By Hilda Broqvist
This article introduces the concept of intertextuality to the Narrative Policy Framework (NPF), offering a new way to analyse how policy narratives draw on and reuse earlier stories. It argues that, while NPF research has paid close attention to how evidence is used strategically in policy debates, it has largely overlooked the fact that some forms of “evidence” are themselves narratives, complete with their own characters, plots and policy messages.
The article starts from a simple but important observation: policy actors rarely construct narratives in a vacuum. Instead, they operate in discursive environments already populated by influential texts — such as national strategies, international conventions, or previous policy programmes — that shape how new stories are told. Drawing on theories of intertextuality from discourse analysis, Broqvist proposes that NPF scholars need better tools to study how these pre-existing narratives are actively incorporated into new policy narratives.
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