The role of cognitive and normative frames in policy-making

Abstract

The analysis of public policy has recently been characterized by the development of an approach which emphasizes the influence of cognitive and normative elements in public policy - making. The main purpose of this article is to offer a critical review of different models related to this approach, based on notions of paradigm, of advocacy coalition , or of the référentiel . In spite of some differences, these conceptualizations all shed light on the influence of 'world views', mechanisms of identity formation, principles of action in public policy analysis. These models, separate from those informed by a rationalist position, are also capable of explaining the processes of 'extraordinary' change in public policy. However,an excessive emphasis on cognitive and normative variables has sometimes underestimated the forms of mobilization to which these frames are subject. This article tries to integrate certain neglected variables: the interests of actors, and the role of institutions.