How hand gestures and a brief hallway chat encourage policy-making
Interview
What if the real decisions aren’t found in policy documents, but are rather made in the hallway? In international book project ‘Informality in Policymaking’, assistant professor Lianne Visser, alongside public administration scholars from Scotland and Australia, reveals how informal dynamics shape decision-making.
Could you tell us about the book?
‘It actually began as a hobby project while my co-authors and I were completing our PhD's. We’re all anthropologists who have worked in practice as policymakers or managers. We noticed that informal processes receive little attention in governance studies. While it is often acknowledged that many policy processes are informal, systematic research into this has been lacking until now.
Informality is frequently contrasted with formality — referring to policy documents, structures and transparent procedures. This contrast makes informality appear opaque, illegitimate or even undemocratic, and thus undesirable. However, our research demonstrates that one cannot exist without the other. Informal processes are indeed crucial to decision-making.’
How do these informal processes manifest?
‘There’s a compelling diplomacy example in the book. Diplomats often engage in informal conversations before or after meetings. It turns out these discussions are essential for discerning true intentions. Building these relationships is vital for ultimately crafting formal policy.
Another example comes from India, where there was a perception that informal arrangements were ‘less effective’ than Western approaches. Yet, when they sought to formalise these practices, they realised informality was necessary and not inherently negative.’
Yet, there seems to be a general mistrust towards informality?
‘I believe this stems from the traditional bureaucratic ideal that everything must be transparent. A fair government requires honest governance and service delivery, hence rules that apply to all and documented agreements. But by focusing exclusively on this, one overlooks the preceding processes.
'Deviating from formal procedures can provide a certain humanity in service delivery.'
The real risk lies in the negative perceptions surrounding informality. It remains a challenge: how do we engage with informality? Sometimes deviating from formal procedures prevents individuals from being crushed by bureaucracy, introducing a degree of humanity into service. There remains a fear of undemocratic backsliding since informal processes are less transparent, yet our aim with this book is to show that informal processes are indeed meaningful and productive.’
How do you study such informal processes?
‘They’re difficult to capture through documents, analyses or surveys. We employ an ethnographic approach, spending days, weeks or months in the same setting observing what transpires. Only then do you uncover the unwritten elements that shape daily work.
One study featured in the book reveals how hand gestures in meetings influence decision-making and the transmission of ideas, yet these gestures are never formally recorded. Ethnography uncovers these subtleties.’
So informal and formal essentially complement each other?
‘Yes, and we endeavoured to reflect that on the book’s cover. We collaborated with an artist who creates weaving looms. The weaving metaphor effectively illustrates how informality and formality are intertwined rather than separate. The cover also shows the reverse side of the loom with frayed edges, symbolising the loose threads and imperfections inherent in both processes. It’s important to be mindful of both.’
Aside from your book, you recently won an award for your doctoral thesis. Congratulations!
‘Thank you, it was a complete surprise. The thesis explores how customised solutions emerge and the role of interactions between professionals, managers and policymakers. Informal practices play a significant role there too. They felt my methodology made a valuable contribution to governance studies and understanding such processes. I wasn’t even aware I’d been nominated by colleagues — that sense of collegiality was wonderful to experience.’