Communicating strategically in the face of terrorism: The Spanish government's response to the 2004 Madrid bombing attacks

With the re-emergence of insurgency tied to terrorism, governments need to strategically manage their communications. This paper analyzes the effect of the Spanish government's messaging in the face of the Madrid bombing of March 11, 2004: unlike what happened with the 9/11 bombings in the USA and the 7/07 London attacks, the Spanish media did not support the government's framing of the events. Taking framing as a strategic action in a discursive form (Pan & Kosicki, 2003), and in the context of the attribution theory of responsibilities, this research uses the “cascading activation” model (Entman, 2003 and Entman, 2004) to explore how a framing contest was generated in the press. Analysis of the coverage shows that the intended government frame triggered a battle among the different major newspapers, leading editorials to shift their frame over the four days prior to the national elections. This research analyzes strategic contests in framing processes and contributes insight into the interactions among the different sides (government, parties, media, and citizens) to help bring about an understanding of the rebuttal effect of the government's intended frame. It also helps to develop an understanding of the role of the media and the influence of citizens’ frames on media content.

► Framing as a strategic action in a discursive form in the context of terrorism.
► Efficacy of the strategic government frame is related to its capacity to resonate.
► Rebuttal effects come from interaction of different sides at frame promotion.
► Citizens’ frames can impinge on media content and thus feed frame contests.
► Strategic public relations can help democracies and people to respond to terrorism.