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CHALLENGES TO DEMOCRACY IN THE 21ST CENTURY
SERIES EDITOR: HANSPETER KRIESI
Series Editor
Hanspeter Kriesi
Department of Political and Social Science
European University Institute
San Domenico Di Fiesole, Firenze, Italy
Democracy faces substantial challenges as we move into the 21st
Century. The West faces malaise; multi-level governance structures
pose democratic challenges; and the path of democratization rarely runs
smoothly. This series examines democracy across the full range of these
contemporary conditions. It publishes innovative research on estab-
lished democracies, democratizing polities and democracy in multi-level
governance structures. The series seeks to break down artificial divisions
between different disciplines, by simultaneously drawing on political
communication, comparative politics, international relations, political
theory, and political economy.
The Origin
of Dialogue
in the News Media
Regula Hänggli
Department of Mass Media
and Communication Research
University of Fribourg
Fribourg, Switzerland
© The Editor(s) (if applicable) and The Author(s), under exclusive license to Springer
Nature Switzerland AG 2020
This work is subject to copyright. All rights are solely and exclusively licensed by the
Publisher, whether the whole or part of the material is concerned, specifically the rights
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Acknowledgements
This book emerged within the framework of the Swiss research pro-
gram on democracy—the National Center of Competence in Research
(NCCR) Democracy—which has used interdisciplinary research to inves-
tigate the Challenges to Democracy in the twenty-first century. Thus,
I would like to thank the Swiss National Science Foundation and the
University of Zurich, that jointly financed the NCCR Democracy pro-
gram. My deep gratitude goes first to Hanspeter Kriesi for his generous
support, and his enormous energy and drive, which paved the way for
this work. It also goes to Laurent Bernhard for letting me be part of this
journey, for meaningful (phone) discussions, and for many humorous
moments. I would like to thank the former Swiss Federal Chancellor,
Oswald Sigg, and the former Secretary-General of the parliament,
Christoph Lanz, for the support they have given to our study. I would
also like to thank Urs Dahinden, Jörg Matthes, Christian Schemer, and
Werner Wirth for their contributions in the data collection and beyond.
I am also very grateful to all the politicians, campaign managers, public
officials, journalists, newspaper editors, and all respondents of the sur-
vey samples who were willing to devote their valuable time to answer
our questions. The cooperation of all these people has allowed us to put
together a truly exceptional data set, without which I would not have
been able to describe the origin of dialogue in the news media, and its
role in the opinion formation process.
I owe particular gratitude to Dennis Chong for invaluable publish-
ing guidance, a very careful reading of the entire manuscript and for
v
vi ACKNOWLEDGEMENTS
vii
Contents
ix
x CONTENTS
9 Conclusion 225
Appendix 241
Bibliography 259
Index 279
List of Figures
xi
xii LIST OF FIGURES
xiii
xiv LIST OF TABLES
Table 4.3 How did you treat your opponents’ strongest argument? 81
Table 4.4 Did you try to avoid certain arguments?, by camp
and campaign 81
Table 4.5 Contest frames in the naturalization initiative: Percentage
shares by camp and actor type 85
Table 5.1 Total number of articles coded of the two camps,
by campaign and communication channel 96
Table 5.2 The main substantive frames of the two camps,
by communication channel: percentages 107
Table 5.3 Use of opponents’ main frames in the different
communication channels 111
Table 5.4 Dialogue in the different communication channels 113
Table 5.5 The offensive use of opponents’ frames
in the communication channels: percentage
of adversaries’ frames which were used offensively 114
Table 6.1 Balancing: Number of arguments on each side
by campaign and ratio of contra/pro arguments 139
Table 6.2 Zero-inflated negative binomial regression of media
framing: ratios, robust standard errors, and p-levels 142
Table 6.3 The media frames, with input by the different
actor types on either side: average number
of frames per day 145
Table 6.4 Predicted change in the news media counts 147
Table 6.5 Shares devoted to the “Tax Equity” frame
in the news media of the tax reform campaign:
comparison between experts and rest 150
Table 6.6 Standing of regional political actors in different media
types and campaigns 151
Table 6.7 Use of the “SME” frame in different media types 151
Table 6.8 Level of dialogue by campaign, media type, and media genre 152
Table 7.1 Substantive (Offensive and Defensive Use) and contest
frames of the two camps in the media input
and the news media: percentages 169
Table 7.2 Who is driving whom? Results of zero-inflated negative
binomial regression of media framing on lagged framing
by the two camps, and vice versa: Ratio, robust standard
errors, and p-levels 171
Table 7.3 Percentage of organizations that adapted their campaign
based on opinion poll(s) 178
Table 7.4 Which channel is influential? Results of zero-inflated
negative binomial regression of media framing on lagged
LIST OF TABLES xv
this happened and the people were able to vote on a new asylum law.
This example from the real world serves to illustrate what I mean by
options and interpretations. The options are either to accept or reject the
new law, while interpretations we will look at below.
The new law contained these most important aspects: It stipulated
that asylum requests from refugees who have already been given refu-
gee status or some other form of protection by another state will not
be dealt with. The new law also prohibited social assistance for refugees
whose requests have been legally rejected. Moreover, it introduced more
restrictive rules for considering the question of refugees without proper
identification; it adopted a so-called airport procedure allowing for rapid
decisions at the refugees’ point of entry, and it enabled the possibility
of exchanging information with the refugees’ home countries. The new
law also brought an improvement for asylum seekers with a provisional
admission. They are allowed to work and to receive a residence permit
for their families after three years. The interpretations of the leaders are
part of the alternatives. Political leaders offered these interpretations
(I shall call them frames, see below): Proponents of the new law argued
that Switzerland needs instruments to fight the abuse of its asylum legis-
lation (abuse), and that the new law provides a more efficient implemen-
tation of the asylum legislation (efficacy). Opponents claimed that the
new asylum law is contrary to the humanitarian tradition of Switzerland
(human. trad.), and that the provision of the new law undermines the
rule of law (rule-of-law). Their interpretations make clear that the new
law is more restrictive than the previous one. In the vote on the new asy-
lum law, similarly to related previous votes in 1987 and 1999, the pro-
posal for a new asylum law was accepted by two-thirds (67.7%) of the
Swiss people (compared to 67.3% in 1987 and 70.6% in 1999). The first
asylum law dates back to 1981 and was considered liberal. Previously,
asylum matters were part of the law on foreigners. Over the years, the
asylum law was gradually tightened. In this book, alternatives and their
interpretations are of key importance and I will keep a constant eye on
competing interpretations. I will raise the question: Under what condi-
tions do we see competing interpretations (= dialogue)? As Schattschneider
points out, the process of defining the alternatives is competitive. Political
elites deploy arguments and attempt to steer thinking toward their point
of view in order to gain an edge in partisan contests.
The alternatives need to be presented in the news media. Since, in our
diverse society, the media play a vital role in conveying information from
1 DIALOGUE IN THE NEWS MEDIA 5
the political scene to the public, citizens get an important share of their
information from the news media. In other words, democracy today is
largely mediated democracy. People not only learn about the options and
their interpretation directly from politicians (be it in person or imper-
sonal contact like a speech on TV). They also learn about the alterna-
tives indirectly through the media. They read about them in a newspaper
report, or listen to a discussion about or summary of a political issue
being presented in the news on the radio and TV. As a consequence, the
alternatives (i.e., the yes or no choice and its interpretation) should also
be found in the news media.
Thus, I investigate: Under what conditions do we see dialogue (= com-
peting interpretations) in the news media? What are the driving mecha-
nisms? To complete the picture, I will end with the question: What is the
role of dialogue in the Public Opinion formation process?
definition. The other elements mentioned by Entman would be called reasoning devices
by Gamson and Modigliani (1989: 3) and explain what should be done about the problem.
Framing devices, as opposed to frames, are condensing symbols that suggest the frame in
shorthand (Gamson and Modigliani 1989: 3). They include metaphors, illustrative exam-
ples (from which lessons are drawn), catchphrases, descriptions, and visual images (icons).
What Iyengar (1991) calls “episodic” frames, I would call a framing device.
6 R. HÄNGGLI
Chivalry and the The Crusades of the eleventh and twelfth centuries
Crusades
against the Moslems of the East, in so far as those
enterprises were inspired by moral feeling,—and religious-ethical
feeling was the chief motive force behind them,—were largely the
translation into action of the ideal of chivalry now commended and
consecrated by the Church. The oath of the Knights of Malta, who
were a perfect incarnation of the spirit of chivalry, was “to make
eternal war upon the Turks; to recognize no cessation of hostilities
with the infidel, on any pretext whatsoever.”
It is an amazing change that, in the course of a few generations,
has come over the ethical spirit and temper of the peoples of
Christendom. In the earlier medieval time the best conscience of the
age was embodied in the monk-saints Augustine, Columba, Winfrid,
and a great company of other unarmed missionary apostles to the
pagan Celts and Germans; in this later time the best conscience of
the age is incarnated in the armor-clad warriors Godfrey of Bouillon,
Raymond, Bohemond, Tancred, and a multitude of other knightly
leaders of the hosts of Crusaders who go forth to redeem with blood
and slaughter the tomb of their martyred Lord.
No element of civilization responds more quickly to
Romance the changing ethical ideal of a people than its
literature as an literature. The change that passed over the popular
expression of
the ethical spirit
literature of Christendom in the transition of Europe
of the age from the age of asceticism to the age of chivalry is
finely summarized by Lecky in these words: “When
the popular imagination [in the earlier age] embodied in legends its
conception of humanity in its noblest and most attractive form, it
instinctively painted some hermit-saint of many penances and many
miracles.... In the romances of Charlemagne and Arthur we may
trace the dawning of a new type of greatness. The hero of the
683
imagination of Europe is no longer the hermit but a knight.”
An interesting monument of this new species of literature, in what
684
we may view as a transition stage, is the Gesta Romanorum, a
collection of moral stories invented by the monks in their idle hours.
These tales are a curious mixture of things Roman, monastic, and
knightly.
But for a true expression of this romance literature we must turn
to the legends of the Holy Grail, in which a lofty imagination blends,
in so far as they can be blended, all the varied elements of the
knightly ideal in a consistent whole. No age save the age of Christian
knighthood could have produced this wonderful cycle of tales.
Progress in the Although the Church has done little in a direct way
ethics of war:
to abolish public war, or even directly to create in
sale into slavery
of Christian society at large a new conscience in regard to the
captives wickedness of war in itself as an established method
condemned
of settling international differences, its influence has
been felt from early Christian times in the alleviation of its barbarities
and cruelties. One of the first ameliorations in the rules of war
effected through Christian influence concerned the treatment of war
captives.
Among the ancient Greeks, as we have seen, under the influence
of the sentiment of Panhellenism, there was developed a vague
feeling that Greeks should not enslave Greeks. But aside from this
Panhellenic sentiment, which had very little influence upon actual
practice, there was in the pre-Christian period seemingly little or no
moral feeling on the subject, and the custom of reducing prisoners of
war to slavery was practically universal.
But the custom, in so far as it concerned Christian prisoners, was
condemned by the Christian conscience as incompatible with the
spirit of Christianity, and the rule was established that such captives
689
should not be enslaved. We observe the first clear workings of
this new war conscience in Britain after the conversion of the Saxon
invaders. The Celts of Britain were Christians, and the Saxons, after
they themselves had been won over to Christianity, ceased to sell
into slavery their Celtic captives. Gradually this new rule was
adopted by all Christian nations. No other advance of equal
importance marks the moral history of public war during the medieval
period.
This humane rule, however, did not, as we have intimated,
embrace non-Christians. Our word “slave” bears witness to this fact.
This term came to designate a person in servitude from the
circumstance that up to the eleventh century, which saw the
evangelization of Russia, the slave class in Europe was made up
largely of Slavs, who, as pagans, were without scruple reduced to
slavery by their Christian captors.
But the earlier rights which the immemorial laws of war conferred
upon the captor were not wholly annulled in the case of Christian
captives. The practice of holding for ransom took the place of sale
into slavery. This custom prevailed throughout the feudal period, but
gradually during the seventeenth and eighteenth centuries this
practice finally yielded to the more humanitarian custom of exchange
690
of prisoners. Thus in this department of ethics there is to be
traced a gradual humanization of the code, which, beginning in
savagery with gross cannibalism and torture, advances through
killing in cold blood, sale into slavery, and holding for ransom, to
equal exchange.
Morality in the During the age of chivalry the ideal of the knight
monasteries:
moral
overshadowed the ideal of the monk. Nevertheless
significance of throughout the whole period the monastic ideal
the rise of the inspired a great deal of moral enthusiasm. The
Mendicant
Orders founding and endowment of monasteries divided with
the equipping of knightly expeditions for the Crusades the zeal and
efforts and sacrifices of the European peoples.
In the old orders of monks, however, zeal for the ascetic ideal
would often grow cold, and the high moral standard of the earlier
time would be lowered. Then some select soul, set aflame by a fresh
vision of the ideal, would draw together a group of devoted followers,
and thus would come into existence a new order of monks, among
whom the flame of a holy enthusiasm would burn brightly for a
691
time.
Among the numerous new orders called into existence by these
reform movements there were two which, in the ideal of duty which
they followed, stand quite apart from the ordinary monastic orders.
692
This new ideal had its incarnation in St. Francis and St. Dominic,
the founders respectively of the Franciscan and the Dominican order
of friars.
In this new conception of what constitutes the worthiest and most
meritorious life, the quietistic virtues of the earlier ascetic ideal,
which had developed during the period of terror and suffering which
followed the subversion of classical civilization by the northern
barbarians, gave place to the active, benevolent virtues. In the
earlier monastic movement there was a self-regarding element. The
monk fled from the world in order to make sure of his own salvation.
The world was left to care for itself. In the new orders, the brother, in
imitation of the Master who went about among men teaching and
healing, left the cloister and went out into the world to rescue and
save others. In its lofty call to absolute self-forgetfulness and
complete consecration to the service of humanity, the early ideal of
the Mendicants was one of the noblest and most attractive that had
grown up under Christian influence. The loftiness of the ideal
attracted the select spirits of the age—for noble souls love self-
sacrifice. “Whenever in the thirteenth century,” says the historian
Lea, “we find a man towering above his fellows, we are almost sure
693
to trace him to one of the Mendicant Orders.”
It is in the exaltation of this virtue of self-renunciation that we find
one of the chief services rendered by the Mendicant Orders,
especially by the Franciscan, to European morality. Just as the early
monks, through the emphasis laid on the virtue of chastity, made a
needed protest against the sensuality of a senile and decadent
civilization, so did the friars, through the stress laid on the virtue of
self-denial for others, make a needed protest against the selfishness
and hardness of an age that seemed to have forgotten the claims of
694
the poor and the lowly. It can hardly be made a matter of
reasonable doubt that the slowly growing fund of altruistic feeling in
Christendom was greatly enriched by the self-devoted lives and
labors of the followers of Saints Francis and Dominic.
But the value of the ideal of the friars as an ethical force in the
evolution of European civilization was seriously impaired by certain
theological elements it contained. It was an ideal in which, as in the
ordinary monastic ideal, the duty of correct opinion came to be
exalted above all others. The ethics of belief took precedence of the
ethics of service. Thus the friars, particularly the Dominicans,
through their zeal for orthodoxy, fostered the grave moral fault of
intolerance. The growth of this conception of Christian duty,
concurring with other causes of which we shall speak in the next
chapter, ushered in the age of the Inquisition.
I. Determining Influences