How a policy is understood and discussed is its policy image. Policy images play a critical role in the expansion of issues to the previously apathetic. Because all people cannot be equally interested or knowledgeable about all issues facing society, specialists in any area have an advantage over all others. Since they know the issue better, they are sometimes able to portray most of their time communicating with each other, of course, but from time to time they must explain their policies to the larger public or to elites with only a passing interest in the area. This type of communications requires some simplified ways of explaining the issue and justifying public policy approaches to them. As a result, every public policy program is usually understood, even by the politically sophisticated, in simplified and symbolic terms.

* Frank R. Baumgartner and Bryan D. Jones, Agendas and Instability in American Politics (Second Edition)