Scenario planning meets frame analysis: Using citizens' frames as test conditions for policy measures

Policy-makers expect that policy measures will lead to specific results. Generally, not all citizens respond as expected. One of the potential reasons is that citizens' frames do not always align with the policy frame. Combining insights from the literature on frame analysis and scenario planning, especially the idea of wind tunnelling, this paper presents a conceptual framework in which citizens' frames are used as test conditions for policy measures. The framework consists of three steps: the reconstruction of a policy frame, the reconstruction of contrasting citizens' frames and wind tunnelling. We studied two cases in the justice domain. The results indicate that the framework induces policy-makers to look beyond the official policy frame, to anticipate diverse reactions to policy measures, and to consider a broader set of policy options.