Against policy (a tiny manifesto)

A tiny manifesto found in "Fragments of an Anarchist Anthropology" by David Graeber.

The notion of “policy” presumes a state or
governing apparatus which imposes its will on
others. “Policy” is the negation of politics; policy is
by definition something concocted by some form of
elite, which presumes it knows better than others
how their affairs are to be conducted. By partici-
pating in policy debates the very best one can
achieve is to limit the damage, since the very
premise is inimical to the idea of people managing
their own affairs.

"policy is by definition something concocted by some form of elite" --how is it "by definition". If people manage their own affairs by collectively developing a policy, then there's no "elite" involved.