The UK Cabinet Office in partnership with the Institute for Government have recently published a report called ‘Mindspace: Influencing behaviour through public policy‘. The report aims to take recent insights from ‘behavioural theory’ and neuroscience and operationalise them as a ‘checklist’ for the formulation of policy that is not overtly coercive but nonetheless explicitly aims for the change of behaviour:
The vast majority of public policy aims to change or shape our behaviour. And policy-makers have many ways of doing so. Most obviously, they can use “hard” instruments such as legislation and regulation to compel us to act in certain ways. These approaches are often very effective, but are costly and inappropriate in many instances. So government often turns to less coercive, and sometimes very effective, measures, such as incentives (e.g. excise duty) and information provision (e.g. public health guidance) – as well as sophisticated communications techniques.
Institute for Government ‘MINDSPACE’ report, page 7.
The report lays out the initialism ‘MINDSPACE’ as a checklist of concepts or points of focus to which policy writers should attend:
| Messenger |
we are heavily influenced by who communicates information |
| Incentives |
our responses to incentives are shaped by predictable mental shortcuts such as strongly avoiding losses |
| Norms |
we are strongly influenced by what others do |
| Defaults |
we “go with the flow‟ of pre-set options |
| Salience |
our attention is drawn to what is novel and seems relevant to us |
| Priming |
our acts are often influenced by sub-conscious cues |
| Affect |
our emotional associations can powerfully shape our actions |
| Commitments |
we seek to be consistent with our public promises, and reciprocate acts |
| Ego |
we act in ways that make us feel better about ourselves |
Table from Institute for Government ‘MINDSPACE’ report, page 8.
This is clearly not only based on the traditional model of the ‘rational’ economic subject, i.e. entirely based in rational cognition, but also, interestingly, the report moves into the kind of ‘affectual’, ‘pre-cognitive’ or ‘ego’ -oriented ideas of pre-subjective judgement/thought. There are accordingly overlaps with explorations of the precognitive embodied understandings of the world addressed in late-20th century Continental Philosophy1. So, by virtue of this inclusion of the understanding of affective attention to the world leading to cognitive action, i.e. ‘behaviour’, this report can be seen as a set of recommendations for the government of attention. This is particularly evident in the ways in which the report suggests that policy acts can become the ‘triggers’ for citizens to take ‘greater personal responsibility’. The argument appears to be that by pointing people in the ‘right’ direction, i.e. by focussing and entraining attention to particular ends, the social norms desired by a government can be, apparently, achieved:
Whether reluctantly or enthusiastically, today’s policymakers are in the business of influencing behaviour, and therefore need to understand the various effects on behaviour their policies may be having. MINDSPACE helps them do so, and therefore has the potential to achieve better outcomes for individuals and society.
Institute for Government ‘MINDSPACE’ report, page 10.
As Tiziana Terranova argued in her paper, this might be understood as the attempted ‘production of values’, by attempting to influence the circulation of flows of desires, beliefs and affects that is inseparable from the production of subjectivity. Again, we might understand this, in light of Bernard Stiegler’s paper, as the attempt to influence the processes of ‘transindividuation’ through forms of education, which is, at root, the instruction of attention.
Moves towards understanding government policy not as the directly coercive forms of action upon a governed society but instead as means of directing attention and action in desirable ways poses interesting questions for how we might understand an ‘attention economy’. Not only are the political economic forces of the market at work, but, arguably and perhaps unsurprisingly, the mode of governance is also mutating to align with these new economic forms.
[1] Interestingly, social theorists following in that vein have also addressed issues raised by neuroscience, see for example: William Connolly’s Neuropolitics, Catherine Malabou’s What should we do with our brain? and, as a counterpoint, Nicholas Carr’s The Shallows.