Trading Radical for Incremental Change: The Politics of a Circular Economy Transition in the German Packaging Sector
Understanding environmental politics is crucial for sustainability transitions. We study the transition politics of the shift to a circular economy in the German packaging sector, particularly the curious case of the 2019 German Packaging Act. While the policy was born out of the unanimous wish for radical regulatory change, all stakeholders evaluate the outcome as incremental. Applying the Discursive Agency Approach and drawing upon stakeholder interviews and documents, we show that stakeholders’ perceived fear of radical changes are critical for transition politics. This fear created a lock-in of two narratives proposing conflicting organizational designs of packaging waste management. While the narrative lock-in could be resolved by trading radical for incremental change, it left many conflicts and challenges unresolved. Our findings suggest that stakeholders’ fears not only prevent radical regulatory change but also create incremental change that may intensify unresolved conflicts and, thus, further weaken the stakeholders’ capacity for future transition politics.