Policy Process and Policy
Analysis
Prof. Heru Subiyantoro, Ph.D.
Sekretaris Ditjen. Perimbangan Keuangan – Departemen Keuangan
E-mail: [email protected]
[email protected]
Handouts kuliah
Program Pasca Sarjana
Magister Perencanaan & Kebijakan Publik
Fakultas Ekonomi - Universitas Indonesia
Jakarta, Juni 2008
Reference:
Birkland, Thomas A. (2001): An Introduction to the Policy
Process: Theories, Concepts, and Models of Public Policy
Making
Lester, James P. and Joseph Steward Jr. (2000, 2nd. Ed):
Public Policy: An Evolutionary Approach
Weimer, David L. and Aidan R Vining (2005, 4th.ed):
Policy Analysis: Concept and Practice
Table 2.1 Policy Analysis in Perspective
Paradigms
Major Objective
“Client”
Common Style
Time Constraints
General Weakness
Academic Social
Science Research
Construct theories
for understanding
society
“Truth,” as defined
by the disciplines,
other scholars
Rigorous methods
for constructing
and testing
theories; usually
retrospective
Rarely external
time constraints
Often irrelevant to
information needs
of decision makers
Policy Research
Predict impacts of
changes in
variables that can
be altered by
public policy
Actors in the
policy arena; the
related disciplines
Application of
formal
methodology to
policy-relevant
questions;
prediction of
consequences
Sometimes
deadline pressure,
perhaps mitigated
by issue recurrence
Difficulty in
translating findings
into govermnent
action
,
Classical Planning
Defining and
achieving desirable
future state of
society
“Public interest,”
as professionally
defined
Established rules
and professional
norms;
specification of
goals and
objectives
Little immediate
time pressure
because deals with
long-term future
Wishful thinking
in plans when
political processes
ignored
Public
Administration
Efficient execution
of programs
established by
political processes
“Public interest,”
as embodied in
mandated program
Managerial and
legal
Time pressure tied
to routine decision
making such as
budget cycles
Exclusion of
alternatives
external to
program
Journalism
Focusing public
attention on
societal problems
General public
Descriptive
Strong deadline
pressure strike
while issue is
topical
Lack of analytical
depth and balance
Policy Analysis
Systematic
comparison and
evaluation of
alternatives
available to public
actors for solving
social problems
Specific person or
institution as
decision maker
Synthesis of
existing research
and theory to
predict
consequences of
alternative policies
Strong deadline
pressure—
completion of
analysis usually
tied to specific
decision
Myopia resulting
from client
orientation and
time pressure
Table 3.1 Three Views on the Appropriate Role of the Policy Analyst
Fundamental Values
Analytical
Integrity
Responsibility
to Clients
Adherence to One’s
Conception of Good
Objective
Technician
Let analysis speak for
itself. Primary focus should be
predicting consequences of
alternative policies,
Clients are necessary
evils; their political fortunes should be secondary
considerations. Keep distance from clients;
select institutional clients whenever possible.
Relevant values should
be identified, but trade- offs
among them should be left
to clients. Objective advice
promotes good in the long
run.
Client’s
Advocate
Analysis rarely produces
definitive conclusions, Take
advantage of ambiguity to
advance clients’ positions.
Clients provide analysts with legitimacy. Loyalty should
be given in return for access to privileged information and
to political
processes.
Select clients with
compatible value systems;
use long-term relationships
to change clients’
conceptions of good.
Issue Advocate
Analysis rarely produces
definitive conclusions,
Emphasize ambiguity
and exclude values when analysis
does not support advocacy,
Clients provide an opportunity for advocacy. Select them
opportunistically; change clients to further personal policy
agenda.
Analysis should be an
instrument for progress
toward one’s conception o
the good society.
Figure 31 Alternative Responses to Value Conflicts
The Nature of Public Policy
Lester, James P.(2000, 2nd Edition): Public Policy: an evolunitonary approach
• Every day, national and local newspaper
carry stories that raise important public
policies
• As society becomes increasingly
interdependent and mobile (due to
changes in transportation and
communication), people will need to be
even more knowledgeable about public
policy issues
What is Public Policy and Policy
Analysis?
• Public Policy:
– Thomas R. Dye: “what government do, why they do it, and
what difference it makes”
– Harold Lasswell: “a projected program of goals, values, and
practices”
– David Easton: “the impact of government activity”
– Austin Ranney: “a selected line of action or a declaration of
intent”
– James Anderson: “a purposive course of action followed by
an actor or set of actors in dealing with a problem or matter
of concern”
– The special characteristic of public policy: it is formulated,
implemented, and evaluated by authorities in a political
system
– Public policies are always subject to change on the basis of
new (or better) information about their effects
What is Public Policy and Policy
Analysis?
• Policy Analysis:
– Thomas R. Dye: the description and explanation
of the causes and consequences of government
activity (the primary concern are explanation and
prescription)
– Grover Starling: an interdisciplinary effort to
facilitate the reaching of sound policy decision
– Garry Brewer and Peter DeLeon: an attempt to
provide suggestion to decision makers
– Clearly, the difference of opinion exists about the
purposes of policy analysis, ranging from scientific
to the practical
What is Policy Cycle?
• Public Policymaking is often viewed as a
“conveyor belt”, in which issues are first
recognized:
– A problem
– Alternative courses of action are considered
– Evaluated
– Changed
– Terminated
The Policy Cycle
A PROBLEM FOR
GOVERNMENT
Stage 6: Policy
Termination
Stage 5: Policy
Change
Stage 4: Policy
Evaluation
Stage 1: Agenda
Setting
Stage 2: Policy
Formulation
Stage 3: Policy
Implementation
Approaches to Policy Analysis
1. The process approach (e.g. agenda setting, policy
implementation)
2. The substantive approach (e.g. environmental policy)
3. The logical-positivist approach (behavioral approach or
scientific approach)
4. The econometric approach (public choice approach or
the political economic approach)
5. The phenomenological (or naturalistic or post-positivist
approach)
6. The participatory approach
7. The normative or prescriptive approach
8. The ideological approach
9. The historical approach
Dubnick and Bardes’s Approaches to Policy Analysis
Type of Policy
Analyst
Public Policy
Problem
Motivation
Approach
Relevant Training
1. Scientist
Theoretic
Search for theory,
regularities, “truth”
Scientific method,
objectivity, pure
analytics
Basic research
methods, canon of
social science
research
2. Professional
Design
Improvement of Policy
and Policymaking
Utilization of
knowledge,
strategic
Strategic; benefitcost analysis;
queuing,
simulation,
decision analysis
3. Political
Value
maximization
Advocacy of policy
positions
Rhetoric
Gathering “useful”
evidence;
“effective”
presentation
4. Administrative
Application
Effective and efficient
policy implementation
Strategic,
managerial
Strategic; same as
professional with
stress on those
talents useful in
implementation
5. Personal
Contention
Concern for policy
impact on life
Mixed
Use of many
models and
techniques from
other approaches;
less sophisticated
On Becoming a Better Policy Scientist
(Y. Dror; “On Becoming a Better Policy Scientist,” Policy Study Review 4 (August
1984), pp. 13-21)
1.
2.
3.
4.
5.
6.
Gain historical and comparative perspective
Know policymaking realities
Study your own society in depth
Take up grand and diverse policy issues
Move into metapolicymaking
Build up an appropriate philosophy of
knowledge and action
7. Broaden one’s methodology and experience
8. Multiply your disciplinary bases
9. Be careful about professional ethics
On Becoming a Better Policy Scientist
(Y. Dror; “On Becoming a Better Policy Scientist,” Policy Study Review 4 (August
1984), pp. 13-21)
1.
2.
3.
4.
5.
6.
Gain historical and comparative perspective
Know policymaking realities
Study your own society in depth
Take up grand and diverse policy issues
Move into metapolicymaking
Build up an appropriate philosophy of
knowledge and action
7. Broaden one’s methodology and experience
8. Multiply your disciplinary bases
9. Be careful about professional ethics
Model Administrasi Kebijakan Publik Heru Subiyantoro
Indicator




APBN
Neraca moneter
Neraca perdagangan
Debt outstanding
 Laporan-laporan
Kebijakan
(Policy)
Tujuan Akhir
(Final Goals)
Demand side (financial
sector):
Fiskal
Moneter
Trade
Debt management
Supply side (real sector):
SDA
SDM
Pertanahan
Distribusi
dlsb.
Non-ekonomi
 Laporan-laporan
Tujuan Antara
(Intermediate
Goals)
Hukum
Politik
Hankam
dlsb.
Trilogi Pembangunan:
Pemerataan
Sifatnya kualitatif
Pertumbuhan
Lihat pertumbuhan
PDB, PDRB
Stabilitas
Lihat
perkembangan
inflasi (IHK)
Masyarakat Adil dan Makmur
(lihat pernyataan dalam UUD
1945; GBHN; Repelita dlsb.)