Explaining multi-level governance dynamics in Dutch nature policy

In recent years, there has been renewed interest in the factors that explain changes in the allocation of authority across different levels of governance. In this article, we take a functionalist approach to this question by linking such changes to concerns about effective problem solving. Specifically, we apply parts of Maggetti and Trein's ([2019]. “Multilevel governance and problem-solving: Towards a dynamic theory of multilevel policy-making?” Public Administration 97 (2): 355–369.) functionalist explanatory typology to several shifts in Dutch (multi-level) nature governance, with a specific focus on the development of policies related to nature reserves. Over a period of more than 30 years, three significant shifts occurred in the territorial governance of this policy. Our study, based on an analysis of secondary literature, reveals that, while most of the functionalist concerns specified by Maggetti and Trein ([2019]. “Multilevel governance and problem-solving: Towards a dynamic theory of multilevel policy-making?” Public Administration 97 (2): 355–369.) can be identified, they do not fully explain these shifts. Alignment of functionalist concerns with the political preferences of stakeholders is an important condition for having an effect.