Overview

1. Overview • Why are conflicts “intractable” or resistant to resolution? • What do we mean by “frames” and “framing” of conflicts? • How does the framing of the conflict affect intractability? • How can understanding framing help you the address conflicts in your work?

2. Characteristics of Intractable Conflicts Two key characteristics: • Long term • Elude resolution Additionally they are often: • Highly polarized • Value-based • Dispute resolution efforts tried and failed • Sometimes involve complex array of stakeholders • Rekindled by political shifts

3. Frames & Framing • Framing: Constructing and presenting • interpretations of our experience • We impart meaning and significance to what is • framed by distinguishing it from what is not framed. • By framing we locate ourselves in the experience and • We attribute responsibility (blame) for what occurs

6. How Frames Affect Conflicts • Determine how people define issues • Affect the risks they perceive as real and info they believe is relevant • Influence preferences for dispute resolution process • Shape parties’ views of themselves and others • Influence solutions they deem acceptable

9. Examples of Frame Conflicts • Opposition to nuclear waste disposal by African American communities—framed as “environmental justice” issues (Bullard & Wright, 1989) • In Western water disputes: State law frames conflict in terms of rights; tribal law frames it in terms of sovereignty (Folk-Williams, 1988)

10. Types of Frames • Whole Story • Identity • Characterization • Conflict Management • Views of Nature • Views of Social Control • Power • Loss/Gain • Ethics • Risk

11. Whole Story Frames • Sum up the essence of the conflict in a few sentences • Shorthand for what the dispute is about

12. Identity Frames One key factor underlying what frames we use is our identity Identity = “Who am I” Our identities: • Give us a sense of belonging • Are closely aligned with values • Give meaning to our lives • Help us determine what actions to take

13. Characterization Frames Characterizations = pointed descriptions of others They can be [+] [-] or neutral. Negative characterizations often =stereotypes They’re snobs. He’s stupid!

15. Conflict Management Frames • Collaborative • Non-collaborative • joint problem solving • fact finding • authority decides based on expertise • authority decides after consultation • Avoidance • Adjudication • Appeal to political action • Appeal to market economy • Struggle, sabotage and violence Adapted from Keltner (1994)

16. Views of Nature

17. Power Frames • Authority/Positional • Resources • Expertise • Personal • Coalitional/Relational • Sympathy/Vulnerability • Force/Threat • Legal/Legitimate • Moral/Righteous • Voice

18. Social Control Frames High Degree of Ownership Low Low Degree of Consensus High (Wildavsky & Dake, 1990)

19. Analyzing Conflicts via Frames • Conflicts are usually analyzed using: • Frames provide an enhanced approach to understanding intractable conflicts • Suggests new basis of intervening in these conflicts • issues • parties • history • interests/positions • process

20. Voyageurs National Park Case • One of newest U.S. national parks--authorized in 1971--land acquisition began 1975 • Located on Canadian border of Minnesota • Largely water--3 large & many small lakes and a wooded peninsula • Key Issues in the conflict: • Resentment over acquisition of personal property for the park • Controversy over wilderness vs. recreational use • Debate over local vs. federal control of the land/water

21. Intractability of the Conflict • Longstanding conflict --1891 Park originally proposed --1964 Re-proposal by governor re-ignited conflict -- 1975-1987 Protests, lawsuits over land acquisition -- 1995 Attempt to decommission the park • Resistant to resolution efforts -- 1996-7 Federally supported mediation ended w/no deal -- 1998-2000 GMP challenged by local county • Frozen frames -- Issues remain unchanged -- Argued by same and different people

22. Key Issues in the Conflict • Economic Issues: --Local residents perceived land acquisition wasn’t fair --Expected economic gain has not materialized • Interests: --Wise use proponents (prefer motorized uses, e.g. snowmobiles, floatplanes) vs. wilderness protection • Political Issues: --Heavy involvement by local, state & national politicians in park’s initiation and recent history --Local politicians used leverage in D.C. to force reexamination of park’s status in 1995

23. Whole Story Frames • Fundamentally you have those who want to maintain the park in its present condition with all motorized uses allowed and those whose real agenda is to turn it into Boundary Waters West. • The real conflict is about differences in philosophies, the constant desire of the Park Service to manage all national parks the same…they ought to be more creative and sensitivity to the local culture and local needs. • So, I think some of the problems we have today relate to what I would call arbitrary decision-making or arbitrary implementation of rules by a park service who has been less than considerate to the individual indigenous people’s concerns…And that’s kind of a thumbnail sketch….

24. Identity Frames • Frankly, people are upset because they feel like the Federal government, in conjunction with those environmental communities, are tying totake away the culture of the people here, much like what happened to the Native American community. The government destroyed their culture, and the people that live here, that grew up here, immigrated here, have developed a culture here. Frankly, what they (environmentalists) don’t understand is that every time they push that agenda, they are taking away from the culture of the people who live here. [local park opponent]

25. Identity Frames I believe very strongly in the national park system. One of my goals is that I would like to achieve-- protection and conservation are a very important part of our planet; and I believe that the people that work at the park have that same kind of feeling that I do. [Environmentalist] The reason that I do that is there is an Endangered Species Act, and the park has a responsibility and obligation to inventory, monitor, and protect endangered species. [Natural Resource Manager]

26. Characterization Frames • A lot of people were under the impression that they had to sell. And they used certain kind of pressure tactics on the people. Especially like the old people. It was Gestapo tactics. • I find that most of the stuff coming from the major environmental organizations is so full of chicken little hype, the “send us some money and we’ll save you” kind of thing, that they are almost like a parallel to television evangelists.

27. Freeze Framing • Language used in interviews matches text of newspaper articles from 20-30 yrs. ago • Even characterization frames are frozen in time • Some players have become mythologized • Parties talk about the conflict continuing (or dissipating) after current generation dies

28. Freeze Framing—“Freedom” & “Economy” • Voyageurs National Park is “another example of expanding government control, once againtaking away the right and freedom of individuals to truly make decisionsregarding their lives and livelihoods in their own backyards” (business person—1964) • “make sure thatpeoples’ freedoms are protected and not stripped away from them….”(park opponent—1998) • “This is all part of the process of ‘incrementalism’ used by the park service which will …slowly erode personalfreedoms…Then locals will be forced to move on due to…an economy that can’t survive.” (Newspaper article, 2000) • “damage the area’s economyand drive tourists to Canada and curtail timber production” in the area(newpaper article, 1965)