the powers of problem definition the case of government问题界定的权力，政府的权力.pdf

Policy Sciences 22: 97-121, 1989. ?9 1989 KluwerAcademic Publishers. Printed in herlands. The powers of problem definition: The case of government paperwork A. WEISS Institute of Public Policy Studies, University of Michigan, Ann Arbor, M148109-1220, . Abstract. Problem definition is a package of ideas that includes, at least implicitly, an account of the causes and consequences of undesirable circumstances and a theory about how to improve them. As such, it serves as the overture to policymaking, as an integral part of the process of policymaking, and as a policy e. In each of these roles it seems to exert influence on government action. Distinguishing among the roles clarifies the nature of that influence. A case study examines the transition from one problem definition to another in the domain of information collection by the federal government. The rise of the Paperwork Reduc- tion definition illustrates the variety of ways in which problem definition has powerful con- sequences. Problem definition is widely regarded as the first stage of the policy cycle, a stage that lays fundamental groundwork for the ensuing struggle over the construction of useful policy alternatives, authoritative adoption of a policy choice, implementation, and assessment (Brewer and deLeon 1983). Defini- tion in this sense is not merely a label for a set of facts and perceptions. It is a package of ideas that includes at least implicitly an account of the causes and consequences of some circumstances that are deemed undesirable, and a theory about how a problem may be alleviated (Defy 1984, Gusfield 1981). By the frame imposed on circumstances, a problem definition highlights some aspects of the situation, throwing other aspects into shadow. It pushes forward some potential solutions, neglecting others (Gamson and Modigliani 1987). The definition of problems at the outset of the policy process may have various sources: the lonely analyst wrestling to impose intellectual structure