Clustering as a Solution to Environmental Problem Shifting? The Case of the Basel–Rotterdam–Stockholm Synergies Process

Abstract Clustering has been proposed as a strategy to enhance the problem-solving effectiveness of international environmental regimes. But does it fulfill this promise? We explore this question by assessing whether clustering reduces problem shifting—when solving one environmental issue inadvertently creates new problems. We assess the potential of clustering to preempt such dynamics by fostering more coherent, crosscutting governance that accounts for interlinkages across regimes. Our analysis focuses on the only clustering initiative to date: the synergies process of the Basel, Rotterdam, and Stockholm (BRS) Conventions. We investigate three types of problem shifting: within a single convention, between conventions in the cluster, and from a clustered convention to an external regime. Our findings reveal that the clustering arrangements of the BRS synergies process have not fully realized their potential to reduce problem shifting. While the arrangements support the identification of problem shifts and, at times, the formulation of corresponding responses, they have not addressed the underlying gaps that drive these shifts. We conclude by reflecting on how clustering could better enable environmental regimes to achieve a net positive impact.