Dalglish 2020 Document Analysis in Health Policy Research. The Read Approach
Dalglish 2020 Document Analysis in Health Policy Research. The Read Approach
Dalglish 2020 Document Analysis in Health Policy Research. The Read Approach
doi: 10.1093/heapol/czaa064
Advance Access Publication Date: 11 November 2020
Methodological Musings
1
Department of International Health, Johns Hopkins School of Public Health, 615 N. Wolfe St, Baltimore, MD 21205,
Abstract
Document analysis is one of the most commonly used and powerful methods in health policy
research. While existing qualitative research manuals offer direction for conducting document ana-
lysis, there has been little specific discussion about how to use this method to understand and ana-
lyse health policy. Drawing on guidance from other disciplines and our own research experience,
we present a systematic approach for document analysis in health policy research called the READ
approach: (1) ready your materials, (2) extract data, (3) analyse data and (4) distil your findings. We
provide practical advice on each step, with consideration of epistemological and theoretical issues
such as the socially constructed nature of documents and their role in modern bureaucracies. We
provide examples of document analysis from two case studies from our work in Pakistan and
Niger in which documents provided critical insight and advanced empirical and theoretical under-
standing of a health policy issue. Coding tools for each case study are included as Supplementary
Files to inspire and guide future research. These case studies illustrate the value of rigorous docu-
ment analysis to understand policy content and processes and discourse around policy, in ways
that are either not possible using other methods, or greatly enrich other methods such as in-depth
interviews and observation. Given the central nature of documents to health policy research and
importance of reading them critically, the READ approach provides practical guidance on gaining
the most out of documents and ensuring rigour in document analysis.
Keywords: Health policy, health systems research, interdisciplinary, methods, policy, policy analysis, policy research, qualitative,
research methods, social sciences
Introduction
Document analysis (also called document review) is one of the most analysed official reports, laws, statues, census reports and newspapers
commonly used methods in health policy research; it is nearly impos- and periodicals over a nearly 50-year period to come to his world-
sible to conduct policy research without it. Writing in early 20th cen- altering conclusions (Harvey, 1990). Yet in much of social science re-
tury, Weber (2015) identified the importance of formal, written search, ‘documents are placed at the margins of consideration,’ with
documents as a key characteristic of the bureaucracies by which mod- privilege given to the spoken word via methods such as interviews,
ern societies function, including in public health. Accordingly, critical possibly due to the fact that many qualitative methods were developed
social research has a long tradition of documentary review: Marx in the anthropological tradition to study mainly pre-literate societies
C The Author(s) 2020. Published by Oxford University Press in association with The London School of Hygiene and Tropical Medicine.
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This is an Open Access article distributed under the terms of the Creative Commons Attribution License (http://creativecommons.org/licenses/by/4.0/), which permits
unrestricted reuse, distribution, and reproduction in any medium, provided the original work is properly cited. 1424
Health Policy and Planning, 2020, Vol. 35, No. 10 1425
Key Messages
• Rigour in qualitative research is judged partly by the use of deliberate, systematic procedures; however, little specific
guidance is available for analysing documents, a nonetheless common method in health policy research.
• Document analysis is useful for understanding policy content across time and geographies, documenting processes, tri-
angulating with interviews and other sources of data, understanding how information and ideas are presented formally,
and understanding issue framing, among other purposes.
• The READ (Ready materials, Extract data, Analyse data, Distil) approach provides a step-by-step guide to conducting
document analysis for qualitative policy research.
• The READ approach can be adapted to different purposes and types of research, two examples of which are presented
in this article, with sample tools in the Supplementary Materials.
time and differ across geographies, but document analysis can also The READ approach
be powerfully combined with other types of methods to cross-
The READ approach to document analysis is a systematic procedure
validate (i.e. triangulate) and deepen the value of concurrent meth-
for collecting documents and gaining information from them in the
ods. As one guide to public policy research puts it, ‘almost all likely
context of health policy studies at any level (global, national, local,
sources of information, data, and ideas fall into two general types:
etc.). The steps consist of: (1) ready your materials, (2) extract data,
documents and people’ (Bardach and Patashnik, 2015). Thus,
(3) analyse data and (4) distil your findings. We describe each of
researchers can ask interviewees to address questions that arise from
these steps in turn.
policy documents and point the way to useful new documents.
Bardach and Patashnik suggest alternating between documents and
interviews as sources as information, as one tends to lead to the Step 1. Ready your materials
other, such as by scanning interviewees’ bookshelves and papers for At the outset, researchers must set parameters in terms of the nature
titles and author names (Bardach and Patashnik, 2015). Depending and number (approximately) of documents they plan to analyse,
on your research questions, document analysis can be used in com- based on the research question. How much time will you allocate to
bination with different types of interviews (Berner-Rodoreda et al., the document analysis, and what is the scope of your research ques-
Health policies must account for how societies perceive and understand a given disease’s origins and causes, and media sources play an important
role in framing health issues (Nelkin, 1991; Entman, 1993). Document analysis was employed to understand the frames used in print media (newspa-
pers) in Pakistan when discussing Human Immunodeficiency Virus (HIV) and viral hepatitis, two diseases that are spread using similar modes of trans-
mission but have varying levels of stigma in the country. Alongside document analysis, key informant interviews were used for triangulation and to
flesh out what stigma for HIV meant in the country.
A sample of newspaper articles was drawn from the electronic database LexisNexis (January 2006-September 2016) based on readership, electronic
availability in LexisNexis and geographic diversity, to capture cultural differences across provinces over time (Strömbäck and Dimitrova, 2011). Broad
search terms were used for HIV and viral hepatitis, resulting in 3415 articles for hepatitis and1580 articles for HIV. A random sample comprising 10% of
the total HIV articles (n = 156) and 5% of the total hepatitis articles (n = 176) was selected and coded using a fixed coding guide. The coding guide was
developed using an inductive approach (Krippendorff, 2004; Mayring, 2004), which involved reading a sample of articles line by line to identify media
frames for HIV and viral hepatitis (Abdelmutti and Hoffman-Goetz, 2009; Claassen et al., 2012). Two rounds of pre-testing were carried out before the
final sample of articles was coded. However, the use of LexisNexis as the primary data source excluded newspapers published in the local language (open-
ing up the possibility of omitting some media frames). Therefore, interviews were important for triangulation of findings.
Data from document analysis were collated in an Excel sheet and analysed in STATA 14. The findings of the document analysis highlighted that while
both diseases were transmitted predominantly through injecting drug use in the country, hepatitis was only discussed using frames such as ‘medical’ (dis-
cussing transmission, prevention, and treatment methods), ‘resources’ (resources available to fight the disease), ‘magnitude’ (gives the scope of the problem
or disease prevalence) and ‘need for awareness’–there was no ‘stigma and discrimination’ frame attached to the disease [Figure, HIV and viral hepatitis
articles by main frames (%)]. In contrast, the ‘stigma and discrimination’ frame and the ‘social causes of disease’ frame (discussing non-medical causes for
the spread of disease) were used exclusively in articles on HIV, notably including suggestions that acquiring the disease was linked to socially immoral and
un-Islamic behaviour. Key informant interviews helped to probe further the traits associated with someone who had HIV. Taken together, document ana-
lysis and key informant interviews helped build a richer narrative of HIV stigma in the country.
Given the difference in how these diseases were understood, these findings suggested that there was a need for explicit policy to reframe HIV as a disease.
Countries such as Iran, Indonesia and Malaysia have successfully garnered government and policy attention to HIV and reduced stigma by reframing it as
a disease spread through injecting drug use (Kamarulzaman, 2013).
HIV and viral hepatitis articles by main frames (%). Note: The percentage of articles is calculated by dividing the number of articles appearing in each frame for
viral hepatitis and HIV by the respectivenumber of sampled articles for each disease (N = 137 for HIV; N = 117 for hepatitis). Time frame: 1 January 2006 to 30
September 2016
Health Policy and Planning, 2020, Vol. 35, No. 10 1427
Category Examples
or health issue, narrowly defined according to the research ques- questions or consider other methods of inquiry. If you have too
tion); (2) dates of inclusion (whether taking the long view of several many documents, you can either analyse a subset of these (Panel 1)
decades, or zooming in on a specific event or period in time); and (3) or adopt more stringent inclusion criteria.
an indicative list of places to search for documents (possibilities in- In Table 1, we present a non-exhaustive list of the types of docu-
clude databases such as Ministry archives; LexisNexis or other data- ments that can be included in document analyses of health policy
bases; online searches; and particularly interview subjects). For issues. In most cases, this will mean written sources (policies, reports,
difficult-to-obtain working documents or otherwise non-public articles). The types of documents to be analysed will vary by study
items, bringing a flash drive to interviews is one of the best ways to and according to the research question, although in many cases, it
gain access to valuable documents. will be useful to consult a mix of formal documents (such as official
For research focusing on a single policy or programme, you may policies, laws or strategies), ‘gray literature’ (organizational materials
review only a handful of documents. However, if you are looking at such as reports, evaluations and white papers produced outside for-
multiple policies, health issues, or contexts, or reviewing shorter mal publication channels) and, whenever possible, informal or work-
documents (such as newspaper articles), you may look at hundreds, ing documents (such as meeting notes, PowerPoint presentations and
or even thousands of documents. When considering the number of memoranda). These latter in particular can provide rich veins of in-
documents you will analyse, you should make notes on the type of sight into how policy actors are thinking through the issues under
information you plan to extract from documents—i.e. what it is you study, particularly for the lucky researcher who obtains working
hope to learn, and how this will help answer your research ques- documents with ‘Track Changes.’ How you prioritize documents will
tion(s). The initial criteria—and the data you seek to extract from depend on your research question: you may prioritize official policy
documents—will likely evolve over the course of the research, as it documents if you are studying policy content, or you may prioritize
becomes clear whether they will yield too few documents and infor- informal documents if you are studying policy process.
mation (a rare outcome), far too many documents and too much in- During this initial preparatory phase, we also recommend devis-
formation (a much more common outcome) or documents that fail ing a file-naming system for your documents (e.g.
to address the research question; however, it is important to have a Author.Date.Topic.Institution.PDF), so that documents can be eas-
starting point to guide the search. If you find that the documents ily retrieved throughout the research process. After extracting data
you need are unavailable, you may need to reassess your research and processing your documents the first time around, you will likely
1428 Health Policy and Planning, 2020, Vol. 35, No. 10
have additional ‘questions’ to ask your documents and need to con- source files and link filenames to the data that you are extracting
sult them again. For this reason, it is important to clearly name (see sample naming conventions in the Supplementary Materials).
In a multi-country policy analysis of integrated Community Case Management of childhood illness (iCCM), Niger was among the few countries that
scaled up the policy at national level (Bennett et al., 2015). Alongside key stakeholder interviews and non-participant observation, document analysis
was used to reconstruct the policy process leading to this outcome.
In total, 103 documents were obtained from policy actors in Niger, researchers working on similar topics, or collected on the Internet (Dalglish et
al., 2015). Documents included official policies and strategies, field reports, legal regulations, program evaluations, funding proposals, newsletters and
newspaper articles, among other sources. Document acquisition was greatly facilitated by asking for documents during stakeholder interviews, al-
though some documents were not available due to a fire that destroyed World Health Organization (WHO) servers in the years preceding the study.
Data from the documents was extracted into a Microsoft Excel file, recording information about specific aspects of child health policy and programs,
framing of issues, use of research evidence, and mention of international recommendations, among other topics. Documents were also used to compile
a timeline of events in the policy process.
Representations of progress toward Millennium Development Goal 4 in Nigerien policy documents. Sources: clockwise from upper left: (WHO 2006); (Institut
National de la Statistique 2010); (Ministè re de la Santé Publique 2010); (Unicef 2010)
Health Policy and Planning, 2020, Vol. 35, No. 10 1429
Step 2. Extract data you have already read and processed, which will be greatly facili-
Data can be extracted in a number of ways, and the method you se- tated by a coherent file-naming system. It is also useful to keep notes
lect for doing so will depend on your research question and the na- on other documents that are mentioned that should be tracked
ture of your documents. One simple way is to use an Excel down (sometimes you can write the author for help). As a general
spreadsheet where each row is a document and each column is a cat- rule, we suggest being parsimonious when selecting initial categories
egory of information you are seeking to extract, from more basic to extract from data. Simply reading the documents takes significant
data such as the document title, author and date, to theoretical or time in and of itself—make sure you think about how, exactly, the
conceptual categories deriving from your research question, operat- specific data you are extracting will be used and how it goes towards
ing theory or analytical framework (Panel 2). Documents can also answering your research questions.
be imported into thematic coding software such as Atlas.ti or
NVivo, and data extracted that way. Alternatively, if the research Step 3. Analyse data
question focuses on process, documents can be used to compile a As in all types of qualitative research, data collection and ana-
timeline of events, to trace processes across time. Ask yourself, how lysis are iterative and characterized by emergent design, meaning
can I organize these data in the most coherent manner? What are my that developing findings continually inform whether and how to
priority categories? We have included two different examples of obtain and interpret data (Creswell, 2013). In practice, this
data extraction tools in the Supplementary Materials to this article means that during the data extraction phase, the researcher is al-
to spark ideas. ready analysing data and forming initial theories—as well as po-
Document analyses are first and foremost exercises in close read- tentially modifying document selection criteria. However, only
ing: documents should be read thoroughly, from start to finish, when data extraction is complete can one see the full picture.
including annexes, which may seem tedious but which sometimes For example, are there any documents that you would have
produce golden nuggets of information. Read for overall meaning as expected to find, but did not? Why do you think they might be
you extract specific data related to your research question. As you missing? Are there temporal trends (i.e. similarities, differences or
go along, you will begin to have ideas or build working theories evolutions that stand out when documents are ordered chrono-
about what you are learning and observing in the data. We suggest logically)? What else do you notice? We provide a list of over-
capturing these emerging theories in extended notes or ‘memos,’ as arching questions you should think about when viewing your
used in Grounded Theory methodology (Charmaz, 2006); these can body of document as a whole (Table 2).
be useful analytical units in themselves and can also provide a basis In addition to the meaning-making processes you are already
for later report and article writing. engaged in during the data extraction process, in most cases, it will
As you read more documents, you may find that your data ex- be useful to apply specific analysis methodologies to the overall cor-
traction tool needs to be modified to capture all the relevant infor- pus of your documents, such as policy analysis (Buse et al., 2005).
mation (or to avoid wasting time capturing irrelevant information). An array of analysis methodologies can be used, both quantitative
This may require you to go back and seek information in documents and qualitative, including case study methodology, thematic content
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