Problems studied in policy analysis usually involve large and diverse sets of actors. Actors have their own problem perceptions, which can differ widely. Actors often have different frames (frames of mind) that lead them to see different things, make different interpretations of the way things are, and construct discrepant perceptions on what the problem is. In policy development, it is the task of the policy analyst to define the problem that is going to be the basis for the policy to be developed. Surprisingly, the policy analysis literature provides little guidance on how to define policy problems. The problem definition task is considered to be an art form, a creative process and an intuitive step, which gets little attention. This can easily lead to inadequate problem definitions because (1) the `wrong' problem is addressed in the sense that the policy proposed is not aimed at solving the relevant problem., (2) the actors that are needed for a successful implementation of the proposed policy are unwilling to cooperate because the policy proposed does not address the issue that they view as the problem. What is needed, from both a theoretical and a practical point of view, is guidance on how to define the problem in multi-actor settings where the policy problem is ill-defined. This paper explores the possible value of a systems approach to provide this guidance. The policy field of traffic and transport is used as the area of application. (A)
Abstract