When the political leader is the narrator: the political and policy dimensions of narratives

Abstract

There is increasing interest in the role of narratives in policy-making, as evidenced by the consolidation of the Narrative Policy Framework, a theory of the policy process whose overall aim is to explain how policy narratives influence policy outcomes. However, with the focus on only policy narratives, there is a risk of underestimating the relationship between the policy dynamics in a specific subsystem and the pursuit of consent in the political arena. To attract more scholarly attention to this relationship, this paper distinguishes between two types of narratives—the political narrative and the policy narrative. It focuses on how political leaders address the trade-off between the content of their political and policy narratives, not only adding analytical and theoretical leverage to the Narrative Policy Framework but also providing a fine-grained comprehension of the multilayered dynamics of narratives in politics. Our main assumption is that political leaders continuously address relationships and the eventual trade-off between their political narratives (the stories through which they shape the preferences of public opinion by proposing their general political vision) and their policy narratives (the stories they tell to shape the policy process and its outputs). The way leaders decide between these trade-offs can make a significant difference in terms of political and policy outputs. We test this assumption with a comparison of the use of narratives by the same political leader in labour and education policies in Italy.