Frame ambiguity in policy controversies: critical frame analysis of migrant integration policies in Antwerp and Rotterdam

Rianne Dekker

doi:10.1080/19460171.2016.1147365

Abstract

ABSTRACTPolicy frames are understood as the outcome of a policy process in which multiple frames are contesting, but where one frame prevails and characterizes policies. Policy frames are therefore perceived and studied as coherent interpretations of a policy issue containing a problem definition and a matching strategy to solve it. This rather fixed understanding of policy frames contrasts with other interpretive approaches which recognize a more dynamic and sometimes ambiguous character of policy language. The aim of this article is to analyze whether policy frames may be ambiguous and if so, how this can be understood by the problem context and political context of the policy issue. This study conducts critical frame analysis of local migrant integration policies in Antwerp and Rotterdam over the past 15 years. The analysis demonstrates presence of frame ambiguity in this controversial policy domain in the form of incomplete frames, solely focusing on the policy strategy while leaving the problem definition open to interpretation, and inconsistent frames in which the problem definition and policy strategy do not match. Ambiguous frames indicate a ‘strength of weak frames’: in a context of problem complexity and political contestation ambiguous frames can serve to overcome a deadlock in policy-making.

Highlights

Frame analysis has become a popular methodology in policy sciences following the linguistic or constructivist turn in policy sciences that took place during the 1990s (Fischer and Forester 1993)
In a critical frame analysis of policies related to the policy domain of migrant integration, this study argues that policy frames can be much less coherent and unitary with regard to problem definition and proposed policy actions than what theory so far suggests
While in other disciplines studying, for example, social movement or media frames sometimes incomplete, fluent and ambiguous frames have been described, policy frames are generally perceived to be well elaborated and unambiguous: They consist of a compatible problem definition and policy solution, while one frame at a time guides policy action

Summary

Introduction

Frame analysis has become a popular methodology in policy sciences following the linguistic or constructivist turn in policy sciences that took place during the 1990s (Fischer and Forester 1993). Most constructivist approaches – such as discourse analysis – have a rather fluid conceptualization of policy as ‘language in use’. They recognize ambiguity in policy language, for example, in the use of certain expressions or metaphors. In contrast, assumes that policies communicate a rather coherent and singular frame the policy problem. Frames are considered to be interpretive packages providing a consistent causal story of how the problem came about and how it should be solved (Gamson and Modigliani 1987, 1989; Entman 1993). Policy frames are understood to resolve ambiguity in social reality rather than being

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