Justice, 176
European Union, 91, 197, 231, 304
Habitats Directive and the Water Framework Directive, 94
IORP II Directive, 181, 186
Water Framework Directive, 101, 203, 206
fictional decentralization, 244
financial crisis in 2008, 152, 171, 186, 196, 210, 220
formalism, 92, 214
Germany, 7, 19, 28, 45, 47, 88–89, 91–92, 94–96, 99, 103, 118, 120, 282–283
administrative court case, 92
article 104a GG, 98
Basic Unemployment Allowance, 97
cooperative federalism, 91
digitalization dilemma, 109
District Offices, 89, 95, 101–103, 107, 110, 112–113, 119
Duisburg Love Parade, 88
environmental federalism, 99
environmental policy, 92–93, 95, 103, 112
Family Benefits Office (Familienkasse; FamKa), 96–97, 105
Federal Emission Control Act, 93
Federal Employment Agency (BA), 89, 96–97, 106–107, 110, 114–115, 117, 119, 280
short-term allowances, 96
Federal Ministry for Social Affairs, 103
Federal Pension Insurance (DRV), 89, 96–97, 103–107, 109–111, 114–117, 119
Federal Social Insurance Authority, 103
General Data Protection Regulation, 96
German District Association, 98
Habitats Directive, 108
Hartz Reforms, 95
Jobcenters, 89, 96, 104, 106–107, 110, 114–115, 119
Länder, 90, 93–94, 96, 99, 104, 112–113
National Regulatory Control Council (Normenkontrollrat), 92
Participation Opportunity Act (Teilhabechancengesetz), 106
reactive approach, 116
Retirement Insurance, 106
social policy, 88, 92, 95–96, 103, 119
Social Security Code II (Sozialgesetzbuch II; SGB II), 95
State Ministries for the Environment (Staatsministerien für Umwelt und Verbraucherschutz; StMUV), 89, 95, 100–102, 107–108, 112–113, 119
State Offices for the Environment (Landesämter für Umwelt; LfU), 89, 95, 100–102, 107–108, 112–113, 119
state-level social welfare agencies (ZBFS), 89, 96–97, 104–105, 107, 109–111, 114, 116–117, 119, 283
veto players, 91–92
Water Management Offices (Wasserwirtschaftsämter; WWAs), 89, 95, 99, 101, 103, 112–113, 119
government overload, 4–6, 14
Great Britain, 19, 123
growing policy stocks, 2, 15–16, 22
high frequency. See triage frequency
implementation burdens, 2, 12, 15–16, 26, 53, 55, 57, 61–62, 75, 77, 80, 92, 95, 97, 106, 119, 135, 215, 220–221, 223, 250, 254
implementation capacities, 2, 9, 14, 33, 38, 88, 168, 209, 262
implementation deficits, 3, 12, 14, 18, 22, 64–65, 69, 78–79, 139, 181, 189, 210, 235, 255, 266, 277, 284–285
implementation effectiveness. See also implementation capacities
implementation load, 56, 139, 180, 201, 247
implementation performance, 13, 16–22, 24, 35, 194, 246
implementation problems, 3, 18, 22, 142, 221, 241, 259, 270
implementation resources, 23, 89, 260, 276
implementing organizations, 16, 34, 89, 179, 274
incident triage project, 1, 136
ineffective implementation, 28
interest group, 6, 26
interest groups, 5, 130, 162
internal reforms, 16, 268
involvement of multiple actors. See multiple organizations
Ireland, 7, 19, 45, 123, 126, 139, 145, 147, 149–150, 161, 169–172, 176–178, 182, 184, 186, 193, 196, 200, 203–204, 207, 209, 211, 280–281, 284
Back to Education Program, 191
Birds and Habitats Regulations, 193
Community Welfare Services and the Training and Employment Authority (Foras Áiseanna Saothair; FAS), 177
County Councils, 170, 172–173, 175, 202, 204, 207, 209
Department of Finance, 171, 182
Department of Housing, Local Government and Heritage, 193
Department of Housing, Local Government, and Heritage, 171
Department of Public Expenditure and Reform, 171, 195, 205
Department of Social Protection (DSP), 169, 178, 180, 182, 189–192, 194–199, 201, 210–211, 276
Department of the Environment, Climate and Communications Department of the Environment, Climate and Communications, 204
environmental policy, 170, 172, 174, 184, 207–208
Environmental Protection Agency, 129, 131, 149, 152, 169, 172–176, 179–189, 192, 195, 201–211, 280
Environmental Protection Agency Bill 1992, 174
Irish political party, 171
Fianna Fáil, 171, 174
Fine Gael, 171
Green Party, 171, 186
Irish Fianna Fáil, 171
Sinn Féin, 171
Licensing, Legislation and Statutory Consultation Directorate, 193
Local Authorities Water Program (LAWPRO), 203, 206–207
National Biodiversity Action Plans, 176
National Parks and Wildlife Service (NPWS), 169–170, 172–173, 176, 180, 186, 194, 196–197, 199–201, 210–211, 275, 280–281, 283
Pandemic Unemployment Payment (PUP), 190
pension policy, 170
Pensions Act 1990, 177
Pensions Authority, 169–170, 177–182, 184–188, 192, 195, 208–210, 276
performance delivery agreement, 184
Retirement Annuity Contracts (RACs), 177
social policy, 177, 184, 195, 210
Wildlife Acts, 193
Italy, 7, 19, 45, 212, 215, 219, 221, 233, 238–239, 259, 280–281, 283–284
environmental policy, 215, 217
Ministry of Ecological Transition, 218, 225, 229, 231, 236
Ministry of Economy and Finance, 215, 225
State General Accounting Department, 215, 225
Ministry of Labor and Social Policy, 225
National Institute for Environmental Protection and Research, 217–218, 223, 229, 231–233, 236
National Institute for Social Security, 219, 224, 230–231, 234, 236, 238
National Recovery and Resilience Plan, 226
regional environmental protection agency, 217
social policy, 215, 230, 238
legalism, 92, 214, 224
legislative growth, 6
medium level triage, 67
mobilization for expansion, 16, 226
modus operandi, 23
multiple organizations, 13, 213
Organisation for Economic Co-operation and Development (OECD), 7, 9, 47, 74, 90, 92, 181, 214, 242
organizational culture, 30, 40, 74, 87, 108–109, 111, 158, 165, 188, 198, 200–201, 211
organizational implementation problems, 3
organizational integration, 28
organizational performance, 21, 23
outsourcing, 236
overload compensation, 3, 16–17, 34, 50, 63, 77, 85–87, 108–111, 156–157, 160, 164, 166, 169, 211–212, 235, 237–238, 240–241, 258, 263–264, 271, 277–278, 283, 285
policy accumulation, 6, 52, 57, 61–62, 86, 141, 191–192, 194, 201, 205, 215, 241, 272, 276
policy advocacy, 17, 76, 87, 213, 237, 242, 262, 264, 267, 272–273, 276
policy area, 13, 34, 49, 52, 62, 92, 112, 119, 211, 213, 215, 228, 235, 269, 273–274, 279, 287
policy growth, 1–3, 6–7, 9, 15–19, 21, 25–26, 28, 31, 33, 53, 92, 126, 171, 173, 179, 209, 215, 221, 224, 226, 243, 250, 272, 276, 284, 287
policy impacts, 64, 124
policy implementation, 2, 5, 12, 15–16, 18, 26, 29, 34, 39, 44, 46, 51, 53, 64, 70, 77, 83, 90, 94, 96, 99, 102, 106, 123, 132, 145, 147, 166, 169, 174, 177, 184, 189, 206, 208, 211, 213–214, 223–224, 237, 240, 253, 257, 265, 268, 270, 277, 279, 292, 296
organizational perspective, 15
policy perspective, 15
policy layering, 6, 135, 191
policy outputs, 8
policy ownership, 17, 31, 40, 75, 85, 87, 108–110, 170, 179, 186, 199–201, 207–209, 242, 263, 268, 272, 283
high policy ownership, 41
low policy ownership, 41
policy performance, 2, 9, 91, 213
policy portfolios, 5
policy prioritization, 88, 212, 254
policy promotion, 140, 202
policy repair, 3, 16, 30
policy stocks, 2, 6, 9, 12, 17, 212, 241, 243
policy triage, 3, 15, 17–20, 24–25, 34–37, 41, 46, 49, 62–66, 74, 78–79, 86–89, 94, 111–115, 117–122, 135–136, 139–142, 144–145, 147, 156, 160, 166, 170, 178, 181, 183, 189, 191, 194, 203, 206, 208–209, 212–213, 228, 231, 233, 235, 239, 241–242, 251, 254, 256–257, 265, 270–276, 278, 284, 287, 294, See also implementation problems
triage frequency, 24, 36, 117
triage intensity, 24, 36
policyscapes, 6
political accountability, 23, 27, 223
political stability, 27, 38
politicization of happiness, 4
Portugal, 7, 19, 45, 241–243, 254–258, 265, 267, 270, 275, 280–281, 283–284
Carnation Revolution 1974, 241
Climate Change Commission, 245
Environmental Emergency Planning Commission, 245
environmental policy, 244, 250, 254, 257
General Inspection of Agriculture, Sea, Environment and Spatial Planning, 245–246, 250, 258, 261–262, 264
Institute for Nature Conservation and Forests, 246–247, 253–254, 262
Institute of Employment and Vocational Training, 248–249, 266–268, 275–276, 283
Institute of Social Security, 248, 254, 256, 267
Institute of Water, the five Hydrographic Regional Administrations, 245, 261
Ministry of Agriculture, 246
Ministry of Finance, 242, 258, 265
Ministry of Territorial Cohesion, 246
Ministry of the Environment, 244
National Employment Service, 249
National Forestry Authority, 246
National Pension Center, 248
Portuguese Environment Agency, 247, 251–252, 259–264
Regional Coordination and Development Commissions, 245, 247, 261, 283
social policy, 243, 248, 254, 257, 265
Waste Management Monitoring Commission, 245
Workforce Development Fund, 249
prevalence of policy triage, 3
prioritization of incidents, 1
problem-solving, 7, 261
procedural benchmarks, 66–67
public policy, 14, 224
public sector employment, 9
regulatory bundling. See also regulatory offsetting
regulatory offsetting, 289
research methods, 47
anonymity, 48
data processing, 48
negotiated agreement approach, 48
reliability, 48
sample size, 47
sampling strategy, 47
resource mobilization, 25, 28–29, 33, 69, 71, 73, 82, 87, 89, 97–101, 104, 107, 119, 122, 140, 150, 153–154, 160, 162, 166, 169, 186, 197–198, 205–206, 228, 260, 267, 271, 273, 278, 282, 285, 288, 297
resource reallocation, 24
responsiveness, 6, 14, 26, 28, 153, 156, 198, 221
rule growth, 6–7
rules breed rules, 7
scapegoat, 81, 99, 122, 148, 160, 224
single lonely organization, 13
social policy, 7, 9, 19, 44, 49–50, 62–63, 77–78, 80, 84–85, 87, 89, 97, 106–107, 109, 115, 145, 167, 275–279, 286
social policy, 62
stagnation, 9, 260, 264
state capacity index, 275
street-level bureaucracy, 3, 12
study area, 45, 49
subnational governments, 27, 226, 281
substitutable effects, 31
task prioritization, 66, 72
trade-off, 3, 22, 24, 36, 135, 203, 239, 258, 270
triage decision. See policy triage
ungovernability, 4, 14
United Kingdom, 7, 45, 121–124, 281, 289
Air Quality Action Plans, 132
Air Quality Regulations 2000, 132
Air Quality Standards Regulations 2010, 132
Climate Change Act 2008, 131
Commons Select Committee on Environment, Transport and Regional Affairs (SCETRA), 130–131
Conservation of Habitats and Species Regulations 2017, 131
Conservative Party, 121
Defined-Contribution (DC), 145
Department for Work and Pensions (DWP), 121, 123, 128, 132–135, 142–147, 160–167, 275–276, 283
Child Maintenance Services, 133
resource constraints, 166
The Jobcentre Plus, 133
Department of Social Security, 133
Drinking Water Inspectorate (DWI), 128
England, 1, 46, 123–125, 128–131, 134, 136, 139–141, 147–148, 150, 159
English Local Government Association (LGA), 132, 142, 151, 153, 155
Environment Act 1995, 129
Environment Agency (EA), 1–2, 46, 122, 126–132, 134, 136–141, 147–153, 155–160, 168, 275, 280
budget cuts, 1
implementation tasks, 1
resources, 1
workload, 1
Environmental Permitting (England and Wales) Regulations 2016, 132
environmental policy, 121, 123, 126, 128, 130, 132, 148
Environmental Protection Act 1990, 132
Flood and Water Management Act 2010, 131
grants-in-aid, 152
Health and Safety Executive, 133
Her Majesty’s Inspectorate of Pollution (HMIP), 130
Her Majesty’s Revenue & Customs (HMRC), 144
House of Commons Environment, Food and Rural Affairs Committee, 131
implementation hell, 121, 135, 143, 145
Liability-Driven Investment, 162
Local Government Act 2000, 132
National Planning Policy Framework (NPPF), 132
National Rivers Authority (NRA), 130
Natural Resources Wales, 128
New Burdens Doctrine, 141, 154
Non-Departmental Public Body (NDPB), 129, 147
Pensions Regulator (TPR), 122–123, 145–147, 160–164, 276, 280
social policy, 121, 123, 127, 132, 145
Sunset Clause, 125
tactical reduction, 151
UK Emissions Trading System, 157
union state, 123
Universal Credit (UC), 128, 142
Urban Wastewater Treatment Directive, 139
Waste Regulation Authorities (WRAs), 130
Water Framework Directive, 139
Water Resources Act 1991, 131
United States Agency for International Development (USAID), 297
variables, 7, 19, 49
vertical coordination, 7, 102
Vertical Policy-process Integration (VPI), 292–293
Weberian bureaucracy, 90
World Bank, 236

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  • Index
  • Christoph Knill, Ludwig-Maximilians-Universität München, Yves Steinebach, University of Olso, Dionys Zink, Ludwig-Maximilians-Universität München
  • Book: Triage Bureaucracy
  • Online publication: 24 December 2025
  • Chapter DOI: https://doi.org/10.1017/9781009665872.018
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  • Index
  • Christoph Knill, Ludwig-Maximilians-Universität München, Yves Steinebach, University of Olso, Dionys Zink, Ludwig-Maximilians-Universität München
  • Book: Triage Bureaucracy
  • Online publication: 24 December 2025
  • Chapter DOI: https://doi.org/10.1017/9781009665872.018
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  • Index
  • Christoph Knill, Ludwig-Maximilians-Universität München, Yves Steinebach, University of Olso, Dionys Zink, Ludwig-Maximilians-Universität München
  • Book: Triage Bureaucracy
  • Online publication: 24 December 2025
  • Chapter DOI: https://doi.org/10.1017/9781009665872.018
Available formats
×