"A policy is a formulation of long term goals and purposes and of the values and aspirations by which those goals and purposes are not only defined but are to be translated into activities and practices. Thus a policy is an affirmation, perhaps a reaffirmation, of what may be taken for granted or is implied, but what is frequently ignored or neglected or inadequately recognized in plans and programs and customary operations. Sometimes a policy serves to point out where these goals and purposes and these values are being blocked or sacrificed to various short-term ends or convenience."