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Problem definition is a key part of the policy process. Policy problems can be defined in different ways, and different definitions often compete for the attention of policymakers and for privileged status an the governmental agenda. This article uses different problem definitions of public education in Boston, Massachusetts as a case study of how different definitions vie for acceptance. Problem definitions that received the most attention-weak governance, inadequate school programs, and limited finances-achieved agenda status due to their high visibility, strong political sponsorship, and availability of viable solutions.
Introduction
Agenda setting is a critical part of the policy process. Competition can be intense among problems and issues seeking the attention of policymakers. Some problems rise to the top of the policy agenda, and others fade from the scene. The victors in this competition typically benefit from a persuasive and compelling problem definition. A problem defined as a "crisis," for example, is more likely than others to receive resources and attention from public policymakers.
Problem definitions, however, are subject to debate and interpretation. Competing definitions are the norm, even in one policy area. Different actors present different explanations for the nature and occurrence of a particular problem. Agenda setting becomes, then, an arena for the adjudication of different problem definitions.
Public education policy captures this dynamic. America's schools are criticized as inadequate and incapable of meeting the demands of a rapidly changing society. National, state, and local policymakers have introduced numerous reforms-privatization, school choice, charter schools, etc.-to improve public education. Yet, attention to public education often is fragmented due to competing definitions of the educational problem (Elmore, 1990; Henig, 1994). Inadequate funding, weak curriculum, poor teaching, and faulty governance are but a few of the definitions of the educational problem. This competition among definitions is apparent at all levels of the federal system.
Education policy is used in this article to explore the role of problem definition in agenda setting. Many studies of problem definition look at competing definitions of different policies, such as health care, unemployment, and the environment; our analysis focuses on competing definitions of the same policy issue. Thus, our concern is how different definitions of the education problem compete for attention and resources.
Public education in Boston, Massachusetts, provides the setting...