ISSN 2519-1284 European Journal of Economics, Law and Social Sciences Vol. 1 No.

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Acces online at www.iipccl.org IIPCCL Publishing, Graz-Austria June, 2017

Public policy analysis and the criteria for evaluation of the public policy

Ass. Prof. Dr. Behxhet Brajshori

University of Prizren

Abstract

Public policies constitute a huge importance in the lives of every citizen in each country.
There are several different perspectives and concepts how policy is defined and some of those
concepts are presented by famous scholars such as Thomas Dye, William Jenkins, Thomas
Birkland, Moran Michael, Rein Martin, Robert Godin etc.
In regard of Public Policy Analysis, Michael Hill argues that some policy analysts are interested
in furthering the understanding of policy (analysis of policy), some are interested in improving
the quality of policy (analysis for policy), and some are interested in both activities. He presents
some different kinds of policy analysis starting by studies of policy content. According to Hill
Evaluation marks borderline between analysis of policy and analysis for policy. William Dum
in his book on Public Policy Analysis argues that policy analysis is partly descriptive and relies
on traditional social science discipline to explain the causes and consequences of policies.
Warren Walker defines public policy analysis as a rational, systematic approach to making
policy choices in the public sector. The Policy Analysis process generally involves performing
the same set of logical steps and the steps that public policy analysis should be conducted.
Michael Kraft and Scott Furlong analyze some of the criteria for evaluation of the public policy
such as: Effectiveness, Efficiency, Equity, and Political Feasibility.
In Kosovo, after the War ended, Education has been one of the most prioritized public policy
by all Kosovo Governments. This Public Policy is developed at several levels, starting from
preschool education up to higher education or University studies.

Keywords: Public Policy, Public Policy Analysis, Evaluation Criteria, Education Policy.

Introduction

There are several different perspectives and concepts how public policy is defined
and some of those concepts are presented by famous scholars. Having in mind this
broad horizon of public policy definition, we can argue that there is no unanimity
on it. One of the definitions on public policy is of Thomas Dye, who defines public
policies as: whatever governments choose to do or not to do (Dye, 1998). Another
definition is provided by William Jenkins, who says that public policies are a set of
inter-related decisions taken by a political actor or group of actors concerning the
selection of goals and the means of achieving them within a specified situation where
those decisions should, in principle, be within the power of those actors to achieve
(Jenkins, 1978). According to Thomas Birkland, in academic studies of policy, the
definitions for public policy are provided to understand the shape of the field we
seek to study. Since there is no single definition that may be developed, Birkland
discerns some key features to public policy definitions such as; public policy is made
in response to some sort of the problems that require attention; policy is made on
the “public’s behalf”; policy is oriented toward a goal or desired state, such as the

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solution of a problem (Birkland, 2011).

Public policies constitute a huge importance in lives of every citizen in each country.
So, if policy makers’ determinations are to have the full force of public policy, they
must curry people with them. Furthermore, we can see the importance and the role
that public policies have, presenting the perspective of distinguished scholars who
argue that in order to make policy in a way that makes it stick, policy makers cannot
merely issue edicts. They need to persuade the people who must follow their edicts
if those are to become general public practice (Moran, Martin & Goodin, 2006). The
public policy analyze has an important role because the final product of this analyze
is advice. Being more specifically, it is advice that informs some public policy decision
(Weimer, 2016). Andrew Heywood’s explanation on what public policies are is that
public policies are governmental formal and legal decisions and that those policies
are connected between goals, actions and outputs (Heywood, 2008).
In the end, I can conclude that following the consultation of the literature, public
policies are originated directly to the needs of the citizens. The Government should
draft proper public policies, put them into the public open debate, select those public
policies that should be implemented based on the priorities and citizens’’ needs. The
implementation of these public policies should be observed and monitored by citizens
themselves and meanwhile the public policy evaluation should be conducted by
Independent Professional Agencies, aiming to reach the effectiveness and efficiency
of a specific public policy.

Public Policy Analysis

Michael Hill firstly argues that some policy analysts are interested in furthering
understanding of policy (analysis of policy); some are interested in improving the
quality of policy (analysis for policy); and some are interested in both activities. He
presents some different kinds of policy analysis starting by studies of policy content,
in which analysts seek to describe and explain the genesis and development of
particular policies, another model is studies of policy outputs, with much in common
with studies of policy content but which typically seek to explain why levels of
expenditure or service provision vary, meanwhile the following one has to do with
studies of the policy process, in which attention is focused upon how policy decisions
are made and how policies are shaped in action.
On the other hand, Hill presents the analysis for policy and highlights these kinds
or ways as the important ones. Evaluation marks the borderline between analysis of
policy and analysis for policy. Evaluation studies are also sometimes referred to as
impact studies as they are concerned with analyzing the impact policies have on the
population. Evaluation studies may be either descriptive or prescriptive. The following
way of the analysis for policy is Information for policy making, in which data are
marshalled in order to assist policy makers to reach decisions. The other one has to do
with the Process advocacy, in which according to Hill, analysts seek to improve the
nature of the policy-making systems through the reallocation of functions and tasks,
and through efforts to enhance the basis for policy choice through the development
of planning systems and new approaches to option appraisal, meanwhile the final

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one is Policy advocacy, which involves the analyst in pressing specific options and
ideas in the policy process, either individually or in association with others, perhaps
through a pressure group (Hill, 2005).
William Dunn in his book on Public Policy Analysis argues that policy analysis
is partly descriptive. It relies on traditional social science discipline to explain the
causes and consequences of policies. His explanation includes normative aspect
as well, which refers to value judgements about what ought to be, in contrast to
descriptive statements about what is. Policy analysis is designed to provide policy-
relevant information about five types of questions which are as follows; regarding
the policy problems what is the problem for which a potential solution is sought. The
second question relies on expected policy outcomes and what are the expected outcomes
of policies, the following question has to do with preferred policies that what policies
should be chosen, another question raised by Dunn has to do with observed policy
outcomes and the final one policy performance which aims to understand to what extent
do observed policy outcomes contribute to the solution of a problem (Dunn, 2016).
Warren Walker defines public policy analysis as a rational, systematic approach to
making policy choices in the public sector. He adds that this is a process that generates
information on the consequences that would follow the adoption of various policies.
Furthermore, Walker says that it uses a variety of tools to develop this information
and to present it to the parties involved in the policymaking process in a manner that
helps them come to a decision. Policy analysis is performed in government, at all
levels; in independent policy research institutions, both for-profit and not-for-profit;
and in various consulting firms. So, public policy analysis is not a way of solving a
specific problem, but is a general approach to problem solving. It is not a specific
methodology, but it makes use of a variety of methodologies in the context of a
generic framework. Walker states the importance of a process where each step of
which is critical to the success of a study and must be linked to the policymakers, to
other stakeholders and to the policymaking process.

• Elements in the policy analysis approach

The policy analysis process generally involves performing the same set of logical steps.
The steps that public policy analysis should be conducted are: Identify the problem- which
involves identifying the questions or issues involved, fixing the context within which

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the issues are to be analyzed and the policies will have to function, clarifying constraints
on possible courses of action, identifying the people who will be affected by the policy
decision, discovering the major operative factors and deciding on the initial approach.
The following step is to identify the objectives of the new policy. In this step, the policy
objectives are determined. The next following up step is decided on criteria (measures of
performance and cost) with which to evaluate alternative policies. This step involves identifying
consequences of a policy that can be estimated (quantitatively or qualitatively) and
that are directly related to the objectives. It also involves identifying the costs (negative
benefits) that would be produced by a policy and how they are to be estimated. Select the
alternative policies to be evaluated is another way or method presented by Walker. He adds
that this specifies the policies whose consequences are to be estimated. It is important to
include as many as stand any chance of being worthwhile.
Analyze each alternative. This means determining the consequences that are likely to
follow if the alternative is actually implemented. This step usually involves using a
model or models of the system. This step is usually performed for each of several
possible future worlds. The following up step is to compare the alternatives in terms
of projected costs and effects. This involves examining the estimated costs and effects
for each of the scenarios, making tradeoffs among them and choosing a preferred
alternative (which is robust against the possible futures). Implement the chosen
alternative. It involves obtaining acceptance of the new procedures (both within and
outside the government), training people to use them and performing other tasks
to put the policy into effect. Monitor and evaluate the results. Walker says that this
is necessary to make sure that the policy is actually accomplishing its intended
objectives. If it is not, the policy may have to be modified or a new study performed.

• Steps in a policy analysis study (Walker, 2000)

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Evaluation criteria of the public policy

Michael Kraft and Scott Furlong analyze some of the selection and evaluation criteria
of the public policy alternatives such as: Effectiveness, efficiency, equity and political
feasibility.
According to them, effectiveness refers to whether a current policy or program or one
that is being considered is likely to work. That is, how likely is it that the policy’s goals
or objectives will be achieved? They emphasized the role of a proposal’s technical
or administrative feasibility in effecting many policy areas such as; infrastructure,
education, environment etc.
Efficiency is another criteria presented by Kraft and Furlong. This criterion refers to what
a policy or policy proposal costs in relation to its expected benefits to society. Furthermore,
efficiency is sometimes described as a desire to realize the greatest possible benefit out
of the expenditures that government realizes. Thus, considering a policy proposal’s
economic feasibility means asking whether it is “affordable” or will be considered a good
use of public funds in an era when all programs compete for such funds.
The following criterion presented by these two authors is equity. They provide an
explanation arguing that this criterion refers to the consideration of what constitutes
a fair or equitable policy choice. It may be a way to consider how a program’s costs
and benefits are distributed among citizens (that is, fairly or not). The criterion of
equity is also a way to think about who is allowed to participate in policymaking
processes, such as who gets to vote or who gets to speak at a public hearing. In a
process of a distribution of Government spending, Government organizes public
hearings with the public concerning the budgetary spending, aiming to be as much
inclusive as possible and to include the citizens’ proposals.
The last criterion that Kraft and Furlong present has to do with political feasibility.
They argue that this criterion concerns how government officials and other policy actors
appraise the acceptability of a proposal. Most often, references to political feasibility reflect
a judgment about whether elected officials, be it Member of Government or Member of
Assembly, are willing to support a policy proposal. In a democracy, policy makers must
consider the preferences and potential reactions of the public, interest groups, and other
government officials when developing policies (Kraft & Furlong, 2015).

Implementation of the Education Policy in the Republic of Kosovo – Higher

Education (2011-2015)

It is hard to ignore today that the role of education in our societies is taking on
increased importance. Education is now viewed as the key component to economic
competitiveness in an increasingly global world and thus educational achievements
and success are increasingly seen as a way to better handle the economic challenges
facing today’s societies (Peters & Pierre, 2006). Education is an essential prerequisite
for economic growth and improvement of living standard in the contemporary
economy. The endeavour of Kosovo to achieve these goals is necessarily dependent
on the productivity of labour force. The quality of education, gross enrolment rates
and the number of years spent on education are essential for human capital formation

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and represent a key input in improving productivity and employment opportunities.

Unemployment rate in Kosovo is generally high and data indicate that the low level
of education and achievement decreases the employment opportunities.
In Kosovo, last two decades Education has been one of the most prioritized public
policy by all Kosovo Governments. This public policy is developed at several levels,
starting from preschool education up to higher education or University studies.
Based on the law on Higher Education in the Republic of Kosovo, the main objectives
of Higher Education are as follows;
creation, development, protection and transmission of knowledge through
teaching and scientific and research works;
preparation of students for further studies, professional practice and lifelong
learning through the acquisition and depth development knowledge and high
level competences;
offering opportunities for all inhabitants of Kosovo who are able to benefit from
such education and to contribute to their society and country, throughout their
lives.
Meanwhile, the organization of the Higher Education in Kosovo is based on the
following levels;
First level – three (3) to four (4) years of studies by which the student reaches 180,
respectively 240 /ECTS/, and obtains Bachelor Diploma.
Second level – one (1) to two (2) years of studies after completion of the first level
by which the students reaches 60, respectively 120/ECTS/ and the student obtains
Master Diploma.
Third level – program of doctorate studies with academic and independent
research scientific character.

Based on the Evaluation Report, Kosovo Education Strategic Plan (KESP) 2011-2016,
prepared by the Ministry of Education in the Republic of Kosovo, I can argue that
a concrete steps were undertaken concerning consolidation of higher education in
Kosovo, aiming the harmonization of the legislation of higher education institutions.
In Kosovo, there are seven higher education institutions and thirty private accredited
institutions. Ministry of Education, Science and Technology had identified several
objectives for the period of 2011-2016 (Kosovo Education Strategic Plan). Some of
these objectives include: drafting of bylaws and harmonization of statuses of Higher
Education Institutions based on the revised Law on Higher Education, study
programs are in line with the labor market needs, an increased budget and improved
efficiency in execution of the budget in line with the reviewed law, improvement of
quality in teaching and scientific research. High Education Institutions have built
capacity to generate additional resources through research projects, consultancy
services, infrastructure and some other objectives as well. It is worth to emphasize
that this report adds that the average rate of implementing targets within the sub-
program for higher education of KESP 2011-2016, based on quantitative index is 2.5.
The mechanism for external quality assessment according to European Standards
Guidelines (ESG) is in regular function. Despite this fact, the situation of the internal
quality parameters such as teacher-student ratio and funding per student have not

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been improved but it is worsened. As a consequence of this situation, this could have
adversely affected the very low number of graduates in public higher education
compared to the very large number of enrolments. The Kosovo Accreditation Agency
is a member of European Network of Quality Assurance Agencies (ENQA) and
European Quality Assurance Register for Higher Education (EQAR) and has taken
some steps to improve the equivalence system European Network of Information
Centers - National Academic Recognition Information Centers (ENIC / NARIC) and
the mobility of students. The low level of scientific research, lack of a unique funding
formula that stimulates performance and disparities of higher education programs
with the labor market remain challenges to be addressed in the upcoming years.
Regarding to the objective of linking higher education with the labor market, the
report provides information that there is no active system for linking data of the labor
market with education in Kosovo and furthermore there is no evidence that they were
used in the reformation of vocational education profiles. The report emphasizes the
urgent need that Kosovo has for a data processing system that would link its data with
International Standards for the Classification of Education (ISCED), Eurostat, with the
data of employment categories of International Standard Classification of Occupations
(ISCO) and economic sectors of Statistical classification of economic activities in the
European Community (NACE). The quantitative linking with the labor market does
not necessarily imply that the workforce reached the appropriate level of quality.
Moreover, the report identified two structural problems that the labor market in
Kosovo faces related to the extent and quality of the education system. Initially, it
finds that the rate of demand in the labor market is low and the trend of employment
generated in recent years does not guarantee employment of graduates. Secondly,
there is the problem of inconsistency in the quality of training and the labor market -
there are few economic sectors that are faced with the lack of adequate skills.
According to the report, Kosovo have not yet developed a methodology for the
financing of the higher education institutions to promote the effectiveness and
accountability, despite the fact that KESP and the Law on Higher Education provided
this. However, since 2011, financing in higher education have increased. Financing
is increasing as nominal amount, but also as a percentage of gross domestic product
and government budget. In fact, in 2014, this financing amounted to 0.91% of gross
domestic product, thus approximated to the EU average of 1.13%. (See table 1).

Table 1: Expenditures on higher education

Type of expenditure 2011 2012 2013 2014

Financing in higher education (mil. €) 34.63 37.62 41.02 50.76

Expenditures in Education as % of GDP 4.60% 4.70% 4.30% 4.70%

Expenditures in HE as % of GDP 0.73% 0.77% 0.77% 0.91%

Expenditures in Education as % of KCB 15.50% 16.00% 15.70% 16.50%

Expenditures in HE as % of KCB 2.45% 2.61% 2.79% 3.19%

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Source: Evaluation report. Kosovo Education Strategic Plan 2011-2016

Table 2: Expenditure per student capita
Type of expenditure 2011 2012 2013 2014
Expenditure per student capita (EUR) 689 661 646 703
Expenditures per student as GDP %
28.50% 24.89% 21.69% 21.48%
per capita
Source: Evaluation report. Kosovo Education Strategic Plan 2011-2016
Public expenditures per student as GDP % per capita for the period of 2011-2014 show
that these expenditures are declining because of the increasing number of students
and the continued growth of the GDP, as shown on table 2.
The idea behind the measures related to this target was to spur the state and create
suitable conditions for the generation of self-revenues by public institutions of
higher education, exempting, in this case, revenues from the students. Development
of relevant regulations by institutions of higher education is envisaged as a first
measure. The other measure is related to the development of mechanisms for
generating revenues within institutions of higher education, such as project offices,
consultancy services and similar. In this regard, public institutions have relied on
public communications offices and have not established such services and as the
report supposes it could perhaps have been due to lack of funds. Law on Higher
Education envisages building of effective mechanisms for transparent funding that
promotes accountability.
Another objective of the education policy in Kosovo for more than a decade has been the
management of the quality and increase the level of scientific research. The management
of the quality has its evaluation dimensions; internal quality assurance dimension
which has been based on several criteria such as: drafting and implementation of
programs which aim the improvement of teaching methodologies, revision of criteria
for selecting the academic staff, students’ results during their studies and the formation
of various administrative mechanisms within the academic units. All the public and
private Higher Education Institutions have established their quality assurance office.
The external quality assurance dimension is mainly connected to external evaluation
of programs and institutions, the achievements of the academic staff in teaching and
scientific research work, academic staff mobility and mobility of students, international
cooperation etc. Meanwhile, from the internal dimension, quality assurance is assessed
based on the self-evaluation reports, institutional mechanisms for quality assurance
in management, in teaching, scientific research, infrastructure, academic programs,
students’ performance during their studies, financial performance etc. Kosovo has
not applied any external evaluation mechanism regarding to the assessment of the
students’ achievements, therefore, there could not be any ranking of students’ progress
in their studies. The percentage of students that complete their studies on time is about
35%. However, there is an increasing trend of those unemployed graduates, whose
percentage is about 13% in 2014.
Based on the data presented by Webometrics Edition, which cooperates with some of
the most prestigious evaluating Higher Education international institutions, in July
2015, ranked the University of Prishtina in 4060th place in the list and taking into

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consideration that other Universities in the Western Balkans are above Kosovo in that
ranking list, that is an indicator and signal that the Higher Education in Kosovo needs
significant improvements and enhancements.
Teacher-student ratio is another indicator of quality assessment. In public institutions
of Higher Education in Kosovo, the average of the students per a professor who
is regular staff member is 62, and this ratio is considerably the highest in Kosovo,
compared to some other regional countries, e.g.; Romania 29, Albania 24, Serbia 23,
Macedonia and Moldova 17, Slovenia 14, Bosnia and Hercegovina, Bulgaria 12 and
Croatia 9.
Regarding to the scientific research, Kosovo does not stand in a good position.
According to the data presented in the Evaluation Report, Kosovo during the period of
2003-2013, in total had 826 indexed scientific papers in two main data bases worldwide,
such as Web of Science and Scopus. This shows that Kosovo is far behind compared
to other regional countries concerning to scientific research work (Montenegro 1849,
Albania 2133, Bosnia and Hercegovina 6195, Macedonia 6187, Bulgaria 38122, Slovenia
48454, Serbia 49068 and Croatia 56461). In this context, the budget that Kosovo spends
on scientific research work is very low (0.10% of the GDP). Meanwhile, other regional
countries’ expenditures on scientific research and development are: Montenegro 0.40%,
Serbia 0.70%, Croatia 0.80%, and Slovenia 2.60%. 1

References

Assembly of Republic of Kosovo. Law No. 04/L-037, On Higher Education in the Republic
of Kosovo http://www.kuvendikosoves.org/common/docs/ligjet/Law%20on%20higher%20
education.pdf.
Birkland, Th. A. (2011). An Introduction to the Policy Process. Theories, Concepts, and Models
of Public Policy Making. Third Edition, London and New York: Routledge.
Dunn, W. N. (2016). Public Policy Analysis. Fifth Edition. New York, Routledge.
Dye, Th. R. (1998). Understanding Public Policy. Ninth Edition, New Jersey: Prentice Hall.
Heywood, A. (2008). Politika, Dukagjini, Prishtina.
Hill, M. (2005). The Public Policy Process. Fourth Edition. Essex, Pearson Education.
Jenkins, W. I. (1978). Policy Analysis: A political and Organizational Perspective.
Kraft, M. E., & Furlong S. R. (2015). Public Policy. Politics, Analysis, and Alternatives. Fifth
Edition, United States of America.
Ministry of Education, Science and Technology. Evaluation Report. Kosovo Education
Strategic Plan 2011-2016. December 2015. http://masht.rks-gov.net/uploads/2016/02/raport-
vleresimi-psak-2011-2016-eng-web.pdf
Moran, M. & Rein M. & Goodin. R. (2006). The Oxford Handbook of Public Policy, Oxford
University Press.
Peters, G. B. & Pierre, J. (2006). Handbook of Public Policy. SAGE Publications. London.
Weimer, D. L. & Vining, A. R. (2016). Policy Analysis. Concepts and Practice. Fifth Edition,
London and New York: Routledge.
Walker, W. E. (2000). Policy Analysis: A Systematic Approach to Supporting Policymaking in
the Public Sector. Netherlands.

 1
Ministry of Education, Science and Technology. Evaluation Report. Kosovo Education Strategic
Plan 2011-2016. December 2015. http://masht.rks-gov.net/uploads/2016/02/raport-vleresimi-psak-
2011-2016-eng-web.pdf

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