Public Policy Process.

Problem Recognition
& Problem Delimitation

Lecture 6 in the course on “Public Policy”

Martin Potůček
 What the lecture is about
Public policy as a process
A stage model of the policy cycle
Stage 1: problem delimitation & recognition
What is a problem?
What is a social problem?
What is a policy problem?
Problem delimitation in public policy
Problem recognition in public policy

The theory of agenda setting

 Public policy as a process
Public policy is a process of intentional intervention in
societal environment.
Yet the environment is influenced by different actors with varying
goals. The actors as well as the researcher possess insufficient
knowledge of the environment, and different social phenomena
have different degrees of susceptibility to foresight and
manipulation.
Public policy offers many theories to grasp different aspects
of these societal processes in their relevant contexts.
There is no single all-explaining and all-embracing theory.
Ideally, different theories are complementary; but they
may also contradict one another.
 A stage model of
the policy cycle
One of the oldest and most frequently used
cognitive frameworks.
The process of public policy is divided into several
stages (Lasswell 1956).
The boundaries between them are somewhat blurred:
“Policy making is a complexly interactive process without
beginning or end.” (Lindblom, Woodhouse 1993, p. 11)

Nowadays, the model is often criticized for its

“textbook-like” nature (Nakamura 1987).
 A stage model
of the policy cycle
Stage 1:
Problem
delimitation
& recog-
nition

Stage 2:
Stage 4:
Policy
Policy
decision-
evaluation
making

Stage 3:
Policy
implemen-
tation Source: Howlett, M., Ramesh, M.
1995. Adapted.
Critical Thinking Question

Why is the stage model of

the policy cycle still used?
What are its strengths and
weaknesses?
 Stage 1: problem delimitation
& recognition
Before you start solving a problem, make sure it
is well delimited.
“Policy analysts fail more often because they
formulate the wrong problem than because
they choose the wrong solution.”
(Dunn 1988, p. 720)

A good problem definition is half the solution.

 What is a problem?
A problem as:
a gap between the existing state and the desired state
(MacCrimmon & Taylor 1976).
an unacceptable gap between normative ideals or aspiration levels
and present/future conditions (Hoppe 2002, p. 38).
An actual problem arises if three additional conditions are
met. The gap must:
be perceived as important enough to get onto the “agenda of
problems” and motivate thinking about possible solutions;
be difficult to overcome;
be manageable – to avoid mere “wishful thinking”
(Veselý 2014).
 What is a social problem?
Two basic approaches:
• A social problem exists when
Traditional there is a large gap between
sociology society’s ideals and actual
outcomes.

• A social problem exists

Modern when a significant number of
people believe that a certain
constructivism condition is in fact a problem
(Kerbo, Coleman 2006, p. 363)
Natural history and solution
of social problems

Source: Beztužev-Lada, 1984. Adapted.

 Exercise

When does a social

problem turn into a policy
problem? Give an example.
 What are policy problems?
“…unrealized needs, values, or opportunities for improvement that
may be pursued through public action” (Dunn 2003, p. 72)
Relationship between perceived urgency of a social problem and
agenda setting in public policy:
As a social problem, the issue…
…is not perceived …is perceived as urgent
as urgent by the by the public
public
…is not No problem Growing social/political tension,
on the may result in a crisis
As a policy agenda
problem, Low political The social problem can be
…is legitimacy because solved by public policy if demo-
the issue…
on the tabled top-down; cratic institutions of interest
agenda difficult to solve representation are functional

Source: Author.
 What is a policy problem?
A social problem becomes a policy
problem if it can be pursued through
public policy instruments.
Example:
As long as polio could not be treated, it continued to be an
important health and social problem. However, it did not
become a policy problem until an efficient vaccine was
developed, making the disease preventable. Mandatory
inoculation of all children in a given population became the
main instrument of a newly introduced public policy.
(adapted from Birkland 2006, p. 71, and Veselý 2009, p. 79)
Critical Thinking Question

Why is it often difficult to

agree on what is a policy
problem?
 Problem delimitation in public
policy

“…intentional or unintentional process of naming,

specifying and systemizing hitherto incoherent, diffuse
or vaguely defined problem situations into statements
about the existence of a problem that calls for a solution.
Thus, problem delimitation (author’s note: in public
policy) is a process of creating and constructing
problems based on objective evidence as well as
subjective interpretations thereof.”
(Veselý 2009, p. 65)
 Problem delimitation in public
policy: structuring the problem
In the process of problem delimitation, policy
analysts also engage in problem structuring,
mapping the different aspects of an area and the
perspectives from which it can be seen.

Policy alternatives and instruments are often

touched upon as well.

Problem structuring is always highly subjective,

reflecting the ways reality is seen by different
actors (Veselý 2005).
 How structured are
different policy problems?
Consensus on relevant norms and values

Yes No
Well-structured Moderately structured
problem problem
Yes (e.g., road (ends; e.g., abortion,
Certainty maintenance) euthanasia, migrant
about relevant
voting rights)
knowledge
Moderately Unstructured problem
structured problem (e.g., car mobility)
No (means; e.g., traffic
safety)
Source: Veselý (2007) based on Hisschemöller & Hoppe 2001, adapted.
 Problem recognition
in public policy
There is no easy or direct avenue from knowledge
about a policy problem to recognition thereof.

Politicians often focus on less urgent agendas,

while neglecting or ignoring policy problems that
are perceived as more important (by the public or
experts).

Why? Answers are given, inter

alia, by the theory of agenda
setting.
 The theory of agenda setting
An issue will move on to the agenda if:
it is backed by the legal system and the bureaucracy;
there are adequate organizational structures in public administration;
advocacy coalitions exist;
it has enough conflict potential to be adopted by an influential actor.
(Theodoulou 1995, p. 88)
Three subsystems are distinguished by the theory:
public, policymakers & media.
Connected by a dense network of bonds,
the three subsystems may respond to
the slightest movement in the network
(Dearing, Rogers 1996).
The theory of agenda setting
Agenda Public
Universe administration
actors,
political
Policy parties
Agenda

Government
Agenda

Private and
civic sector
Decision actors, media
Agenda

Figure adapted from Birkland 2006.

 Lecture 6 Question
A social problem is becoming critical
but no intervention is underway.
What could be the reasons of this
scenario – and what are its possible
consequences?
 Literature in English
Birkland, T. A. 2006. „Agenda Setting in Public Policy.“ Pp. 63-78 in F.
Fischer, G. J. Miller, M. S. Sidney (eds.). Handbook of Public Policy Analysis.
New York: Taylor and Francis Group.
Bestužev-Lada, I. V. 1984. Poiskovoje socialnoje prognozirovanije:
perspektyvnyje problemy obščestva. Moskva: Nauka.
Dearing, J. W., E. M. Rogers. 1996. Agenda-Setting. Thousand Oaks,
London, New Delhi: SAGE Publications.
Dunn, W. N. 1988. „Methods of the Second Type: Coping with the
Wilderness of Conventional Policy Analysis.“ Policy Studies Journal. 7 (4):
720-737.
Dunn, W. N. 2003. Public Policy Analysis: An Introduction. Third ed. New
Jersey: Pearson Prentice Hall.
 Literature in English
Hisschemöller, R., R. Hoppe. 2001. „Coping with Intractable Controversies:
The Case for Problem Structuring in Policy Design and Analysis.“ Policy
Studies Review Annual 12: 47-52.
Hoppe, R. 2002. „Cultures of Public Policy Problems.“ Journal of Comparative
Policy Analysis 4 (3): 305–326.
Howlett, M., M. Ramesh. 1995. Studying Public Policy: Policy Cycles and Policy
Subsystems. Oxford: Oxford University Press.
Kerbo, H. R., J. W. Coleman. 2006. „Social Problems“. Pp. 362-369 in C. D.
Bryant, D. L. Peck (eds.). 21st Century Sociology: A Reference Handbook.
Vol. 1: Traditional and Core Areas. CA, London: SAGE Publications.
Lasswell, H. D. 1956. The Decision Process: Seven Categories of Functional
Analysis. College Park, Maryland: University of Maryland.
Lindblom, C. E., E. J. Woodhouse. 1993. The Policy-Making Process.
Englewood Cliffs (NJ): Prentice-Hall.
 Literature in English
MacCrimmon, K. R., R. N. Taylor. 1976. „Decision Making and Problem
Solving.“ Pp. 1397–1453 in M. D. Dunnette (ed.). Handbook of Industrial and
Organizational Psychology. Chicago: Rand-McNally.
Nakamura, R. 1987. „The Textbook Policy Process and Implementation
Research.“ Policy Studies Review 7 (2): 142-154.
Theodoulou, S. Z. 1995. „Making Public Policy.“ Pp. 86-96 in S. Z. Theodoulou,
M. A. Cahn. Public Policy. Essential Readings. Englewood Cliffs, NJ: Prentice
Hall.
Veselý, A. 2007. Problem delimitation in public policy analysis. Central
European Journal of Public Policy 1 (1): 80–100.
 Literatura česky
Kalvas, F. 2009. Nastolování agendy: Role masové a interpersonální komunikace, osobní
zkušenosti a genderu. Vydavatelství Západočeské univerzity.
Kalvas, F., J. Váně, M. Štípková, M. Kreidl, M. 2012. „Rámcování a nastolování agendy: Dva
paralelní procesy v interakci.“ Sociologický časopis 48 (1): 3-37.
McCombs, M. E. 2009. Agenda setting: nastolování agendy – masová média a veřejné mínění.
Praha: Portál.
Potůček, M. a kol. 2005 (reedice 2010). Veřejná politika. Praha: Sociologické nakladatelství
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Veselý, A. 2009. Vymezení a strukturace problému ve veřejné politice. Praha: Karolinum.
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