Change and stability in conservation discourses: A historical account of 30 years of citizen engagement in nature conservation policies in the Netherlands

Abstract

In recent years, there has been a shift in global and European nature conservation discourses − from prioritizing ‘Ecology First’ to emphasizing a ’People and Nature’ approach with a strong emphasis on stakeholder participation. However, recent developments, such as the 30x30 biodiversity goal formulated at COP28 and the EU Nature Restoration Law, suggest that policy approaches based on strict conservation and state legal force are gaining ground again. This resurgence has reignited debates on the role of stakeholder and citizen engagement in nature policy and management. As the Netherlands has been a key player in nature conservation discourse and policy innovation, we have examined the debates on citizen engagement in nature conservation policies in the Netherlands from 1990 onwards. Our findings challenge the common belief in a unidirectional progression towards increased participation and broader stakeholder engagement. Instead, we find that the proclaimed democratic and economic turns are merely minor disruptions in the continued dominance of the hegemonic discourse rooted in an ‘Ecology First’ perspective.

Our research reveals that although participatory and economic approaches are often included in the titles and framing of policy documents, translating the rhetoric of societal value of nature and economic opportunities into actual policy-making has proven to be challenging. We assert that these changes should not be viewed as linear but rather as an emergent process, dynamically responding to evolving social, economic, and political contexts. We have identified six factors which explain the relative strength, dynamics, and persistence of these discourses on public engagements: changing scientific paradigms, EU regulations; economic factors; public and political support; personal views; and issues of scale. Contrary to expectations, high levels of public support for nature conservation have not led to a greater focus on participatory approaches. Instead, it appears that high levels of support bolster conservationists’ self-confidence and reduce sensitivity to the social consequences of conservation, thereby reinforcing a top-down, ecology-based approach. We argue that this phenomenon can be described as the “irony of public support”, where policy responses to increased public support may actually jeopardize that support in the long-term.