Blame-avoidance and fragmented crisis management during the COVID-19 pandemic in Switzerland

Abstract

This article studies how the prolonged pandemic situation impacted crisis governance in the federalized governance system of Switzerland. It examines how in this acute crisis situation, the responsibility for decision-making fluctuated among governance levels, placing subnational states in a situation of uncertainty that caused a fragmented crisis management, and therefore suboptimal policy learning processes. The study is based on the case of COVID-19 governance in Switzerland, where, as in many other European countries, the management of the first pandemic wave was very centralized. However, the federal government avoided taking a strong lead during the subsequent waves. Consequently, pandemic management was marked by numerous fluctuations regarding who was in charge of the main COVID-19 decisions between the federal and subnational governance levels. A media analysis (February 2020–March 2022) and an analysis of the gray literature show that crisis governance and policy learning processes were scattered across levels of governance, which impeded the accumulation of knowledge and know-how. The article analyses how crises can give way to blame games between the levels of governance, thus hampering a coordinated crisis management and policy learning processes across the different stages of the pandemic.