LESSON 1

MEANING, NATURE, SCOPE AND SIGNIFICANCE OF

PUBLIC POLICY ANALYSIS

Objectives of the Lesson

The objectives of the lesson are to provide the data relating to;
1. Meaning of public policy
2. Characteristics of public policy
3. Nature of public policy
4. Scope of public policy
5. Constraints in Policy Making and Need For an Effective Policy Process
6. Significance of Public Policy

Structure of the Lesson

1.1. Meaning of Public Policy
1.2. Policies and Decisions
1.3. Characteristics of Public Policy
1.3.1. Substantive Public Policy
1.3.2. Regulatory Public Policy
1.3.3. Distributive Public Policy
1.3.4. Redistributive Public Policy
1.3.5. Capitalization Public Policy
1.4. Nature of Public Policy
1.5. Scope of Public Policy Analysis
1.5.1. Policy Formulation
1.5.2. Policy Implementation
1.5.3. Policy Education
1.5.4. Policy Evaluation
1.6. Constraints in Policy Making and Need For an Effective Policy Process
1.7. Significance of Public Policy
1.8. Conclusion
1.9. Model Questions
1.10. Answer for the Questions

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1.1. Meaning of Public Policy
There are various studies about public policy and many scholars
have attempted to define public policy from different angles. Before explaining
the meaning of public policy, let us first go through some of its definitions.
Robert EyeStone terms public policy as "the relationship of government unit to
its environment. Thomas R. Dye says that "public policy is whatever
government chooses to do or not to do" Richard Rose says that "public policy is
not a decision, it is a course or pattern of activity. In Carl J. Friedrich's opinion
public policy is a proposed course action of a person, group or government
within a given environment providing opportunities and obstacles which the
policy was proposed to utilise and over come in an effort to reach a goal of
realise an objective or purpose. From these definitions, it is clear that public
policies are governmental decisions, and are actually the result of activities
which the government undertakes in pursuance of certain goals and objectives.
It can also be said that public policy formulation and implementation involves a
well planned pattern or course of activity. It requires a thoroughly close knit
relation and interaction between the important governmental agencies viz., the
political executive, legislature, bureaucracy and judiciary.
1.2. Policies and Decisions
A distinction needs to be drawn between a policy and a decision
also. Many a time the terms are used interchangeably but that is not the correct
usage. Individuals, organisations or government are constantly taking
decisions. But all the decisions that are taken cannot be described as matters of
policy. The essential core of decision-making is to make a choice from the
alternatives available in order to take an action, if there is only one course of
action available then there is nothing one can choose from and therefore, no
decision can be taken. A decision can be taken only when there is more than
one alternative available. Thus a decision is the act of making a choice. The
entire science of decision-making has been developed in order to analyse the
conditions that can improve this activity and how a decision maker can improve
his choice by expanding the number of alternatives available to him.

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 There can be two types of decisions, programmed and non-
programmed. Programmed decisions are repetitive and do not require a fresh
consideration every time they are taken. These decisions are routine in nature
and for these definite procedures can be worked out. Each decision need not be
dealt with separately. In programmed decisions, habits, skills and knowledge
about the problem are important. For example, once the decision to open the
library from 10 a.m. to 5 p.m. is taken, it does not require fresh consideration
to keep it open during those hours. The decision is incorporated into
procedures that are established for the purpose. Non-programmed decisions are
new and unstructured. No well laid-out methods are available for such
decisions, each issue or question is to be dealt with separately. Such decisions
are required in the situations of unprecedented nature, for example breakdown
of an epidemic, occurrence of earthquake, etc. Training in skills, needed for
such decisions and innovative ability become reliant in this regard. Both the
programmed and non-programmed decisions have to be taken in a broad
framework or course of action.
Public policy is the broad direction or perspective that the
government lays down in order to take decisions. Each organisation or the
individual is enjoined to take a decision within a policy framework. Decision can
be a onetime action. Policy consists of several decisions that are taken to fulfill
its aims. A policy consists of a series of decisions tied together into a coherent
whole. There can be some similarity in the processes involved in decision
making and policy making. Both are concerned with choice among alternatives
and for both similar processes can be followed in generating alternatives. But
we should always remember that policy is a more comprehensive term, as it
encompasses a series of decisions and has a comparatively longer time
perspective.
1.3. Characteristics of Public Policy
Having explained the characteristics of public policy making, we
will now explain the different types of public policy. There are various types of
public policy. They are substantive, regulatory, distributive, redistributive and
capitalization.
1.3.1. Substantive Public Policy

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 These policies are concerned with the general welfare and
development of the society, the programmes like provision of education and
employment opportunities, economic stabilisation, law and order enforcement,
anti-pollution legislation etc. are the result of substantive policy formulation.
These policies have vast areas'of operation affecting the general welfare and
development of the society as a whole. These do not relate to any particular or
privileged segments of the society. Such policies have to be formulated keeping
in view the prime character of the constitution socio-economic problems and
the level of moral claims of the society.
1.3.2. Regulatory Public Policy
Regulatory policies are concerned with regulation of trade,
business, safety measures, public utilities, etc. This type of regulation is done
by independent organisations that work on behalf of the government. In India,
we have Life Insurance Corporation, Reserve Bank of India, Hindustan Steel,
State Electricity Boards. State Transport Corporations, State Financial
Corporations, etc., which are engaged in regulatory activities the policies made
by the government, pertaining to these services and organisations rendering
these services are known as regulatory policies.
1.3.3. Distributive Public Policy
Distributive policies are meant for specific segments of society. It
can be in the area of grant of goods, public welfare or health services, etc. These
mainly include all public assistance and welfare programmes. Some more
examples of distributive policies are adult education programme, food relief,
social insurance, vaccination camps etc.
1.3.4. Redistributive Public Policy
Redistributive policies are concerned with the rearrangement of
policies which are concerned with bringing about basic social and economic
changes. Certain public goods and welfare services are disproportionately
divided among certain segments of the society these goods and service are
streamlined through redistributive policies.
1.3.5. Capitalisation Public Policy
Under the capitalisation policies financial subsidies arc given by
the Union government to the state and local governments, such subsidies are

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also granted to the central and state business undertakings or some other
important sphere if necessary. Capitalisation policies are different in nature
than the substantive, regulatory, distributive and redistributive policies as no
provision for public welfare services is made through these.
1.4. Nature of Public Policy
Public Policies are goal oriented. Public policies are formulated
and implemented in order to attain the objectives which the government has in
view for the ultimate benefit of the masses in general. These policies clearly
spell out the programmes of government. Public policy is the outcome of the
government's collective actions. It means that it is a pattern or course of activity
or the governmental officials and actors in a collective sense than being term
and as their discrete and segregated decisions. Public policy is what the
government actually decides or chooses to do. It is the relationship of the
government units to the specific field of political environment in a given
administrative system. It can take a variety of forms like law, ordinances, court
decisions, executive orders, decisions etc. Public policy is positive in the sense
that it depicts the concern of the government 'and involves its action to a
particular problem on which the policy is made. It has the sanction of law and
authority behind it. Negatively, it involves decisions by the governmental
officials regarding not taking any action on a particular issue. To understand
the meaning of policy in a better manner, it is very important to make a
distinction between policy and goals. Goals are what policies aim at or hope to
achieve. A goal is a desired state of affairs that a society or an organization
attempts to realise. Goais can be understood in a variety of perspectives. These
can be thought of as abstract values that a society would like to acquire. There
are also goals that are specific and concrete. Removal of poverty is a goal that
the government wants to pursue. Public policies are concerned with such
specific goals. They are the instruments which lead to the achievement of these
goals.
If the government announces that its goal is to provide housing to
all the members Public Policy of the deprived sections of society it does not
become a public policy. It is a statement of intention of what the government
wants to do. Many a time the government, for political reasons, announces

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goals that it has little desire to achieve. In order to become a policy, the goal has
to be translated into action. Programmes have to be designed to achieve specific
objectives. As an illustration, let us look at the policy of poverty alleviation.
Several programmes have been designed for this, e.g., The Integrated Rural
Development Programme (IRDP), The National Rural Employment Programme
(NREP) etc. Each Programme has certain goals to achieve within a specified
time and each programme is provided with financial resources and
administrative personnel. These become concrete efforts to achieve a goal.
Policy spells out the strategy of achieving a goal. Thus policy is essentially an
instrument to achieve a goal. Statement of a goal does not make it a policy.
1.5. Scope of Public Policy Analysis
As the State has assumed more and more responsibility to bring
about rapid social and economic changes, the goals and scope of public policies
also has increased tremendously. As a matter of fact State activities multiplied
to such an extent that their presence could be felt in every aspect of social and
economic life of people. Policies were enacted to promote economic development
through direct as well as indirect intervention. Social structure as well as social
relationship were also sought to be transformed by means of conducive public
policies. Thus while the significance of State in people's lives increased the
expectations of people from the State also went up. But these expectations were
not matched by government performance. The reasons for this increasing gap
between expectations and performance were attributed to faulty policy making
and implementation.
The purpose of this lesson is to focus attention on the total
process of policy making and implementation and to understand the reasons
behind the failure of the policies to produce proper results. Before we discuss
this issue, we must deal with certain important questions, such as, why are
specific policies framed? and how do problems requiring attention reach the
policy agenda, etc. Apart from providing answers to these queries, this lesson
will try to throw light on how the policies are formulated, implemented,
monitored and evaluated. To improve the performance of policies and to bridge
the gap between stated objectives and results obtained, the need for systematic
policy will also be highlighted.

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1.5.1 Policy Formulation
Before coming to the actual formulation of policies, we must be
clear regarding how the issues/problems reach the policy agenda. In a
democracy, there are various ways in which a government's attention is drawn
towards problems that need its consideration. The people's repesentatives in the
Parliament and state assemblies raise issues and demand action from the
government. These issues pertain to the areas where either the government has
failed to take adequate action or its particular action has created certain
problems. There are also organised pressure groups that can demand that the
government should act in a particular way. For example, there are associations
of business and industry like Federation of Indian Chambers of Commerce and
Industry or of central government employees or trade unions that attempt to
influence government’s policies. Social protest movements, like the Chipko
Movement can also attract government's attention towards specific issues.
Voluntary organisations and mass media also play an important role in drawing
government's attention to a particular problem or area of concern. Governments
also frame policies on their own within the broad ideology that they espouse.
Welfare or socialist ideals enshrined in our Constitution brings forth a whole
package of policies to influence different aspects of social behaviour and
economic development. Political parties help in articulating ideological positions
and policy demands on the government. The opposition parties use various
public or parliamentary for a to ask the government to adopt certain policies.
Thus in a democratic set up, the government not only frames policies on its own
but also responds to the various demands made by different organised groups
and political and social institutions in the society. It is when these groups and
institutions cannot play their role adequately that social conflicts develop and
present the problems more starkly.
Once a problem has been brought on the policy agenda, processes
begin to shape a governmental response and objectives, targets and goals are
decided upon to tackle the problem. Three major components of policy need to
be decided at this stage. First component is concerned with the setting of goals
and objectives. It means a perspective has to be determined which should be
able to generate broad goals of a policy. For example, in case of anti-poverty

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programmes, first component is concerned with the setting of goals and
objectives. It means a perspective has to be determined which should be able to
generate broad goals of a policy. So, in case of anti-poverty programmes, policy
makers have to identify the problem of what can be done to alleviate poverty.
Alternative policies have to be generated and a choice made regarding a specific
policy. This policy can be set in long-term perspective (15 to 20 years) and then
divided into concrete goals that have to he achieved in five years or one year.
Thus, there can be a 15 to 20 year plan, a five year plan and an annual plan.
One important consideration in setting these goals and devising a policy is
whether these are implementable or not. Policy and its goals need to be realistic
and should be based on the actual parameters of action. There is no point in
having policy that is not implementable, the goals of such a policy can never be
realised. If, say 200 million people live below the poverty line, then a policy that
takes care of around 20 million poor in a Five Year Plan period, without taking
into account the yearly increases in poor population, cannot achieve the goals
of poverty alleviation.
Second issue or component that needs to be considered is the
strategy needed to implement the policy. For instance, poor can be helped in
various ways. They can be given food and shelter at rates lower than the market
rates or they can be provided with employment opportunities which may enable
them to earn wages needed for the fulfillment of basic requirements. They may
also be given assets from which additional income can be generated. Thus it
has to be decided as to what type of strategy should be adopted to help the poor
to cross the poverty line. Just a single strategy can also be thought of in order
to achieve the policy goals and a proper mix of strategies can also serve the
objective. This issue also has to be decided at this stage.
Once the strategy is chosen, the implementation machinery has to
be determined. This is the third component of policy making. Some strategies
may demand a new administrative set up, others may not. Integrated Rural
Development Programme was established to enable the poor to generate
additional income with the help of assets provided through loan and subsidy.
Some strategies may only require increased financial outlay. If food-grains at
reasonable rates have to be provided, then the budget needs to allocate greater

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subsidy and greater amount of food-grains for public distribution system. The
role of bureaucracy and non- governmental organisations also has to be
specified for implementing policy goals.
Thus, at the policy formulation stage, choices have to be made
about objectives and goals, strategies and instruments of implementation.
There can be identified properly only if the policy design is given due
consideration. Policy design is a very crucial stage, as choices have to be made
in a way that a coherent framework emerges. It is this framework that
determines, to a great extent, the integration of various factors and resources
required to achieve the objectives. The design has to identify the inter-linkages
and interdependencies among personnel and material. If the design is
inadequate or faulty, then it will have its influence on the implementation and
performance of the policy.
Formulating a policy design requires skills and competence among
the policy makers. The policy makers must have the necessary expertise
required in gathering and analysing appropriate information, generating
alternatives and choosing among the alternatives. It is the competence of policy
makers that determines the extent of choice available. The actual choice is a
political decision and the question as to who has made the choice and why?
Has to be looked into. The performance of the policy is influenced by the
motivation of the decision maker. The interest taken by the actors in the policy
process and their commitment to policy objectives gets reflected in performance
of the policy. In making a choice, the decision makers may also be influenced
by their ideologies, caste and class interests or regional and ethnic loyalties.
Sometimes a policy design may not be the handiwork of national
policy makers; it may come from external sources and may merely be adopted
to suit the conditions prevailing in the country. For instance, the Community
Development Programme had its genesis elsewhere and was funded by external
agencies. Thus, policy designs can emanate from internal as well as external
sources. So we can say that in order to understand the policy process and its
consequences, some important questions have to be raised. First question is
concerned with the policy design wherein a coordinated and integrated
framework is developed which concretizes the objectives, provides for their

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achievement and establishes choices of strategy and implementation. The
second question is related to the mix of political and professional insights
required to make these choices. The final question is concerned with the
motivation of policy makers which influences them in making these choices.
1.5.2. Policy Implementation
Now we come to the next stage of the policy cycle. This is a very
crucial stage. In order to achieve the policy objectives, we have to see that the
policy is implemented with full enthusiasm and commitment. There has been
an assumption in most of our Five Year Plans that once a policy has been
formulated, it will be systematically implemented and the desired results as
envisaged by the policy makers will follow. But this assumption rests upon
various political and organisational factors. All policies may not be the result of
a serious commitment to resolve the issues. The political motivations can
influence policies in such a way that it changes their entire complexion. These
influences can become apparent at the formulation stage itself. However, what
is important to understand is that the clash of political institutions and
interests is not just confined to the formulation stage. It continues at each stage
of implementation. This leads to cases where implementation can deviate from
the goals that have been set. Policies can become very difficult to implement if
the implementors are not given sufficient autonomy and flexibility in carrying
out their tasks. In order to ward off political pressures and adhere to the goals
of a policy, the implementors need adequate powers. Very often the government
itself modifies or abandons its policy in the face of opposition from interest
groups.
A second reason why the policies may be difficult to implement is
that the bureaucracy does not have the necessary professional skills needed for
the implementation of the policies. Bureaucracy must have experts from
different areas of specialisation, but due to inappropriate recruitment policies,
such expertise is not available. In such cases, vast training programmes are
initiated so that adequate skills can be imparted to those who need them most.
Bureaucracy should be strengthened to enable it to become an effective
instrument of policy implementation. Lack of resources, personnel, financial
and technical also acts as a hindrance in implementation of public policy.

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Inadequate staff, lack of expertise and skills, shortage of funds etc. blocks
proper policy implementation. Another problem in policy implementation could
be lack of response from the target groups. Sometimes people do not take
interest in implementation of a programme, at times they are also not aware of
the objectives and goals of a programme. Lack of people's participation often
leads to breakdown in implementation. Actually the effectiveness of policy
implementation depends to a great extent on the policy design. The activities
associated with these two stages of policy cycle are closely interconnected. The
setting of goals and objectives, allocation of resources, minimizing political
influences and choice of implementation strategies influence the extent to
which policy aims can be achieved.
1.5.3. Policy Education
Policy education is a very important stage in policy cycle Many
problems in policy implementation can be solved through policy education.
People have to be made aware of the objectives of the policies, the benefits that
can be derived from them, the implementation machinery chosen for the
policies, the changes that could be brought about through the policies, the
nature of their effect on the people, agencies and institutions involved in their
implementation, monitoring and evaluation etc. Such type of education can go a
long way in developing the right kind of attitudes in people towards government
policies and increasing people's participation in policy formulation,
implementation and evaluation. People should not just be the end of public
policies that is the targets or beneficiaries of policies but should also be the
means for achieving the goals of the policies. Thus policy education must
receive due attention if public policies have to be made easily implementable
and acceptable.
Adequate public support can make the role 6f voluntary agencies
much easier. Leakages and corruption can be minimised and required expertise
and skills can be incorporated. Voluntary agencies can act as a very crucial
alternative mode of implementation. Thus before going into actual
implementation of a policy, it must be made sure that those who are involved in
the implementation as well as those who are going to be affected by its
implementation are well aware of the formulated objectives and impact.

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1.5.4. Policy Evaluation
Policy evaluation is the final and the most important stage in
policy cycle. In order to determine the success or failure of a policy, it is
essential that a systematic and effective policy evaluation system exists in the
country. A precondition to fool proof policy evaluation system is proper policy
monitoring. After the implementation of the programme, it has to be ensured
that implementation machinery functions adequately. Agencies, people and
institutions involved in implementation are not corrupt, resources needed for
carrying out the programme are sufficiently available and intelligently spent,
and the duration targets are met with. Only after keeping a track of all these
activities can proper evaluation of a policy is possible.
Policy evaluation has to be quantitative as well as qualitative.
Unfortunately, the qualitative evaluation of policy in India has not got enough
attention. The first and foremost thing that should he determined in policy
evaluation is the distinction between objectives and goals. There is a clear
distinction between objectives and goals and they should not be confused with
each other. In order to assess what has been achieved, we should be clear
about what was supposed to be achieved. Objectives can be considered as
intermediate goals. Goal is a wider term and to achieve the goals certain
objectives are set. For example, tile goal of a rural development programme can
be generation of additional income In order to achieve this, distribution of cattle
can be one of the objectives. It is quite possible that while objectives can be
achieved they may not lead to achievement of goals. In many rural development
programmes, this has happened. For instance, distribution of buffaloes has
been complete but an income of beneficiary families has not increased.
Therefore, we have to clearly against the evaluation of this type and in no way
should the intermediate goals be equated with ultimate goals. Thus a clear and
measurable definition of goals and objectives is required, this activity is usually
not taken so seriously and the goals are hazily defined. Moreover there is no
guarantee that throughout the policy cycle the same goals remain operational.
Goals and objectives change as policy gets implemented. Policy may even have
multiple goals which need not be in harmony with each other. Goals may come
into conflict with each other and achievement of one goal may lead to failure of

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another. For instance, the public sector enterprises have not been able to
resolve the conflict between their social service and profit-oriented goals. All this
has to be looked into.
Another way to evaluate a policy is to determine its efficiency with
regard to time and cost involved in its implementation. It has to be seen that
the policy that is being implemented is able to make use of the money available
for it or sanctioned for it in the most appropriate manner in order to avoid
extravagant spending. It is also necessary that implementation of a policy is
complete within the allocated time. Time and costs are interrelated factors
which make or mar the policies. If policy implementation takes more time than
required then the cost of resources and other ingredients needed for making the
policy a success also goes up and as a result, there are cost overruns or extra
expenditure. Thus time overruns and cost overruns need to be avoided. During
the course of policy implementation itself alternative methods to bring about
efficiency have to be thought of so that money wasting and time wasting
exercises get restricted.
Another type of evaluation can be qualitative evaluation. As
mentioned earlier this is the area which needs due attention. It has to be
determined whether the policy is beneficial for the people at large; whether the
objectives formulated are proper and in consonance with the changing scenario,
whether it will be viable in the long run; and whether it will be able to meet the
rising expectations of people or not. The stated objectives of a policy might be
development oriented but sometimes these get directed against people's
demands. These days the controversies over Tehri Dam Project and Narmada
Dam are examples of such policies that many people regard as anti-
development, anti-human rights and anti-environment. Usually only a small
number of people are able to derive benefits from a policy. As a result many
policies have led to accentuation of economic and social inequalities. There can
be policies which may generate conflicts among social groups, such policies
become unacceptable even if the objectives set out in them are achieved in an
efficient manner. Thus there are several criteria of evaluation of a policy and a
policy has to satisfy the interests of all sections of the community no matter on
what criterion it is evaluated. Policies can be effective if there is consensus and

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agreement on issues. The goals and objectives underlying a policy are usually
disputed if such type of consensus and agreement do not exist. Thus evaluation
of a policy has to be done very carefully so that subsequent policies do not
suffer from similar problems and lasting solutions can be thought of.
1.6 Constraints in Policy Making and Need For an Effective Policy Process
The success of any policy depends on how well it is-designed,
formulated implemented and evaluated. Thus all the stages of policy cycle are
crucial. Still a systematic policy design, a full-fledged policy education
programme and a near fool-proof evaluation system can go a long way in
making the policy effective. Policy analysis is a very important technique
through which a policy can really be made viable. It is a very effective way of
reducing policy problems, it provides all the relevant information needed to
solve problematic policy issues. We will discuss the usefulness of policy
analysis in one of our forthcoming Units of this Block. Suffice it to say over here
that lot of thinking and rethinking has to go into the entire policy process. At
each stage of the process proper analysis has to be made of all activities
pertaining to policy, whether it is identifying the priority areas, surveying the
resources available, setting the goals and objectives determining the
implementation machinery, educating the people about policies, activating the
agencies and institutions involved in implementation, supervising the
programmes, identifying the loop holes, formulating alternative strategies or
analysing the performance of policies.
There is various constraintsein policies making which adversely
affect the policy process. To recapitulate, inadequacy of financial resources is
one problem which affects the smooth functioning of the policy procedure. The
increase in expenditure due to non-adherence of time schedules etc. worsens
the situation. Inadequate expertise and skills available with the personnel
engaged in policy making is another constraint which can be rectified by proper
training and education. Lack of clarity of goals and emphasis on short-term
benefits also act as constraints. Political interference, lack of people's support,
non-involvement of socially enlightened groups is some other constraints.
Moreover faulty policy design, non-existence of policy education, improper

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monitoring and evaluation of policies can also be added to the list of
constraints.
While discussing the nature and problems of policy formulation,
implementation and evaluation, it has to be kept in mind that political activity
influences every stage of policy cycle. At each stage choices have to be made.
The choice activity provides the arena where political groups can make their
influence work. The final choice or outcome can then be either a product of
bargain among several groups or a choice of a dominant group. In both cases,
the final choice should be acceptable to the person that is to the society at
large. A policy has to acquire a degree of legitimacy and credibility. Unless and
until it is acceptable to the people, mobilisation of their support for systematic
implementation becomes a very difficult task. The groups who are affected by it
should not get the feeling that the policy is being forced upon them. In a
democracy, genuine bargain should function and the political institutions
should be such as to allow the expression of disagreements.
Policy formulators also have to mobilize public opinion in favour of
policy choices. Again political parties make a major contribution in this area.
For drastic reforms, this kind of support becomes a must, otherwise, policies
cannot succeed. The stage of determining the implementation machinery also
requires mobilization of people's support. Bureaucracy in India has always had
to face the wrath of the people. The involvement of bureaucracy in the
implementation of programmes is often looked upon with suspicion and
distrust by the people. Bureaucracy in its new role of a change agent has not
yet been accepted by the people. Increasing people's support and participation,
in policy implementation thus becomes a necessity. Political parties have to
seek the support of the target groups in order to make the policies effective.
Thus, for a policy to be viable, its aims and objectives should be formulated in
such a way that people do not hesitate to lend their support. This acceptability
will help in legitimizing the goals of the policy. The instruments chosen to
implement it should be able to command credibility and people's cooperation.
Coercion can never be the solution to policy problems. Legitimacy
and persuasion have to be used to make policies effective. When people are sure
of the legitimacy of government's policies, they willingly support them. Policy

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process requires the support of voluntary associations, worker's cooperatives,
trade unions, women's organizations, human rights groups and various other
social, political and enlightened bodies to make policies achieve their goals.
These are the for a through which diverse opinions can be articulated and
presented to the government. The government must give opportunities for the
expression of such opinions.
1.7 Significance of Public Policy
Policy is a purposive course of action in dealing with a problem or
a matter of concern within a specific time frame. Before going into the question
of importance which is attached to policy formulation, implementation and
monitoring, it would be better to recapitulate the components of public policy.
Policy is purposive and deliberately formulated. Policy must have a purpose or a
goal. It does not emerge at random or by chance. Once a goal is decided the
policy is devised in such a way that it determines the course of action needed to
achieve that goal. A policy is well thought out and is not a series of discrete
decisions. A policy is what is actually done and not what is intended or desired,
a statement of goals does not constitute a policy. Policy also delineates a time
frame in which its goals have to be achieved. Policy follows a defined course of
action viz. formulation, implementation, monitoring and evaluation.
Actually the scope of public policy is determined by the kind of
role that the State adopts for itself in a society. In the classical capitalist
society, State was assigned a limited role and it was expected that the State
would merely act as a regulator of social and economic activity and not its
promoter. With the advent of planned view of development, State began tp be
perceived as an active agent in promoting and shaping societies in its various
activities. This was considered as a great change in the role of a State. Public
policies expanded their scope from merely one of regulation to that of
development. Expansion in scope led to several other consequences like many
more government agencies and institutions came into being in order to
formulate and implement policies. In India, the Planning Commission and its
attendant agencies came into being in order to formulate policies and develop
perspectives that could define the direction which the country would follow.

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 So, the first major goal of public policies in our country has been
in the area of socio-economic development. Wide ranging policies were
formulated in the area of industrial and agricultural development. Many policies
were converted into Statutes like Industrial Development and Regulating Act or
Land Tenancy Act. Others were kept as directives in the various plan
documents. For all policy directions, the Five Year Plans became the major
source. These policies were of two types, one of regulation and the other of
promotion. Laws laid down what could be done or not done by the
entrepreneurs. This could be in the larger area like what goods can be produced
by the public or whether certain goods can be traded only by government
agencies. Laws also specified how State agencies themselves were to provide
goods and services like electricity, transport etc. The State undertook similar
responsibility in the social sphere. Dowry Act, Divorce Act, etc., are examples of
this.
But socio-economic transformation was not the only problem
when India became independent. There were also problems of national integrity,
the external environment was a source of threat and the country had to develop
suitable policies to defend itself. Apart from this, there have been internal
challenges. Regionalism has given rise to fissiparous tendencies that have to be
countered in the long-term perspective These would include not only defence
policies but also similar efforts at decentralisation that create greater national
cohesiveness. Thus, since independence, public policies in India have been
formulated with a view to achieve socio-economic development and maintain
national integrity. These goals have been complex demanding coherent policies.
This has been a difficult task because goals have had to be divided into sectors
and sub-sectors. Many a time by its very nature, policies have been
contradictory. What may be rational for economic development; may not be so
for national Integration. Thus, the need of a strong Centre to cope with external
threats etc. is important but it may go against the principle of decentralisation
which provides for greater national cohesion of a heterogeneous society. This is
the reason why ascertaining of the actual impact of public policy becomes a
necessity.

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 These days policy analysis is acquiring a lot of importance in the
realm of the study of public administration. This trend is observable all over the
world. The success of policy formulation, execution and monitoring ultimately
depends on the success of policy analysis. In India, this trend emerged with the
launching of our Five Year Plans. As the years passed by, one Five Year Plan
was followed by another and disillusionment started setting in. Goals of socio-
economic development could not be achieved. Those who were supposed to
benefit from the development effort began to lose. Attention shifted to the
management and administration in order to find out why the policies were
failing to achieve their objectives. This investigation did not include the
questions of policies being right or wrong.
It took the crises of the 1960s to raise the issue of correctness of
policy. Disenchantment with the development processes followed the two wars
in 1962 and 1965. The International Monetary Fund (IMF) enforced a
devaluation of the rupee in 1966 and a terrible drought ravaged the land during
1966-68. It became evident that the development policies were in trouble. In the
early 1970s another war, drought and the oil crisis gave a jolt to the plan that
had been followed until then. The culmination was the imposition of national
emergency in 1975 to cope with the rising dissatisfaction.
It was the emergence of the turbulent period that l~1d0 the
questioning of the policies that had been followed. It was no more a question of
implementation alone. The argument that began to gain the popular view was
that policy itself was faulty and all the blame could not be put on
administration. The first to pick up this line of reasoning was the discipline of
economics. The economic failures dominated the scene and therefore it was
natural that economists were the first ones to raise questions about the
appropriateness of policy. Students of public administration began to
emphasise that implementation failures could also emanate from inadequacy of
public policy and therefore policy analysis should also be included in the area
of study of public administration. This argument got support from certain
developments in the discipline of public administration. In view of the everyday
experience, it was becoming difficult to sustain the classical concept of
separation of politics and administration. This distinction categorised policy

18
formulation and implementation as two distinct activities. Policy formulation
was regarded as a political activity and policy implementation an administrative
one. But this distinction got increasingly blurred and it was not an easy task to
determine where policy formulation ended and where policy implementation
began. It came to be accepted that both 'were interactive processes and had to
be seen in an integrated way. With this change in view students of public
administration began to devote greater attention to the problems of policy
formulation and influence of policy design on implementation.
1.8. Conclusion
Policy analysis has become an important focus of study. Policy
makers have also shows great interest in it because it ultimately helps in
improving the effectiveness of policy. Many universities and research institutes
are involved in policy analysis. The government provides a lot of funds for
effective policy formulation, implementation, education and evaluation.
1.9. Model Questions
1. Bring out the meaning, characteristics and nature of public policy
2. Explain the scope of public policy
3. Analyze the constraints in Policy Making and Need For an Effective Policy
Process
4. Write an essay on the significance of Public Policy
1.10. Answer for the Questions
For Question Number 1 .. Refer Section 1.1, 1.2, 1.3. and 1.4

Question Number 2 .. Refer Section 1.5

Question Number 3 .. Refer Section 1.6

Question Number 4 .. Refer Section 1.7

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