From benign to malign: unintended consequences and the growth of Zombie policies

Abstract

Few policymakers initiate policies that they know are malign, and are contrary to the public interest. Well-intentioned policies may, however, have unintended consequences that over time do make them, at least in part, malign. These policies may continue to produce some positive results for society, but they may also have significant negative consequences. Further, given that the malign nature of the policy tends to benefit powerful political and economic interests, once the malign aspects of the policy begin to manifest themselves, they tend to persist. This paper will use four mini-cases to understand better the transition from benign to malign policies. Two of the cases come from the United States and two come from Germany. Two cases will be in health policy, one in infrastructure, and one in crisis management policies. In all four cases policies that have over time began to demonstrate negative features continue to be implemented because of the benefits that they create for some interests in society–interests other than the original targets of the programs. In addition to the emerging literature on malign policies, this paper will have relevance for the large literature on unintended consequences (beginning with Merton in 1936), as well as the literature on Zombie ideas and failed policy ideas.