Abstract
This paper is about the things governments do and why they do them. It is written in the belief that, while we know quite a lot about decision-making processes in individual countries, we do not know nearly enough about why the governments of different countries make different decisions and pursue different policies. The countries of North America and western Europe are often described as ‘welfare states’, the implication being that the governments of all of them do broadly similar things in broadly similar ways. As we shall see, however, these broad similarities conceal important, wide divergences. These divergences deserve to be explained.

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