The role of policy learning in explaining COVID-19 policy changes

The ongoing fight against the COVID-19 pandemic has highlighted the importance of adaptive policy change and the critical role of policy learning in responding to public health crises. This study utilizes policy change and policy learning theories to investigate how instrumental and political learning intertwined to explain the policy change decisions made by six U.S. states from May to December 2020. By employing a multi-value Qualitative Comparative Analysis, this study finds that the decision to impose stricter public gathering restrictions is primarily driven by instrumental learning, which is a response to the deteriorating pandemic situation. On the contrary, the decision to relax gathering restrictions is not only driven by the policymakers' perception of the improving pandemic situation but also influenced by the political motivations, such as the desire to suppress protests and address concerns for the decreased approval for the governor's handling of the crisis. The findings highlight the varied utilization of different policy learning types in response to different directions of policy change. Additionally, this study underscores the joint impact of instrumental and political learning in explaining changes in policy stringency. Overall, these findings contribute to a deeper understanding of policy change through learning activities in a complex and rapidly evolving policy landscape.