Contested, Impractical, and Easily Forgotten? Analysing National-Level Decision-Makers’ Interpretations of Lessons Learned From the COVID-19 Pandemic Through a Qualitative Follow-up Study

Authors

DOI:

https://doi.org/10.58235/sjpa.33349

Keywords:

pandemic, lessons learned, health systems, policymakers, follow-up study

Abstract

This article employs Dewey’s pragmatist theory and a follow-up study design to explore how Finnish national-level decision-makers perceived and interpreted lessons learned at two different time points during the crisis: first during the acute stage in 2021 (n = 21) and later following the stage of high vaccination coverage and the conclusion of the acute stage in 2022–2023 (n = 16; 15 of which took part also in the first interview and 1 having transferred to a key role after 2021). Interviewees represent key ministries, other national governmental organizations with pandemic governance responsibilities, expert organizations, and authorities responsible for preparedness. Analyses aimed to construct a more comprehensive understanding of the COVID-19 pandemic, and explore lessons learned as situationally emerging, evolving, and processual. Results reveal how lessons were intertwined with political decision-making, experienced as temporally impractical and easily forgotten, and shaped through a dichotomy of crisis and normalcy. For further research on crisis lessons, we call for greater acknowledgement of the politicized nature of defining lessons learned, measures to overcome the tendency of lessons to fade, and management of continuity across the crisis-normalcy divide. Conclusions offer suggestions for overcoming these difficulties in preparation for future crises.

Downloads

Download data is not yet available.

Author Biographies

Kristiina Janhonen, Finnish Institute for Health and Welfare, Finland

Kristiina Janhonen, PhD, Docent, Senior Researcher, Finnish Institute for Health and Welfare. Research interests include learning, interaction, leadership, resilience.

Marjaana Viita-aho, Finnish Institute for Health and Welfare, Finland

Marjaana Viita-aho, RN, MHS, Researcher, Finnish Institute for Health and Welfare. Research interests include health systems and policy, health workforce, health system resilience.

Henna Paananen, Tampere University, Finland

Henna Paananen PhD, University Lecturer, Tampere University. Research interests include public administration, leadership, public sector reform and governance.

Laura Kihlström, Finnish Institute for Health and Welfare, Finland

Laura Kihlström, PhD, Research Manager, Finnish Institute for Health and Welfare. Research interests include health systems and policy, health equity, power and politics.

Soila Karreinen, Tampere University, Finland

Soila Karreinen, MD, Doctoral researcher, Tampere University. Research interests include health systems and policy, change, resilience and leadership in healthcare.

Liina-Kaisa Tynkkynen, Finnish Institute for Health and Welfare and Tampere University, Finland

Liina-Kaisa Tynkkynen, PhD, Docent, Chief Researcher, Finnish Institute for Health and Welfare and senior researcher, Tampere University. Research interests include public policy, health systems, health policy. 

References

Ansell, C. & Boin, A. (2019) Taming deep uncertainty: The potential of pragmatist principles for understanding and improving strategic crisis management, Administration & Society, 51 (7): 1079–1112. https://doi.org/10.1177/0095399717747655 DOI: https://doi.org/10.1177/0095399717747655

Ansell, C. & Geyer, R. (2016) ‘Pragmatic complexity’ a new foundation for moving beyond ‘evidence-based policy making’? Policy Studies, 38 (2): 149–167. https://doi.org/10.1080/01442872.2016.1219033 DOI: https://doi.org/10.1080/01442872.2016.1219033

Ansell, C. & Sørensen, E. & Torfing, J. (2021) The COVID-19 pandemic as a game changer for public administration and leadership? The need for robust governance responses to turbulent problems. Public Management Review, 23 (7): 949–960. https://doi.org/10.1080/14719037.2020.1820272 DOI: https://doi.org/10.1080/14719037.2020.1820272

Augustynowicz, A. & Opolski, J. & Waszkiewicz, M., (2022) Resilient Health and the Healthcare System. A Few Introductory Remarks in Times of the COVID-19 Pandemic, International Journal of Environmental Research and Public Health. 19 (6): 3603. https://doi.org/10.3390/ijerph19063603 DOI: https://doi.org/10.3390/ijerph19063603

Bayntun, C., (2012) A health system approach to all-hazards disaster management: A systematic review. PLoS Curr. 4, e50081cad5861d. ISSN 2157-3999. https://doi.org/10.1371/50081cad5861d DOI: https://doi.org/10.1371/50081cad5861d

Bechky, B. A. (2003). Sharing meaning across occupational communities: The transformation of understanding on a production floor. Organization Science, 14(3), 312–330. https://www.jstor.org/stable/4135139 DOI: https://doi.org/10.1287/orsc.14.3.312.15162

Boin, A. & Ekengren, M. & Rhinard, M., (2020) Hiding in plain sight: conceptualizing the creeping crisis, Risks, Hazards, & Crisis in Public Policy. 11 (2): 116–38. https://doi.org/10.1002/rhc3.12193 DOI: https://doi.org/10.1002/rhc3.12193

Bozorgmehr, K. & Zick, A. & Hecker, T., (2022) Resilience of health systems: understanding uncertainty uses, intersecting crises and cross-level interactions, International Journal of Health Policy and Management, 11 (9): 1956–1959. https://doi.org/10.34172/ijhpm.2022.7279 DOI: https://doi.org/10.34172/ijhpm.2022.7279

Christensen, T. & Lægreid, P. & Rykkja, L. H. (2016) Organizing for Crisis Management: Building Governance Capacity and Legitimacy, Public Administration Review, 76 (6): 887–897. https://doi.org/10.1111/puar.12558 DOI: https://doi.org/10.1111/puar.12558

Coraiola, D. M. & Foster, W. M. & Mena, S., Foroughi, H. & Rintamäki, J., (2023) Ecologies of Memories: Memory Work Within and Between Organizations and Communities, Academy of Management Annals, 17 (1): 373–404. https://doi.org/10.5465/annals.2021.0088 DOI: https://doi.org/10.5465/annals.2021.0088

Dewey J. (1896 [1996]) The reflex arch concept in psychology, in: Boydston, J. A., & Hickman, L. (Eds.), The collected works of John Dewey. The Early Works of John Dewey, 1882–1898. Volume 5: 1895–1898, Essays, Early Essays. InteLex Corporation, 2nd electronic ed., pp. 96–112.

Dewey J. (1916 [1996]) Democracy and education, in: Boydston, J. A., & Hickman, L. (Eds.), The collected works of John Dewey, 1882–1953. The Middle Works of John Dewey, 1899–1924 (Vol. 9: 1916), Democracy and Education. An Introduction to the Philosophy of Education. InteLex Corporation. 2nd electronic ed., pp. 1–370.

Dewey J. (1938 [1996]) Experience and education, in: Boydston J. A., & Hickman L. (Eds.), The collected works of John Dewey, 1882–1953. The Later Works of John Dewey (Vol. 13). Essays, Experience and Education, Freedom and Culture, and Theory of Valuation. InteLex Corporation, 2nd electronic ed., pp. 1938–1939.

Donahue, A. & Eckel, C. & Wilson, R. (2014) Ready or not? How citizens and public officials perceive risk and preparedness. American Review of Public Administration, 44 (4S): 89–111. https://doi.org/10.1177/0275074013506517 DOI: https://doi.org/10.1177/0275074013506517

Dunlop, C. A. & Radaelli, C. M. (2018) The lessons of policy learning: Types, triggers, hindrances and pathologies, Policy & Politics, 46 (2): 255–272. https://doi.org/10.1332/030557318X15230059735521 DOI: https://doi.org/10.1332/030557318X15230059735521

Elkjaer, E., (2008) Pragmatism - A learning theory for the future. In: Illeris, K. (Ed.), Contemporary theories of learning: learning theorists ... in their own words, London: Routledge, pp. 74– 89.

Finnish National Board on Research Integrity (2021) (TENK), (2021). Ethical Review in Human Sciences. https://tenk.fi/en/ethical-review/ethical-review-human-sciences. Accessed: 1.11.2022

Gibbs, G., (2012) Thematic Coding and Categorizing. Analysing Qualitative Data. Sage Research Methods Online. LondonSAGE Publications, Ltd. https://doi.org/10.4135/9781849208574 DOI: https://doi.org/10.4135/9781849208574

Greenhalgh, T. & Eivind Engebretsen, E., (2022) The science-policy relationship in times of crisis: An urgent call for a pragmatist turn, Social Science & Medicine. 306, 115140, https://doi.org/10.1016/j.socscimed.2022.115140 DOI: https://doi.org/10.1016/j.socscimed.2022.115140

Haldane, V. & De Foo, C. & Abdalla, S. M. & Jung, A.-S. & Tan, M. & Wu, S. & Chua, A. & Verma, M. & Shrestha, P. & Singh, S. & Perez, T. & Tan, S. M. & Bartos, M. & Mabuchi, S. & Bonk, M. & McNab, C. & Werner, G. K. & Panjabi, R. & Nordström, A. & Legido-Quigley, H. (2021) Health systems resilience in managing the COVID-19 pandemic: Lessons from 28 countries. Nature Medicine, 27 (6): 964–980. https://doi.org/10.1038/s41591-021-01381-y DOI: https://doi.org/10.1038/s41591-021-01381-y

Heino, O. & Huotari, V., (2022) How considering memory as an analogy to preparedness reveals its weaknesses, Risk, Hazards & Crisis in Public Policy, rhc3.12257. https://doi.org/10.1002/rhc3.12257 DOI: https://doi.org/10.1002/rhc3.12257

Heino, O. & Kihlström, L. & Rautiainen, P. & Viita-aho, M. & Keskimäki, I. & Tynkkynen, L.-K. (2024). Into the unknown—Preparing for and learning from health system shocks. In S. Thomas & P. Fleming (Eds.), Handbook of Health System Resilience (pp. 452–464). Edward Elgar Publishing. https://doi.org/10.4337/9781803925936.00041 DOI: https://doi.org/10.4337/9781803925936.00041

Högberg, (L). (2024) Boundary Spanning in Cross-Sector Collaboration: Sensemaking and Framing in a Civil Society Public Partnership Beyond the Crossroads. Scandinavian Journal of Public Administration, 28(1): 60–77. https://doi.org/10.58235/sjpa.2023.16429 DOI: https://doi.org/10.58235/sjpa.2023.16429

Kihlström L. & Siemes, L., Huhtakangas, M., Keskimäki, I. & Tynkkynen, L-K. (2023a). Power and politics in a pandemic: Insights from Finnish health system leaders during COVID-19. Social Science & Medicine, 321: 115783. https://doi.org/10.1016/j.socscimed.2023.115783 DOI: https://doi.org/10.1016/j.socscimed.2023.115783

Kihlström, L. & Huhtakangas, M. & Karreinen, S. & Viita-aho, M. & Keskimäki, I. & Tynkkynen, L.-K. (2023b). “Local cooperation has been the cornerstone”: facilitators and barriers to resilience in a decentralized health system during COVID-19 in Finland. Journal of Health Organization & Management, 37(1), 35–52. https://doi.org/10.1108/JHOM-02-2022-0069 DOI: https://doi.org/10.1108/JHOM-02-2022-0069

Klausen, K. (2024) Crisis Management as Strategic Coping. Scandinavian Journal of Public Administration, 28(1): 25–42. https://doi.org/10.58235/sjpa.2023.12580 DOI: https://doi.org/10.58235/sjpa.2023.12580

Kapucu, N. & Hu, Q. (2022) ‘An old puzzle and unprecedented challenges: Coordination in response to the COVID-19 pandemic in the US’, Public Performance & Management Review, 45 (4): 773-798. https://doi.org/10.1080/15309576.2022.2040039 DOI: https://doi.org/10.1080/15309576.2022.2040039

Kapucu, N. & Ustun, Y. (2018) Collaborative crisis management and leadership in the public sector. International Journal of Public Administration, 41 (7): 548–561. https://doi.org/10.1080/01900692.2017.1280819 DOI: https://doi.org/10.1080/01900692.2017.1280819

Karreinen, S. & Rautiainen, P. & Keskimäki, I. & Satokangas, M. & Viita-aho, M. & Tynkkynen, L.-K. (2023a) Pandemic preparedness and response regulations in Finland: Experiences and implications for post-COVID-19 reforms, Health Policy, 132, 104802. https://doi.org/10.1016/j.healthpol.2023.104802 DOI: https://doi.org/10.1016/j.healthpol.2023.104802

Karreinen, S. & Paananen, H. & Kihlström, L. & Janhonen, K. & Huhtakangas, M. & Viita-aho, M. & Tynkkynen, L.-K. (2023b) Living through uncertainty: a qualitative study on leadership and resilience in primary healthcare during COVID-19. BMC Health Services Research, 23(1), 1–13. https://doi.org/10.1186/s12913-023-09223-y DOI: https://doi.org/10.1186/s12913-023-09223-y

Miettinen, R., (2000) The concept of experiential learning and John Dewey’s theory of reflective thought and action, International Journal of Lifelong Education, 19 (1): 54–71. https://doi.org/10.1080/026013700293458 DOI: https://doi.org/10.1080/026013700293458

Perghel, R., & Psychogios, A. G., (2013) Making Sense of Crisis: Cognitive Barriers of Learning in Critical Situations, Management Dynamics in the Knowledge Economy, 1 (2): 179. https://www.managementdynamics.ro/index.php/journal/article/view/20

Pouru-Mikkola, L. & Minkkinen, M. & Malho, M.. & Neuvonen, A. (2023) Exploring knowledge creation, capabilities, and relations in a distributed policy foresight system: Case Finland, Technological Forecasting & Social Change, 186 (1B), 1–14. https://doi.org/10.1016/j.techfore.2022.122190 DOI: https://doi.org/10.1016/j.techfore.2022.122190

Rantamäki, A. (2023) Informaatioresilienssin rakentumiseen vaikuttavien tekijöiden ilmentyminen varautumista koskevassa asiantuntijapuheessa [The manifestation of factors influencing the development of information resilience in expert discourse on preparedness], Hallinnon tutkimus, 42 (5), 492–510. https://doi.org/10.37450/ht.127936 DOI: https://doi.org/10.37450/ht.127936

Rantamäki, A. (2024). Hallintaa epävarmuudessa: Informaatioresilienssi kriiseissä ja niihin varautumisessa [Managing Uncertainty: Information Resilience in Crises and Preparedness]. Acta Wasaensia 530.

Rantamäki, A. & Uusikylä, P. & Jalonen, H. (2024) Information Resilience in Networks: An Analysis of a National Security Legislation Evidence Base. Scandinavian Journal of Public Administration, 28(2): 1–20. https://doi.org/10.58235/sjpa.2023.14068 DOI: https://doi.org/10.58235/sjpa.2023.14068

Ryan, G. & Bernard, R., (2003) Techniques to identify themes, Field methods, 15 (1): 85-109. https://doi.org/10.1177/1525822X0223956 DOI: https://doi.org/10.1177/1525822X02239569

Saulnier, D. & Blanchet, K. & Canila C. & et al., (2021) A health systems resilience research agenda: moving from concept to practice, BMJ Glob Health, 6 (8), e006779. https://doi.org/10.1136/bmjgh-2021-006779 DOI: https://doi.org/10.1136/bmjgh-2021-006779

Staupe-Delgado, R. & Kruke, B. I. (2017) Developing a Typology of Crisis Preparedness. In Cepin & Bris (Eds.) Safety and Reliability – Theory and Applications. London: Taylor & Francis Group. https://doi.org/10.1201/9781315210469 DOI: https://doi.org/10.1201/9781315210469-322

Stenvall, J., Leskelä, R.-L., Rannisto, P.-H., Tolkki, H., Cansel, A., Leponiemi, U., Johansson, J.-E., Pekkola, E. & Tupala, T., (2022) Koronajohtaminen Suomessa. Arvio covid-19-pandemian johtamisesta ja hallinnosta syksystä 2020 syksyyn 2021 [Corona Management in Finland. An assessment of the management and administration of the COVID-19 pandemic from autumn 2020 to autumn 2021]. Valtioneuvoston selvitys- ja tutkimustoiminnan julkaisusarja 2022:34. Valtioneuvoston kanslia, Helsinki 2022. https://julkaisut.valtioneuvosto.fi/handle/10024/163995

Thomas, S. & Sagan, A. & Larkin, J. & Cylus, J. & Figueras, J. & Karanikolos, M., (2020) Strengthening health systems resilience: key concepts and strategies. World Health Organization. Regional Office for Europe. https://apps.who.int/iris/handle/10665/332441.

Timmermans, S. & Tavory, I., (2012) Theory construction in qualitative research: From grounded theory to abductive analysis, Sociological Theory, 30 (3): 167–186. https://doi.org/10.1177/0735275112457914 DOI: https://doi.org/10.1177/0735275112457914

World Health Organization. (2007) Everybody's business--strengthening health systems to improve health outcomes: WHO's framework for action. https://iris.who.int/bitstream/handle/10665/43918/9789241596077_eng.pdf. [cited 2024 Jan 22].

Zaki, B. & Wayenberg, E. (2023) How does policy learning take place across a multilevel governance architecture during crises? Policy and Politics, 51 (1): 131–155. https://doi.org/10.1332/030557321x16680922931773 DOI: https://doi.org/10.1332/030557321X16680922931773

Downloads

Published

2025-11-21

How to Cite

Janhonen, K., Viita-aho, M., Paananen, H., Kihlström, L., Karreinen, S., & Tynkkynen, L.-K. (2025). Contested, Impractical, and Easily Forgotten? Analysing National-Level Decision-Makers’ Interpretations of Lessons Learned From the COVID-19 Pandemic Through a Qualitative Follow-up Study. Scandinavian Journal of Public Administration. https://doi.org/10.58235/sjpa.33349

Issue

Section

Special Issue: Exploring Current Themes, Future Trends, and Challenges in Scandinavian Public Management

Similar Articles

1 2 3 4 5 6 7 8 9 10 > >> 

You may also start an advanced similarity search for this article.