The policy making process, we have argued in previous chapters, begin with
awareness of a problem ,
especially one which existing policies are failing to cope with at even a satisficing level. Or the problem may be a novel one for which no policy stance has yet been adopted but which has begun t o press for attention, To speak in terms of a 'problem' is a useful form of shorthand but it might be less restrictive if the term 'issue' were to be adopted , since the latter subsumes not only problems ( or threats) but also 'opportunities' for positive action and, indeed, 'trends' which , while being perceived as having potencial significance for the organization, could turn out on closer study to be either problem' or opportunity. By issue definition , then , we mean the processes by which an issue ( problem , opportunity, or trend ), having been recognize as such and place on the public policy agenda, is perceived by various interested parties; further explored , articulated and possibly quantified ; and in some but not all cases, given authoritative or a t least provisionally acceptable definition in terms of its likely causes. components, and consequences.•