Elections not only allow citizens the chance to make their opinions heard by choosing public officials, but they also help shape the governments public agenda, which consists of the issues that need to attract serious public attention.
A government's policy agenda changes regularly, when jobs are scarce and businesses are failing, they go to the top of the agenda. When everything is going great for us, then foreign problems top the list.
Polices can also be established with inaction as much as action, doing nothing or nothing different can prove to be very influential to the government.
Having a policy implies a goal, whether we want to cut crime or clean water, we have a specific goal in mind. You have to think if a policy can achieve the goal and at what cost.