If it is not, I may want to forestall the issue or pass it on to one of my political enemies, and hope they do not have the foresight to delay the birth from issue to agenda, and thus commit political suicide. If I am the person trying to present my issue for a possible agenda transformation, I must carefully take into consideration the risks to myself, my compatriots, my family perhaps, and to my party. Some risks are inherent in the process, others are manufactured. Preemptory planning always is a good idea when the long term goal is to turn an issue into policy. Political considerations, agency considerations, and the interplay of collateral subagency forces may confound the process if not anticipated in advance.
Differential legitimacy is the process commonly known as the good old boy system.
Not everyone has the same access to information or political groups. By increasing your familiarity in several circles and using these to make contact with other circles of interest, your ability to access an ever growing number of groups increases you ability to be effective. If you are going to try to turn an issue into an agenda item, pick one that is already being considered by someone who has the power to do something about it. If this is not possible, then use the media to assist you in turning your issue into an agenda item. This requires a great deal of planning and preparation.