Using evidence to reconstruct second-language learning policies in Estonia

This paper exploits framing analysis to examine how evidence from research and public consultations plays out in the process of public policy formation, as exemplified by the case of the Estonian Government's new integration strategy for ethnic minorities. The strategy uses 'culture steering' to address a horizontal policy area, namely second-language learning (SLL) policies for adults. The authors draw on diverse forms of evidence from contrasting ideological stances to examine how a government administration functions as a knowledge broker in a post-socialist country. They discuss the appraisal process and review various ways of framing and reframing evidence, while also exploring the potential for policy learning. The paper concludes that, when reconstructing SLL policies in Estonia, not only does the quality of the evidence assembled matter, but 'culture steering' also plays an important role by addressing possible sources of resistance to change and by managing conflicting ideological discourses.