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In spatial planning and environmental management, maps are found very helpful in many situations, but in other situations they may also deepen conflicts or be ignored. This paper addresses the question what explains such phenomena, with particular emphasis on, and reference to, collaborative policymaking settings in the Netherlands. We have elaborated the concept of ‘frames’ and ‘framing’ to structure and analyze the function of maps in the context of deliberative policymaking. With help of discourse analysis, a method adopted from the policy sciences, we have observed ongoing multi-actor processes and focused on discussions around maps in several case-studies. From the observations of both the maps themselves and the discussions and actions with the maps, we have interpreted the meaning and frames represented ‘in’ the map images, as well as the various perspectives of actors ‘on’ the collaborative use of the map. We have conceptualized three fundamentally different perspectives or frames on the function of maps in the decision-making process. The cross-frame debate over maps is illustrated with the recollection of one particular map-making example. We conclude that the conflicts observed in a number of case studies can be adequately explained with help of the three identified frames, and provide some recommendations for the profession of mapping. NOTICE: this is the author’s version of a work that was accepted for publication in Journal of Environmental Management. Changes resulting from the publishing process, such as peer review, editing, corrections, structural formatting, and other quality control mechanisms may not be reflected in this document. Changes may have been made to this work since it was submitted for publication. A definitive version was subsequently published in Journal of Environmental Management, 90 (6), 2009, doi:10.1016/j.jenvman.2007.08.033
