Embracing the politics of transformation: Policy action as “battle-settlement events”

Abstract

Societal transformations for addressing climate change are intensely contested and at risk of resistance and backlash to ambitious policy action. But they are frequently modeled through heuristics such as S-curves which abstract from such conflicts, assuming increasing returns to scale as a driver of transformations. This is the case even while scholars accept the presence of political conflict in transformation processes. Within political science and allied disciplines, the notions of policy feedback and policy coalitions have been deployed to understand how such political conflicts may be understood. But these approaches risk gravitating toward an instrumental design impulse that inadvertently downplays conflict. We argue that policy action for societal transformations should be re-conceptualized as an unfolding series of battle-settlement events whereby heated episodic political struggles over a certain policy object or issue play out and eventually settle in ways that structure future debates while nonetheless remaining indeterminate and open to challenge or reversal. Such an approach reflects the varied empirical experiences of climate policy action to date which include both accumulation and reversal. It also helps explain trajectories of change that are discontinuous and lurching in contrast to common images of transformation as progressive and cumulative. We illustrate this approach through two cases of unfolding societal transformation on climate change: coal phaseout in the United Kingdom and renewable energy uptake in Australia.