What, when, how-2. what when how-3. what, when how-4. what when, how-5. what, when and how-€ who the actors within and outside the formal governmento citizenso elected officialso special interest groupso state and local governments what the decisions the government makes and the form of what government fundso the way it raises revenueo policies it produces and enforces when relates to setting priorities about what government does how - refers to the way in which the government goes about its work. based on the political institutions that exist and the formal and informal procedures and rules that define the governing process.