- Develop clear, straightforward issue/problem statements that describe the issue that needs to be addressed.
- Diagnose the issue:
- Clarify how the issue/problem might prevent the achievement of broader national objectives;
- Consider whether it is possible to establish, without further in-depth analysis, if policy action is even needed (perhaps it is actually an implementation or communication issue);
- Identify gaps in understanding to inform next steps: for example, what research or data are needed to better understand the issue and potential options;
- Map stakeholders and consider how and when they will be engaged. If the policy is significant or wide reaching, targeted consultative processes for whole-of-government and whole-of-society could be established to accompany the policy process right from the start. Where stakeholders brought the issue to the attention of government or the public they should be engaged at this early stage to ensure the problem is clearly unpacked.
The usual starting point for policymaking is issue identification and its diagnosis (see the Quick overview of the seven policy stages). This stage is often also referred to as problem articulation or identification. Problems also include opportunities that should not be missed; for example, a State’s positive economic growth might require a policy response to facilitate the entry of skilled workers to support infrastructure development.
New issues for policy consideration may be identified proactively, for example, as part of an overarching migration strategy or further to an evaluation, such as a recently completed Migration Profile or a Migration Governance Indicators assessment. Sometimes, issues arise more spontaneously, as a result of a crisis, a new bilateral agreement, or in the context of national economic policy. In these instances, issues may arise dramatically, be more politically influenced, and require a quick reactive response. How an issue is identified can impact the policymaking experience, particularly in terms of how much time there is to apply the principles and comprehensiveness offered by the policy cycle model. The origins of issues are many. Figure 5 lists common drivers for new policy.
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Figure 1. Examples of drivers triggering development of new policy
Policy Approaches
Steps in the issue identification and definition stage
It is important to re-examine whether the findings from this stage continue to hold true as policymaking proceeds. The subsequent stages of the cycle, including data, research and analysis, policy formulation and consultation provide further opportunities to re-test assumptions, sharpen understandings and ensure the issue has been appropriately scoped and defined.
Examples of issue identification and definition
Example
Proactive effort
National migration strategies are a good example of helpfully mapping issues through proactive policymaking (See National migration strategies: A framework for policy, above). The Migration Strategy of Georgia 2016-2020 is comprehensive in its identification of issues in key areas of migration policy, including the following sampling taken directly from the strategy:
Facilitation of regular migration
“The developed labour market and the possibility to attract necessary human resources is one of the important aspects for creating an open and attractive environment for businesses and investments. With the increased opportunities for legal emigration, the citizens of Georgia will have a greater access to the relatively high-paid employment opportunities in countries with developed economies; while the growth of the Georgian economy will increase demand for both high- and low-skilled human resources within the country.” (State Commission on Migration Issues, 2016: 12).
Fight against irregular migration
“The statistics on trafficking in recent years show that Georgia is a country of origin, destination, transit and exploitation of victims of trafficking. Based on identified cases, the main form of exploitation in Georgia is sexual exploitation of women; there are also cases of labour exploitation of Georgian citizens both domestically and abroad” (State Commission on Migration Issues, 2016: 20).
Development of the asylum system
“According to the findings of the study on integration needs … refugees and humanitarian status holders face barriers in the recognition of their educational qualifications acquired abroad, learning the Georgian language, and the inclusion into professional retraining programmes. All the above factors affect the employment opportunities of the refugees and humanitarian status holders in Georgia, which is being one of the most important factors in their successful integration” (State Commission on Migration Issues, 2016: 25).
Facilitation of the integration of immigrants and reintegration of returned migrants
“Considering the demographic, social, and economic situation in Georgia and the migration forecasts for the coming years, … one of the priorities for the country is to encourage the return of the citizens of Georgia residing abroad and facilitate their reintegration. Currently, most of the reintegration programmes in Georgia are targeting only those returnees who have been staying abroad illegally. However, the return and reintegration of the citizens of Georgia legally residing abroad for educational purposes is equally important for the development of the country” (State Commission on Migration Issues, 2016: 30–31).
Migration and development
“Brain drain hinders development of the country. … However, channelling the knowledge and qualification acquired by emigrants abroad towards the development of the home country and the effective use of this potential may become a significant driver of economic growth” (State Commission on Migration Issues, 2016: 35).
In addition, the strategy identifies the required institutional and engagement strengthening to support policymaking.
Source
Example
Reactive effort
Formal actors with oversight roles in the migration sphere such as ombudspersons can also identify pressing issues for policy consideration. Principally, issues identified by these actors will be problems requiring remedial effort. For example, the United States Citizenship and Immigration Services (USCIS) Ombudsman can recommend ways to fix systemic problems that people face when they seek services from USCIS.
Sometimes all it takes is a single case or episode, accompanied by some fierce public debate, to trigger policy action. Heightened media attention on scenarios such as detention, pressures at borders, security-related concerns, public health issues and exploitation and abuse all have scope to influence policymaking priorities. If there is space for proactive efforts to establish strong legal and policy frameworks, the likelihood of remedial action on the run is reduced. But getting ahead of the curve is not always easy.
Key messages
- Issue identification and definition is the first stage of the policy cycle and involves problem identification and diagnosis. Issues for policymaking can be identified proactively, such as those articulated in a national migration strategy, or they can be identified reactively, where a gap or problem arises.