Narrative plots for regulatory, distributive, and redistributive policies

The Narrative Policy Framework (NPF) has ignited a remarkably active research community, one of its main contributions being distinct narrative elements—including settings, characters, and plots. Yet, while the plot constitutes core element narrativity, it received less attention vis-à-vis other components. Existing classifications plots have been proven to possess great ability capture “universal” policy stories, but not specific variations different types policies. This article presents typology by linking their universal policy-specific themes, thereby theorizing from Lowi's seminal regulatory, distributive, redistributive Empirically, focuses on political communication Germany's responses COVID-19 pandemic. narratives were mined Twitter governmental press conferences (March–June 2020). qualitative NPF analysis demonstrates that identified plots—restricting-to-control, liberating-to-promote, providing-to-promote, giving-to-give, giving-to-promote—can grasp policies as well variety. 叙事政策框架 已引起大量活跃研究, 其主要贡献之一是独特的叙事要素, 包括背景、角色和情节。不过, 尽管情节是叙事性 (narrativity) 的一个核心要素, 但与其他叙事要素相比受到的关注较少。关于情节的现有分类已能准确描述“一般性”政策叙事, 但还无法描述不同政策类型的具体差异。通过将不同情节的一般性主题和具体政策主题相联系, 本文提出一种情节分类法, 因此在Lowi对监管政策、分配政策和再分配政策的重要分类基础上加以理论化。实证上, 本文聚焦于德国对新冠肺炎 (COVID-19) 大流行的政策响应的政治传播。从推特和政府新闻发布会 (2020年3月至6月) 中挖掘政策叙事。NPF定性分析证明, 所识别的5个情节—restricting-to-control, giving-to-promote —能准确描述不同的监管政策、分配政策和再分配政策, 以及这些政策的多样性。 El Marco de Política Narrativa ha encendido una comunidad investigación notablemente activa, sus principales contribuciones son los elementos narrativos distintos, incluidos escenarios, personajes y tramas. Sin embargo, si bien la trama constituye un elemento central narratividad, recibido menos atención frente otros componentes narrativos. Las clasificaciones existentes parcelas han demostrado gran capacidad para capturar historias políticas “universales”, pero no las variaciones específicas diferentes tipos políticas. Este artículo presenta tipología tramas vinculando temas universales específicos políticas, teorizando así partir Lowi regulativas, distributivas redistributivas. Empíricamente, se centra en comunicación política respuestas Alemania pandemia COVID-19. narrativas extrajeron conferencias prensa gubernamentales (marzo junio análisis cualitativo demuestra que identificadas (restringir controlar, liberar promover, proporcionar dar promover) pueden comprender factores regulatorios, distributivos redistributivos. como su variedad. “I came realise people don't vote based policy, even facts. They stories. And I became president, frankly, because told pretty-good story about what America could be should be.” quotation1 former US President Obama mirrors awakened interest in we can witness both politics science. Narratives are increasingly acknowledged crucial for individuals process information make sense world, and, consequently, considered highly important policymakers address citizens legitimize (Boin et al., 2016; Jones & McBeth, 2010). Not least, this resulted rise comparatively new theoretical framework “takes systematic, scientific approach understanding social construction realities” (Shanahan 2013, 455). distinguishes elements such setting, plot, moral story. Two these paid special to, specifies minimal definition contain “at least character […] some public referent” (Shanahan, Jones, McBeth Radaelli, 2018, 176). contribution separate that—according definition—may present all, most narratives, namely plot. Looking at equivalents dramatic theory or literature studies, becomes evident is essential structures. Aristotle regarded primary importance drama more than characters (Belfiore, 1992). Still, characterized “most misunderstood aspect narrativity” (Somers, 1994, 617; cf. Lawlor Crow, 2018). Moreover, there ambiguities previous attempts qualify categorize reason why puts center stage. In analyses, common practice take developed Stone (2012) point departure Additionally, studies highlighted role play sectors (Blum Kuhlmann, 2019; following NPF’s key claim generalize across how distinguished systematically? We argue achieved policies, focusing Lowi’s (1972) aims conceptualizing distinguishing cover “universal themes” (Stone, 2012, 164) themes able essence It applies meso-level, study (Gray 2016) findings, develops hypothesis concluding section guide further research. empirical focus pandemic communication. On January 28, 2020, first case was confirmed Germany; March 11, World Health Organization declared spread same day, Germany had 1,567 cases three deaths—figures would steeply weeks 61,913 583 deaths end (RKI, Encompassing measures enacted order virus, shutdown life, including closure schools childcare, far-reaching restrictions contact. equip health sector handle cushion economic consequences, encompassing expansionary (see, e.g., Cantillon 2021; Naumann purposes areas different. regulatory strive justification alterations (and often restrictions) individual behavior lives. distributive allocation resources groups, toward critical infrastructure, tell stories who receive certain benefits (or not). Taken together, allows wide variety next introduces NPF, with they relate Section 3 details methods data, relying systematic comprehensive conferences. 4presents analysis, before close summary conclusion. 2010, introduced into that, Sabatier's famous call, (in fact) “clear enough wrong” (Jones Whereas work mostly conducted within interpretive aimed provide “quantitative, structuralist, positivist approach” Its assertions hold firstly, form, consisting “precise elements” 175), secondly, content generalized studying strategies beliefs (ibid., 177). alongside (predominantly) quantitative also 2016), yet—as Stauffer Kuenzler (2021) highlight—moving rather slowly European community scholars (but see, Hildbrand 2020; Weiss, considers element, besides “moral story.” A provides “arc action” 176), example, “affect[ing] blame assigned villain, actions needed hero gleaned story” 2016, 197). thus “situates relationship time space” As Crow (2018, 844) stress, studied thoroughly “not previously clearly defined measured.” function “principles organization” (Gottweis, 2006, 470) when “establish relationships between varieties entities” 469). Their Somers, defines “constellations (connected parts) embedded space, constituted causal emplotment” 616). Emplotment means which reduce complexity connect parts specific—albeit necessarily chronological—way explanations events, possibly these. Plots constitute “the logic syntax narrative” 617) an feature (cf. Gadinger 2014). analyses stressed defining characteristic exceed settings: “policy like fairy tales, culturally variations” 164). Some (2012), those continue dominate (see Shanahan, Crucial here “change” “power” (for see Stone, 160–168): change, decline figure prominently. deterioration (previously good) circumstances, predicts occurrence severe crisis, offers compelling solution concerning crisis averted. stymied progress variant decline, wherein upward trend threatened events actions. Stories rising understood opposite: improvement bad) circumstances. Finally, change-is-only-an-illusion story, apparent worsening situation be, fact, illusory. Within power, helplessness control widespread. argues, strongly interrelated, presented having gotten out hand, either (re-)gained (story control) left without options act helplessness). identifies conspiracy sub-variant. lies hands few persons, needs changed. blame-the-victim another version victims prompted change self-imposed situation. added plots, victory, pointing “inevitability winning battle” 468). scholarship encouraged developing existing elements, “a way operationalize move beyond historic use Stone’s work” 339). While Stone's two debatable aspects. Firstly, separable, “often woven together” 168). For might general background telling (ibid.). Even question whether emplotment captures only comprises elements. if follow aim situating 176, authors’ emphasis), goes (at extent) against Rather, suggests task situate better particular context providing “arcs action,” is, interact setting. indicates advanced context-sensitive analytical endeavor successful, distinguish prevalent tools target populations. typology— policies2—which continues cornerstone (Howlett, Knill Tosun, That “policies determine politics” (Lowi, 1972) become irrevocable truths analysis. Key distinction differences likelihood applicability coercion. Generally, directed populations attempt “to achieve goals changing people's behaviour” (Schneider Ingram, 1993, 335) “enabling coercing do things done otherwise” Regulatory define conditions activities groups. Distributive allocate resources, directly groups infrastructure broadly accessible. What assumed infinitely divisible—the fact obtains does imply B gets less. By contrast, costs reallocated Redistributive therefore generate much conflict (Knill 15). Critics line blurred, since perceived redistributive. People might, oppose fearing lead increased taxes future 18). creation “winners” “losers” visible stressed, particularly Schneider all create “losers”—albeit always primarily material terms. Therefore, expect legitimizing differ depending type captured. implies features: links situates characteristics policy. combination important, time) rooting sense-making contexts. authors argued, closely setting Raile Fn. 4). context, step connecting actors Due pandemic, many parents unable fulfil eligibility rules parental leave. adapt leave crisis-proof so experience any disadvantages. (BMFSFJ_April_98)3 Here, or, words theme depicted (“many to”), followed converting (“make crisis-proof”). At time, regard loosening criteria cash benefit (“we leave”) group (parents “victims”). Against backdrop, form semantic propose respectively. Figure 1 summarizes typology. chosen terms depicts narratives’ direction link respective (e.g., “restricting,” “liberating”). second combines (“why?”), broader promote,” control,” “out helplessness”). linked type, element—depicting themes—can occur types. control” will demonstrate empirically, interactions settings. range moreover, exists them. To begin speaking, “all regulation involve promulgation binding circumscribe alter behaviour groups” 2019, 83). authoritative tools, instruments well, incentives 1990). restrictive direction, constraining groups’ behavior, lenient expanding scope action abound Gray essentially convincing suggested adopted—more lenient—policy legitimate, targeted through Policy-specific concerned “restricting” “liberating.” With importantly control—or exert promote giving them space self-determined If combine stories: name restricting-to-control involving characters—for heroes implement villains prevented causing harm—are maintain (re-)gain (such food safety disease control). Conversely, lifted, issues states, societies, markets. label liberating-to-promote resources. Both concern financial capacities state, incentive capacity prominently allocating equipment accessible education, care)—and groups; wherefore, gaining losing) visible. narratives? When compared using investigate are—to best our knowledge—less especially recent years, gained traction Béland, Blum 2019). again concrete “giving” “taking” benefits. direct “giving poor,” “taking welfare cheats”) 1993). (mostly redistributive) Kuhlmann (2019) measures, granting (stories-of-giving) reduction full removal) (stories-of-taking). comes stories-of-giving may deservingness acknowledgment (giving-to-give stories) empowerment (giving-to-promote stories).4 Stories-of-taking undeservingness (taking-to-take), portray taking regain (taking-to-control), attribute (taking-out-of-helplessness). allude fundamental principles living together treated, treatment—which socially constructed—is built (not) key, allocated money obvious redistribution conflicts. assume legitimation patterns (not implying, however, conflicts absent). withdrawing-to-control, withdrawing-out-of-helplessness. plot's “providing” “withdrawing,” not) societal promotion. “Providing” then promote”—similar policies—while withdrawing (again) (i.e., portrayed alternative). typical example description state particular) “as sea-monster growth crowds private ever-increasing size part economy” (Greve, 2021, 38) course austerity retrenchment. investigated period covers March–June 2020 “first wave” Germany.5 “narrative data around us” 340), various sources employed newspaper articles, documents, videos, surveys. government's elsewhere) marked executive dominance, unique pursuit sense-making, ensuring compliance Boin 2021). Our used responses. must pointed narrows uses alternative counter scope.6 effective meso-level coded set sectors. These labor market policy) described nature Heinelt, employment effects predominantly short-term work) family school/childcare closures); rated prime examples Secondly, taken strengthen healthcare system additional intensive care units, recruiting staff), investments Thirdly, containment located maximum amount contact regulated via decrees federal states) over several childcare/school closures affecting family/education policy). Oxford Government Response Tracker,7 rates stringency index strictest lenient). decisions accordingly, mainly realm ministries. due exposed relevance during responsibility lay chancellor, minister presidents states. source, Twitter, joining media Merry, 2016). Tweets allow investigating directly, “filtered” newspapers). Considering responses, included four profiles ministries chancellery, responsible communication): government spokesman Seibert,8 Ministry Labour Social Affairs (BMAS), Family (BMFSFJ), (BMG). “become framing issues” (Merry, 373), ranging number followers) ca. 80,000 (BMAS) million (Seibert) (April short tweets discussed potential problem 341), pre-test longer Facebook posts showed significant narratives.9 include source higher source—whose already (Christensen Laegreid, Press audience tweets, clips featured TV news, reaches high viewers Germany.10 mining attends 16 states measures. Every weeks, heads states’ governments met (often virtually) agree During under investigation, Chancellor Merkel (CDU) 11 six joined (then) chair (Söder, CSU) vice-chair (Tschentscher, SPD) Conference Minister-Presidents. coding, extracted manually single text file per actor month. One tweet formed unit each checked meeting 2013) applied case, containing reference COVID-19, character.11 retweets excluded. conferences, introductory statements extracted, read, structured nar