Sensemaking
#3Key Findings
In the category of sensemaking, Sweden performs well in international comparison (rank 3).
A government body tasked with reducing regulatory uncertainty by identifying and studying policy challenges was phased out in 2022. Five separate government research agencies fund sectoral and general research, often with a focus on innovation.
Regulatory impact assessments (RIAs) have been mandatory since 2007, but the process has been criticized for coming too late in the legislative process, and for a limited scope. A proposal to change the process is being reviewed. Assessments routinely include the issue of environmental sustainability.
Ex post evaluations take various forms. Performance measurement and management have been a central activity for decades, but these often prioritize institutions and cost efficiency rather than looking at program impacts.
A government body tasked with reducing regulatory uncertainty by identifying and studying policy challenges was phased out in 2022. Five separate government research agencies fund sectoral and general research, often with a focus on innovation.
Regulatory impact assessments (RIAs) have been mandatory since 2007, but the process has been criticized for coming too late in the legislative process, and for a limited scope. A proposal to change the process is being reviewed. Assessments routinely include the issue of environmental sustainability.
Ex post evaluations take various forms. Performance measurement and management have been a central activity for decades, but these often prioritize institutions and cost efficiency rather than looking at program impacts.
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To what extent can the central government foster the capacity for strategic foresight and anticipatory innovation within its organization?
10
9
9
The central government can foster the capacity for strategic foresight and anticipatory innovation within its organization.
8
7
6
7
6
Most of the time, the central government can foster the capacity for strategic foresight and anticipatory innovation within its organization.
5
4
3
4
3
The central government is rarely capable of fostering the capacity for strategic foresight and anticipatory innovation within its organization.
2
1
1
The central government is not capable of fostering the capacity for strategic foresight and anticipatory innovation within its organization.
The Swedish government established the Committee for Technological Innovation and Ethics (Komet) in 2018. Komet operated until 2022, when the government changed. Its mandate was to help identify policy challenges, contribute to reducing uncertainty surrounding existing regulations, and support policy development in innovation and technology, especially as it related to the relationship between governmental regulation and large private companies (Komet, 2022).
Digitalization and the effective use of technology in public administration are overseen by DIGG, the Agency for Digital Government. The agency has a four-part mission: (i) supporting the digitalization of public administration; (ii) managing Sweden’s digital infrastructure; (iii) monitoring and analyzing the digitalization of society; and (iv) assisting the government in making well-informed decisions (DIGG, 2024).
Any further research that leads to innovation in public administration and political science is funded by research councils. The current structure of research funding includes five agencies:
• The Swedish Energy Agency (Energimyndigheten), which promotes research and innovation in the field of energy, had a budget of SEK 1.46 billion in 2023.
Formas, the Swedish Research Council for Sustainable Development, funds basic and needs-oriented research in the environment, agricultural and built environment fields, with a 2023 budget of SEK 1.87 billion.
The Forte, Swedish Research Council for Health, Working Life, and Welfare, funds basic and needs-oriented research in the working life, welfare, and public health fields, with a 2023 budget of SEK 0.87 billion.
• The Swedish Research Council (Vetenskapsrådet) funds research across all scientific fields and supports larger research infrastructures, with a 2023 budget of SEK 8.09 billion.
• Vinnova, the Swedish innovation agency, fosters sustainable growth by funding needs-oriented research and creating effective innovation systems. Its 2023 budget is SEK 3.41 billion.
A 2023 commission of inquiry proposes a radical reorganization of the research funding structure by phasing out the existing councils and agencies into three entities: the Science Agency, the Strategic Research Agency, and Vinnova (SOU, 2023). Additionally, public agencies fund research per sector. For example, the Swedish Civil Contingencies Agency (MSB) has traditionally had a research department and has allocated funding to universities as well as municipalities for projects in risk and crisis management.
Citations:
DIGG. 2024. “About us.” https://www.digg.se/en/about-us
Komet. 2022. “Kommittén för teknologisk innovation och etik.” https://www.kometinfo.se
SOU. 2023. Ny myndighetsstruktur för finansiering av forskning och innovation. https://www.regeringen.se/rattsliga-dokument/statens-offentliga-utredningar/2023/10/sou-202359/
Digitalization and the effective use of technology in public administration are overseen by DIGG, the Agency for Digital Government. The agency has a four-part mission: (i) supporting the digitalization of public administration; (ii) managing Sweden’s digital infrastructure; (iii) monitoring and analyzing the digitalization of society; and (iv) assisting the government in making well-informed decisions (DIGG, 2024).
Any further research that leads to innovation in public administration and political science is funded by research councils. The current structure of research funding includes five agencies:
• The Swedish Energy Agency (Energimyndigheten), which promotes research and innovation in the field of energy, had a budget of SEK 1.46 billion in 2023.
Formas, the Swedish Research Council for Sustainable Development, funds basic and needs-oriented research in the environment, agricultural and built environment fields, with a 2023 budget of SEK 1.87 billion.
The Forte, Swedish Research Council for Health, Working Life, and Welfare, funds basic and needs-oriented research in the working life, welfare, and public health fields, with a 2023 budget of SEK 0.87 billion.
• The Swedish Research Council (Vetenskapsrådet) funds research across all scientific fields and supports larger research infrastructures, with a 2023 budget of SEK 8.09 billion.
• Vinnova, the Swedish innovation agency, fosters sustainable growth by funding needs-oriented research and creating effective innovation systems. Its 2023 budget is SEK 3.41 billion.
A 2023 commission of inquiry proposes a radical reorganization of the research funding structure by phasing out the existing councils and agencies into three entities: the Science Agency, the Strategic Research Agency, and Vinnova (SOU, 2023). Additionally, public agencies fund research per sector. For example, the Swedish Civil Contingencies Agency (MSB) has traditionally had a research department and has allocated funding to universities as well as municipalities for projects in risk and crisis management.
Citations:
DIGG. 2024. “About us.” https://www.digg.se/en/about-us
Komet. 2022. “Kommittén för teknologisk innovation och etik.” https://www.kometinfo.se
SOU. 2023. Ny myndighetsstruktur för finansiering av forskning och innovation. https://www.regeringen.se/rattsliga-dokument/statens-offentliga-utredningar/2023/10/sou-202359/
Graph View
To what extent does the government conduct high-quality impact assessments to evaluate the potential effects of prepared legislation before implementation?
10
9
9
The government draws on high-quality RIAs to assess the potential impact of prepared legislation before implementation.
8
7
6
7
6
In most cases, the government draws on high-quality RIAs to assess the potential impact of prepared legislation before implementation.
5
4
3
4
3
The government rarely draws on high-quality RIAs to assess the potential impact of prepared legislation before implementation.
2
1
1
The government does not draw on high-quality RIAs to assess the potential impact of prepared legislation before implementation.
The purpose of regulatory impact analysis (RIA) is to assess the degree to which regulation has negative effects and unintended consequences for the subjects of regulation. RIAs aim to prevent increasing regulatory burdens on private firms and identify which regulatory frameworks should be abolished or simplified.
Ex ante assessments of regulatory impact have been mandatory since 2007. In the latest OECD iREG scores, Sweden ranks slightly below the OECD average for primary laws and subordinate regulations (OECD, 2021).
A 2022 memorandum from the Department of Finance suggests changes in how RIAs are conducted, based on criticism of the existing process, including a complicated regulatory framework fragmented across various pieces of legislation. Criticisms include that RIAs come too late in the process – when solutions are already formulated – a lack of competence and a failure to scientifically consider causal mechanisms between measures and their impact, and the limited scope of RIAs. The memorandum proposes legislative changes to incorporate RIAs into the work of public agencies when they issue ordinances and advice to the public, as well as in the commissions of inquiry that result in proposals for legislative change (Government Offices of Sweden, 2022). This memorandum was in the referral phase at the time of writing this report.
Citations:
OECD. 2021. “Sweden: Indicators of Regulatory Policy and Governance 2021.” https://www.oecd.org/gov/regulatory-policy/sweden-country-profile-regulatory-policy-2021.pdf
Government Offices of Sweden. 2022. Bättre konsekvensutredingar. Ds 2022:22 https://www.regeringen.se/rattsliga-dokument/departementsserien-och-promemorior/2022/08/ds-202222/
Ex ante assessments of regulatory impact have been mandatory since 2007. In the latest OECD iREG scores, Sweden ranks slightly below the OECD average for primary laws and subordinate regulations (OECD, 2021).
A 2022 memorandum from the Department of Finance suggests changes in how RIAs are conducted, based on criticism of the existing process, including a complicated regulatory framework fragmented across various pieces of legislation. Criticisms include that RIAs come too late in the process – when solutions are already formulated – a lack of competence and a failure to scientifically consider causal mechanisms between measures and their impact, and the limited scope of RIAs. The memorandum proposes legislative changes to incorporate RIAs into the work of public agencies when they issue ordinances and advice to the public, as well as in the commissions of inquiry that result in proposals for legislative change (Government Offices of Sweden, 2022). This memorandum was in the referral phase at the time of writing this report.
Citations:
OECD. 2021. “Sweden: Indicators of Regulatory Policy and Governance 2021.” https://www.oecd.org/gov/regulatory-policy/sweden-country-profile-regulatory-policy-2021.pdf
Government Offices of Sweden. 2022. Bättre konsekvensutredingar. Ds 2022:22 https://www.regeringen.se/rattsliga-dokument/departementsserien-och-promemorior/2022/08/ds-202222/
To what extent does the government effectively incorporate sustainability assessments within the framework of RIAs?
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9
9
High-quality sustainability assessments are incorporated within regulatory impact assessments.
8
7
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7
6
High-quality sustainability assessments are, for the most part, incorporated within regulatory impact assessments.
5
4
3
4
3
High-quality sustainability assessments are rarely incorporated within regulatory impact assessments.
2
1
1
Sustainability assessments are not incorporated within regulatory impact assessments.
Environmental sustainability has been well integrated into the policy process. All government bills, procurements, and directives to commissions of inquiry are required to be assessed to determine their impact on environmental sustainability.
As for other types of sustainability criteria, there has been little evidence about the extent to which they are considered in the RIA process. The 2022 memorandum issued by the Department of Finance aims to change this by proposing clear social, economic, and environmental dimensions in RIAs (Government Offices of Sweden, 2022).
Citations:
Government Offices of Sweden. 2022. Bättre konsekvensutredingar. Ds 2022:22 https://www.regeringen.se/rattsliga-dokument/departementsserien-och-promemorior/2022/08/ds-202222/
As for other types of sustainability criteria, there has been little evidence about the extent to which they are considered in the RIA process. The 2022 memorandum issued by the Department of Finance aims to change this by proposing clear social, economic, and environmental dimensions in RIAs (Government Offices of Sweden, 2022).
Citations:
Government Offices of Sweden. 2022. Bättre konsekvensutredingar. Ds 2022:22 https://www.regeringen.se/rattsliga-dokument/departementsserien-och-promemorior/2022/08/ds-202222/
To what extent do government ministries utilize ex post evaluations to improve existing policies?
10
9
9
High-quality ex post evaluations serve as the basis for making adjustments to public policies.
8
7
6
7
6
High-quality ex post evaluations frequently serve as the basis for making adjustments to public policies.
5
4
3
4
3
High-quality ex post evaluations rarely serve as the basis for making adjustments to public policies.
2
1
1
High-quality ex post evaluations are not utilized to make adjustments to public policies.
Ex post evaluations take various forms. For the past two decades, performance measurement and management have been an integral part of public management in Sweden, as in most other countries. Audits conducted by the Swedish NAO [Riksrevisionen] are also important evaluation instruments.
There is, however, a tendency to focus more on institutions and cost efficiency – the audit approach – than on programs and impact – the evaluation approach. This is a common trend among Western democracies. Both approaches, however, are useful as feedback on public policy (Pierre, Peters and de Fine Licht, 2018; Peters and Pierre, 2019).
Citations:
Pierre, J. B., Peters, B. G., and de Fine Licht, J. 2018. “Is Auditing the New Evaluation? Can it be? Should it be?” International Journal of Public Sector Management 31: 726-39.
Peters, B.G. and Pierre, J. 2019. “From Evaluation to Auditing and from Programs to Institutions? Causes and Consequences of the Decline of the Program Approach.” Governance: An International Journal of Policy, Administration, and Institutions 33 (3): 585-597.
There is, however, a tendency to focus more on institutions and cost efficiency – the audit approach – than on programs and impact – the evaluation approach. This is a common trend among Western democracies. Both approaches, however, are useful as feedback on public policy (Pierre, Peters and de Fine Licht, 2018; Peters and Pierre, 2019).
Citations:
Pierre, J. B., Peters, B. G., and de Fine Licht, J. 2018. “Is Auditing the New Evaluation? Can it be? Should it be?” International Journal of Public Sector Management 31: 726-39.
Peters, B.G. and Pierre, J. 2019. “From Evaluation to Auditing and from Programs to Institutions? Causes and Consequences of the Decline of the Program Approach.” Governance: An International Journal of Policy, Administration, and Institutions 33 (3): 585-597.