Negotiating Stakeholder Relationships in a Regional Circular Economy: Discourse Analysis of Multi-scalar Policies and Company Statements from the North of England

Circular economy (CE) literature discusses the need for cooperation between different stakeholders to promote a CE; there is also an assumption regarding the benefits of loop closing on a local or regional scale. However, the potentially conflicting priorities, understandings, and expectations of the stakeholders involved have not been sufficiently addressed. Regional (or local) authorities have a responsibility to promote prosperity for stakeholders in their administrative region, within the constraints of national policy; conversely companies can have financial imperatives associated with stakeholders who may be globally distributed. Evidence of these conflicting priorities, the various positions stakeholder take, and their expectations of each other can be seen in the language choices regional actors make in their public-facing policy and report documents. The aim of the paper is to consider the challenges for creating a regional-scale CE that might arise from the differing priorities and values of companies and public agencies relating to specific places. It uses discourse analysis (including critical approaches) to examine how policy and business documents represent the stakeholders of the CE, their place in it, their priorities, and, importantly, the relationship between CE actors, focusing on the case of North Humberside on the North East coast of England. The plans set out in these reports are designed for external stakeholders and allow us to gain an insight into company and policy thinking in relation to CE developments in the coming years, including how they view each other’s roles. Findings indicate a shared motivation across scales and sectors for the CE as a means towards sustainable growth within which business plays a central role. However, there is a critical double disjuncture between different visions for implementation. First, between policy scales, a regional-scale CE is prioritised by regional policymakers, who have an interest in economic advantage being tied to a specific place and call for national scale support for their actions. Second, between regional policymakers and business, companies focus on their own internal operations and potential supply chain collaborations, with little attention given to the regional scale. This can be seen in the way organisations represent the actors of a nascent CE differently. In addition, a hegemonic business-focused growth discourse excludes other visions of the CE; the public are relegated to a passive role primarily as consumers and recipients of under-specified “opportunities” of wealth creation. CE theorisations need to incorporate and address these critical perspectives in order to support the development of strategies to overcome them.