The missing puzzle piece: the symbolic dimension of policy narratives

In the study of the policy process, a narrative turn occurred around 2010 with the emergence of the Narrative Policy Framework (NPF) (Jones & McBeth, 2010). While earlier research had highlighted the role of stories in policymaking (Radaelli, 2000; Stone, 1989; Fisher, 2003, McBeth et al., 2005; 2007), it was around this time that the framework became formalized. It gained increasing visibility and gave rise to a distinct research stream (Jones, Shanahan et al., 2014, McBeth et al., 2014). The NPF was initially grounded in a positivist approach but, researchers increasingly integrated interpretivist perspectives and the role of emotions. Yet, these approaches overlook the symbolic. This is not surprising since it is difficult to identify, hard to measure, and open to interpretation. Another challenge stems from “common sense” understandings, which equate it with empty rhetoric, illusion, or the absence of material impact. In this view, symbolic policies are seen as mere displays or gestures—policies that signal intent but achieve little, if anything, in practice. However, recent work has challenged this perception, showing that the symbolic can serve as an implicit yet effective—and even powerful—means of communication between policymakers and their audiences (Boussaguet & Faucher, 2025). Policymakers use symbols to convey messages—both cognitively and emotionally—to members of their political community, who are able to recognize and interpret these messages because they share the same cultural and political references. Thus, when the tricolor flag is displayed in France, for instance, people recognize it as a symbol of the country, the French nation, and the Republic. Depending on the context—such as war, a sporting event, a tribute to victims of terrorism, or a song contest—it can evoke feelings of pride, joy, anger, or enthusiasm. In any case, it is a direct way to engage with citizens' representations and emotions. As a means of communication, the symbolic can intuitively be perceived as closely linked to policy narratives, whose aim is to tell stories about policies in order to convince people that they are the right ones to adopt. But how does the symbolic interact with narratives? What role does it play in this framework? This paper aims to answer these questions and to enrich the Narrative Policy Framework (NPF) by introducing a new and significant dimension. To do so, we first provide a brief overview of the Narrative Policy Framework (NPF) and identify where there is room within it for the symbolic to be integrated. We then define what is meant by "the symbolic" and examine how it can be concretely articulated with narratives. Finally, we explore the methods required to study it and present a case study to illustrate all the elements discussed above.