Second Edition PUBLIC POLICY Art and Craft of Policy Analysis R.K. Sapru
Public Policy Art and Craft of Policy Analysis Second Edition R.K. Sapru Formerly Professor and Chairman Department of Public Administration Panjab University, Chandigarh New Delhi-110001 2011
Public Policy: Art and Craft of Policy Analysis, Second Edition R.K. Sapru 2011 by PHI Learning Private Limited, New Delhi. All rights reserved. No part of this book may be reproduced in any form, by mimeograph or any other means, without permission in writing from the publisher. ISBN-978-81-203-4438-9 The export rights of this book are vested solely with the publisher. Second Printing (Second Edition)......... November, 2011 Published by Asoke K. Ghosh, PHI Learning Private Limited, M-97, Connaught Circus, New Delhi-110001 and Printed by Raj Press, New Delhi-110012.
To The Sweet Memory of My Mother Shrimati Lakshmi Devi and Father Shri Dewan Chand
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Contents Preface... xxi Preface to the First Edition... xxiii Chapter 1: Policy Sciences: Perspectives on Public Policy... 1 19 INTRODUCTION...1 LASSWELL S VISION OF POLICY SCIENCES...1 Multidisciplinary Perspective...2 Contextual and Problem-Oriented Perspective...3 Explicitly Normative Perspective...5 POLICY SCIENCES: NATURE, SCOPE AND UTILITY...5 Concept and Meaning...5 Nature...7 Basic Assumptions in Policy Sciences...9 Scope Expansion...10 POLICY SCIENCES AND EMERGING CRISES...12 Agenda for the Policy Sciences...12 CRITICISM OF POLICY SCIENCES APPROACH AND ALTERNATIVES... 15 NEW DIRECTIONS AND PERSPECTIVE...17 Continuity of Relevance...17 Focus on Policy Enquiry...18 Democratization of Policy Sciences...19 Conclusion...19 Chapter 2: Public Policy: Nature, Scope and Significance... 20 41 Introduction...20 CONCEPTS OF PUBLIC AND POLICY...21 The Idea of Public...22 The Idea of Policy...23 vii
viii z Contents NATURE OF PUBLIC POLICy...25 Distinction between Public Policy and Related Concepts...27 Policy Sciences and Comparative Public Policy...31 Policy Sciences...31 Comparative Public Policy...31 SCOPE OF PUBLIC POLICY AND POLICY ANALYSIS...31 TYPOLOGIES OF POLICY ISSUES...32 Distributive Policies...33 Redistributive Policies...33 Regulatory Policies...33 Constituent Policy Issues...34 Conflict Policy Issues...34 Bargaining Policy Issues...34 PUBLIC ADMINISTRATION AND POLICY OUTCOMES...35 SIGNIFICANCE AND ROLE OF PUBLIC POLICY...36 Serving the Society...37 A Device for Improving Economic-Social System...37 A Mechanism for Shaping Future...38 WHY STUDY PUBLIC POLICY?...39 For Developing the Study of Policy Sciences...39 For Political and Administrative Reasons...40 For Promoting Policy Education Values...40 Conclusion...41 Chapter 3: Policy Analysis: Contextual Perspectives...42 55 INTRODUCTION...42 Origin of Policy Analysis...43 DEFINITION AND IMPLICATIONS OF POLICY ANALYSIS...44 Concerns of Policy Analysts...46 TYPES OF POLICY ANALYSIS...46 POLICY ANALYSIS PROCESS AND STAGES...47 Stages in the Policy Analysis...50 CRITICISM OF THE RATIONAL POLICY ANALYSIS...53 No Substitute for Politics...53 Democratic Society is Undermined...54 Weak Involvement in Policy Implementation...54 Weak in Resolving Social Values...54 Difficult to Predict the Impact...55 Conclusion...55 Chapter 4: Policy Approaches and Models...56 79 Introduction...56 LASSWELL S POLICY APPROACH...56
Contents z ix EASTON S MODEL OF POLICY ANALYSIS...57 Limitations of Systems Approach in Policy Analysis...59 LINDBLOM S INCREMENTAL MODEL...60 Introduction...60 Lindblom s Two Models of Decision-making...61 Characteristics of Incremental Model...62 Analytical Incrementalism...62 Partisan Mutual Adjustment...64 Critical Evaluation...64 DROR S NORMATIVE-OPTIMUM MODEL OF POLICY-MAKING...65 ETZIONI S MIXED SCANNING APPROACH...68 Other Policy Process Approaches...70 Political Policy Process Approach...70 Mixed Approach by Hogwood and Gunn...71 Anderson s Framework of Policy Process...71 PUBLIC CHOICE MODEL OF POLICY-MAKING...72 Introduction...72 Tenets of Pubic Choice...73 Downs Contribution...73 Tullock s Contribution...74 Niskanen s Contribution...75 Explanation and Implications of the Theory...75 Criticism and Conclusion...76 Conclusion...78 Chapter 5: Power Approaches to Policy-Making...80 87 INTRODUCTION...80 Elite Theory of The Policy Process...80 Propositions of the Elitism...81 Group and Groupthink Theories for Policy-making...84 Focus in Group Theory...84 Focus in Groupthink Theory...85 Criticism of the Groupthink Theory...86 Chapter 6: Institutional Approaches to Policy Analysis...88 96 INTRODUCTION...88 SOCIOLOGICAL INSTITUTIONALISM...89 ECONOMIC INSTITUTIONALISM...91 Transaction Cost Economics...91 Agency Theory...92 POLITICAL INSTITUTIONALISM...93 IMPACT OF PAST POLICIES...95 Conclusion...96
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