The Techniques Used in Problem Structuring Process

Introduction

Problem structuring is important and foremost activity of policy analysis, If problems are unstructured, no clear problem formulation exists. Because different stakeholders behold different perceptions about the problem and knowledge is uncertain, interaction between stakeholders is necessary to formulate a joint problem and its solutions. Complex, unstructured problems are characterized by uncertainty and diverging perceptions. Uncertainty might result from a lack of knowledge, but also because different people interpret and value information differently (ambiguity) (Koppenjan and Klijn 2004). Formulating a problem and its solutions implies that uncertainty, ambiguity and disagreement need to be reduced. The development of stakeholders' perceptions and knowledge are central elements to create a joint problem formulation. Ideally, the outcome of problem structuring is ‘negotiated knowledge'; this is knowledge which is agreed upon and valid (De Bruijn et al. 2002 Van de Riet 2003). The content developed during a participatory process should not be seen as final or permanent. Adoption is the consolidation of a problem formulation over a longer period of several decision rounds (Teisman 2000).

Meaning of policy Problem structuring

Hisschemoller (1993) uses the term problem structuring in the context of policy processes to refer to an approach which focuses on the integration of the most divergent views with respect to the problem situation. Dunn uses the term problem structuring to mean a process of generating and testing alternative conceptualization of the problem situations. It is a search for and specification of key problem elements and connecting these elements in a coherent pattern and the end result is some actionable statement.

Problem structuring prevents from addressing the wrong problem, because it is not solution oriented but oriented to problem finding. Instead of using the term problem structuring to develop a normative framework, we developed a conceptual model to describe problem formulation in the context of participatory policy processes. This conceptual model bases on insights about problem typologies, policy processes, process management and problem structuring.

Elements of policy problem

Policy stakeholders. People who affects or are affected by the problem as perceived by the stakeholders.

Policy alternative. course of action that may be taken pursued to solve the perceived problem.

Policy actions, course of action that should be taken to solve perceived problem. Policy outcomes, probable outcome of an action and their impact on the problem.

Policy values or utilities. Subjective values used to judge particular outcome as more/less effective/desirable in addressing