Almost all IT projects today are technology centric rather than business driven. In order to provide business value, projects must become ‘owned’ and driven by the business and not be focussed on, and led by, the IT department.
The development starts often in level 3, application layer, without the required detailed knowledge and understanding of the business rules, clearly defined outcomes or the business ecosystem in which the business operates. Therefor its essential to start in Policy layer to set the expected outcome and Investigate legal requirements and business needs.