ABSTRACT In the last decade, many authors have observed shifts from government to governance in the environmental policy domain. However, a clear conceptual framework to differentiate between modes of environmental governance is lacking and our understanding of when, how and why environmental governance changes from one mode to another is limited. In this paper we propose such a framework and we illustrate its usefulness by applying it to two environmental policy sectors in the Netherlands: urban environmental policy and policy regarding sustainable production and consumption. We show how the application of our framework leads to detailed, replicable and comparable claims about character and intensity of shifts in environmental governance. From this analysis, we conclude that character and intensity of shifts in environmental governance vary significantly. Furthermore, we show that modes of governance build on rather than completely replace one another. Finally, we point to a number of possible explanations for shifts in environmental governance, recognized in literature and in practice. We conclude with some suggestions for further research. Copyright © 2012 John Wiley & Sons, Ltd and ERP Environment.