Problem Definition in Public Policy: From Subjectivity to Solutions

Understanding Problem Definition in Public Policy

Problems are not inherent but are constructed, subjective, and driven by the personal interests of the actors involved. Their definition implicitly recognizes the strategies and claims of certain stakeholders. To the extent that a problem is recognized, it exists within the field of public intervention.

Until the late seventies, problems were considered objective, allowing for relatively easy definition and limitation to surmountable technical aspects. However, in the last decade, it has become clear that the definition of public problems is not merely a phase of analysis but also fundamentally determines the resolution and decision-making process.

The Purpose-Driven Definition of Problems

A problem is not a neutral or aseptic entity to which the same solution will always apply. Instead, the approach to its definition determines the solutions to be implemented. These solutions are contingent upon the problem's underlying causes. If we identify various causes, we are, in fact, confronting various problems, each requiring different solutions.

The choice of a problem's definition is directly tied to its intended purpose. Fundamentally, selecting an appropriate goal leads to a properly defined problem and, consequently, the selection of an effective solution. The process of defining a problem is equivalent to choosing among various objectives. Different objectives inherently lead to different problems.

Defining Problems as Undesirable Conditions

A problem situation is often defined as a simple state of difficulty or a set of undesirable conditions. These situations are typically considered objectively and empirically. However, this definition, which initially appears neutral, contains two distinct issues:

• Authority to Define: Who is entitled to establish certain conditions as problematic? The very concept of social problems is controversial; what constitutes a problem for a social democratic perspective might not be considered one by a neoliberal viewpoint.
• Oversimplification: Defining a problem solely as an undesirable condition oversimplifies the issue, reducing the definition to merely a description of the situation rather than a deeper analysis.

Defining Problems as Discrepancies

Another approach defines a problem as the discrepancy between what is and what should be. The primary drawback of this definition is its assumption that one already knows the ideal situation or the goal to be achieved, thereby implying a prior choice of targets. The challenge, then, is not merely selecting among various identified problems based on objectives, but rather the fundamental definition of the situation itself, the very context in which intervention is required.