Policy analysts take different approaches to deciding whom their policies benefit. One way is to look at the individuals the policy will be aimed at and find viable solutions for that group with the resources they have available.
Another method is to look at the stakeholders involved and consider all of the politics involved with dealing with a larger, overseeing group. Taking into consideration their needs, solutions can be found.
The last method deals with large-scale policy changes which take into consideration all of the systems affected and the multitude of influences surrounding a problem.
In all of these cases, policy analysts must deal with both solid statistical data as well as with the people involved. This can indeed be a big task.