Situating AI policy: Controversies covered and the normalisation of AI

Abstract

Artificial intelligence has become an issue in public policy. Multiple documents issued by public sector actors link artificial intelligence to a wide range of issues, problems or goals and propose corresponding measures and interventions. While there has been substantial research on national and supranational artificial intelligence strategies and regulations, this article is interested in unpacking the processes and priorities of artificial intelligence policy in the making. Conceptually, this article takes a controversy studies lens onto artificial intelligence policy, and complements this with concepts and insights from policy studies. Empirically, we investigate the emergence of German artificial intelligence policy based on content analyses of policy documents and expert interviews. The findings reveal a late, but then powerful institutionalisation of artificial intelligence policy in German federal politics. Artificial intelligence policy in Germany focuses on funding research and supporting industry actors in networked configurations, much more than addressing societal concerns on inequality, discrimination or political economy. With regard to controversies, we observe that German policy is evading controversies by normalising artificial intelligence both with regard to taking artificial intelligence integration in all sectors of society for granted, as well as by accommodating artificial intelligence issues into the routines and institutions of German policy.