The limitations of policy learning: a constructivist perspective on expertise and policy dynamics in Dutch migrant integration policies

Figures & data

Table 1. comparison of conceptualization of the role of policy learning in policy change in the frame reflective approach and the discourse coalition framework.

	Frame reflective approach	Discourse coalition framework
Conceptualization of policy learning	Frame reflection	Learning interpreted as persuasion or ‘discourse structuration’
Types of actors involved in learning	Reflection requires openness to a broad range of actors with different frames	Actors operate in the context of specific discourse coalitions
Knowledge utilization in learning process (symbolic/instrumental)	Controversies cannot be resolved by reviewing ‘the facts’, therefore symbolic rather than instrumental knowledge utilization	Instrumental knowledge utilization only within discourse coalitions; but also symbolic knowledge utilization to lend credibility and authority to discourses
Structure of the learning process	Situated resolution of controversies requires design rationality (communication, empathy, introspection, willingness to change, trust)	Process of discourse institutionalization and discourse structuration
Outcomes of learning (incremental/non-incremental change)	Frame reflection can lead to non-incremental policy change within settings characterized by design rationality	Primarily incremental shifts between discourse coalitions

Table 2. operationalization of the frame reflective approach and the discourse coalition framework for the case of migrant integration policies in the Netherlands.

	Frame reflective approach	Discourse coalition framework
Types of actors involved in learning	Broad public and political debate on migrant integration, in which a multitude of different actors can participate	Distinct groups of actors working around specific discourses of migrant integration
Knowledge utilization in learning process (symbolic/instrumental)	Limited role of knowledge and expertise in the integration debate	Knowledge and expertise used to substantiate specific integration discourses
Structure of the learning process	Actors engaged in the integration debate are open and trustful to each other and willing to review and revise their frames	Specific integration discourses emerge as dominant and influence policy-making
Outcomes of learning (incremental/non-incremental change)	Learning leads to non-incremental policy changes (frame shifts)	Learning leads to adjustments in migrant integration policies (incremental policy change)

Table 3. Summary of congruence analysis.

Non-incremental policy shifts	From integrationism to assimilationism (early 2000s)	From assimilationism to mainstreaming (late 2000s)
Types of actors involved in learning	Broad range of actors involved from both politics (a national debate, high degree of politicization) and research (advisory bodies such as the WRR and the SCP, a temporary parliamentary investigative committee).	Broad range of actors involved from both politics (politicization) and research (WRR, SCP)
Knowledge utilization in learning process (symbolic/instrumental)	Conceptual research was largely ignored, mandated ‘ethnic statistics’ (produced by SCP) were used to substantiate assimilationist turn	Research used to substantiate the mainstreaming approach (as instrument for policy coordination)
Structure of the learning process	High degree of politicization accompanied by a strong level of distrust (credibility of researchers put on the line), ethnic data helps the institutionalization and structuration of the assimilationist turn	High degree of politicization, ethnic data helps the institutionalization and structuration of mainstreamed integration policies
Outcomes of learning (incremental/non-incremental change)	There was a non-incremental policy shift toward assimilationism, but learning does not seem to have been a key role in this policy shift	There was a non-incremental policy shift toward mainstreaming, but learning only seems to have substantiated rather than triggered this shift