The Policy Cycle

It can be useful to consider the framework of a policy cycle to guide policymaking. The policy cycle asserts that policy goes through a series of stages (see Figure 4). The cyclical nature suggests that the process goes around and around until the policy is perfected, adapted or indeed abolished.

Some argue that the policy cycle is not reflective of reality, that policy processes are messy and not linear, stages overlap, implementation is often rushed and evaluation is rare, done too late, or paid little attention. Often policymakers are left scrambling to “retro-fit” policy and programmes to political commitments or announcements of a particular policy solution well before the evidence base is collected and examined. This can be exacerbated by the fact that migration is a politically charged policy issue for governments. The “need to act” is often driven by public debate about the need to solve a specific problem, rather than by the goal of producing a well-considered suite of policy options.

It is likely that in the migration policy context, policymakers will encounter both policymaking experiences. Sometimes there will be time and a commitment to do things thoroughly and well, in which case the policy cycle is a helpful guide. This would more often happen in contexts where the important groundwork and investment has been made to produce a migration strategy, as described above, and policy efforts are proactive and forward-looking based on an accompanying plan of action (see Migration strategies, in this chapter). Other times, policymakers will simply rely on wits, hopefully aided by a deep understanding of the context achieved through attention to relevant evidence over time. The cycle can still be a helpful reference in those situations.

The ideal policy process contains seven stages: (1) issue identification and definition, (2) data, research and analysis, (3) policy formulation, (4) policy consultation, (5) policy adoption, (6) policy implementation, and (7) policy monitoring and evaluation. As indicated in Figure 4 by the blue and orange circles, data, research and analysis and consultation with stakeholders are critical as both specific stages of the cycle but also throughout the cycle to strengthen policy effectiveness, adoption and impact. For example, consultation with relevant stakeholders or research may come before or during (1) issue identification and indeed be the trigger for new policymaking; similarly, data are needed during (6) implementation to support quality (7) evaluation.

Quick overview of the seven policy stages

The policy stages are explored in more depth in the sections and chapters as noted here. In summary:

1. Issue identification and definition is the first stage and involves problem or objective identification and diagnosis. Read more in Stage 1: Issue identification and definition

2. Data, research and analysis is the evidence-building phase that informs and shapes policy thinking; it draws on national data, global and regional practice and reaches out to international communities of practice for ideas. Further details in Stage 2: Data, research and analysis for policymaking.

3. Policy formulation is the process of examining evidence and tabling policy options based on agreed criteria. Options are considered to determine the best fit for the problem or opportunity. Coherence with other policies, feasibility, and compliance with international obligations are also considered. Focus is then given to the practical aspects of policy design including the choices of policy instruments. The feasibility of implementing policy options are considered, as well as how a policy will be monitored and evaluated. Further details in Stage 3: Policy formulation.

4. Consultation with stakeholders occurs throughout the policy cycle, but a structured and formalized approach to stakeholder engagement through a consultations stage is desirable, particular for significant policy issues. Once policy options are formulated, testing the ideas with those directly and indirectly impacted and with those with specific expertise enriches the policymaking experience and sharpens its effectiveness. Harmonizing conflicting and diverse interests is often part of the challenge, however, and sometimes the consultation phase raises sufficient doubts about the options that another round of policy formulation is warranted. Further details in Stage 4: Consultation.

5. Policy adoption refers to the process of agreement and passage of the selected policy by relevant institutions of government in order to put it into effect. There are many ways that adoption can occur, depending on the nature of the policy and the national policymaking framework. Depending on its scope, in many jurisdictions the policy enters the political arena. Ease of adoption will depend in part on the extent to which stakeholders been engaged, have contributed and are aligned. Media often play a role at this stage and how policy changes are communicated becomes crucial; a well-developed evidence base and fit-for-purpose explanatory documentation setting out the policy rationale are needed. Further details in Stage 5: Policy adoption.

6. Policy implementation can be a considerable exercise, involving many actors and taking time. Robust implementation plans that clearly articulate roles and responsibilities and how new policies will be delivered, on time and on budget, are critical. For accountability, a governance structure may be needed to monitor progress. Further details in Stage 6: Policy implementation.

7. Policy monitoring and evaluation is the final stage of the classical policy cycle, the purpose of which is to examine and establish whether a policy meets its objectives and whether it should be extended, adjusted or discontinued. Monitoring serves to track a policy’s progress towards reaching its intended results and helps decision makers to anticipate problems and to proactively make appropriate adjustments. Evaluation is an assessment of the level of achievement of both expected and unexpected results that is conducted as systematically and impartially as possible. It should provide evidence-based findings and recommendations to inform future policymaking. Further details in Stage 7: Policy monitoring and evaluation.

• The policy cycle conceptualizes important processes and approaches to policymaking. Policymaking may not be so rational, linear or feel particularly orderly but the principles that underpin the processes of issue identification, data, research and analysis, consultations, policy formulation, adoption, implementation, and policy monitoring and evaluation are critical to policy success