Narrative Policy Framework

A Study on Covid-19 Cases in Pakistan

3/20/2024

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Table of Contents
1. INTRODUCTION.................................................................................................................................... 2

2. METHODOLOGICAL APPROACH............................................................................................................. 2

2.1 METHODOLOGY:.......................................................................................................................................2
2.2 DATA SOURCES:........................................................................................................................................2
2.3 SELECTION CRITERIA:.................................................................................................................................3
2.4 ANALYTICAL PROCESS:...............................................................................................................................3

3. DATA ANALYSIS..................................................................................................................................... 4

3.1 GOVERNMENT POLICY NARRATIVE:...............................................................................................................4

3.2 MEDIA PORTRAYALS:.................................................................................................................................5
3.3 PUBLIC OPINION NARRATIVE:......................................................................................................................5

4. COMPARATIVE ANALYSIS OF COVID-19 NARRATIVES: PAKISTAN AND OTHER CONTEXTS.........................6

4.1 COMPARISON WITH OTHER REGIONS:...........................................................................................................6

4.1.1 Asia (South Korea and Vietnam):.....................................................................................................6
4.1.2 Europe (Italy and Spain):.................................................................................................................7

5. DISCUSSION OF RESULTS....................................................................................................................... 7

5.1 CONTRIBUTION TO PUBLIC POLICY UNDERSTANDING IN CRISIS SITUATIONS:.........................................................7

5.2 IMPACT OF NARRATIVES ON POLICY DECISIONS:..............................................................................................8
5.2.1 Government Policy Narrative:..........................................................................................................8
5.2.2 Media Narratives:............................................................................................................................8
5.2.3 Public Opinion Narratives:...............................................................................................................9

6. THEORETICAL IMPLICATIONS................................................................................................................. 9

7. CONCLUSIONS AND FUTURE RESEARCH............................................................................................... 10

REFERENCES:.............................................................................................................................................. 11

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 1. Introduction
Undermining the socio-economic culture of the state was the biggest challenge for the policy

of public health and the strategy of crisis management by the government. Pakistan was

pressured in May 2020 by the increasing COVID-19 affected people, a stressed healthcare

system, and the diverse response of the government. This study uses statistical analysis to

evaluate the public policy response towards COVID-19 critically implemented in Pakistan,

their effectiveness, and their impact. The research aims to elucidate the intersection of

government policy approach, health outcome, and society response under the public policy

theory framework, with a reflective study on Pakistan's response to this global health

challenge.

2. Methodological Approach
Jones et al. (2023) describe the Narrative Policy Framework (NPF) as a robust analytical

prism for narratives and policy processes. NPF mainly analyses how stakeholders generate

narratives to influence policy outcomes. This framework is helpful in analysing the COVID-

19 policy response that took place in Pakistan since it provides an opportunity not only to

examine the narratives produced by different actors. In this report, the narratives of

government organizations, media, and healthcare professionals will be analysed, and we will

investigate how these narratives impact policy decisions and public perception.

2.1 Methodology:
This study is a qualitative content analysis that will analyse the stories of COVID-19 policies

in Pakistan. The qualitative nature of the research is crucial for capturing the fullness and

intricacy of these stories with such elements as language, symbolism, and storytelling.

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2.2 Data Sources:
Instrumental data sources for this analysis include government press releases, policy

documents, news articles, and social media posts. These sources were chosen because of their

prominence and the breadth of the narratives in public discourse. The study period is six

months after the COVID-19 pandemic in Pakistan, from February to July 2020. The period

was settled to reflect the initial policy responses and public stories as they evolved with the

continuous crisis.

2.3 Selection Criteria:

The documents and media content were targeted as per their relation to COVID-19 policies

and the diversity of perspectives they embody. Instead, Sources that focused on government

policy announcements, public health information, and media coverage of these policies were

given priority.

2.4 Analytical Process:

 The first one was the sifting through the collected data to isolate distinct narratives.

This involved identifying recurring themes, policy statements, and rhetorical

strategies employed by different actors.

 Having been identified, narratives were then classified according to their thematic

content, such as public health guidelines, economic impacts, social responses, etc.

 Each narrative was next examined regarding its structure, narrative elements (heroes,

villains, victims), and framing of the Covid-19 situation.

 The last step was to determine the impact of these narratives on public policy

decisions and public opinion by connecting the narrative content to policy outcomes.

Such a methodological approach based on NPF’s principles offers a holistic view of the

narrative dynamics within Pakistan’s reaction to the COVID-19 pandemic. Examining these

narratives, the study aims to disclose the core values, beliefs, and interests associated with

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policy-making during this crucial period in the country.

3. Data Analysis
The COVID-19 pandemic in Pakistan produced many complicated narratives, each with its

own views and policy implications. The narratives, fundamentally influenced by government

behaviour, media depiction, and public reception, present a colourful picture of the country’s

reaction to this crisis. Detailed analysis of these narratives shows that managing the pandemic

is approached from various perspectives.

3.1 Government Policy Narrative:

 Lockdown Measures and Impact: The nationwide implementation of a lockdown

ordered by the government on 24 March 2020 brought about many changes in

peoples' lives (Qureshi, 2022). The Ministry of Health's statistical data showed an

almost 30% decrease in the COVID-19 case growth rate during the first period of the

lockdown. A 25% drop in inter-city travel was revealed as per the National Highway

Authority, evidencing the success of the lockdown in controlling movement (Raza et

al., 2021).

 Economic Support and Beneficiary Reach: One of the critical elements of the

government's response was the economic relief package totalling 1.2 trillion PKR.

This package is targeted at providing financial help to less fortunate groups (Dawn

News, 2020). The reports from the Economic Survey (2023) of Pakistan, disclosed

that this package covered about 15 million families, about 12% of Pakistan's

population. It further supported small and medium enterprises with 40 percent of the

funds allocated to the sector, per the State Bank of Pakistan (2023).

 Healthcare Infrastructure Enhancement: The government allocated PKR 50 billion

towards healthcare infrastructure to address the growing healthcare requirements. The

investment brought about 40% more ICU beds and 35% more ventilators within three

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 months (Ministry of Human Right, 2021). The Health Emergency Preparedness and

Response Network indicated a significant 20% improvement in emergency service

response times, highlighting this investment's tangible gains (Tahir et al., 2023).

3.2 Media Portrayals:

 Risk Communication and Public Awareness: A comprehensive analysis of over

300 articles from major national newspapers focused on risk communication. Most of

such articles, about 60%, concentrated on the pandemic's severity, thereby

encouraging strict observance of health rules. This storyline was pivotal in creating

awareness among the public and setting the perception of the seriousness of the health

issue (Aziz et al., 2022).

 Government Actions: The media was also a medium for critically evaluating

government policies. The government's response was examined in over 35% of the

media coverage, highlighting problems such as poor resource allocation and policy

implementation delays (Akbar et al., 2021). The socioeconomic consequences of the

lockdown measures were often introduced in editorial pieces and opinion columns,

where contradictory points of view could be reflected.

 Challenges of Misinformation: Misinformation began to pose a real threat. Another

research revealed that approximately 20% of Covid-19-related social media content

carried misinformation or unverified claims that affected public confusion and fear

(Digital Rights Foundation, 2020). The efforts of the Pakistan Telecommunication

Authority to reduce misinformation have varied, with some urban areas having more

misinformation penetration than rural areas.

3.3 Public Opinion Narrative:

 Public Sentiment and Policy Support: Gallup Pakistan (n.d.) conducted several

surveys to measure the public mood in this regard. The results revealed that 70% of

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 people have strict lockdown measures, proving that most of the population is worried

about the health crisis. Nevertheless, 25% recommended an alternative way,

considering the economic impact of prolonged lockdown.

 Compliance with Health Protocols: Adherence to health directives like mask-

wearing and social distancing fluctuated depending on the area. The National

Command and Operation Centre data showed that 60% of urban dwellers complied

with the measures, a relatively high figure compared to 40% recorded in rural areas

(UNICEF, 2021). These differences show the difficulty of developing standard health

protocols in a wide geographic range.

 Economic Impact and Public Concern: Economic considerations were a

predominant factor in the public speech. The unemployment rate, as released by the

Pakistan Bureau of Statistics (2021), went up from 4.1% to 5.1% in the first quarter of

2020 in response to the immediate impact made by the pandemic on the job market. In

addition, consumer spending behaviour changed dramatically, with an increase of

50% in purchasing essential goods and a corresponding decrease in luxury and non-

essential items as per the Consumer Price Index (Pakistan Bureau of Statistics, 2020).

4. Comparative Analysis of Covid-19 Narratives: Pakistan and

Other Contexts
4.1 Comparison with Other Regions:

4.1.1 Asia (South Korea and Vietnam):

 South Korea: The narrative of South Korea was all about its aggressive testing and

contact tracing. The government introduced a strategy of 'trace, test, and treat' where

over 20,000 tests were done daily during the pandemic's peak (The Guardian, 2020).

The testing rate in Pakistan was about 0.08%, while South Korea had tested more than

1.5% of its population by May 2020 (Shim et al., 2020). Additionally, South Korea

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 used new technology, such as mobile apps, to make contact tracing and public

information that were the essential part of stopping the pandemic without strict

lockdowns.

 Vietnam: Contact tracing was also an essential aspect of Vietnam's aggressive

approach, which was early, with all arrivals and contacts of confirmed cases being

quarantined. High-risk and densely populated areas received attention, and by July

2020, over 1 million tests had been carried out in Vietnam (VietnamPlus, 2020). The

said strategy, together with a high level of public compliance, led to a minimal

number of cases and fatalities compared to Pakistan.

4.1.2 Europe (Italy and Spain):

 Italy: It was primarily impacted by the severe pressure on the public healthcare

system. In retaliation, Italy quickly expanded its ICU capacity, almost doubling the

ICU bed capacity from 5,000 to over 9,000 by April 2020 (Zangrillo and Gattinoni,

2020). Furthermore, Italy concentrated on regional cooperation in resource sharing,

especially within the Lombardy region, which was most affected by the outbreak.

 Spain: Spain’s narrative also centred on the collapse of the healthcare system. In turn,

Spain used emergency measures to scale up healthcare facilities, including hotels

converted to improvised hospitals and allocated €3.8 billion to improve healthcare

services. Also, by June 2020, Spain had tripled its testing capacity and taken 5 million

tests (International Monetary Fund, 2021), which is way higher than Pakistan’s per

capita testing.

5. Discussion of Results
5.1 Contribution to Public Policy Understanding in Crisis Situations:
The results from this research offer informative contributions to the study of public policy

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developments during crises, such as the COVID-19 pandemic. A key observation is the

flexible character of policy-making concerning changing situations. At first, the Pakistani

approach was oriented towards the implementation of lockdown measures and relief

measures (Emmanuel et al., 2023). This method reflects the standard crisis management

policy response–focusing on immediate, direct interventions. However, as the pandemic

evolved, the story changed to building the healthcare infrastructure, which mirrors other

crises. Italy’s change concerning the improvement of healthcare potential during the

pandemic exemplifies such a trajectory.

Another important outcome is the comprehension of the impact of public opinion on policy.

The survey data showing approval of lockdown measures in Pakistan represents a broader

trend where public opinion can significantly affect government actions, a phenomenon

observed worldwide. The cases of Korea’s success with pandemic control would be a perfect

example, where a significant part was public cooperation with government policies. Thus,

public trust and participation are critical to policy success.

5.2 Impact of Narratives on Policy Decisions:

5.2.1 Government Policy Narrative:

The policy narrative of the government that focused on lockdowns and economic relief

translated into specific policy responses and actions, such as the PKR 1.2 trillion relief

package and the strengthening of healthcare infrastructure (Dawn News, 2020). These

measures reflected the narrative of immediate aid and healthcare preparedness. Statistically,

this is evident as the number of COVID-19 cases stabilized, and economic assistance was

given to millions of families and businesses.

5.2.2 Media Narratives:

The media narratives served two functions. On the positive part, they increased the

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understanding of how severe the pandemic was, which led to better observance of the health

rules by society (ur Rehman et al., 2021). In contrast, the critical reporting in media about

government policies led to the demand for more transparency and flexibility in policymaking.

Another good example is the media attention to the economic and social consequences of

lockdowns, which caused the government to consider economic consequences and health

measures that resulted in phased reopening and targeted economic support.

5.2.3 Public Opinion Narratives:

The opinions of the public, in the form of survey data, directly impacted policymaking. This

is because of the high public support for such measures. Likewise, issues of poverty reflected

by increasing unemployment rates also impacted the structuring of economic relief packages

(Rasheed et al., 2021). Also, the differences in compliance rates between towns and the

countryside indicate the difficulty of imposing the same rules on different people.

The study of Pakistan’s reaction to COVID-19 using narrative frames shows that

policymaking in crises is a multiple-faceted process influenced by various narratives.

Government policies aimed initially at immediate measures changed with time due to shifting

stories and needs (Raza et al., 2021). The media played a crucial role in information

dissemination and offered a critique platform to the public, leading to policy changes. Public

opinion, defined by these stories, was essential in accepting and implementing the policy.

These findings highlight the need for an adaptable and interactive policymaking mechanism

in a crisis, where stories from various stakeholders should be constantly tracked and meshed

with policy decisions. Some acute measures taken during the early stages of the crisis

resulted in long-term ill effects on the population and economy, implying the need for a

comprehensive approach to crisis management and policymaking.

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 6. Theoretical Implications
Advancement of Public Policy Field: The study results represent a significant step forward

in the public policy sector, particularly for crisis response. Using the NPF in Pakistan’s

response to COVID-19 has showcased how multiple narratives influence public policies. This

adds to the broader literature on policy-making in crises and shows the significance of

narrative analysis as a critical method within policy studies.

Connection to Existing Literature: This study is congruent with the existing literature that

highlights the role of stories in policy formation, for example, that of Jones et al. in “The

Narrative Policy Framework” (2023). Applying NPF in a health crisis further provides the

overall applicability of the framework beyond its native area, giving a new perspective to its

use in emergent and dynamic scenarios like pandemics.

New Insights and Perspectives: The dynamic evolution of narratives in real-time and their

direct impact on policy decisions is one of the novel insights of this study. This offers a rather

sophisticated view of the adaptability of the policy in the changing public opinion and media

discourses, a subject that is not well-researched in present public policy literature.

7. Conclusions and Future Research

The study found that public policy formation during the COVID-19 pandemic in Pakistan

was greatly affected by different narratives, including government policies, media coverage,

and the public’s sentiments. The narratives determined the immediate response strategies and

set the long-term policy directions. The study’s significant power lies in the all-encompassing

application of the NPF to an actual crisis, thus offering a detailed view of policymaking. On

the other hand, one limitation is possible bias in the selection and interpretation of narratives.

The bias towards mostly English language sources might have left out essential viewpoints

from local language media and debates.

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