Agenda setting and socially contentious policies: Ethiopia's 2005 reform of its law on abortion.

Background: In 2005, Ethiopia took a bold step in reforming its abortion law as part of the overhaul of its Penal Code. Unsafe abortion is one of the three leading causes of maternal mortality in low-income countries; however, few countries have liberalized their laws to permit safer, legal abortion. Methods: This retrospective case study describes the actors and processes involved in Ethiopia's reform and assesses the applicability of theories of agenda setting focused on internal versus external explanations. It draws on 54 interviews conducted in 2007 and 2012 with informants from civil society organizations, health professionals, government, international nongovernmental organizations and donors, and others familiar with the reproductive health policy context in Ethiopia as well as on government data, national policies, and media reports. The analytic methodology is within-case analysis through process tracing: using causal process observations (pieces of data that provide information about context, process, or mechanism and can contribute to causal inference) and careful description and sequencing of factors in order to describe a novel political phenomenon and evaluate potential explanatory hypotheses. Results: The analysis of key actors and policy processes indicates that the ruling party and its receptiveness to reform, the energy of civil society actors, the "open windows" offered by the vehicle of the Penal Code reform, and the momentum of reforms to improve women's status, all facilitated liberalization of law on abortion. Results suggest that agenda setting theories focusing on national actors—rather than external causes—better explain the Ethiopian case. In addition, the stronger role for government across areas of policy work (policy specification and politics, mobilization for enactment and for implementation), and the collaborative civil society and government policy relationships working toward implementation are largely internal, unlike those predicted by theories focusing on external forces behind policy adoption. Conclusions: Ethiopia's policymaking process can inform policy reform efforts related to abortion in other sub-Saharan Africa settings. Plain language summary: Globally, deaths of women due to unsafe abortion remain high. However, few countries have changed their laws to allow safer, legal abortion. In 2005, Ethiopia reformed its law to permit women to obtain an abortion for a significantly greater number of reasons, and this reform has resulted in a real expansion of women's access to services. This retrospective case study uses information from interviews with 54 people involved in Ethiopia's reform and from government and research documents to see whether explanations of the reform that focus on the roles of national actors versus on the roles of external actors and influences better explain how Ethiopia's reform took place. This study finds that national actors and processes were most central to Ethiopia's reform. In particular, a ruling party open to reform, the work of the women's movement and of reproductive health nongovernmental organizations, the ability to take advantage of political events, and the collaborative relationship between government and nongovernmental organizations all supported reform. At the time, many major external actors were either against the reform (the U.S. government) or stayed neutral. Findings can help those seeking to understand or plan policy reform efforts in other sub-Saharan Africa countries. [ABSTRACT FROM AUTHOR]