Mission Possible: Strategies for the Effective Governance of Transformative Policy in Germany

Mission-oriented policy has gained increasing prominence in recent years, shaping political agendas across OECD countries and at the EU level. Germany, too, has embraced this approach, most notably through its High-Tech Strategy 2025. Building on this initial effort, the Federal Ministry of Education and Research (BMBF) introduced “mission teams” as part of its Future Strategy for Research and Innovation in 2023.   

However, mission-oriented policy demands far more than that required for conventional policymaking approaches. Its success hinges on the development of new coordination mechanisms and governance models capable of navigating complex transformation processes effectively.  

Existing governance structures are poorly equipped to support the cross-sectoral, reflexive and participatory policymaking that mission-driven initiatives require (Lindner et al. 2021b).

This assessment is not only supported by leading researchers but also reflected in early experiences from Germany’s policy landscape. Addressing these structural shortcomings calls for institutional innovation.

Against this backdrop, it is no surprise that both academics and policymakers in Germany are increasingly focused on identifying institutional innovations capable of addressing complex societal challenges.  

Yet a critical question remains unanswered: Which of the proposed institutional innovations are truly viable in the German context, and what challenges would their implementation entail?  

This study seeks to fill a critical gap by providing a comprehensive analysis of the most relevant governance approaches in the German policy debate. It conducts the first-ever systematic assessment of their strengths, weaknesses and challenges, evaluating five distinct models in the context of Germany’s institutional and political landscape for transformative policymaking. Specifically, it examines the following approaches:

• Mission teams, as implemented under the German government’s Future Strategy for Research and Innovation.  

• An expanded mission team model, incorporating a high-level government committee for innovation and transformation, as proposed by the Expert Commission for Research and Innovation (EFI).  

• Stakeholder governance models, similar to those used in Belgium and the Netherlands.    

• Mission ministries, which consolidate mission-related responsibilities within a single ministry, exemplified by Austria’s Ministry for Climate Action.    

• Mission agencies, specialized entities tasked with managing specific missions, as proposed in a study by the Fraunhofer Institute for Systems and Innovation Research (ISI).  

Societal challenges – and the governance structures needed to implement mission-oriented policies effectively – differ significantly across contexts. There is no universal blueprint for optimal institutional design.  

Rather than a one-size-fits-all model, what is needed is a deeper understanding of how different governance approaches align with key challenges, such as managing complex stakeholder landscapes or responding to high political urgency. 

To address this, the Bertelsmann Stiftung’s recent study examines the context-specific viability of various institutional innovations through three case studies of major societal relevance. The study identifies the conditions under which each governance model can be most effective. 

The strength of any analysis lies in its ability to challenge the status quo and provide actionable pathways for shaping transformation.  

This focus paper seeks to do just that – clarify potential key levers for advancing mission-oriented policymaking in Germany and serve as a practical resource for policymakers.

Building on its analytical insights, the paper also presents concrete recommendations for structuring governance frameworks that can enhance the effectiveness of mission-driven policies in Germany.