How education policy actors interpret, portray and contest risk in children’s physically active play in schools: a framing analysis

Children's physical activity is low and play outdoors has been declining, coinciding with a greater preoccupation with risk in many countries. This study examines how policy actors frame the issue of risk in children's active physical play in schools. Using a theory-informed, multi-method, qualitative case-study design, 30 participants from a range of sectors involved in policy relevant to children's physical activity and play in schools participated in interviews and photo-elicitation. Data were analysed using reflexive thematic analysis. Four frames of active physical play in schools were identified. Two 'risk averse' frames (protection and productivity) dominated and were primarily expressed by policy actors inside the school system. These frames were characterised by a negative construction of risk, and concerns for adverse outcomes for children and schools. In contrast, two frames were 'risk tolerant' (development and flourishing), within which risk was constructed as 'uncertainty', which could lead to positive or negative outcomes in play, and supported a child's holistic learning, development, and wellbeing. While there were some 'real world' examples of risk tolerant frames, more commonly they were expressed in the context of how things should or could be in schools. Findings indicate school policies that prioritise injury prevention and productivity goals, may involve a risk-benefit trade-off over other fundamental objectives, elevating some risks above less visible ones, such as the consequences of play and physical activity restriction. Implications for education policy are discussed. Future work should seek to improve understanding of forces contributing to risk averse frames of physically active play in schools and contribute evidence for the benefits of risk-taking for children.