In the field of policy studies, the use of metaphors is one of the primary ways to understand how policies are made, implemented, and evolve. Two commonly used metaphors are the "policy stages" or "policy cycle" and the "multiple streams" or "dual flow". While both are very useful, each has limitations in explaining the full complexity of the policy process. This article delves deeper into how to combine these two approaches and apply them to the policy formation stage and decision-making.
1. The Importance of Metaphors in Policy Studies
Metaphors in the policy context are not just tools to simplify complex concepts, but also a way to understand the dynamics that occur in the policy-making process. The two main metaphors often used are "policy stages" and "multiple streams". These metaphors provide a general overview of the policy journey, but are often criticized for oversimplifying and not accounting for more complex dynamics such as power, ideology, and uncertainty in the policy process.
2. Critique of the "Policy Stages" Metaphor
The "policy stages" or policy cycle metaphor, which depicts policy through a linear sequence of steps—from planning, formulation, implementation to evaluation—often fails to adequately portray the political power involved, the uncertainties that arise, and the unexpected changes within the policy itself. While useful for grasping the broad outline of the policy process, this approach tends to overlook the dynamic and complex realities of political life.
3. Strengths and Weaknesses of the "Multiple Streams" Metaphor
On the other hand, the "multiple streams" metaphor developed by John Kingdon offers a more dynamic view of how policy can emerge. According to this model, policy forms when three streams—problem, solution, and politics—meet in a "policy window". Although highly useful for explaining how policy can quickly move from one phase to another, the multiple streams approach is limited to the early stages of policy-making and often fails to explain how policy evolves after problems and solutions are identified.
4. Finding Solutions: Combining Both Approaches
So, how do we address the limitations of each model? The answer lies in merging the two approaches. This article proposes a five-stream confluence model that can provide higher analytical value. The model combines elements from both main models above—"policy stages" and "multiple streams"—and introduces a new dimension that accounts for more complex policy styles and governance systems.
By adding two additional streams to the multiple streams model, this model offers a more comprehensive picture of how policy forms, from agenda setting, solution development, to implementation and evaluation that involve political power, ideology, and leadership styles influencing the policy process.
5. Three, Four, and Five Streams: Evaluating Different Models
More complex models, such as the three-stream, four-stream, and five-stream models, open up more opportunities to understand policy in a more realistic way. The three-stream model is simpler, but less capable of capturing the intricacies involved in policy. The four-stream model adds a richer new dimension to policy analysis, but often still lacks clarity in integrating more complex elements from the political world. The five-stream model, which offers a confluence of various factors, provides deeper analysis by combining elements from multiple existing models.
6. Why the Five-Stream Model is More Effective?
The five-stream confluence model offers a more complete and flexible analysis. It maintains the simplicity needed in policy metaphors—still combining essential elements from the two most famous models in policy studies—while helping to capture more nuanced aspects, such as interlinked governance systems and diverse policy styles. With this approach, we can better understand how policy is influenced not only by internal factors like solutions and problems, but also by external factors such as political power, ideology, and social dynamics.
7. Conclusion: A More Holistic Approach to Policy Studies
By combining "policy stages" and "multiple streams," the five-stream confluence model offers a more holistic and comprehensive approach to understanding the policy process. This approach not only maps policy steps in general, but also takes into account factors that are often invisible in traditional policy analysis. Therefore, the five-stream model can be a highly useful tool for policymakers, academics, and political observers to better understand policy dynamics and how policy can evolve in a broader context.
