Actors in the Public Policy Process

Public policy is not created or implemented by a single institution or individual. Instead, it is the result of interactions among multiple actors who influence decisions at different stages of the policy process. These actors operate within political, administrative, social, and economic environments and play distinct but interrelated roles. Understanding the actors in the public policy process helps explain how policies are shaped, whose interests are prioritized, and why some policies succeed while others fail. Broadly, policy actors can be categorized into official (state) actors and unofficial (non-state) actors, both of which are essential to democratic and effective policymaking.

·      Legislature (Parliament)

The legislature, or parliament, is a central actor in the public policy process, primarily responsible for law-making, representation, and oversight. It plays a key role in policy adoption by debating, amending, and approving policy proposals and transforming them into laws. Through parliamentary committees, hearings, and question sessions, the legislature scrutinizes executive actions, examines policy implications, and ensures accountability. Members of parliament represent public interests by raising citizens’ concerns and influencing agenda setting. Additionally, the legislature approves budgets and monitors policy implementation, making it a vital institution for democratic legitimacy, transparency, and effective governance in the public policy process.

·      Executive (Government and Political Leadership)

The executive branch, comprising the government and political leadership such as the prime minister, president, and council of ministers, is a key actor in the public policy process responsible for policy initiation, coordination, and execution. The executive sets policy priorities, proposes legislation, and makes crucial decisions based on political ideology, electoral commitments, and national needs. It plays a leading role in agenda setting, policy formulation, and adoption, often approving policies through cabinet decisions. Additionally, the executive oversees implementation by directing ministries and agencies, allocating resources, and responding to emerging challenges. Through leadership and coordination, the executive ensures continuity, coherence, and effectiveness in public policymaking.

·      Bureaucracy (Civil Service and Public Administration)

The bureaucracy, including the civil service and public administration, is a crucial actor in the public policy process, particularly in policy formulation, implementation, and evaluation. Bureaucrats provide technical expertise, policy advice, and administrative support to political leaders by collecting data, drafting policy documents, and analyzing policy options. They are primarily responsible for translating laws and policies into concrete programs, rules, and services delivered to the public. Additionally, the bureaucracy monitors policy performance and provides feedback for policy improvement. Due to their institutional knowledge and continuity, civil servants significantly influence policy outcomes and ensure stability, efficiency, and effectiveness in public governance.

·      Judiciary

The judiciary is an important actor in the public policy process through its role in interpreting laws, ensuring constitutional compliance, and protecting fundamental rights. Courts review the legality and constitutionality of public policies and government actions, and they have the authority to uphold, modify, or invalidate policies that violate legal or constitutional provisions. Judicial decisions often influence policy formulation and implementation by setting legal precedents and guiding administrative behavior. Through judicial review and public interest litigation, the judiciary promotes rule of law, accountability, and justice, thereby shaping the direction and quality of public policy.

·      Political Parties

Political parties are key actors in the public policy process, as they articulate ideologies, aggregate interests, and influence policy agendas. They shape public priorities through their manifestos, campaign promises, and parliamentary presence, and once in power, they guide policy formulation, adoption, and implementation according to their political ideology. Political parties also play a role in negotiating and building coalitions, especially in multiparty systems, which affects policy decisions and compromises. By mobilizing public opinion, representing societal groups, and providing leadership, political parties ensure that policies reflect the political will and democratic preferences of citizens.

·      Interest Groups and Pressure Groups

Interest groups and pressure groups are influential non-state actors in the public policy process, primarily engaged in advocacy, lobbying, and influencing policy decisions to reflect their specific interests or the needs of particular social groups. They provide information, research, and policy recommendations to legislators, bureaucrats, and political leaders, and often organize campaigns, petitions, or protests to draw attention to their concerns. For example, labor unions in Nepal influence labor laws and workers’ rights, while environmental organizations advocate for sustainable development policies. By representing specific constituencies and mobilizing public support, interest and pressure groups help ensure that diverse perspectives are considered in policymaking and that policies address societal needs more effectively.

·      Civil Society Organizations (CSOs) and NGOs

Civil society organizations (CSOs) and non-governmental organizations (NGOs) are important non-state actors that contribute to agenda setting, policy advocacy, implementation, and monitoring. They raise awareness of social issues, conduct research, provide technical expertise, and engage communities to ensure that policy decisions reflect the needs of marginalized and vulnerable populations. CSOs and NGOs often collaborate with governments to implement programs and evaluate policy effectiveness. For example, in Nepal, NGOs working in health, education, and disaster management assist in policy execution and provide feedback for improvements. By promoting participation, accountability, and transparency, CSOs and NGOs strengthen the inclusiveness and effectiveness of the public policy process.

·      Media

The media is a powerful actor in the public policy process, primarily involved in agenda setting, public awareness, and accountability. By reporting social issues, exposing policy failures, and highlighting public concerns, the media shapes what problems receive government attention and influences the priorities of policymakers. It also provides a platform for debate, discussion, and dissemination of policy information to citizens, enabling informed public participation. For example, in Nepal, investigative journalism on corruption, environmental degradation, and social injustice has prompted government action and policy reforms. Through its roles in information dissemination, scrutiny, and advocacy, the media strengthens transparency, citizen engagement, and democratic governance in the policy process.

·      Citizens and the Public

Citizens and the public are fundamental actors in the public policy process, as they influence agenda setting, policy formulation, and accountability through participation, feedback, and civic engagement. Citizens express their needs and preferences through voting, public consultations, petitions, protests, and community involvement, ensuring that policies reflect societal priorities. In Nepal, local governments encourage citizen participation in planning and budgeting processes, allowing communities to voice concerns and contribute to policy decisions. By actively engaging in policymaking, monitoring implementation, and holding authorities accountable, citizens enhance democratic governance, transparency, and the effectiveness of public policies.

·      International Actors

International actors, including foreign governments, multilateral organizations, donor agencies, and international NGOs, play a significant role in the public policy process by providing funding, technical assistance, policy guidance, and global best practices. They influence agenda setting, policy formulation, and implementation, especially in developing countries where external support can shape priorities and programs. For example, in Nepal, organizations such as the United Nations, World Bank, and Asian Development Bank have contributed to policies on disaster risk reduction, health, education, and climate change by offering financial resources, research, and technical expertise. By promoting innovation, capacity building, and adherence to international standards, international actors help governments design effective and sustainable policies while also raising concerns about policy alignment with local needs and autonomy.

Public Policy Process