Public Policy Analytics

Algorithmic decision-making in practice must be fair for legal, ethical, and societal reasons. To achieve this, prior research has contributed various approaches that ensure fairness in machine learning predictions, while comparatively little effort has focused on fairness in decision-making, specifically off-policy learning. In this paper, we propose a novel framework for fair off-policy learning: we learn decision rules from observational data under different notions of fairness, where we explicitly assume that observational data were collected under a different -- potentially discriminatory -- behavioral policy. Importantly, our framework applies to different fairness notions for off-policy learning, where fairness is formalized based on actions or policy values. As our main contribution, we propose a neural network-based framework to learn optimal policies under different fairness notions. We further provide theoretical guarantees in the form of generalization bounds for the finite-sample version of our framework. We demonstrate the effectiveness of our framework through extensive numerical experiments using both simulated and real-world data. Altogether, our work enables algorithmic decision-making in a wide array of practical applications where fairness must be ensured.

The *Rashomon Effect*, coined by Leo Breiman, describes the phenomenon that there exist many equally good predictive models for the same dataset. This phenomenon happens for many real datasets and when it does, it sparks both magic and consternation, but mostly magic. In light of the Rashomon Effect, this perspective piece proposes reshaping the way we think about machine learning, particularly for tabular data problems in the nondeterministic (noisy) setting. We address how the Rashomon Effect impacts (1) the existence of simple-yet-accurate models, (2) flexibility to address user preferences, such as fairness and monotonicity, without losing performance, (3) uncertainty in predictions, fairness, and explanations, (4) reliable variable importance, (5) algorithm choice, specifically, providing advanced knowledge of which algorithms might be suitable for a given problem, and (6) public policy. We also discuss a theory of when the Rashomon Effect occurs and why. Our goal is to illustrate how the Rashomon Effect can have a massive impact on the use of machine learning for complex problems in society.

The performance of differentially private machine learning can be boosted significantly by leveraging the transfer learning capabilities of non-private models pretrained on large *public* datasets. We critically review this approach. We primarily question whether the use of large Web-scraped datasets *should* be viewed as differential-privacy-preserving. We further scrutinize whether existing machine learning benchmarks are appropriate for measuring the ability of pretrained models to generalize to sensitive domains. Finally, we observe that reliance on large pretrained models may lose *other* forms of privacy, requiring data to be outsourced to a more compute-powerful third party.

The goal-reaching tasks with safety constraints are common control problems in real world, such as intelligent driving and robot manipulation. The difficulty of this kind of problem comes from the exploration termination caused by safety constraints and the sparse rewards caused by goals. The existing safe RL avoids unsafe exploration by restricting the search space to a feasible region, the essence of which is the pruning of the search space. However, there are still many ineffective explorations in the feasible region because of the ignorance of the goals. Our approach considers both safety and goals; the policy space pruning is achieved by a function called feasible reachable function, which describes whether there is a policy to make the agent safely reach the goals in the finite time domain. This function naturally satisfies the self-consistent condition and the risky Bellman equation, which can be solved by the fixed point iteration method. On this basis, we propose feasible reachable policy iteration (FRPI), which is divided into three steps: policy evaluation, region expansion, and policy improvement. In the region expansion step, by using the information of agent to reach the goals, the convergence of the feasible region is accelerated, and simultaneously a smaller feasible reachable region is identified. The experimental results verify the effectiveness of the proposed FR function in both improving the convergence speed of better or comparable performance without sacrificing safety and identifying a smaller policy space with higher sample efficiency.

In reinforcement learning, it is crucial to have an accurate environment dynamics model to evaluate different policies' value in downstream tasks like offline policy optimization and policy evaluation. However, the learned model is known to be inaccurate in predictions when evaluating target policies different from data-collection policies. In this work, we found that utilizing policy representation for model learning, called policy-conditioned model (PCM) learning, is useful to mitigate the problem, especially when the offline dataset is collected from diversified behavior policies. The reason beyond that is in this case, PCM becomes a meta-dynamics model that is trained to be aware of and focus on the evaluation policies that on-the-fly adjust the model to be suitable to the evaluation policies’ state-action distribution, thus improving the prediction accuracy. Based on that intuition, we propose an easy-to-implement yet effective algorithm of PCM for accurate model learning. We also give a theoretical analysis and experimental evidence to demonstrate the feasibility of reducing value gaps by adapting the dynamics model under different policies. Experiment results show that PCM outperforms the existing SOTA off-policy evaluation methods in the DOPE benchmark by a large margin, and derives significantly better policies in offline policy selection and model predictive control compared with the standard model learning method.

Since the objective functions of reinforcement learning problems are typically highly nonconvex, it is desirable that policy gradient, the most popular algorithm, escapes saddle points and arrives at second-order stationary points. Existing results only consider vanilla policy gradient algorithms with unbiased gradient estimators, but practical implementations under the infinite-horizon discounted reward setting are biased due to finite-horizon sampling. Moreover, actor-critic methods, whose second-order convergence has not yet been established, are also biased due to the critic approximation of the value function. We provide a novel second-order analysis of biased policy gradient methods, including the vanilla gradient estimator computed from Monte-Carlo sampling of trajectories as well as the double-loop actor-critic algorithm, where in the inner loop the critic improves the approximation of the value function via TD(0) learning. Separately, we also establish the convergence of TD(0) on Markov chains irrespective of initial state distribution.

Public models offer predictions to a variety of downstream tasks and have played a crucial role in various AI applications, showcasing their proficiency in accurate predictions. However, the exclusive emphasis on prediction accuracy may not align with the diverse end objectives of downstream agents. Recognizing the public model's predictions as a service, we advocate for integrating the objectives of downstream agents into the optimization process. Concretely, to address performance disparities and foster fairness among heterogeneous agents in training, we propose a novel Equitable Objective. This objective, coupled with a policy gradient algorithm, is crafted to train the public model to produce a more equitable/uniform performance distribution across downstream agents, each with their unique concerns. Both theoretical analysis and empirical case studies have proven the effectiveness of our method in advancing performance equity across diverse downstream agents utilizing the public model for their decision-making. Codes and datasets are released at https://github.com/Ren-Research/Socially-Equitable-Public-Models.

Differential privacy (DP) ensures that training a machine learning model does not leak private data. In practice, we may have access to auxiliary public data that is free of privacy concerns. In this work, we assume access to a given amount of public data and settle the following fundamental open questions: 1. What is the optimal (worst-case) error of a DP model trained over a private data set while having access to side public data? 2. How can we harness public data to improve DP model training in practice? We consider these questions in both the local and central models of pure and approximate DP. To answer the first question, we prove tight (up to log factors) lower and upper bounds that characterize the optimal error rates of three fundamental problems: mean estimation, empirical risk minimization, and stochastic convex optimization. We show that the optimal error rates can be attained (up to log factors) by either discarding private data and training a public model, or treating public data like it is private and using an optimal DP algorithm. To address the second question, we develop novel algorithms that are "even more optimal" (i.e. better constants) than the asymptotically optimal approaches described above. For local DP mean estimation, our algorithm is optimal including constants. Empirically, our algorithms show benefits over the state-of-the-art.

Deep reinforcement learning policies, which are integral to modern control systems, represent valuable intellectual property. The development of these policies demands considerable resources, such as domain expertise, simulation fidelity, and real-world validation. These policies are potentially vulnerable to model stealing attacks, which aim to replicate their functionality using only black-box access. In this paper, we propose Stealthy Imitation, the first attack designed to steal policies without access to the environment or knowledge of the input range. This setup has not been considered by previous model stealing methods. Lacking access to the victim's input states distribution, Stealthy Imitation fits a reward model that allows to approximate it. We show that the victim policy is harder to imitate when the distribution of the attack queries matches that of the victim. We evaluate our approach across diverse, high-dimensional control tasks and consistently outperform prior data-free approaches adapted for policy stealing. Lastly, we propose a countermeasure that significantly diminishes the effectiveness of the attack.

Generative Flow Networks (GFlowNets) have been shown effective to generate combinatorial objects with desired properties. We here propose a new GFlowNet training framework, with policy-dependent rewards, that bridges keeping flow balance of GFlowNets to optimizing the expected accumulated reward in traditional Reinforcement-Learning (RL). This enables the derivation of new policy-based GFlowNet training methods, in contrast to existing ones resembling value-based RL. It is known that the design of backward policies in GFlowNet training affects efficiency. We further develop a coupled training strategy that jointly solves GFlowNet forward policy training and backward policy design. Performance analysis is provided with a theoretical guarantee of our policy-based GFlowNet training. Experiments on both simulated and real-world datasets verify that our policy-based strategies provide advanced RL perspectives for robust gradient estimation to improve GFlowNet performance. Our code is available at: [github.com/niupuhua1234/GFN-PG](https://github.com/niupuhua1234/GFN-PG).

Policy gradient methods have enabled deep reinforcement learning (RL) to approach challenging continuous control problems, even when the underlying systems involve highly nonlinear dynamics that generate complex non-smooth optimization landscapes. We develop a rigorous framework for understanding how policy gradient methods mollify non-smooth optimization landscapes to enable effective policy search, as well as the downside of it: while making the objective function smoother and easier to optimize, the stochastic objective deviates further from the original problem. We demonstrate the equivalence between policy gradient methods and solving backward heat equations. Following the ill-posedness of backward heat equations from PDE theory, we present a fundamental challenge to the use of policy gradient under stochasticity. Moreover, we make the connection between this limitation and the uncertainty principle in harmonic analysis to understand the effects of exploration with stochastic policies in RL. We also provide experimental results to illustrate both the positive and negative aspects of mollification effects in practice.

Policy gradient (PG) methods are successful approaches to deal with continuous reinforcement learning (RL) problems. They learn stochastic parametric (hyper)policies by either exploring in the space of actions or in the space of parameters. Stochastic controllers, however, are often undesirable from a practical perspective because of their lack of robustness, safety, and traceability. In common practice, stochastic (hyper)policies are learned only to deploy their deterministic version. In this paper, we make a step towards the theoretical understanding of this practice. After introducing a novel framework for modeling this scenario, we study the global convergence to the best deterministic policy, under (weak) gradient domination assumptions. Then, we illustrate how to tune the exploration level used for learning to optimize the trade-off between the sample complexity and the performance of the deployed deterministic policy. Finally, we quantitatively compare action-based and parameter-based exploration, giving a formal guise to intuitive results.

Learning high-quality $Q$-value functions plays a key role in the success of many modern off-policy deep reinforcement learning (RL) algorithms. Previous works primarily focus on addressing the value overestimation issue, an outcome of adopting function approximators and off-policy learning. Deviating from the common viewpoint, we observe that $Q$-values are often underestimated in the latter stage of the RL training process, potentially hindering policy learning and reducing sample efficiency. We find that such a long-neglected phenomenon is often related to the use of inferior actions from the current policy in Bellman updates as compared to the more optimal action samples in the replay buffer. We propose the Blended Exploitation and Exploration (BEE) operator, a simple yet effective approach that updates $Q$-value using both historical best-performing actions and the current policy. Based on BEE, the resulting practical algorithm BAC outperforms state-of-the-art methods in **over 50** continuous control tasks and achieves strong performance in failure-prone scenarios and **real-world robot** tasks. Benchmark results and videos are available at https://jity16.github.io/BEE/.

Off-policy reinforcement learning (RL) has achieved notable success in tackling many complex real-world tasks, by leveraging previously collected data for policy learning. However, most existing off-policy RL algorithms fail to maximally exploit the information in the replay buffer, limiting sample efficiency and policy performance. In this work, we discover that concurrently training an offline RL policy based on the shared online replay buffer can sometimes outperform the original online learning policy, though the occurrence of such performance gains remains uncertain. This motivates a new possibility of harnessing the emergent outperforming offline optimal policy to improve online policy learning. Based on this insight, we present Offline-Boosted Actor-Critic (OBAC), a model-free online RL framework that elegantly identifies the outperforming offline policy through value comparison, and uses it as an adaptive constraint to guarantee stronger policy learning performance. Our experiments demonstrate that OBAC outperforms other popular model-free RL baselines and rivals advanced model-based RL methods in terms of sample efficiency and asymptotic performance across **53** tasks spanning **6** task suites.

This paper proposes a step toward approximate Bayesian inference in on-policy actor-critic deep reinforcement learning. It is implemented through three changes to the Asynchronous Advantage Actor-Critic (A3C) algorithm: (1) applying a ReLU function to advantage estimates, (2) spectral normalization of actor-critic weights, and (3) incorporating *dropout as a Bayesian approximation*. We prove under standard assumptions that restricting policy updates to positive advantages optimizes for value by maximizing a lower bound on the value function plus an additive term. We show that the additive term is bounded proportional to the Lipschitz constant of the value function, which offers theoretical grounding for spectral normalization of critic weights. Finally, our application of dropout corresponds to approximate Bayesian inference over both the actor and critic parameters, which enables *adaptive state-aware* exploration around the modes of the actor via Thompson sampling. We demonstrate significant improvements for median and interquartile mean metrics over A3C, PPO, SAC, and TD3 on the MuJoCo continuous control benchmark and improvement over PPO in the challenging ProcGen generalization benchmark.

The varying significance of distinct primitive behaviors during the policy learning process has been overlooked by prior model-free RL algorithms. Leveraging this insight, we explore the causal relationship between different action dimensions and rewards to evaluate the significance of various primitive behaviors during training. We introduce a causality-aware entropy term that effectively identifies and prioritizes actions with high potential impacts for efficient exploration. Furthermore, to prevent excessive focus on specific primitive behaviors, we analyze the gradient dormancy phenomenon and introduce a dormancy-guided reset mechanism to further enhance the efficacy of our method. Our proposed algorithm, **ACE**: Off-policy **A**ctor-critic with **C**ausality-aware **E**ntropy regularization, demonstrates a substantial performance advantage across 29 diverse continuous control tasks spanning 7 domains compared to model-free RL baselines, which underscores the effectiveness, versatility, and efficient sample efficiency of our approach. Benchmark results and videos are available at https://ace-rl.github.io/.