, PUB3703
ASSIGNMENT 2 SEMESTER 2
2026
DUE 11 SEPTEMBER 2026
THE STAGES OF POLICY CHANGE: A DETAILED ANALYSIS WITH REFERENCE TO LAND REFORM IN
SOUTH AFRICA
1. INTRODUCTION
Public policy is not a static instrument; it is a dynamic and evolving mechanism that governments
use to address societal challenges. Policies are rarely maintained exactly as they were initially
adopted. Instead, they are subject to a continuous process of review, adjustment, and sometimes
fundamental transformation. This process is known as policy change. Understanding the stages of
this change is crucial for comprehending how governments respond to new information, shifting
political landscapes, and the successes or failures of existing programmes. This essay will describe
the various stages of policy change, detailing the process from the initial identification of a problem
to the eventual decision to maintain, modify, or terminate a policy. To illustrate this theoretical
framework in practice, the essay will use the ongoing process of land reform in South Africa as a
case study, demonstrating how the policy has evolved and continues to be shaped by these stages.
2. THE STAGES OF POLICY CHANGE
The process of policy change is often conceptualised as a cycle, a series of linked stages that
policies pass through. While the real world is often more complex and less linear than this model
suggests, the policy cycle provides a valuable heuristic for understanding the key activities involved
(Howlett, Ramesh and Perl, 2009).
2.1 Problem Identification and Agenda Setting
The first stage of policy change involves recognising that a particular issue requires government
intervention. This is known as problem identification. A problem only becomes a public policy issue
when it is perceived as a matter of public concern that requires government action. This can be
triggered by various factors, such as a crisis, new data, advocacy by interest groups, or a change in
public opinion (Kingdon, 2014). Once a problem is identified, it must be placed on the
government's agenda. Agenda setting is the process by which problems and proposed solutions
gain the attention of the public and policymakers (Birkland, 2015). Not all problems make it onto
the agenda; competition for attention is fierce. An issue is more likely to be prioritised if it is seen
as urgent, has a clear and compelling narrative, and has powerful advocates.
ASSIGNMENT 2 SEMESTER 2
2026
DUE 11 SEPTEMBER 2026
THE STAGES OF POLICY CHANGE: A DETAILED ANALYSIS WITH REFERENCE TO LAND REFORM IN
SOUTH AFRICA
1. INTRODUCTION
Public policy is not a static instrument; it is a dynamic and evolving mechanism that governments
use to address societal challenges. Policies are rarely maintained exactly as they were initially
adopted. Instead, they are subject to a continuous process of review, adjustment, and sometimes
fundamental transformation. This process is known as policy change. Understanding the stages of
this change is crucial for comprehending how governments respond to new information, shifting
political landscapes, and the successes or failures of existing programmes. This essay will describe
the various stages of policy change, detailing the process from the initial identification of a problem
to the eventual decision to maintain, modify, or terminate a policy. To illustrate this theoretical
framework in practice, the essay will use the ongoing process of land reform in South Africa as a
case study, demonstrating how the policy has evolved and continues to be shaped by these stages.
2. THE STAGES OF POLICY CHANGE
The process of policy change is often conceptualised as a cycle, a series of linked stages that
policies pass through. While the real world is often more complex and less linear than this model
suggests, the policy cycle provides a valuable heuristic for understanding the key activities involved
(Howlett, Ramesh and Perl, 2009).
2.1 Problem Identification and Agenda Setting
The first stage of policy change involves recognising that a particular issue requires government
intervention. This is known as problem identification. A problem only becomes a public policy issue
when it is perceived as a matter of public concern that requires government action. This can be
triggered by various factors, such as a crisis, new data, advocacy by interest groups, or a change in
public opinion (Kingdon, 2014). Once a problem is identified, it must be placed on the
government's agenda. Agenda setting is the process by which problems and proposed solutions
gain the attention of the public and policymakers (Birkland, 2015). Not all problems make it onto
the agenda; competition for attention is fierce. An issue is more likely to be prioritised if it is seen
as urgent, has a clear and compelling narrative, and has powerful advocates.
