What is at stake and what does it take? Collaborative governance and policy (in)action in the adoption of a National Forest Programme

Inspired by collaborative governance theory, this study analyzes the process dynamics, outputs, and perceived impacts of a collaborative initiative launched by the Swedish government in 2014. It draws on extensive empirical sources related to the Swedish government's efforts to develop and implement a National Forest Programme (NFP) from 2014 to 2021. These sources include semistructured interviews, observations, public consultation comments, records of meetings and public hearings, reports from dialogues, and enacted policy documents. The results show that the collaboration initially provided a space for joint deliberation and capacity building on complex and contentious issues related to current land use. However, the final programme endorsed by the government in 2018 failed to initiate ambitious proposals on several key issues raised by participating actors, offering little indication of priorities and policy instruments to address fundamental gaps in current policy goals and their implementation. Consequently, the case reveals that it was not sufficient, and perhaps not even desirable, to address existing conflicts and policy problems in a comprehensive collaborative setting run by the Government Offices. The paper concludes with key insights for research on collaboration and suggests ways to move forward with policy designs that integrate multiple and competing policy goals in contested areas.