1. Public Policy Management
Narayan Gopal Malego, Senior Director of Studies
Rajendra Adhikari, Director of Studies

2. We will focus on:
Policy environment/context: policy making in Nepal and ideal model
Basics of Public Policy: Meaning/Definition, Tenets, Types and Importance
Policy Management Process
Problem Identification, selection of tools of action, planning for implementation and communication, M& E
Critical success factors of policy management
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3. Policy Making in Nepal
Constitution of Nepal 2015 restructured Nepal into three level of government – 753 local governments, 7 provincial governments and one federal government having autonomous rights to formulate and implement policies.
The development policy formulation in Nepal are framed under many development theories, promoted by multilateral and bilateral agencies, national interest and international commitments, and geopolitical agreements
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4. Policy Goals – Solving Problems of People
Poverty (Prosperity as Goal) – Economic theory
Inequality (Equality as Goal) – Sociology and Anthropology theory
Violence (Peace as Goal) – Conflict and Justice
Exclusionary Institutions (Inclusion as Goal) – Political Economy and Institutional Economics
Slavery (Liberty as Goal) – innovations in social theory, not only in technology for reform in society and state
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5. An Ideal Model
Public Policymaking in a democracy must fulfill three key functions:
Representation
Implementation
Accountability
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6. An Ideal Model
Representation: Citizens must have a way to make their problems and needs known to government officials, and a way to make demands on officials to use government to address their problems.
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7. An Ideal Model
Implementation: Once public officials pass laws and regulations, there must be systems for putting these policies into practice, or to put it another way, for translating words on paper into human actions.
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8. An Ideal Model
Accountability: There must be mechanisms by which officials are monitored, evaluated, and sanctioned when they have not met their responsibilities to carry out policy.
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9. Key Public Policy Blockages: Representation
Failure to represent all interests in the policy formulation and deliberation stage—or a lack of institutionalized channels for affected groups to articulate their problems, needs, and proposed solutions.
This lack perhaps stems from and also perpetuates a kind of back channel, relationship-based decision making, and forecloses the possibility of orderly, reasoned, rule-based, negotiated policy formulation.
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10. Key Public Policy Blockages: Implementation
Failure to convert formal decisions (such as parliamentary laws, Supreme Court decisions, and regulatory directives) into specific rules and operational procedures that can be implemented by mid and lower-level actors.
This has led to extreme frustration with the political system, and it contributes to the “bureaucratic dominance” and “uncontrolled discretionary behaviour” that many of informants identified.
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11. Key Public Policy Blockages: Accountability
Lack of oversight, monitoring, enforcement and accountability.
This problem means that even when very specific policies or directives are passed, there is little knowledge or information gathering about how a policy is working, and little capacity for self-correction.
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12. Meaning and Defining Policy
Policy : a purposive course of action taken or adopted by those in power in pursuit of certain goals or objectives.
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13. Meaning and Defining Policy
Public policy is a guide to public action that manifests an approach with which the government provides responses to the societal needs, aspirations, growth and welfare.
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14. Meaning and Defining Policy
A futuristic statement of intentions and specific approach to reach a predefined goal.
Public policy is the outcome of struggle in government over who gets what!
Public policy consists of political decisions for implementing programs to achieve societal goals.
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15. Meaning and Defining Policy
Public policy is the sum of government activities, whether acting directly or through agents, as it has an influence on the life of citizens.
A public policy is a deliberate plan of actions of the government to guide decisions and achieve rational outcomes.
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16. There is no commonly accepted definition, but as a working definition:
Public Policy: “course of action or inaction chosen by public authorities to address a given problem or an interrelated set of problems”
Pal, Leslie A., (2010) Beyond Policy Analysis: Public Issue Management in Turbulent Times Fourth Edition (Scarborough, Ont: Nelson Thomson Learning), p.10
What is public policy ?
J.E.Anderson , 1975 :Public policy is a purposive course of action followed by government in dealing with some topic or matter of public concern
D.Easton , 1953 : Public policy is the authoritative allocation of values for the whole society
T.R.Dye , 1978 :Public policy is whatever governments choose to do or not to do
William Jenkins in Policy Analysis: A Political and Organizational Perspective (1978), a policy is
‘a set of interrelated decisions taken by a political actor or group of actors concerning the selection of goals and the means of achieving them within a specified situation where those decisions should, in principle, be within the power of those actors to achieve’.
Policy making a process, and not simply a choice.
C.L.Chochran & E.F.Malone , 1995 : Public policy consists of political decisions for implementing pro-grams to achieve societal goals
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17. Why is Public Policy Important?
Policy supports the efforts of the government to solve problems affecting people in society by making choices
Policy is the means by which the government (“public authorities”):
Sets out a vision and goals for the economy and society
Decides on priorities for action
Defines what is and what is not a problem and choosing which problems to solve
Sets out the role of government to deal with the problems
Making policy means:
Deciding what is and what is not a problem and choosing which problems to solve
Defining the role of government to deal with the problems
Seeking the views of citizens on the problems and proposals to resolve them,
Deciding on the means to solve them
Determining the financial and human resources necessary to resolve the problem
Ensuring that the policies are implemented in a way to bring about results
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18. Why is Public Policy Important?
Chooses the means to solve them
Designs activities, programs and services to deliver on its associated strategic objectives, work-plan, activities, resources and leadership to achieve that choice
Determines how revenues are received and public funds are spent to achieve its goals
Seeks the views of citizens on the problems and proposals to resolve them,
Determines the beneficiaries of policy
Articulates a basis for leadership
Making policy means:
Deciding what is and what is not a problem and choosing which problems to solve
Defining the role of government to deal with the problems
Seeking the views of citizens on the problems and proposals to resolve them,
Deciding on the means to solve them
Determining the financial and human resources necessary to resolve the problem
Ensuring that the policies are implemented in a way to bring about results
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19. Tenets of Good Policy Consistent with the constitution
Compatibility, harmony and synergy
Legal and Legitimate
Promote responsiveness
Global dimension– global perspectives with local priorities
Effective monitoring mechanism
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20. Policy Fronts: Broad Types
1. Macro-economic policies—general and holistic: (fiscal, monetary, finance and investment, commerce, technology, and foreign aid) 2. Governance policies— more or less specified: (foreign relations, general administration and security)
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21. Policy Fronts: Broad Types
3. Sectoral policies—specific fronts:
productive sector (agriculture, manufacturing and services),
the development sector (local development, health, education, information and communications, transport, energy, and water),
the cross cutting sector (environment, labour, land, peace and reconstruction, and social dimension)
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22. Policy Management: Elements
Policy process does not follow the stages or the cycle approach
Right up to the end the frame of the problem may change– different circumstances or better inputs from consideration of tools of action or implementation or evaluation or communication;
But from the start we need to be re/thinking about how we implement and communicate and evaluate;
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23. Policy Management: Elements
Policy management and its processes: Organic vs. linear/cyclical
Iterative, parallel vs. sequential processes
Can be quick but generally not
Consultation at every stage
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24. Policy Management: Elements
“Steps” in development and implementation of public policy do not happen as separate discrete steps.
Rather the whole process is generally iterative and the parts in the process are inter-related and inter-dependent.
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25. Constitution of Nepal largely endorses all these bases.
Bases of public policy
Equity
Efficiency
Welfare
Liberty
Security
Constitution of Nepal largely endorses all these bases.
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26. Where does policy idea come from?
public interest, public choices/concerns/ affairs
public sphere/contestation
common goods (distributive justice) vs. private goods (market mechanism)
national interest
global environment
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27. Constitution provides over- arching bases for the public policy
State’s commitment…
Constitution provides over- arching bases for the public policy
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28. Policy environment/context
Governance system restructured
Policy making / implementing through Federal (1), Provincial (7) and Local (753) Governments
Constitutional values:
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29. Desired Tenets of Policy
Deliberate objectives (development, program, project and service level), goals and desired outcomes
Implementability: Compatible to or able to create structures, systems of enforcement, willingness, social support, practical
Room to reforms: Timely improvements and dynamic adjustments
Made with system approach—demand-interaction-supply
Broad-based participation of public (making and implementation) —process and collaborative exercise
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30. Policy Institutions in Nepal
Political institutions
Market and other non-government actors
Government organs, other public entities
Policy as interaction
Global institutions
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31. Changing policy platform
Where do these institutions operate?
Is there collusion/ conflict of interests?
Political institutions
Market and other non-government actors
Global institutions
Executive and Bureaucracy, other public entities
Policy as interaction
Do they provide space for public contestation?
How do these institutions interact?
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32. Issue of representation
Where do these institutions operate?
Is there collusion/ conflict of interests?
Political institutions
Market and other non-government actors
Global institutions
Executive and Bureaucracy, other public entities
Policy as interaction
Do they provide space for public contestation?
How do these institutions interact?
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33. Policy environment in Nepal
Political Institution/Actors
Interest in policy formulation: populist
Interference – expand span of influence
Transactional attitude
Confidence: disappearance
Competence of policy making
Interest in resource mobilization
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34. Interest in policy formulation but less in execution- paradox
Bureaucracy
Interest in policy formulation but less in execution- paradox
Rent seeking tendency
Adhocism
Performance evaluation-accountability
Absence of holistic approach
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35. See opportunity in weak state
Policy…
Non-government Actors
Self interest
See opportunity in weak state
Influence on policy making but unwilling to policy compliance
Question on fair advice- guided by interest
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36. Follow structure – adherence to template
Policy making in Nepal
Follow structure – adherence to template
Democratic – open to public interest
Wide-spread policy coverage
Policy making competence
Use of evidence
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37. Issues in Policy making in Nepal
Autocratic vs. democratic
Protection of ruler’s interest vs representation of public interest
Policy manipulation – language of policy, use of evidence
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38. Issues in Policy making in Nepal
Origin of policy- whose problem
Political and administrative accountability
Right problem or right frame
Issue of publicness- public contestation
Consultation
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39. Public Policy Process
Public Policy process encompasses a range of activities in a number of different jurisdictions, including local and state governments
Framing the problem
Identification of tools of policy action
Implementing and communicating policy
Monitoring and evaluating
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40. Framing the problem is essential for:
Framing Problems…
Framing the problem is essential for:
Recognizing that a problem is a ‘public problem’ worthy of government attention and action
Deciding what the problem is (or what is not)
Determining what governments can (and should) do (or not)
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41. Framing Problems…
Policies often fail because they do not address the correct problem: “Wrong problem, wrong solution!”
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42. Key Considerations For whom? Actors Evidence Leadership © NASC, 2018

43. Who agree with the way the government frames the problem?
For Whom it is a Problem?
Do all citizens of Nepal see the public policy problem in the same way?
Who agree with the way the government frames the problem?
Are there others who disagree?
If so, why?
Techniques of stakeholder analysis are important
A stakeholder is any individual or group that affects/and or is affected by a policy. Stakeholders may be identified by name and title, sampled with little error, prioritized, and queried indirectly or by simulation for their perspectives of a problem.
Internal versus external
Formal position
Reputation for influence
Functional role
International versus domestic
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44. For Whom it is a Problem? What concerns of citizens are relevant?
Whose behavior or condition is directly affected?
Who are the possible beneficiaries of solutions to the problem?
Who may partner with the government to take action to solve it?
What stake does each (affected groups, target beneficiaries, policy partners) have in the problem?
How does each define the problem?
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45. Framing Problems: Actors
Framing involves both responsibilities of government institutions and perspectives of non-governmental actors
Non-governmental actors: private sector, civil society organizations, individuals (citizens, constituents, taxpayers, clients) bring particular perspective and contribute to framing the public problem
Media coverage
Political and Legislative representation
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46. Framing Problems: Actors
Government agencies have institutional perspectives within their executive responsibilities for dealing with public problems:
Central agencies
Line ministries
Service agencies
Academic/research institutions and international intergovernmental organizations
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47. Exercise/Group Work # 1
Identify the potential "Policy" area/issue that you prefer to work further.
Recognizing that a problem is a ‘public problem’ worthy of government attention and action
Deciding what the problem is (or what is not)
Determining what governments can (and should) do (or not)
Consider that: Policies often fail because they do not address the correct problem:
Keep in mind that “Wrong problem, wrong solution!”
Time 15 mins.
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48. Exercise/Group Work # 2
Now in your group identify a policy problems that you consider the government should resolve as priority:
Why do the governments need now to address the problem through policy?
What obstacles are there to resolving the issues?
Who is affected by the issues?
Where would you find information on the challenges?
Report back to the plenary on the issues you have identified
Time 15 mins.
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49. Considerations
In the assignment, in focusing on a problem, your group should consider: 1. What is the current government position on the problem? 2. Why does the current position not work to solve the problem? 3. What causes the problem? What has changed to cause it or to make it worse? 4. How severe is the problem? How do we know? 5. What do the citizens of Nepal want to achieve? Do different groups of citizens have different objectives? How do we know? 6. Who within government, or outside with assistance, has the responsibility and the means to address the problem? 7. What types of actions (“tools”) can the government (or others) use to resolve the problem?
Note: keep problem simple (one problem is easier to solve than many)
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50. Once you know what your problem is, what is next step to solve it?
Knowing and selecting tools
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51. How do you select tools?
Depends on problem
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52. Framing of problem leads to proposal on how to solve the problem
Policy Action: Tools
Framing of problem leads to proposal on how to solve the problem
Government has at its disposal a broad range of policy actions
Policy action tools are- the means whereby policy objectives are accomplished through structured public actions
Introduction to different Action evaluation process
Recommendation on policy actions
Identification of problem solving tools
Evaluating tools
Selection of tools
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53. Policy Action: Tools
How should the government choose the way that it acts to solve the problem and change the behaviour of those causing the problem?
It depends on the nature of the problem and
It depends on the way the government wants to and is able to resolve it
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54. Choosing Policy Action
Critical question: must the public authorities act on the identified problem?
Does the state has the responsibility for solving the public problem?
Does the state has the resources to act on it?
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55. Choosing Policy Action
Does the state acting on the problem create a precedent?
Or is there a precedent that the state has already chosen not to act?
If the state does not act, will the problem correct itself?
Are present state actions sufficient to solve the problem?
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56. Tools of Public Policy Actions
Governments have variety of tools available to effect change
Legislation
Duties and tariffs
Regulation
User fees and charges
Voluntary codes of behaviour
Licensing
Income (corporate and personal) tax
Sales tax
Salamon, LM & Elliot, OV. (2002). The Tools of Government: A Guide to The New Governance, London: Oxford University Press.
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57. Tools of Public Policy Actions…
Direct transfers to individuals, organizations, institutions, governments
Loans
Government Insurance
Contracting and Partnering
Conditional transfers: grants, contributions
Public education and information
Advertising
Vouchers
Capital expenditures
Salamon, LM & Elliot, OV. (2002). The Tools of Government: A Guide to The New Governance, London: Oxford University Press.
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58. Tools of Public Action: Choice
Choice of tool by public authorities: means to achieve objective and bring about change in behaviour, condition, service
Choice of tool is not random
Technical vs political decisions
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59. Tools of Public Action: Choice
First criterion is achieving outcome solving the identified public policy problem (criterion of effectiveness)
Not all instruments necessary or equally effective
Choice depends on assessing how the action in proposed tool brings about the change in behaviour
Choice is fundamentally about deciding how the state chooses to act
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60. Choice of Tools: Factors
Choice takes into account balance of factors which could include:
Maximum impact
Manageability
Greatest uniformity
Legality and Constitutionality
Least coercion
Most efficiency
Social legitimacy
Least spending
Greatest involvement of actors
Least harm
Greatest speed
Differential impacts (sectors, regions, gender, population groups)
Lowest cost
Highest visibility
Working within available resources
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61. Tools of Action: Appropriate Mix
One tool of action alone is not sufficient to address the problem
Appropriate mix of tools selected that so that they resolve all aspects of the problem and achieve the results of the proposed policy
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62. 5 Factors for Tools Section
Effectiveness
Efficiency
Equity
Manageability
Legitimacy
Salamon (2002)
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63. Degree of coerciveness
Key Tools Dimensions
Degree of coerciveness
Directness
Automaticity
Visibility
Salamon (2002)
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64. Report back to the plenary as you identified the tools
Exercise/Group Work # 3
Now in your group identify a tools of action for solving the policy problems that you identified:
why the proposed tool will work to resolve the policy problem
why you have chosen it rather than other tools
how it will bring about results in a change of behavior by working on citizens
what criteria you would put forward to justify its use
Report back to the plenary as you identified the tools
Time 15 mins.
Looking to the present and to the future
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65. Concluding remark
Public Policies guide the actions of the government for creating welfare to the people par their expectations at large.
Public Policy framing cannot be a linear process according to the differing nature of the policies and their core concern.
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66. Thanks for your cooperation!
Floor open!
Complements and remarks welcome!
Thanks for your cooperation!
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