Policy is being made as it is being administered and administered as it is being made.’ Comment.

The Intertwined Nature of Policy and Administration

The assertion that policy is simultaneously made and administered stems from the inherent complexities of real-world problems and the limitations of rational planning. Several factors contribute to this dynamic:

• Incrementalism: Charles Lindblom’s theory of incrementalism (1959) posits that policies are rarely made from scratch. Instead, they are adjusted in small steps based on past experiences and existing policies. This means that implementation reveals shortcomings and necessitates modifications, effectively ‘making’ policy during administration.
• Mixed Scanning: Amitai Etzioni’s ‘mixed scanning’ approach suggests a combination of rational and incremental decision-making. Broad goals are set rationally, but implementation involves scanning specific areas for problems and making incremental adjustments.
• Feedback Mechanisms: Effective administration generates data and feedback on policy impacts. This information is crucial for policymakers to understand whether the policy is achieving its intended goals and to make necessary revisions.
• Street-Level Bureaucracy: Michael Lipsky’s concept of ‘street-level bureaucracy’ (1980) highlights the discretionary power of frontline workers (teachers, police officers, social workers) in implementing policies. Their interpretations and actions can significantly alter the policy’s impact, effectively ‘making’ policy at the point of delivery.

Policy Made During Administration

Implementation often reveals unforeseen consequences or practical challenges that require policy adjustments. Consider the following examples:

• National Rural Employment Guarantee Act (NREGA) 2005 (later MGNREGA): Initially, NREGA faced challenges in ensuring timely wage payments and creating durable assets. Implementation feedback led to amendments and operational guidelines to address these issues, effectively modifying the policy during its administration.
• Goods and Services Tax (GST) 2017: The initial implementation of GST was fraught with technical glitches and compliance issues. The GST Council continuously made changes to rates, rules, and procedures based on feedback from businesses and states, demonstrating policy-making during administration.
• COVID-19 Pandemic Response: The response to the COVID-19 pandemic involved a series of evolving policies (lockdowns, vaccination drives, economic packages). These policies were constantly adjusted based on epidemiological data, healthcare capacity, and economic impacts – a clear example of policy being made as it was administered.

Administration Made During Policy Formulation

Conversely, the administrative feasibility of a policy is often considered *during* its formulation. Policymakers increasingly involve administrators in the policy-making process to ensure practicality and effectiveness.

• Participatory Policymaking: Modern governance emphasizes stakeholder consultation, including administrative officials, during policy formulation. This ensures that policies are grounded in practical realities and can be effectively implemented.
• Regulatory Impact Assessments (RIAs): Many countries now conduct RIAs before enacting new regulations. These assessments consider the administrative costs and burdens of implementation, influencing policy design.
• Pilot Projects: Before large-scale implementation, governments often conduct pilot projects to test the feasibility and effectiveness of a policy. The results of these pilots inform policy adjustments and improve implementation strategies.

Challenges and Implications

While this interconnectedness is beneficial, it also presents challenges. Lack of clarity in policy goals, inadequate coordination between policymakers and administrators, and insufficient monitoring and evaluation can lead to policy drift and unintended consequences. Effective governance requires strong communication, collaboration, and a commitment to evidence-based policymaking.