"The evolution of environmental policy is increasingly driven by the emergence and interaction of policy concepts and the frameworks, knowledge, and ideas they employ. We argue that policy actors' creative use of policy concepts often leads to their combinatorial development. In this policy process, the concepts interact and shape each other's policy relevance and future development under the influence of ideas, knowledge, and political factors. We formulate this new research approach using ideational and policy process theories. In particular, we explicate internal and contextual combinatory elements that enable policy change resulting from mutual development of policy concepts. For an empirical demonstration, we analyze the conceptual innovation, rise, and ramifications of nutrient recycling as a new segment of Finnish environmental policy."

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