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Multilevel governance of energy transitions depends on the coordination between national, supra- and international administrative actors. Coordination takes place in systems of multilevel administration, which constitute highly dynamic arenas dominated by legally non-binding instruments and reciprocal interactions and relationships. This article seeks to gain insights into the underlying coordination processes by asking which conditions account for the change over time of coordination between administrative actors in multilevel administration systems. First, research on multilevel administration is summarized. Second and starting from historic and discursive institutionalist theory, a conceptual framework is outlined to assess the conditions and modes that account for the dynamics of coordination in general, and the change of coordination instruments in particular. A trend towards persuasive coordination in a process of institutional layering driven by endogenous conditions is expected. Empirically, an in-depth comparative analysis is conducted based on exploratory interviews with 90 experts mainly from the European Commission, the International Energy Agency, and national administrators from Canada and Europe. The results unveil that administrative coordination evolves according to at least three types of layering that go beyond the initial hypothesis: first, through layering of coordination instruments; second, as an increase in formal and non-formal interactions through a growing number of channels and complexity of interactions over time; third, as layering of inter-administrative relationships through a growing importance of personal networks and the creation of new contacts. By analysing the dynamics of multilevel administrative coordination, the article contributes to an important but underdeveloped aspect of the governance of supra- and international energy transitions.
European energy policy dates back to the founding days of integration, yet the emergence of supranational governance is a recent development. The article examines the extent to which European policymakers have succeeded in building up governance capacity, and what the facilitating and impeding factors were that have shaped the governance mix. The conceptual framework differentiates between orders of governance in the multilevel context, and between policy modes involving hierarchical and non-hierarchical settings and varying actor constellations. The article finds that governance capacity has emerged where second order governance (institutional and procedural rules) is concerned, while first order governance (the concrete policy process) remains the remit of national and private actors. This becomes even more obvious once the interaction between policy modes is taken into account: governance networks enhance governance capacity in the area of competition policy and agency governance; self-regulation by industry constitutes a fall-back option in case of insufficient governance capacity on cross-border issues; soft governance helps to bridge multiple policy areas and levels of governance. The article concludes that second order governance may prove effective where it combines with hierarchy but that it may fail to overcome both trade-offs between contradicting goals and resistance at lower levels.