Living with the incoherent: Practical insights on implementing European restoration policies for biodiversity policy integration

Policy incoherence is an omnipresent challenge in public administration. Focusing on the joint implementation of the European Water Framework Directive and the Habitats Directive, we analyze how administrative fragmentation hampers river restoration projects at the sub-national level in Germany. By shifting the analytical focus to institutional and administrative factors, we reveal barriers at institutional, processual and individual levels. We find that the failure of river restoration projects stems not only from practical hurdles, such as lack of resources, information, or manpower, but also from more fundamental flaws in the administrative arrangements. Based on a multi-stakeholder consultation, we argue that both bottom-up and top-down approaches can support better coordination and a local mandate for joint implementation. In particular, state-level planning can help reduce local coordination costs in the short term. The analysis highlights the critical role of individual actors and leadership, reframing and cross-sectoral coordination for policy integration.