An improved understanding of foreign policy learning necessitates a clarification of what foreign policy learning is, who learns, and how such learning occurs. Cognitive and social psychologists, sociologists, and political scientists situated in a variety of subfields have contributed to the understanding of foreign policy learning, a multidisciplinary area of inquiry. Learning theorists seek to show how a change in an actor’s beliefs due to experience or observation can lead to changes at other units, such as organizations and within the government. This cognitive dimension is important because actors may pursue a new course of action for politically expedient reasons rather than having genuinely “learned”—a distinction referred to as “complex” vs. “simple” learning. Foreign policy learning can be internal or external. The former type of learning entails what individuals, governments, or organizations learn from their prior experience. Learning theorists who focus on the individual level of analysis borrow insights from political psychology in an effort to shed light on the personal characteristics, the belief structures, and the cognitive psychological mechanisms of political actors that can better inform policymaking. Leaders whose cognitive structures are described as relatively open and complex—like Soviet leader Mikhail Gorbachev, whose learning brought about the dramatic changes that ultimately led to the demise of the Soviet Union—are more likely to alter their beliefs than their cognitively closed and simple counterparts. Yet external learning occurs as well. Policy diffusion studies show that learning can result from demonstration effects. Foreign policy learning via diffusion is not instrumental, but instead occurs through osmosis. Privatization in the former communist states, China’s Foreign Direct Investment liberalization, and the diffusion of environmental norms in the European Union are examples of learning that is contagious, not chosen. A more conscious mode of learning than diffusion is policy transfer, which entails policymakers’ transferring ideas from one country and implementing them in another. Technological innovations, unlike lessons that involve political ideology, are generally easier lessons to transfer—for example, Japan’s success in applying lessons from the West to modernize its army in the second half of the 19th century. The constraints to foreign policy learning are formidable. Decision makers are not always open to reconsidering views that challenge their beliefs. Leaders tend to resort to, and misuse, analogies that prevent learning. Even a change in a decision maker’s beliefs may not lead to foreign policy change, given the myriad political pressures, bureaucratic hurdles, and economic realities that often get in the way of implementing new ideas. Indeed, foreign policy learning and foreign policy change are not synonymous. Scholars face significant obstacles in studying foreign policy learning. There is no consensus on the definition of learning, on what constitutes learning, on how actors learn, when they learn, or on how to assess whether learning has taken place. Despite attempts to make sense of the confusion, scholars face the daunting challenge of improving understanding of how learning is shaped and funneled through the interaction of agents and the structures in which they are situated, as well as the relationship between learning and foreign policy change.
Foreign Policy Learning
The Poliheuristic Theory of Crisis Decision Making and Applied Decision Analysis
Inbal Hakman, Alex Mintz, and Steven B. Redd
Poliheuristic theory addresses the “why” and “how” of decision making. It focuses on how decision makers use heuristics en route to choice by addressing both the process and the choice related to the decision task. More specifically, decision makers use a two-stage process wherein a more complicated choice set is reduced to one that is more manageable through the use of these heuristics, or cognitive shortcuts. In the second stage, decision makers are more likely to employ maximizing and analytical strategies in making a choice. Poliheuristic theory also focuses on the political consequences of decision making, arguing that decision makers will refrain from making politically costly decisions. While poliheuristic theory helps us better understand how decision makers process information and make choices, it does not specifically address how choice sets and decision matrices were created in the first place. Applied decision analysis (ADA) rectifies this shortcoming by focusing on how leaders create particular choice sets and matrices and then how they arrive at a choice. It does so by first identifying the decision maker’s choice set or decision matrix; that is, the alternatives or options available to choose from as well as the criteria or dimensions upon which the options will be evaluated. ADA then focuses on uncovering the decision maker’s decision code through the use of multiple decision models. Combining poliheuristic theory with ADA allows researchers to more fully explain decision making in general and crisis decision making in particular. An application of poliheuristic theory and ADA to decision making pertaining to the Fukushima nuclear disaster reveals that even in this high-stress crisis environment decision makers followed the two-stage process as predicted by poliheuristic theory. More specifically, in the first stage, decision makers simplified the decision task by resorting to cognitive heuristics (i.e., decision making shortcuts) to eliminate politically damaging alternatives such as voluntary evacuation. In the second stage, decision makers conducted a more analytical evaluation of the compulsory evacuation options.