Who Normally Identifies the Problem in the Policy Cycle

Who normally identifies the problem in the policy cycle?

A) The government normally identifies issues for groups who do not recognize problems themselves.
B) The government normally identifies issues for groups who do not have a voice (such as children) in the issue.
C) The public identifies a problem and insists on help in correcting the problem.
D) Either the public or the government identifies the issue, depending on the problem.
E) None of these is correct.