Recasting Intractable Policy Issues: The Wider Implications of The Netherlands Civil Aviation Controversy

The explosive growth of civil aviation is among the most difficult issues in transportation policy, and nowhere are the fundamental economic and environmental challenges it poses more apparent than in airport expansion. Conventional policy analyses have ineffectively handled these problems, characterized by uncertainty, complexity, and polarization. Increasingly, policy analysts and public managers depend on stakeholder involvement to recast intractable issues into a more tractable format. This article describes a method that supports this recasting process through analysis of stakeholders' policy arguments; and in so doing contributes to the increasing literature on recasting intractable policy issues and to the recent discussion of Q-methodology in the Journal of Policy Analysis and Management . The method is applied in a policy analysis of the controversy over the expansion of Amsterdam's Schiphol Airport. The analysis, which was under-taken on behalf of the Dutch government and which has wider implications, leads to a new agenda for transportation policy by uncovering and addressing a fuller range of alternatives that move beyond the current polarization and allow the problem to be redefined more tractably. © 2001 by the Association for Public Policy Analysis and Management.