One of the most vexed questions concerning think tanks is whether or not they have policy influence. Notwithstanding extensive growth, think tanks do not enjoy automatic political access. Attempting to broker policy analysis to decision makers does not equate with immediate policy impact on forthcoming legislation or executive thinking. Relatively few think tanks make key contributions to decision making in local, national, or regional global fora, or exert paradigmatic influence over policy thinking. Instead, it is more appropriate to view them as cogs in the wider machineries of governance. Furthermore, think tank research and reports do not escape challenges or criticism from other knowledge actors in universities, whilst they may be ignored or patronized at will by governments, corporations, and international organizations. However, this is not to suggest that these organizations are without intellectual authority or policy influence.
First, think tanks appropriate authority on the basis of their scholarly credentials as quasiacademic organizations focused on the rigorous and professional analysis of policy issues. Many use their presumed “independent” status as civil society organizations to strengthen their reputation as beholden neither to the interests of market nor the state. These endowments give think tanks some legitimacy in seeking to intervene with knowledge and advice in policy processes. However, a recent empirical survey of European decision makers, journalists, and academics’ views about the impact of think tanks discovered critical and cautious perceptions of influence:
All (interviewees) insisted on the importance of a healthy think tank sector for E.U. policy making while criticising their relative lack of strength and ability to provide added-value, sometimes their lack of impact and relevance; and fi nally an approach seen as too technocratic and elitist. (Boucher et al. 2004, 85)
Nevertheless, these organizations acquire political credibility by performing services for states and for non-state actors. In short, the sources of demand help explain think tank relevance and utility if not direct policy infl uence. Think tanks respond to demand for high-quality and reputable research and analysis, ideas, and argumentation. In addition, they provide services such as ethics or policy training for civil servants, or by organizing conferences or seminars. Similarly, they have become useful translators of the abstract modeling and dense theoretical concepts characteristic of contemporary social science. For governments concerned about evidence-based policy, think tanks potentially help create a more rational policy process by augmenting in-house research capacities, circumventing time and institutional constraints, and alerting elites to changing policy conditions (Dror 1984). Thus, it may be less the case that think tanks have an impact on government and more the case that governments or certain political leaders employ these organizations as tools to pursue their own interests and provide intellectual legitimation for policy.
Think tanks also contribute to governance and institution building by facilitating exchange between official and other private actors as interlocutors and network entrepreneurs. Networks are important to think tanks both in embedding them in a relationship with more powerful actors, and in increasing their constituency, there by potentially amplifying their impact. However, such relationships also pull think tanks toward advocacy and ideological polemic or partisanship and politicization. Too close an affinity with government, a political party, or NGOs can seriously undermine their authority and legitimacy as objective (or at least balanced) knowledge providers, and potentially dissolve important distinctions between the research institute and advocacy group.
Rather than organizations for rational knowledge utilization in policy, think tank development is also indicative of the wider politicization of policy analysis. In a few countries, think tanks are a means of career advancement or a stepping stone for the politically ambitious. This has lead to the hollowing out of British think tanks after election of a new government (Denham and Garnett 2004). The revolving-door of individuals moving between executive appointment and think tanks, law firms, or universities is a well-known phenomenon in the United States and is increasingly seen in Central and Eastern Europe and sub- Saharan African countries. In short, rather than the policy analysis papers—or published output—having infl uence, it is the policy analytic capacity—or human capital—that has long term infl uence and resonance inside government, and increasingly international organizations.
Some think tanks attract more media than government attention. The capacity to gain funds from foundations, governments, and corporations to undertake their policy analysis is indirect recognition of the value of many institutes. Others value the pluralism of debate that think tanks can bring to liberal democracies, and this is one rationale behind the think tank capacity building initiatives of development agencies. In neopluralist thinking, independent think tanks are often portrayed as creating a more open, participatory and educated populace and represent a counter to the infl uence of powerful techno-bureaucratic, corporate, and media interests on the policy agenda. Moreover, a more informed, knowledge-based policy process—a role that think tank experts help fulfill—could enlighten decision making (Weiss 1990).
Early American studies of think tanks often adopted power approaches to the role of think tanks in decision making. Elite studies of institutes such as the Brookings Institution (Dye 1978) emphasized how think tanks are key components of the power elite where decision making is concentrated in the hands of a few groups and individuals. Similarly, some Marxists argued that establishment think tanks are consensus-building organizations developing and debating the ideology and long-range plans that convert problems of political economy into manageable objects of public policy. As the common economic interests and social cohesion among the power elite or ruling class is insuffi cient to produce consensus on policies, agreement on such matters requires “research, consultation and deliberation” to form a coherent sense of long-term class interests (Domhoff 1983, 82) and maintain hegemonic control (Desai 1994). However, these studies direct analysis toward well-known policy institutions with solid links to political parties or the corporate sector, neglecting the role of smaller, lesser-known institutes which thrive in much larger numbers than the elite think tanks.
In general, contemporary analysts are skeptical of think tanks exerting consistent direct impact on politics (see essays in Stone and Denham 2004). Instead, they develop wider and more nuanced understandings of think tank policy influence and social relevance in their roles as agenda-setters who create policy narratives that capture the political and public imagination. This ability to set the terms of debate, define problems and shape policy perception has been described elsewhere as “atmospheric” influence (James 2000, 163). Moreover, the fluctuating and changing influence of think tanks has much to do with the way in which think tanks interact over time in epistemic communities, advocacy coalitions, and discourse coalitions. The epistemic community concept (Haas 1992) focuses on the specific role of experts in the policy process and the heightened influence of consensual knowledge in conditions of policy uncertainty (Ullrich 2004). In this perspective, think tanks wield their expertise and analysis as objectified scientific input to policy. The advocacy coalition approach emphasizes an alternative view that analysis has a long-term enlightenment function in altering policy orthodoxies, and highlights the role of beliefs, values and ideas as a neglected dimension of policy making (Lucarelli and Radaelli 2004). By contrast, discourse approaches emphasize the role of language and political symbolism in the definition and perception of policy problem. It is a constructivist approach that emphasizes intersubjective knowledge—common understandings and shared identities—as the dynamic for change and in which think tanks are wordsmiths. In these perspectives, it is in the longue duree that think tank policy analysis and activity has achieved wider social relevance and shaping patterns of governance and moving paradigms.
Sumber: Handbook of Public Policy Analysis: Theory, Politics and Methods