Abstract: This thesis explores how policy bureaucrats in Australia craft public policy to deliver outcomes in the uncertain environment of "thin markets" – which are areas with uneven competition and high levels of uncertainty. My research examines how policy practitioners navigate complexity and uncertainty in their work, especially in the context of the COVID-19 pandemic, and ongoing routine challenges. My study is motivated by a perceived gap between academic theories of policy-making and the messy realities experienced by those working in government. I argue that the concept of thin markets is a narrative that has arisen to reflect Australian bureaucratic experiences of post New Public Management because our understanding of public policy, particularly how it's developed and implemented, often falls short of capturing the actual experiences of policy practitioners.

Using an interpretive, qualitative approach, the research delves into the experiences of policy bureaucrats, aiming to improve the description of the often invisible work of policy management. The COVID-19 pandemic provided a unique opportunity to observe these themes in action. The research found that the crisis exposed both strengths and weaknesses in existing policy systems, highlighting the importance of rapid adaptation, real-time intelligence gathering, and cross-sectoral collaboration in crisis management. It also underscored tensions between centralized coordination and decentralized implementation, and the crucial role of public trust in policy effectiveness.

By layering the experience of policy bureaucrats during and post COVID-19, I present a discursive investigation that highlights that network governance emerged as a crucial strategy for managing thin markets. The research finds that policy bureaucrats increasingly rely on diverse networks across sectors and levels of government to gather intelligence, facilitate collaboration, and implement policy. This networked approach recognizes that knowledge and power are distributed in complex policy environments, challenging traditional hierarchical models of governance.

A key contribution of the research is the concept of "meso-stewardship," proposed as a way to bridge the gap between micro-level operational accountability and macro-level political accountability. This approach offers a framework for managing complexity within the constraints of Westminster governance systems, emphasizing collaborative problem-solving, place-based adaptation, and balancing short-term and long-term considerations. The research suggests that the application of a thin markets framework supports an emergent model of policy governance in the Australian public service. This model, characterized by adaptive approaches, collaborative decision-making, and systems thinking, challenges traditional notions of bureaucratic control and accountability.

About the author:

Andrew Morgan is from the Australian Government’s Department of Infrastructure, Transport, Regional Development and Communications. He is a 2020 Sir Roland Wilson Scholar and a 2015 Churchill Fellow. He has worked in climate change policy, safety, health and environmental policy development, as well as governance, planning and evaluation.

Panel: Prof Ariadne Vromen, A/Prof Michael Di Francesco, Prof John Wanna.