Innovation and Policy Networks:the social shaping of BSE-related technologies and the inadequate assessmant of related risks

Abstract

BSE (Bovine Spongiform Encephalopathy) is one of the most prominent public controversies of the twentieth century. Involving the slaughter of thousands of cattle and the death of over 100 people, the disease has had devastating effect upon the personal lives of many people in the UK. Furthermore, it has had a damaging effect upon the country's economy and due to its sudden emergence and uncertainty over its cause, BSE has greatly challenged political actors during management of the crisis. This analysis explores how this agricultural disaster is closely related to technological innovations adopted by the related agricultural industries. Through a framework which defines technological innovations as being socially shaped, this study examines how the MBM technological trajectory involved the participation and influence of a number of actors who for various reasons sought to develop two innovations associated with a) the use of MBM in animal feed and b) the manufacture of MBM. However, during the innovation process there were also actors expressing a desire for precautionary action in relation to the innovations. The concerns of these actors were sidelined and the arguments of these two groups of actors have been studied to understand how the BSE technologies failed to incorporate adequate risk assessment. The influence of social actors, involved in either the advancement of the innovation or in desiring greater control over the technologies, has been determined through a process of discourse analysis of an array of primary documentation. This has been supported by more recent evidence from the public BSE Inquiry, as well as by interviews with key actors involved in post-BSE discussions and management. The objective of this study is to develop the social shaping of technology approach through extending its social network model of innovation to incorporate the innovation-related policy network. This permits an analysis of the (in)effectiveness of the regulatory control of technology. This BSE case study has exposed the limitations and repercussions of closed policy networks in terms of risk management. In the current social and political climate of organisational interdependency, policy formulation in relation to technological change also needs to embrace the views of actors who are not traditionally a part of the core policy sphere. State encouragement and institutionalisation of such social groups is a much needed step forward in ensuring that technological innovations are socially less problematic. The BSE controversy serves as a powerful example of the sometimes grave consequences of marginalising such voices.