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The Frames and Ideographs of Water Reuse Policy Discourses

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The Frames and Ideographs of Water Reuse Policy Discourses THE FRAMES AND IDEOGRAPHS OF WATER REUSE POLICY DISCOURSES: AN APPLICATION OF NARRATIVE ANALYSIS AND TEXT ANALYTICS by Jeff M. Stevens A Dissertation Submitted to the Faculty of The College for Design and Social Inquiry in Partial Fulfillment of the Requirements for the Degree of Doctor of Philosophy Florida Atlantic University Boca Raton, Florida December 2012 ACKNOWLEDGEMENTS I am most especially indebted to my dissertation advisor, Professor Hugh Miller. This dissertation would not have been possible but for his patience, support, encouragement, and guidance throughout my graduate studies at Florida Atlantic University. I am sincerely grateful to my committee members, Drs. Alka Sapat and Arthur Sementelli, for their willingness to serve on my committee, guidance, and support. I also thank Drs. Gary Marshall of the University of Nebraska and Donald Cooper for their early critiques and advice. And, I thank Drs. Khi Thai, Rosalyn Carter, and Barry Rosson, for allowing me the extended time I needed to complete this dissertation. Finally, I am grateful to my family for their unconditional love and enduring support throughout this process. Most of all, I thank my wife Beverly for her personal sacrifices and unrelenting patience during this project’s completion. This dissertation is dedicated to her and our children, Emily and Shane. iii ABSTRACT Author: Jeff M. Stevens Title: The Frames and Ideographs of Water Reuse Policy Discourses: An Application of Narrative Analysis and Text Analytics Institution: Florida Atlantic University Dissertation Advisor: Dr. Hugh T. Miller Degree: Doctor of Philosophy Year: 2012 This dissertation examines environmental policymaking as more of a symbol- driven ideological contest over meaning than a rationally discursive democratic process through two interpretive modes of research: historical narrative analysis and text analytic frame mapping. Both are applied to the case example of the city of San Diego’s controversial policy innovation of indirect potable reuse via reservoir augmentation, or “toilet-to-tap,” as it became known through local news media. The dissertation develops its theoretical foundation from the literature pertaining to political communication in public policy, including the role of signs and symbols, media theory, frames and framing, and agenda setting. Electronic documents are used as data. The narrative analysis traces the historical development of the policy innovation and a habitus of public acceptance of wastewater reuse. Emphasis is given to ideographs as policy symbols in political communication and policymaking, and the role of frames iv and framing relative to extralinguistic forces that guide the trajectory of the policy innovation. The coherence of the qualitative thick description affirms the importance of interpretive history as a mode of policy research. Text analytic frame mapping is undertaken as a linguistics-based approach to stakeholder analysis, and is conducted using two samples of newspaper articles pertaining to the San Diego case: editorials, letters to the editor, and op-ed columns (n = 77) and news articles and feature stories (n = 278). These analyses identify the discourse participants, key actors, and organizations represented in the discourse, their policy positions, the policy symbols and ideographs used in their policy arguments, and the frames that underlie or characterize their policy positions. The findings underscore the importance of the symbolic realm in environmental policymaking. The dissertation finds the two modes of interpretive research can be applied complementarily to mitigate the limitations of each: Interpretive narrative analysis identifies causal relationships and allows for a critical rephrasal of the phenomena of interest, but patterns that transcend the details are not easily detected, whereas text analytic frame mapping identifies patterns and organizes large volumes of unstructured text, but oversimplifies the complexity of the policy narrative by reducing it to sets of classification measures. v THE FRAMES AND IDEOGRAPHS OF WATER REUSE POLICY DISCOURSES: AN APPLICATION OF NARRATIVE ANALYSIS AND TEXT ANALYTICS LIST OF TABLES ............................................................................................................. xi LIST OF FIGURES .......................................................................................................... xii CHAPTER 1: INTRODUCTION ....................................................................................... 1 Project Summary ............................................................................................... 5 Interpretive-Historical Narrative Analysis. ................................................. 6 Text Analytic Frame Mapping. ................................................................... 9 Academic Situatedness. ............................................................................ 11 Researcher Choices and Assumptions. ..................................................... 13 Research Questions and Objectives ................................................................ 14 Organization of the Remainder of the Study .................................................. 17 CHAPTER 2: LITERATURE REVIEW .......................................................................... 20 Theoretical Assumptions ................................................................................ 20 Media Dependency and Media Constructed Frames. ............................... 22 Agenda Setting and Agenda Building ............................................................. 26 Issue Salience Transfer. ......................................................................... 27 Attribute Salience Transfer. .................................................................. 29 Media Influence in Agenda Setting and Agenda Building. ...................... 31 Limitations on Media Influence. ........................................................... 32 Ideographic Discourse .................................................................................... 34 Ideographic Discourse and Mediatization. ............................................ 36 Frames ............................................................................................................. 39 Frames as Structured Representations. ..................................................... 40 Bateson’s Psychological Frame. ............................................................... 43 Goffman’s Frame Analysis. ...................................................................... 44 vi Entman’s Framing Paradigm. ................................................................... 47 Frames in Text. ...................................................................................... 48 Cultural Frames. .................................................................................... 49 Framing and Reframing .................................................................................. 54 Manipulation of Issue Dimensions. ....................................................... 57 Symbolic Arguments. ............................................................................ 59 Ideographic Symbols. ............................................................................ 60 Metaphors and Other Frame Indicators .......................................................... 61 Frames as an Imprint of Power ....................................................................... 63 Review of Methods in the Framing Literature ................................................ 65 Interpretive Frame Analyses. .................................................................... 68 Resolutive Frame Analyses....................................................................... 71 Linguistic frame analysis. ..................................................................... 72 Manual Holistic Frame Analysis. .......................................................... 76 Wholly Quantitative Frame Analysis. ................................................... 78 Deductive Approach. ............................................................................. 82 Summary of Methods Surveyed................................................................ 83 CHAPTER 3: METHODS AND PROCEDURES ........................................................... 85 Case Selection ................................................................................................. 86 Case Narrative Analysis .................................................................................. 88 Epistemic Framework. .............................................................................. 89 Materials and Procedures. ......................................................................... 91 Frame Mapping ............................................................................................... 94 Local Newspaper as a Data Source ........................................................... 96 Article Selection...................................................................................... 102 CHAPTER 4: CASE NARRATIVE ............................................................................... 108 Preface to the Controversy ............................................................................ 109 The Concept of Planned Wastewater Reuse ................................................. 114 Organization of the Case History .................................................................
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