Citizen policy entrepreneurship in UK local government climate emergency declarations

Policy entrepreneurship theory seeks to explain how actors, institutions, actions and interactions influence policy makers and policy outcomes; however, the role of citizens in this process remains largely unarticulated. Adopting a conception of policy entrepreneurship as a (distributed) pattern of agency rather than the actions of an individual, we analyse the development of local government climate emergency declarations (CEDs) (many of which visibly involved citizen advocacy). This analysis expands on the role of citizens in policy change and provides evidence of how citizen entrepreneurs interact collaboratively with more traditional forms of policy elites, in this case local elected representatives. Since 2018 hundreds of local governments in the United Kingdom (UK) have issued CEDs in a surge of expressions of local climate ambition. Whilst CEDs have attracted attention from scholars, the underlying dynamics and politics which drove the adoption of these policies, including the role played by citizens, remain unexplored in the literature. Interviews with councillors, council officers, and citizens reveal that citizens carry out a range of activities related to policy entrepreneurship, including problem framing, identifying solutions, networking and building coalitions, and seeking attention and opportunities. We find that they carry out these activities collectively with other citizens and collaboratively with elected representatives; whilst precise coalition-internal dynamics vary, citizens frequently exploit opportunities to demonstrate the strength and breadth of public support for their cause.