Public policy-making is a complex and multifaceted process that involves a variety of actors,
both governmental and non-governmental. These actors play distinct yet interconnected roles
in shaping, formulating, implementing, and evaluating policies. Actor highlights the dynamic
interplay between these actors in the context of India, emphasizing how their interactions
influence policy outcomes.
Government Actors in Public Policy-Making
1. Legislature
The legislature is a primary governmental actor in the policy-making process. Its primary role
is to formulate and enact laws that reflect the will of the people. In India, the Parliament and
state legislatures are responsible for debating, amending, and passing bills that become
policies. The legislature also holds the executive accountable for policy implementation
through mechanisms like question hours, debates, and committees.
The Right to Information (RTI) Act, 2005 – This landmark legislation was passed by
Parliament after years of civil society advocacy. It empowers citizens to seek information
from public authorities, promoting transparency.
Goods and Services Tax (GST) Act, 2017 – A major tax reform passed by Parliament to
unify India’s indirect tax system, replacing multiple state and central taxes.
2. Bureaucracy
The bureaucracy is the backbone of policy implementation. Administrative agencies translate
legislative mandates into actionable programs and ensure their execution. The PDF
emphasizes that bureaucrats must understand policy objectives, advise policymakers to avoid
ambiguities, and analyze costs and benefits to ensure effective implementation. Senior
executives play a pivotal role in organizing resources, setting operational targets, and
coordinating between different stakeholders.
Aadhaar Implementation (UIDAI) – The Unique Identification Authority of India (UIDAI), a
bureaucratic body, executed the world’s largest biometric ID program, facilitating direct
benefit transfers (DBT) in welfare schemes.
Swachh Bharat Mission (SBM) – The Ministry of Drinking Water and Sanitation
implemented this flagship program to improve sanitation and eliminate open defecation.
3. Judiciary
The judiciary plays a dual role in policy-making: it interprets laws and reviews administrative
actions to ensure they align with constitutional principles. Courts can facilitate or hinder
policy implementation through their rulings. For example, judicial review can nullify policies
that violate fundamental rights or exceed statutory authority. The judiciary also enforces
certain laws directly, such as environmental regulations or human rights protections.
In India, the judiciary has been instrumental in shaping policies related to social justice,
environmental protection, and governance. Its interventions often bridge gaps left by
legislative or executive inaction.
Decriminalization of Homosexuality (Navtej Singh Johar v. Union of India, 2018) – The
Supreme Court struck down Section 377 of the IPC, legalizing consensual same-sex
relationships.
Environmental Policies (MC Mehta Cases) – The Supreme Court has passed several
judgments to curb pollution, such as banning diesel vehicles in Delhi and enforcing industrial
regulations.
Non-Government Actors in Public Policy-Making
1. Political Parties
Political parties influence policy-making by shaping the ideological direction of
governments. They advocate for policies that align with their manifestos and mobilize public
opinion to support their agendas. Parties also exert pressure on the executive and bureaucracy
to prioritize certain policies or block those contrary to their ideology. For instance, the PDF
mentions how parties may prevent the implementation of policies that conflict with their core
beliefs.
In India, the dominance of certain parties in different eras has led to shifts in policy priorities,
such as economic liberalization in the 1990s or welfare schemes in recent years.
Economic Liberalization (1991 Reforms)– The Congress-led government under PM
Narasimha Rao introduced market reforms, shifting India from a socialist economy to a more
liberalized one.
Demonetization (2016) – The BJP-led government under PM Modi implemented the sudden
withdrawal of ₹500 and ₹1000 notes to curb black money, though its effectiveness remains
debated.
2. pressure Groups and Interest Groups
Pressure groups represent specific interests, such as business associations, labor unions, or
professional bodies. They lobby policymakers to adopt favorable policies or amend existing
ones. Their influence is particularly evident in sectors like agriculture, healthcare, and
education, where they provide expertise and grassroots feedback.
These groups act as intermediaries between the public and the government, ensuring that
diverse voices are heard in the policy process. However, their influence can sometimes lead
to policy capture, where narrow interests override broader public good.
- **Farmers’ Protests (2020-2021)** – Groups like the Bharatiya Kisan Union (BKU) and
Samyukt Kisan Morcha (SKM) protested against the three farm laws, leading to their repeal
in 2021.
3. Civil Society Organizations (CSOs) and NGOs
Civil society organizations, including NGOs and community groups, play a critical role in
policy advocacy, implementation, and monitoring. They raise awareness about issues,
mobilize public support, and hold governments accountable. For example, the 73rd
Amendment Act (1992) empowered grassroots agencies like Panchayati Raj institutions,
integrating local communities into governance.
CSOs also fill gaps in service delivery, especially in areas like healthcare, education, and
rural development. Their participatory approach ensures that policies are more inclusive and
responsive to local needs.
Narmada Bachao Andolan (NBA)*– Led by Medha Patkar, this movement opposed large
dam projects, influencing rehabilitation policies and environmental assessments.
4. Media
The media acts as a watchdog and agenda-setter in the policy process. By highlighting issues,
investigating malpractices, and shaping public discourse, the media influences which policies
gain traction. It also serves as a platform for debate, enabling diverse stakeholders to voice
their opinions.
In India, media campaigns have driven policy changes on issues like corruption (e.g., the
Lokpal movement) and environmental conservation.
MeToo Movement (2018) – Media exposure of sexual harassment cases in workplaces led to
policy discussions on workplace safety and legal reforms
5. International Organizations
Global actors like the United Nations, World Bank, and IMF influence national policies
through funding, technical assistance, and conditionalities. Their recommendations often
shape economic, environmental, and social policies in developing countries like India.
WHO’s Role in Health Policies – The World Health Organization (WHO) has influenced
India’s vaccination drives (e.g., Pulse Polio Campaign) and pandemic responses (COVID-
19).
Interplay Between Government and Non-Government Actors
The policy-making process is not linear but a dynamic interplay between government and
non-government actors. For instance:
- The legislature may pass a law, but its implementation depends on the bureaucracy, with
inputs from NGOs and pressure groups.
- Courts may intervene to ensure policies comply with constitutional values, often acting on
petitions filed by civil society.
- Political parties and media shape public opinion, which in turn influences legislative
priorities.
