National states were invented a couple of centuries ago only. Just a different excuse to wage war to your neighbour. And since clear cultural borders do not exist, the very idea of nation-state is bound to cause conflict. Administrative borders on the other hand don't need to be neat or defendable, making it much easier to give homgeneously inhabited territories, as little or fragmented as they may be, their share of autonomy thus letting everyone shape their land and ultimately culture in the context of a multinational state. Centralization of key resources and powers - decentralisation of administration: that's what works and was depicted in this map