Agenda-setting in nascent policy subsystems: issue and instrument priorities across venues

The “policy subsystem” has long been a key concept in our understanding of how policies on a given topic are produced. However, we know much less about policymaking in nascent policy subsystems. This article draws on the theories of agenda-setting and venue shopping to argue that the similarity and convergence of policy subsystems’ agendas across different institutional venues and over time are features that distinguish more nascent policy subsystems from their more established, mature counterparts. In simple terms, policy venues’ agendas converge when policy actors begin to discuss the same issues and instruments instead of talking past one another. The article illustrates this argument using textual data on Germany’s emerging Artificial Intelligence (AI) policy: print media debates, parliamentary debates, and a government consultation from the period between November 2017 and November 2019. The insights from our analysis show that actors emphasize somewhat different policy issues and instruments related to AI in different venues. Nevertheless, the longitudinal analysis suggests that the debate does seem to converge across different venues, which indicates the formation of a subsystem-specific policy agenda regarding AI.