Each process has to define scope and objective in order to determine who are the primary and secondary stakeholders.
the idea is to focus the process on the stakeholders who are the most impactful-impacted by the change. They include multiple layers from decision makers (politically accountable and the opposition), implementers (practitionners) and beneficiaries (represented by interest groups, making sure to focus on the most vulnerable).
other groups should also be included, but as support/facilitators to the discussion. These include academia, media and communications, CSOs, the larger public opinion, etc.