Policy learning in times of crisis: A cross-national comparative study of COVID-19 responses in Australia and the United Kingdom, 2020-2024

The COVID-19 pandemic exposed significant vulnerabilities in public health systems, economies, and governance structures worldwide, requiring unprecedented adaptability in crisis management. Despite its global impact, there remains limited understanding of how governments learn and adapt during complex crises. This thesis examines the role of epistemic policy learning—specifically, how political decision-makers engaged with experts—in shaping COVID-19 responses in Australia and the United Kingdom (UK) from 2020 to 2024. Through a cross-national comparative case study approach, the research analyses intra-crisis learning (real-time adaptation during the crisis) and inter-crisis learning (post-crisis reflection for future preparedness). It demonstrates how contextual factors—including institutional systems, governance structures, and political pressures—shaped policy learning processes during the pandemic. The analysis is grounded in publicly available documents, data, and most notably, 53 semi-structured interviews with experts and political decision-makers. The findings highlight the pivotal role of contextual factors in shaping the integration of expertise into policymaking, with notable variations across the two cases. Australia’s federation facilitated tailored regional responses but posed significant coordination challenges. Conversely, the UK’s devolved governance structure struggled to maintain cohesion, resulting in divergent administrative approaches. Political pressures, including scandals in the UK and selective expert appointments in both countries, further impacted the policy learning process. These pressures influenced both intra-crisis and inter-crisis learning, shaping the timing and extent of expert input incorporation. Key insights from this research underscore the importance of diversifying sources of expertise, ensuring transparency in communication, and conducting continuous preparedness exercises. Methodologically, theoretically, and empirically, this thesis advances the study of crisis governance and policy learning, emphasising the centrality of expert advice in building resilience and enhancing preparedness for future health emergencies.