How are characters constructed in policy narratives? Bringing in target group constructions and their operating criteria

Characters are a key component of policy narratives, but criteria for what constitutes a “hero”, a “villain” or a “victim” have not been established so far. We argue that research on the social contruction of target populations might fill this gap. While it is crucial to understand how target group constructions are being made, the exact criteria along which these constructions operate have not yet been well understood. This is especially the case when we extend the view beyond the field of redistributive policies and their focus on granting (or not) different (social) rights, for which a rather independent line on ‘deservingness criteria’ and solidarity norms has been developed. Yet for other policy areas, different constructions may gain importance, which, for instance, portray characters as ‘honest’, ‘criminal’, ‘caring’, or ‘selfish’. This paper aims to identify and systematise these constructions and their operating criteria, with the aim to improve our understanding of characters in policy narratives. Empirically, the paper analyses policy measures that have been enacted in the COVID-19 pandemic in Germany. While the pandemic clearly represents an exceptional case, it nevertheless provides ample evidence of how different characters are being portrayed in policy narratives.