I think you forget 4): Developing policy ideas

Thinking about how to regulate complex issues is not trival. Developing better ideas of how to solve a certain issues is an important task. It's a failure condition to look at an issue and think about it for an hour to come up with a policy to solve it and then go and lobby politicians to implement your policy.

Good policy thinking can take years to develop. Take a policy idea like "Measuring National Well-being". It takes a lot of intellectual thinking to come up with such a concept and bring it in a form where you can go to a politician and tell him: "Here a law to measure National Well-being, please make sure that the law get's passed".

Good governance isn't so much about debating whether we should raise or lower taxes. Both positions have good arguments in their favor. You don't get the maximum benefits if you focus on issues where both sides of the debate of good arguments in their favor. It's about thinking of how to reform the tax system so that filling your taxes takes less time and that there aren't loopholes in the tax code that allow people to avoid paying taxes for reasons that aren't good for the whole country.