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Policy making and agenda setting often are analyzed either in terms of how policy problems are defined, or in terms of the structural setting producing stability or opportunities for change. Building on different fields of scholarly work, this paper aims at an integration of structural and substantive elements in studying agenda setting. We analyze how particular frames of immigrant issues emerge in the interaction between policy makers and experts within this immigrant policy domain. By comparing this key element of agenda setting in the Netherlands, France and the United Kingdom, we show how different types of interaction produce different substantive policy frames. If immigrant integration is shaped primarily as a policy issue in broader political arenas and the media, a different frame emerges than when venues such as advisory bodies, think tanks and bureaucracies with limited access and less public exposure are involved. [ABSTRACT FROM AUTHOR]