The aim of this chapter is to understand and analyze policy, economic policy in particular, as an evolutionary process. Agents in this process are by no means only those who are in the public eye perceived as responsible parties for policy and decision-making. Every policy has its roots beyond the official political structures, in areas where there is ‘private’ dissatisfaction, where there is a need for action, where this kind of perception is shared with others, where potential policy content is defined and, finally, where critical masses, which can generate pressure for policy action, are created.