Policy implementation as a hub of the policy
process is determined by some indispensable variables. They include implementing
agencies, policy environment, the policy target group, the policy objectives
and policy resources, disposition, communication and compliance.
The Implementing Agencies
This refers to government department
parastatals, ministries or commissions bestowed with the responsibility of
implementing public policies. The agencies consist of structures, personnel and
processes involved in policy application. As articulated by Ikelegbe (1996:79),
implementing agencies are very important because they have primary
responsibility for policy implementation. They equally determine the course,
speed and impact of policies. What should be done? How it should be done? Who
exactly is to benefit? Secondly, they make policies and create structure in the
process implementation. However, in a situation where a newly adopted policy
has no existing implementation structure, new agencies are always created to
achieve such. This reflects the importance attached to such policy. The need of
implementation agencies include, ensuring that policy personnel do not loose
focus in managing public problems. The agencies make evident policy
implementation since its size, quality of staff, and organizational capability
determine how efficient and effective policies are implemented.
The
Policy Environment
The
implementation of policies is affected by environmental variables such as
political, economical, and socio-cultural factors. The political environment
the disposition of political elite. These great influence in shaping opinion,
of individual and interest groups. Also, configuration, which determines the
political parties, their activities and relation to a given policy revolve
around environment. The political relationship political system affects policy
implementation. This could be by accepting or opposing or totally rejecting the
implementation of public policies. A political environment that is friendly and
tolerant encourages bottom-up relation in policy implementation process. On the
other hand, a hostile environment as found in military regimes does not
encourage popular inputs in implementing policies.
The Policy Target Groups
Every
policy has a target group or beneficiaries. However, the reaction of these
groups contributes to the policy implementation process. The target group,
which equally represents the interest groups, also participates in the
implementation of policies. They influence the content, direction and speed of
policy implementation. Most often, the target groups do not embrace the
policies and if they do, it is not usually appreciated. When such a situation
exists, policy is hindered from realizing its objectives. In this regard there
is need for the mobilization and sensitization of the target groups on the
benefits of a formulated policy. For instance, most Nigerians do not see a
benefit in buying “made in Nigerians good”. They should be enlightened to know
that patronizing to manufacturers enhances economic development a job creation
in a country.
Policy Standards and Objectives
Public
policy has objectives, goals, and standards. These requirements are very
essential for the purpose of guiding policy implementers. Policy implement need
to identify the goals and objectives, to enhance the procedural application to
policy. By following standards and objectives, there is elaborate and
clarification of goals. The management by objectives technique is the most
preferred tool that assists the al realization of policy objectives.
In
the same vein, the existence of standards and objectives promotes compliance
and co-operation among policy implementers and beneficiaries.
Application of Policy Resources
To
implement policies, some resources are indispensable for its success. The
resources include und, staff and incentives. These resources facilitate and
enhance successful policy implementation. Funds s the life wire in
implementation process explains the allure of public policy to achieve a
desirable end. Besides, inadequate financial base is a major explanation for
the poor implementation and the poor outcome of public policy programme
(Ikeiegbe,1996:80).
Also, human resources and incentives contribute immensely to the successful
implementation of policies. Where unskilled manpower is involved in
implementation of policies, the aftermath has always been inefficiency and
ineffectiveness. It equally leads to abuse of funds in the implementation
process. Furthermore, insufficient resources will mean that laws will not be
enforced, services will not be provided and reasonable regulations will not be
developed.
When
these occur, implementation process is only reduced to bureaucratic exercise.
This remains the bane of policy implementation in de1oping countries. In Nigeria for
instance, the national poverty alleviation policy is brilliantly articulated
but yet it is difficult to realize its essence due to inadequate resources
relevant in ensuring its success. However, motivation is essential to boost
morale and improve dedication of staff in implementing policies with
specification and objective-driven interest.
Communication
The
effectiveness of a policy implementation is determined by the ability of those
responsible for implementing policies to understand and know what they are
supposed to do. Georges C. Edwards (1980:10) states that:
Order to implement policies must be transmitted to the appropriate
personnel, and they must be clear, accurate, and consistent.
Therefore,
policies due for implementation must be clearly transmitted to the
implementers. It is essential because ambiguous and vague directives set back
and create confusion among the implementers. When confusion, vagueness, and
inconsistency characterize transmission of policies to the implementers,
ignorance or misunderstanding always occurs among them. Also disagreement over
interpretation of policies can lead to outright blockage or distortion of
communication as implementers exercise their inevitable discretion in handling
general decisions and orders. Other factors that account for distortion of
information include multiple bureaucratic layers, absence of channel of
communication, and selective perception of policy implementers.
Furthermore,
poorly communicated policy compels implementers to use their discretion to turn
general policies into particular actions. If this occurs, the general purpose
of the policy is defeated. In all, implementation instructions should be
properly transmitted to avoid hindrance in the implementation of policies.
Dispositions
when implementers exhibit negative
attitude and disposition to policy implementation, such policy aces the
challenge of failing to achieve its expected goals. This occurs since most
implementers exercise considerable discretion in the implementation of
policies. Several reasons are adduced for the place of dispositions in policy
implementation. They include, the independence of implementers from their
nominal superiors who formulate the policies and the complexity of the policies. The
way which implementers exercise their discretion over depends in large upon
their disposition toward policies.
The implication is that their attitudes in turn, will be influenced by their
views towards the policies and how they see the policies affect their
organization and personal interests.
However,
if the attitudes, values and ideas of policy made, are in tandem with the
perceptions of implanter, hitches are always eliminated. On the contrary,
disagreement usually ensues in policy implementation. For example, an average
Hausa Moslem, has no interest has no interest in implementing any policy on
women liberation because his culture encourages the confinements of women in
purdah.
Bureaucratic structure
The
primary concern of bureaucracy is execution and enforcement of the policies
decided by the political executives while other function of government such as
policy making and interest articulation are carried out by a variety of
institutions. Policy implementation is in large part the responsibility of
civil servants. The bureaucrats are the strategic policy implementers. They may
know what to do and have sufficient desire and resources to do it, but they may
still be hampered in implementation by the structures of the organizations in
which they serve. Accordingly, 3eorge Edwards (1980:11) observed that:
Organizational fragmentation may hinder the coordination necessary to
implement successfully a complex policy requires the cooperation of many people
and it may waste scarce resources, inhibit change and create confusion, lead to
policies working at cross purposes, and result in important functions being
overlooked.
The
organization fragmentation results essentially from pressure outside the
bureaucratic units as legislative committees, interest groups, executive
officials, and state Constitutions. These most often add to organizational
feuds among members of the bureaucracy. To avoid unwarranted disagreements
within a bureaucratic organization, Standard operating Procedures (SOPs) are
created. The SOPs re routines that enable public officials to make numerous
day-to-day decisions. SOPs is very commonly used because it saves times and is
very useful when there is lack of resources. But they do t thrive in crisis
time. However both standard operating procedures and organizational fragmentation according to Edward:
Often inhibit changes in, resources, generate undesired act
coordination, con fuse officials a jurisdictions, results in policies working
at cross-purpose and cause some policies to fall between the cracks of
organization boundaries. Edward (1980:12,).
Compliance
Public policy implementation is not just deciding what works; it includes how
it will work. When there is compliance to public policy process, the
implementers and beneficiaries always strive toward successful policy
implementation. Compliance in this perspective reduces sabotage and
recalcitrance within the policy environment. To ensure compliance, certain
coordination is essential. As Linder and Peters (1990:65) noted, looking at policy from top down, the implementation
solution criterion seems to be clarity so that compliance can be ensured down
the line.
The emphasis is that a policy should be concise, explicit and precise to
reduce complexity at implementation. More so, there is need for flexibility and
discretion to make policy simple. As a follow up, compliance is favoured when
governments deliver services directly to the people not through third parties.
Invariably, implementation of policy is often opposed, especially when public
policy is an imposition from government. However, government always uses their
monopoly in instrument of coercion Lo command compliance to public policies.
The discussion on successful implementation of policies unravels hitches that
do impede the process of realizing policy objectives. Equally, it is observed
that perfect implementation is never achieved and realized, as some degree of
failure is almost inevitable. The table below summarizes elements that ensure
successful implementation of policies.
Element of Successful Policy
Implementation
No insurmountable external constraints
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Usually organization and individuals that will not cooperate, but can
include act of nature
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Adequate time and sufficient resources
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Time, money and people
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Valid theory
|
Required combination of time, money and people in the right order and
mix
|
Causal Connections are reasonable, clear and direct
|
Good design, especially cause and affect relationship
|
Dependency relationships are minimal
|
Homeless and doubtless related to capitalism, but rather than trying
to change capitalism, find shelter.
|
Agreed objectives
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Authority is not fragmented or dispersed
|
Correct sequence of tasks
|
Everyone signs from the song sheet, no dispute about ends
|
Communication
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Clear communication and understanding
|
compliance
|
No sabotage and recalcitrance or rebellion
|
Sources:
Hogwood and Gunn (1984)
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