In short, agendas deal with issues that may already fall under the control of a public service organization or are being considered for adoption by a public service entity. Pseudo agenda items are those that are thrown in without serious consideration as to their merit. Formal agendas have a plan and may or may not have predefined limits. Formal issues may be dynamic and may eventually lead to the adoption of goals of political factions not considered mainstream. In order for an issue to make it to the agenda level, it has to be introduced and accepted by someone who has the power to make the transformation possible.
Several factors come into play here.
Is the issue viable as an agenda, if so, how. If it meets these criteria then the most important consideration may be how it will affect my position politically. If it is favorable to my position, then I may proceed. 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.