Changing climate, changing frames: Dutch water policy frame developments in the context of a rise and fall of attention to climate change

Water management and particularly flood defence have a long history of collective action in low-lying countries like the Netherlands. The uncertain but potentially severe impacts of the recent climate change issue (e.g. sea level rise, extreme river discharges, salinisation) amplify the wicked and controversial character of flood safety policy issues. Policy proposals in this area generally involve drastic infrastructural works and long-term investments. They face the difficult challenge of framing problems and solutions in a publicly acceptable manner in ever changing circumstances. In this paper, we analyse and compare (1) how three key policy proposals publicly frame the flood safety issue, (2) the knowledge referred to in the framing and (3) how these frames are rhetorically connected or disconnected as statements in a long-term conversation. We find that (1) framings of policy proposals differ in the way they depict the importance of climate change, the relevant timeframe and the appropriate governance mode; (2) knowledge is selectively mobilised to underpin the different frames and (3) the frames about these proposals position themselves against the background of the previous proposals through rhetorical connections and disconnections. Finally, we discuss how this analysis hints at the importance of processes of powering and puzzling that lead to particular framings towards the public at different historical junctures.

► We show development of flood policy frames in context of climate change attention.
► Rising attention on climate change influences traditional flood policy framing.
► The new framing employs global-scale scientific climate change knowledge.
► With declining attention, framing disregards climate change, using local knowledge.
► We conclude that frames function as sensemaking devices selectively using knowledge.