Final answer:
Policy change historically often begins at the state level of government, where state governments take initiative in various policy domains and can act as testing grounds for policy innovation.
Step-by-step explanation:
Historically, policy change can begin at various levels of government, including local, state, national, and international. However, when we look at the development of public policies and decision-making processes, it's frequently observed that state governments often take the lead, especially in domains such as highways, welfare, health, natural resources, and prisons. Local governments tend to dominate in areas including education and public services such as fire protection, sanitation, and infrastructure.
Moreover, state and local levels of government can serve as incubators for policy innovation, acting on the front lines of economic development and responding to the immediate needs of their constituents. With their closer proximity to the public, they can trial policies that, if successful, may rise to broader implementation at the national level or even influence international policy through various agreements and collaborations.