What makes a policy-changer minister? Evidence from cabinet ministers in Israel

In parliamentary democracies, cabinet ministers are seen as essential for policymaking. However, not all ministers make policy changes. Some make broad reforms, while others maintain the status quo. This is not only a result of the difference in the ministers’ motivations. In some cases, motivated ministers cannot realize their policy preferences. Existing research on the relations between the politicians and the administrators often focuses on the dynamics between the two and the extent to which the minister is capable of changing the policy. However, the minister’s policymaking is not only a product of the minister’s relations with the bureaucracy. Other factors that have to do with the ministers’ characteristics, such as knowledge or experience or party affiliation, also are likely to play a role. This paper aims to examine what makes a policy-changer cabinet minister. The paper is based on a mixed-method design of in-depth interviews with former cabinet ministers in Israel and a quantitative analysis of budget changes in 20 cabinet ministries from 1997-to 2019. Preliminary findings suggest that the ministers’ political experience and knowledge of the political process are extremely important for changing the policy. Knowledge of the policy field and persistence are also important for the bureaucracy to support the minister. At the same time, knowledge is not a sufficient condition. A minister who lacks political experience will need the political support of the party leader or the prime minister to make policy changes successfully. These findings contribute to our understanding of the advantages and shortcomings of technocrat ministers and the role of cabinet ministers in parliamentary democracies.