Stakeholders have some very concrete reason to be concerned about a public issue—they hold a “stake” in it, and have reason to be concerned with any changes (particularly in policy) surrounding that issue. Stakeholders have varying needs and interests: some might advocate for certain changes while others will be against them.

For instance, stakeholders concerned with a proposed homeless shelter in San Francisco might include possible shelter workers and care providers; homeless advocates; city supervisors and (just now) mayoral candidates and state legislators; nearby business owners; nearby residents; other homeless shelters in the area; taxpayers; and (of course) people who are homeless and likely to use the facility.

You might also think of stakeholders as representatives of as ‘special interest groups’ who will usually have some added credibility or ethos because they are likely to be directly involved in the issue at hand and know some things about it (at least from their particular perspective).