Circular Economy Strategies in European Capitals
DOI:
https://doi.org/10.55845/joce-2026-4167Keywords:
Circular Economy, Circular Cities, Action Plan, Circular Economy StrategiesAbstract
As major population hubs, cities contribute substantially to resource consumption and pollution, while also serving as key arenas for innovation and sustainable development. Meanwhile, the European Union has prioritised the circular economy as a strategic pathway for urban transformation, with capital cities intended to have a crucial role in this transition. Drawing on an integrated literature review, this study therefore focuses on the assessment of circular economy strategies in 10 European Union capital cities. It evaluates three core dimensions: methodological clarity, stakeholder engagement, and accountability. Based on these criteria, we propose a typology that classifies strategies into three categories: “Robust”, “Moderate”, and “Basic”. Our findings highlight that, despite growing political commitment to the circular economy at urban level, many strategies suffer from limited stakeholder inclusion, vague implementation plans, and scarce accountability mechanisms. These gaps raise concerns about the disconnect between circular economy visions and urban realities. Overall, this study offers a replicable evaluation tool, while also highlighting the need for integrated, transparent, and participatory planning in the design of effective urban circular economy strategies.
References
Akande, A., Cabral, P., Gomes, P., & Casteleyn, S. (2019). The Lisbon ranking for smart sustainable cities in Europe. Sustainable Cities and Society, 44, 475–487. https://doi.org/10.1016/j.scs.2018.10.009
Anantharaman, Manisha, 'Reclaiming the Circular Economy: Informal Work and Grassroots Power', in Jeannie Sowers, Stacy D. VanDeveer, and Erika Weinthal (eds), The Oxford Handbook of Comparative Environmental Politics (2023; online edn, Oxford Academic, 14 July 2021), https://doi.org/10.1093/oxfordhb/9780197515037.013.30
Arnstein, S. R. (1969). A Ladder Of Citizen Participation. Journal of the American Planning Association, 35(4), 216–224. https://doi.org/10.1080/01944366908977225
Arsova, S., Genovese, A., Ketikidis, P. H., Alberich, J. P., & Solomon, A. (2021). Implementing regional circular economy policies: A proposed living constellation of stakeholders. Sustainability, 13(9), 4916.
Aryee, R., Kanda, W., Geissdoerfer, M., & Kirchherr, J. (2025). Circular ecosystems: Past, present, and future research directions. Journal of Industrial Ecology.
Beccarello, M., & Foggia, G. D. (2022). A circularity mapping framework for urban policymaking. Journal of Politics and Law. https://doi.org/10.5539/jpl.v16n1p11
Berry, B., Farber, B., Cruz Rios, F., Haedicke, M. A., Chakraborty, S., Lowden, S. S., Bilec, M. M., & Isenhour, C. (2021). Just by design: Exploring justice as a multidimensional concept in US circular economy discourse. Local Environment, 27(10), 1225–1241. https://doi.org/10.1080/13549839.2021.1994535
Bocken, N. M. P., Schuit, C. S. C., & Kraaijenhagen, C. (2018). Experimenting with a circular business model: Lessons from eight cases. Environmental Innovation and Societal Transitions, 28, 79–95. https://doi.org/10.1016/j.eist.2018.02.001
Bolger, K., & Doyon, A. (2019). Circular cities: Exploring local government strategies to facilitate a circular economy. European Planning Studies, 27(11), 2184–2205. https://doi.org/10.1080/09654313.2019.1642854
Bosman, R., & Rotmans, J. (2016). Transition governance towards a bioeconomy: A comparison of Finland and The Netherlands. Sustainability, 8(10), 1017. https://doi.org/10.3390/su8101017
Boulding, K. (1966). The Economics of the Coming Spaceship Earth. Environmental Quality in a Growing Economy: Essays from the Sixth RFF Forum. Routledge, 3–15.
Bourdin, S., & Jacquet, N. (2025). Closing the loop at the local scale: Investigating the drivers of and barriers to the implementation of the circular economy in cities and regions. Ecological Economics, 231. https://doi.org/10.1016/j.ecolecon.2025.108542
Bozeman, J., Chopra, S. S., James, P., Muhammad, S., Cai, H., Tong, K., Carrasquillo, M., Rickenbacker, H. J., Nock, D., Ashton, W., Heidrich, O., Derrible, S., & Bilec, M. (2022). Three research priorities for just and sustainable urban systems: Now is the time to refocus. Journal of Industrial Ecology, 27, 382–394. https://doi.org/10.1111/jiec.13360
Buch, R., O’Neill, D., Lubenow, C., DeFilippis, M., & Dalrymple, M. (2018). Collaboration for regional sustainable circular economy innovation. In S. Dhiman & J. Marquez (Eds.), Handbook of engaged sustainability (pp. 703– 728). Springer.
Calisto Friant, M., Reid, K., Boesler, P., Vermeulen, W., & Salomone, R. (2023). Sustainable circular cities? Analysing urban circular economy policies in Amsterdam, Glasgow, and Copenhagen. Local Environment, 28, 1331–1369. https://doi.org/10.1080/13549839.2023.2206643
Calisto Friant, M., Vermeulen, W. J. V., & Salomone, R. (2021). Analysing European Union circular economy policies: words versus actions. Sustainable Production and Consumption, 27, 337–353. https://doi.org/10.1016/j.spc.2020.11.001
Cavaleiro de Ferreira, A., & Fuso-Nerini, F. (2019). A framework for implementing and tracking circular economy in cities: The case of Porto. Sustainability, 11(6), 1813. https://doi.org/10.3390/su11061813
Chao, A. L., Casares Gallego, A., Lopez-Chao, V., & Alvarellos, A. (2020). Indicators framework for sustainable urban design. Atmosphere, 11(11), 1143. https://doi.org/10.3390/atmos11111143
Chappin, E. J. L., & Ligtvoet, A. (2014). Transition and transformation: A bibliometric analysis of two scientific networks researching socio-technical change. Renewable and Sustainable Energy Reviews, 30, 715–723. https://doi.org/10.1016/j.rser.2013.11.013
Corona, B., Shen, L., Reike, D., Rosales Carreón, J., & Worrell, E. (2019). Towards sustainable development through the circular economy—A review and critical assessment on current circularity metrics. Resources, Conservation and Recycling, 151, 104498. https://doi.org/10.1016/j.resconrec.2019.104498
Creswell, J. W. (2013). Research design: Qualitative, quantitative, and mixed methods approaches. SAGE.
Czupich, M., Łapińska, J., & Bartoš, V. (2022). Environmental sustainability assessment of the european union’s capital cities. International Journal of Environmental Research and Public Health, 19(7), 4327. https://doi.org/10.3390/ijerph19074327
Dagiliene, L., Varaniūtė, V., & Bruneckienė, J. (2021). Local governments’ perspective on implementing the circular economy: A framework for future solutions. Journal of Cleaner Production, 310, 127340. https://doi.org/10.1016/j.jclepro.2021.127340
de Jesus, A., Antunes, P., Santos, R., & Mendonça, S. (2018). Eco-innovation in the transition to a circular economy: An analytical literature review. Journal of Cleaner Production, 172, 2999–3018. https://doi.org/10.1016/j.jclepro.2017.11.111
De Morais, L. H. L., Pinto, D. C., & Cruz-Jesus, F. (2021). Circular economy engagement: Altruism, status, and cultural orientation as drivers for sustainable consumption. Sustainable Production and Consumption, 27, 523-533.
De Pascale, A., Arbolino, R., Szopik-Depczyńska, K., Limosani, M., & Ioppolo, G. (2021). A systematic review for measuring circular economy: The 61 indicators. Journal of Cleaner Production, 281, 124942. https://doi.org/10.1016/j.jclepro.2020.124942
Dijkink, G. (2000). European capital cities as political frontiers. GeoJournal, 51, 65–71.
Ellen MacArthur Foundation. (2017). Cities in the circular economy: An initial exploration.
European Investment Bank. (2018). The 15 circular steps for cities.
Eurostat. (2022). Urban-rural Europe - economic activity in capital cities and metropolitan regions. Eurostat Statistics Explained.
Fornasari, & Neri. (2022). A Model for the Transition to the Circular Economy: The “R” Framework. SYMPHONYA.EMERGING ISSUES IN MANAGEMENT, 78. https://doi.org/10.4468/2022.1.08fornasari.neri
Fratini, C. F., Georg, S., & Jørgensen, M. S. (2019). Exploring circular economy imaginaries in European cities: A research agenda for the governance of urban sustainability transitions. Journal of Cleaner Production, 228, 974–989. https://doi.org/10.1016/j.jclepro.2019.04.193
Geissdoerfer, M., Savaget, P., Bocken, N. M. P., & Hultink, E. J. (2017). The Circular Economy – A new sustainability paradigm? Journal of Cleaner Production, 143, 757–768. https://doi.org/10.1016/j.jclepro.2016.12.048
Ghisellini, P., Cialani, C., & Ulgiati, S. (2016). A review on circular economy: The expected transition to a balanced interplay of environmental and economic systems. Journal of Cleaner Production, 114, 11–32. https://doi.org/10.1016/j.jclepro.2015.09.007
Giovani Palafox-Alcantar, P., Hunt, D. V. L., & Rogers, C. D. F. (2020). A hybrid methodology to study stakeholder cooperation in circular economy waste management of cities. Energies, 13(7). https://doi.org/10.3390/en13071845
Hobson, K., & Lynch, N. (2016). Diversifying and de-growing the circular economy: Radical social transformation in a resource-scarce world. Futures, 82, 15-25.
Hudson, B., Hunter, D., & Peckham, S. (2019). Policy failure and the policy-implementation gap: Can policy support programs help? Policy Design and Practice, 2(1), 1–14. https://doi.org/10.1080/25741292.2018.1540378
Iacovidou, E., Hahladakis, J. N., & Purnell, P. (2021). A systems thinking approach to understanding the challenges of achieving the circular economy. Environmental Science and Pollution Research, 28, 24785-24806.
Iacovidou, E., Velis, C. A., Purnell, P., Zwirner, O., Brown, A., Hahladakis, J., Millward-Hopkins, J., & Williams, P. T. (2017). Metrics for optimising the multi-dimensional value of resources recovered from waste in a circular economy: A critical review. Journal of Cleaner Production, 166, 910–938. https://doi.org/10.1016/j.jclepro.2017.07.100
Kębłowski, W., Lambert, D., & Bassens, D. (2020). Circular economy and the city: An urban political economy agenda. Culture and Organization, 26(2), 142–158. https://doi.org/10.1080/14759551.2020.1718148
Kirchherr, J., Reike, D., & Hekkert, M. (2017). Conceptualizing the Circular Economy (Revisited): An Analysis of 221 Definitions. Resources, Conservation and Recycling, 127, 221–232. https://doi.org/10.1016/j.resconrec.2017.09.005
Kirchherr, J., Yang, N., Schulze-Spüntrup, F., Heerink, M., Hartley, K. (2023). Conceptualizing the circular economy: An analysis of 114 definitions. Resources, Conservation and Recycling. https://doi.org/10.1016/j.resconrec.2023.107001
Klein, N., Ramos, T., & Deutz, P. (2020). Circular economy practices and strategies in public sector organizations: An integrative review. Sustainability, 12(10), 4181. https://doi.org/10.3390/su12104181
Kofanov, O., Kofanova, O., Tkachuk, K., Tverda, O., & Shostak, I. (2024). Enhancement of the market attractiveness and success of startups on the circular economy and sustainability principles. Agricultural and Resource Economics: International Scientific E-Journal. https://doi.org/10.51599/are.2024.10.02.07
Krohn, W. (2010) ‘Interdisciplinary Cases and Disciplinary Knowledge’, in. doi: 10.1093/oxfordhb/9780198733522.013.5.
Kujala, J., Heikkinen, A., & Blomberg, A. (2023). Stakeholder engagement in a sustainable circular economy: Theoretical and practical perspectives. In Stakeholder Engagement in a Sustainable Circular Economy: Theoretical and Practical Perspectives. Springer International Publishing. https://doi.org/10.1007/978-3-031-31937-2
Lakatos, E. S., Yong, G., Szilagyi, A., Clinci, D. S., Georgescu, L., Iticescu, C., & Cioca, L.-I. (2021). Conceptualizing core aspects on circular economy in cities. Sustainability, 13(14), 7549. https://doi.org/10.3390/su13147549
Linder, M., Sarasini, S., & van Loon, P. (2017). A metric for quantifying product-level circularity. Journal of Industrial Ecology, 21(3), 545–558. https://doi.org/10.1111/jiec.12552
Mahtta, R., Fragkias, M., Güneralp, B., Mahendra, A., Reba, M., Wentz, E., & Seto, K. C. (2022). Urban land expansion: The role of population and economic growth for 300+ cities. npj Urban Sustainability, 2, 1–11. https://doi.org/10.1038/s42949-022-00048-y
Mishra, J. L., Chiwenga, K. D., & Ali, K. (2019). Collaboration as an enabler for circular economy: a case study of a developing country. Management Decision, 59(8), 1784–1800. https://doi.org/10.1108/MD-10-2018-1111
Mohedano Roldán, A., Duit, A., & Schultz, L. (2019). Does stakeholder participation increase the legitimacy of nature reserves in local communities? Evidence from 92 Biosphere Reserves in 36 countries. Journal of Environmental Policy and Planning, 21(2), 188–203. https://doi.org/10.1080/1523908X.2019.1566058
Nevens, F., Frantzeskaki, N., Gorissen, L., & Loorbach, D. (2013). Urban Transition Labs: Co-creating transformative action for sustainable cities. Journal of Cleaner Production, 50, 111–122. https://doi.org/10.1016/j.jclepro.2012.12.001
Nocca F., & Fusco Girard L. (2018). CIRCULAR CITY MODEL AND ITS IMPLEMENTATION: TOWARDS AN INTEGRATED EVALUATION TOOL. BDC. Bollettino Del Centro Calza Bini, 18(1), 11-32. https://doi.org/10.6092/2284-4732/6058
Obersteg, A., Arlati, A., Acke, A., Berruti, G., Czapiewski, K., Dabrowski, M., ... & Knieling, J. (2019). Urban regions shifting to circular economy: Understanding challenges for new ways of governance. Urban Planning, 4(3), 19-31.
Paiho, S., Mäki, E., Wessberg, N., Paavola, M., Tuominen, P., Antikainen, M., Heikkilä, J., Rozado, C. A., & Jung, N. (2020). Towards circular cities—Conceptualizing core aspects. Sustainable Cities and Society, 59, 102143. https://doi.org/10.1016/j.scs.2020.102143
Papageorgiou, A., Henrysson, M., Nuur, C., Sinha, R., Sundberg, C., & Vanhuyse, F. (2021). Mapping and assessing indicator-based frameworks for monitoring circular economy development at the city-level. Sustainable Cities and Society, 75, 103378. https://doi.org/10.1016/j.scs.2021.103378
Pegorin, M. C., Caldeira-Pires, A., & Faria, E. (2024). Interactions between a circular city and other sustainable urban typologies: a review. In Discover Sustainability (Vol. 5, Issue 1). Springer Nature. https://doi.org/10.1007/s43621-024-00184-8
Prendeville, S., Cherim, E., & Bocken, N. (2018). Circular cities: Mapping six cities in transition. Environmental Innovation and Societal Transitions, 26, 171–194. https://doi.org/10.1016/j.eist.2017.03.002
Saidani, M., Yannou, B., Leroy, Y., Cluzel, F., & Kendall, A. (2019). A taxonomy of circular economy indicators. In Journal of Cleaner Production (Vol. 207, pp. 542–559). Elsevier Ltd. https://doi.org/10.1016/j.jclepro.2018.10.014
Salvioni, D., & Almici, A. (2020). Circular Economy and Stakeholder Engagement Strategy. Symphonya. Emerging Issues in Management, 1, 26. https://doi.org/10.4468/2020.1.03salvioni.almici
Sánchez Levoso, A., Gasol, C. M., Martínez-Blanco, J., Durany, X. G., Lehmann, M., & Gaya, R. F. (2020). Methodological framework for the implementation of circular economy in urban systems. Journal of Cleaner Production, 248, 119227. https://doi.org/10.1016/j.jclepro.2019.119227
Seto, K. C., Güneralp, B., & Hutyra, L. R. (2012). Global forecasts of urban expansion to 2030 and direct impacts on biodiversity and carbon pools. Proceedings of the National Academy of Sciences, 109(40), 16083–16088. https://doi.org/10.1073/pnas.1211658109
Sharifi, A. (2019). A critical review of selected smart city assessment tools and indicator sets. Journal of Cleaner Production, 233, 1269–1283. https://doi.org/10.1016/j.jclepro.2019.06.172
Soltani, A.; Hewage, K.; Reza, B.; Sadiq, R. (2015) Multiple stakeholders in multi-criteria decision-making in the context of Municipal Solid Waste Management: A review. Waste Manag, 35, 318–328.
Tampouridou, A., & Pozoukidou, G. (2018). Smart Cities and Urban Sustainability: two complementary and inter-related concepts. International Journal of Real Estate and Land Planning, 1.
Tranfield, D., Denyer, D. and Smart, P. (2003) ‘Towards a methodology for developing evidence-informed management knowledge by means of systematic review’, British Journal of Management, 14, pp. 207–222. doi: 10.1111/1467-8551.00375.
Turcu, C., & Gillie, H. (2020). Governing the Circular Economy in the City: Local Planning Practice in London. Planning Practice and Research, 35(1), 62–85. https://doi.org/10.1080/02697459.2019.1703335
Ünal, E., Urbinati, A. and Chiaroni, D. (2018) ‘Managerial practices for designing circular economy business models: The case of an Italian SME in the office supply industry’, Journal of Manufacturing Technology Management, 30(3), pp. 561–589. doi: 10.1108/09574090910954864.
Van Langen, S. K., Vassillo, C., Ghisellini, P., Restaino, D., Passaro, R., & Ulgiati, S. (2021). Promoting circular economy transition: A study about perceptions and awareness by different stakeholders groups. Journal of Cleaner Production, 316, 128166.
Vanhuyse, F., Fejzić, E., Ddiba, D., & Henrysson, M. (2021). The lack of social impact considerations in transitioning towards urban circular economies: A scoping review. Sustainable Cities and Society, 75, 103394. https://doi.org/10.1016/j.scs.2021.103394
Vanhuyse, F., Haddaway, N. R., & Henrysson, M. (2021). Circular cities: An evidence map of research between 2010 and 2020. Discover Sustainability, 2(1). https://doi.org/10.1007/s43621-021-00059-2
Wasserbaur, R., Sakao, T., & Milios, L. (2022). Interactions of governmental policies and business models for a circular economy: A systematic literature review. Journal of Cleaner Production, 337, 130329.
Whittemore, R., & Knafl, K. (2005). The integrative review: Updated methodology. Journal of Advanced Nursing, 52(5), 546–553. https://doi.org/10.1111/j.1365-2648.2005.03621.x
Williams, J. (2019). Circular cities. Urban Studies, 56(13), 2746-2762.
Williams, J. (2019). Circular cities: Challenges to implementing looping actions. Sustainability, 11(2), 423. https://doi.org/10.3390/su11020423
Yazar, M., Haarstad, H., & Elfving, J. (2024). Cities incorporate equity in their climate policies but overlook procedural justice in decision-making. Nature Cities. https://doi.org/10.1038/s44284-024-00167-w
Zawawi, N. F., Wahab, S. A., Azmi, S. N., Hairin, A. L., Awang, K. W., & Yaacob, M. R. (2023). Quadruple Helix Logistics Model: A New Strength of Supply Chain in Circular Economy. In Y. Ramakrishna & S. Wahab (Eds.), Handbook of Research on Designing Sustainable Supply Chains to Achieve a Circular Economy (pp. 493-513). IGI Global. https://doi.org/10.4018/978-1-6684-7664-2.ch024
Downloads
Published
Data Availability Statement
The data supporting the findings of this study consist of publicly available documents. All documents cited in the manuscript can be accessed through the official institutional websites of each city. No proprietary, confidential, or personal data was used. The processed data underlying the analytical framework and typology (including coding tables and comparative assessments) can be made available from the corresponding author upon request by email.
Issue
Section
Categories
License
Copyright (c) 2026 Lourenço Gouveia Booth, Paula Antunes, Ana de Jesus (Author)

This work is licensed under a Creative Commons Attribution 4.0 International License.
How to Cite
Funding data
-
Fundação para a Ciência e a Tecnologia
Grant numbers 2021.04846.BD -
https://doi.org/10.54499/UID/04085/2025
-
https://doi.org/10.54499/UID/PRR/04085/2025
-
https://doi.org/10.54499/LA/P/0121/2020