We really need more context to tell exactly what is meant by "empaquetado" here, but in principle I think there are basically two things it could mean: either the idea dividing something up (public policy in this case) into a series of "paquetes", or the idea of an appropriately designed outward appearance: presenting public policy in a way that makes it more acceptable.

I think "packaging" in English would cover both these possibilities. In the following context, it refers primarily to the first, but with a suggestion also of the second:

"Packaging and Appraisal of Potential Policy Packages [...]
Package Effects
2.41 The assessment undertaken in Stage 6 focussed on providing an insight into the abatement potential and associated cost for each policy option. However, it is recognised that policies will be introduced in packages that will provide synergies and indeed also conflicts in achieving mitigation. It was therefore considered essential to build on the individual policy analysis and to consider potential policy packages.
Two Packages of Policy Options
2.42 Our view is that packaging is very important, both in order to maximise the synergies between policy options and to secure wider acceptability through mixing 'carrots' and 'sticks'. "
http://www.scotland.gov.uk/Publications/2009/08/26141950/3

Here it is more a question of the second -- presentation:

"In light of this opposition, there must be a better packaging of public policy goals in a more user friendly manner for legislators, the general public and the media. "
http://www.safetylit.org/citations/index.php?fuseaction=cita...