Circular Ecosystem Initiation and Governance: Action Research Lessons from an Internal Transition Broker in Local Government

Scott T.  Bryant; Roelof Vogel

doi:10.55845/joce-2026-3552

Authors

Scott T. Bryant Author
Roelof Vogel Monash Business School Author

DOI:

https://doi.org/10.55845/joce-2026-3552

Keywords:

Circular Economy, Local Government, Transition Broker, Circular Ecosystems, Action Research, Causal Conditions and Mechanisms

Abstract

The need to adopt circular economy (CE) innovation at a global level is well documented and recognised by a wide range of stakeholders, including all levels of government. Governance and policy settings are therefore of particular significance to local governments wishing to initiate and facilitate the adoption of CE principles in their precincts. Circular ecosystems have emerged as a critical pathway to CE transition, requiring active orchestration by a designated facilitator. This study explores governance requirements for the initiation and orchestration of circular ecosystems in local government and is undertaken through action research by the first author as a CE professional and as a ‘transition broker’. We identify three causal conditions and seven atypical capability requirements for internal transition broker roles in resource-constrained, local government contexts. We further identify two causal mechanisms that interact with the local (contextual) causal conditions to produce CE specific events and outcomes.

References

Adner, R. (2017). Ecosystem as structure: An actionable construct as strategy. Journal of Management, 43(1), 39-58. https://doi.org/10.1177/0149206316678451 DOI: https://doi.org/10.1177/0149206316678451

Arsova, S., Genovese, A., & Ketikidis, P. H. (2022). Implementing circular economy in a regional context: A systematic literature review and a research agenda. Journal of Cleaner Production, 368, 133117. https://doi.org/10.1016/j.jclepro.2022.133117 DOI: https://doi.org/10.1016/j.jclepro.2022.133117

ASPIRE. (2024). ASPIRE: Empowering businesses to exchange waste as a resource. Retrieved March 20, 2024, from https://aspiresme.com/

Barquete, S., Hofmann Trevisan, A., Gonçalves Castro, C., & Mascarenhas, J. (2023). Motivations behind actors’ cooperation in circular ecosystems: A systematic literature review and a Brazilian case study. International Conference on Engineering Design (ICED23), 24-28 July 2023, Bordeaux, France. https://doi.org/10.1017/pds.2023.397. DOI: https://doi.org/10.1017/pds.2023.397

Bonato, D. & Orsini, R. (2018). Urban circular economy: The new frontier for European cities’ sustainable development. In W. W Clark (Eds.), Sustainable Cities and Communities Design Handbook (2nd ed., pp.235-245). Butterworth-Heinemann. https://doi.org/10.1016/B978-0-12-813964-6.00012-4 DOI: https://doi.org/10.1016/B978-0-12-813964-6.00012-4

Chembessi, C., Bourdin, S. & Torre, A. (2024). Towards a territorialisation of the circular economy: The proximity of stakeholders and resources matters. Cambridge Journal of Regions, Economy and Society, rsae007: 1-18. https://doi.org/10.1016/j.peg.2024.100021

Chlebna, C., Evenhuis, E., & Morales, D. (2024). Economic geography and planetary boundaries: Embracing the planet’s uncompromising call to action. Progress in Economic Geography, 2, 100021. https://doi.org/10.1016/j.peg.2024.100021 DOI: https://doi.org/10.1016/j.peg.2024.100021

Circle Economy. (2025). The circularity gap report 2025. Circle Economy, Amsterdam. https://circularity-gap.world/2024

City of Greater Bendigo (CoGB). (2020a). Circular Greater Bendigo EOI – A Video Guide. Retrieved March 20, 2024, from https://www.youtube.com/watch?v=lC3dNiTOjS8

City of Greater Bendigo (CoGB). (2020b). Circular Greater Bendigo - Info Session Recording (5 August 2020). Retrieved March 20, 2024, from https://www.youtube.com/watch?v=CImAaelGusQ

City of Greater Bendigo (CoGB). (2021a). Circular economy and zero waste policy. City of Greater Bendigo. https://www.bendigo.vic.gov.au/sites/default/files/City-of-Greater-Bendigo-Circular-Economy-Zero-Waste-Policy.pdf

City of Greater Bendigo (CoGB). (2021b). Climate Change and Environment Strategy, 2021-2026. City of Greater Bendigo. https://www.bendigo.vic.gov.au/sites/default/files/2023-06/City-Greater-Bendigo-Climate-Change-Environment-Strategy-2021-2026.pdf

City of Greater Bendigo (CoGB). (2022a). Annual Environment Report 2021-2022. Retrieved March 20, 2024, from https://www.bendigo.vic.gov.au/sites/default/files/2023-06/City-Greater-Bendigo-Annual-Environment-Report-2021-2022.pdf

City of Greater Bendigo (CoGB). (2022b). City of Greater Bendigo: 2022 Winner – Circular economy innovation. Sustainability Victoria website (accessed on 22 February 2024). https://www.sustainability.vic.gov.au/about-us/awards-we-administer/premiers-sustainability-awards/past-winners-and-finalists/2022-winners/city-of-greater-bendigo-2022-winner-circular-economy-innovation

City of Greater Bendigo (CoGB). (2023). Circular Central Victoria: a regional circular opportunity scan. Retrieved March 20, 2024, from https://www.bendigo.vic.gov.au/sites/default/files/2023-10/City-Greater-Bendigo-Circular-Central-Victoria-Final-Report.pdf

City of Greater Bendigo (CoGB). (2026). Greater Bendigo Circular economy. Retrieved January 24, 2026, from https://www.bendigo.vic.gov.au/residents/general-waste-recycling-and-organics/greater-bendigo-circular-economy

Cramer, J. M. (2020a). How Network Governance Powers the Circular Economy; Ten Guiding Principles for Building a Circular Economy, Based on Dutch Experiences. Amsterdam Economic Board.

Cramer, J. M. (2020b). The function of transition brokers in the regional governance of implementing circular economy – a comparative case study of six Dutch regions. Sustainability, 12, 5015. https://doi.org/10.3390/su12125015 DOI: https://doi.org/10.3390/su12125015

Cramer, J. M. (2020c). Practice-based model for implementing circular economy: The case of the Amsterdam Metropolitan Area. Journal of Cleaner Production, 255, 120255. https://doi.org/10.1016/j.jclepro.2020.120255 DOI: https://doi.org/10.1016/j.jclepro.2020.120255

Cramer, J. M. (2020d). Implementing the circular economy in the Amsterdam metropolitan area: The interplay between market actors mediated by transition brokers. Business Strategy and the Environment, 29, 2857-2870. https://doi.org/10.1002/bse.2548 DOI: https://doi.org/10.1002/bse.2548

Dawkins, E., André, K., Axelsson, K., Benoist, L., Swartling, A. G. & Persson, A. (2019). Advancing sustainable consumption at the local government level: A literature review. Journal of Cleaner Production, 231, 1450-1462. https://doi.org/10.1016/j.jclepro.2019.05.176 DOI: https://doi.org/10.1016/j.jclepro.2019.05.176

Fischer, L. & Newig, J. (2016). Importance of actors and agency in sustainability transitions: A systematic exploration of the literature. Sustainability, 8, 476, 1-21. https://doi.org/10.3390/su8050476 DOI: https://doi.org/10.3390/su8050476

Geissdoerfer, M., Kanda, W., & Kirchherr, J. (2025). Conceptualising circular ecosystems: An analysis of 45 definitions. Business Strategy and the Environment, 1-27, https://doi.org/10.1002/bse.70242 DOI: https://doi.org/10.1002/bse.70242

Geissdoerfer, M., Savaget, P., Bocken, N. M., & Hultink, E. J. (2017). The Circular Economy–A new sustainability paradigm? Journal of Cleaner Production, 143, 757-768. https://dx.doi.org/10.1016/j.jclepro.2016.12.048 DOI: https://doi.org/10.1016/j.jclepro.2016.12.048

Gong, H., & Hassink, R. (2020). Context sensitivity and economic-geography (re)theorising. Cambridge Journal of Regions, Economy and Society, 13, 475-490. https://doi.org/10.1093/cjres/rsaa021 DOI: https://doi.org/10.1093/cjres/rsaa021

Gravagnuolo, A., Angrisano, M. & Girard, L. F. (2019). Circular economy strategies in eight historic port cities: Criteria and indicators towards a circular assessment framework. Sustainability 11, 3512, 1-24. https://doi.org/10.3390/su11133512 DOI: https://doi.org/10.3390/su11133512

Hanemaaijer, A., Kishna, M., Koch, J. et al. (2023) Integral circular economy report 2023: Assessment for the Netherlands. Report for the PBL Netherlands Environmental Protection Agency. The Netherlands. April. https://www.pbl.nl/en/topics/circular-economy

Hebinck, A., Diercks, G., von Wirth, T., Beers, P.J., Barsties, L., Buchel, S., Greer, R., van Steenbergen, F., & Loorbach, D. (2022). An actionable understanding of societal transitions: The X‐curve framework. Sustainability Science, 17, 1009–1021. https://doi.org/10.18778/1231-1952.27.2.02 DOI: https://doi.org/10.1007/s11625-021-01084-w

Heurkens, E. & Dabrowski, M. (2020). Circling the square: Governance of the circular economy transition in the Amsterdam metropolitan area. European Spatial Research and Policy 27(2), 11-31. https://doi.org/10.18778/1231-1952.27.2.02 DOI: https://doi.org/10.18778/1231-1952.27.2.02

Kanda, W., Geissdoerfer, M., & Hjelm, O. (2021). From circular business models to circular business ecosystems. Business Strategy and the Environment, 30(6), 2814–2829. https://doi.org/10.1002/bse.2895 DOI: https://doi.org/10.1002/bse.2895

Kemmis, S. (2010). What is to be done? The place of action research. Educational Action Research, 18(4), 417-427. https://doi.org/10.1080/09650792.2010.524745 DOI: https://doi.org/10.1080/09650792.2010.524745

Kemp, R., Loorbach, D., & Rotmans, J. (2007). Transition management as a model for managing processes of co-evolution towards sustainable development. The International Journal of Sustainable Development & World Ecology, 14(1), 78-91. https://doi.org/10.1080/13504500709469709 DOI: https://doi.org/10.1080/13504500709469709

Kivimaa, P., Boon, W., Hyysalo, S., & Klerkx, L. (2019). Towards a typology of intermediaries in sustainability transitions: A systematic review and a research agenda. Research Policy, 48(4), 1062-1075. https://doi.org/10.1016/j.respol.2018.10.006 DOI: https://doi.org/10.1016/j.respol.2018.10.006

Korhonen, J., Honkasalo, A., & Seppälä, J. (2018). Circular economy: The concept and its limitations. Ecological Economics 143, 37–46. http://dx.doi.org/10.1016/j.ecolecon.2017.06.041 DOI: https://doi.org/10.1016/j.ecolecon.2017.06.041

Loorbach, D. (2010). Transition management for sustainable development: a prescriptive, complexity‐based governance framework. Governance, 23(1), 161-183. https://doi.org/10.1111/j.1468-0491.2009.01471.x DOI: https://doi.org/10.1111/j.1468-0491.2009.01471.x

Loorbach, D., & Rotmans, J. (2006). Managing transitions for sustainable development. In X. Olshoorn & A. J. Wieczorek (Eds.), Understanding Industrial Transformation: Views from Different Disciplines (pp. 187-206), Springer. DOI: https://doi.org/10.1007/1-4020-4418-6_10

Loorbach, D., Frantzeskaki, N., & Thissen, W. (2011). A transition research perspective on governance for sustainability. In Jaeger et al. (Eds.) European research on sustainable development: Volume 1: Transformative science approaches for sustainability (pp. 73-89). Springer. https://doi.org/10.1007/978-3-642-19202-9_7 DOI: https://doi.org/10.1007/978-3-642-19202-9_7

Markard, J., Raven, R., & Truffer, B. (2012). Sustainability transitions: An emerging field of research and its prospects. Research Policy, 41, 955-967. https://doi.org/10.1016/j.respol.2012.02.013 DOI: https://doi.org/10.1016/j.respol.2012.02.013

Parida, V., Burström, T., Visnjic, I., & Wincent, J. (2019). Orchestrating industrial ecosystems in a circular economy: A two-stage transformation model for large manufacturing companies. Journal of Business Research, 101, 715-725. https://doi.org/10.1016/j.jbusres.2019.01.006 DOI: https://doi.org/10.1016/j.jbusres.2019.01.006

Pietrulla, F. (2022). Circular ecosystems: A review. Cleaner and Circular Bioeconomy, 3, 100031. https://doi.org/10.1016/j.clcb.2022.100031 DOI: https://doi.org/10.1016/j.clcb.2022.100031

Rauschmayer, F., Bauler, T., & Schäpke, N. (2015). Towards a thick understanding of sustainability transitions—Linking transition management, capabilities and social practices. Ecological economics, 109, 211-221. http://dx.doi.org/10.1016/j.ecolecon.2014.11.018 DOI: https://doi.org/10.1016/j.ecolecon.2014.11.018

Reike, D., Vermeulen, W. J. D., & Witjes, S. (2018). The circular economy: New or Refurbished as CE 3.0? — Exploring controversies in the conceptualization of the circular economy through a focus on history and resource value retention options. Resources, Conservation and Recycling, 135, 246-264. https://doi.org/10.1016/j.resconrec.2017.08.027 DOI: https://doi.org/10.1016/j.resconrec.2017.08.027

Rogers, E. M. (2003). Diffusion of Innovations (5th ed.). Free Press.

Savaget, P., Ozcan, P., & Pitsis, T. (2025). Social entrepreneurs as ecosystem catalysts: The dynamics of forming and withdrawing from a self-sustaining ecosystem. Journal of Management Studies, 62(1), 246-278. https://doi.org/10.1111/joms.13055 DOI: https://doi.org/10.1111/joms.13055

Scarpellini, S., Portillo-Tarragona, P., Aranda-Usón, A., et al. (2019). Definition and measurement of the circular economy’s regional impact. Journal of Environmental Planning and Management 62(13), 2211–2237. https://doi.org/10.1080/09640568.2018.1537974 DOI: https://doi.org/10.1080/09640568.2018.1537974

Uusikartano, J., Väyrynen, H. & Aarikka-Stenroos, L. (2020). Public agency in changing circular economy ecosystems: Roles, modes, and structures. Sustainability, 12, 10015, 1-27. https://doi.org/10.3390/su122310015 DOI: https://doi.org/10.3390/su122310015

Vanhuyse, F., Haddaway, N. R. & Henrysson, M. (2021). Circular cities: An evidence map of research between 2010 and 2020. Discover Sustainability, 2(50), 1-17. https://doi.org/10.3390/su8050476 DOI: https://doi.org/10.1007/s43621-021-00059-2

Vogel, R., De Vass, T., Croy, G., & Sohal, A. (2024). Circular economy: Contested definitions and an evolving concept. In Fröhlich E et al. (eds) Circular economy in the supply chain: A global perspective on challenges, concepts and cases. Switzerland. Springer, pp.181-199. https://doi.org/10.1007/978-3-031-70749-0_16 DOI: https://doi.org/10.1007/978-3-031-70749-0_16

Vogel, R., & Geissdoerfer, M. (2026). Ecosystem initiation: A key policy challenge for circular economy transition. Journal of Industrial Ecology. https://doi.org/10.1007/s44498-026-00002-6 DOI: https://doi.org/10.21203/rs.3.rs-8100547/v1

VSG Act. (2020). Local Government Act 2020. Act 9 of 2020. Government of the State of Victoria, Australia.

VSG Act. (2021). Circular Economy (Waste Reduction and Recycling) Act 2021. Act 55 of 2021. Government of the State of Victoria, Australia.

Williams, J. (2021). Circular cities: A revolution in urban sustainability. London. Routledge. DOI: https://doi.org/10.4324/9780429490613

Williams, J. (2023). Circular cities: Planning for circular development in European cities. European Planning Studies, 31(1), 14-35. https://doi.org/10.1080/09654313.2022.2060707 DOI: https://doi.org/10.1080/09654313.2022.2060707

Wittmayer, J. M. (2016). Insights and lessons for the governance of urban sustainability transitions. In D. Loorbach, J. Wittmayer, H. Shiroyama, J. Fujino & S. Mizuguchi (Eds.), Governance of Urban Sustainability Transitions (pp. 13-32). Springer. https://doi.org/10.1007/978-4-431-55426-4_9 DOI: https://doi.org/10.1007/978-4-431-55426-4_9

Wittmayer, J. M. & Loorbach, D. (2016). Governing transitions in cities: Fostering alternative ideas, practices, and social relations through transition management. In D. Loorbach, J. Wittmayer, H. Shiroyama, J. Fujino & S. Mizuguchi (Eds.), Governance of Urban Sustainability Transitions (pp. 13-32). Springer. https://doi.org/10.1007/978-4-431-55426-4_2 DOI: https://doi.org/10.1007/978-4-431-55426-4_2

Wittmayer, J. M., & Schäpke, N. (2014). Action, research and participation: roles of researchers in sustainability transitions. Sustainability Science, 9, 483-496. https://doi.org/10.1007/s11625-014-0258-4 DOI: https://doi.org/10.1007/s11625-014-0258-4

Wittmayer, J. M., Avelino, F., Van Steenbergen, F. & Loorbach, D. (2017). Actor roles in transitions: Insights from sociological perspectives. Environmental Innovations and Societal Transitions, 24, 45-56. https://doi.org/10.1016/j.eist.2016.10.003 DOI: https://doi.org/10.1016/j.eist.2016.10.003

Yeung, H. W. C. (2024). Why is causal explanation critical in/to economic geography? Economy and Space, 56(5), 1553-1561. https://doi.org/10.1177/0308518X231191923 DOI: https://doi.org/10.1177/0308518X231191923

Yeung, H. W. (2019). Rethinking mechanism and process in the geographical analysis of uneven development. Dialogues in Human Geography, 9(3), 226-255. https://doi.org/10.1177/2043820619861861 DOI: https://doi.org/10.1177/2043820619861861

Yin, R. K. (2018). Case study research and applications (6 edn). London. Sage.

Zucchella, A., & Previtali, P. (2019). Circular business models for sustainable development: A “waste is food” restorative ecosystem. Business Strategy and the Environment, 28, 274-285. https://doi.org/10.1002/bse.2216 DOI: https://doi.org/10.1002/bse.2216