Breaking Barriers to Circularity: Understanding Multi-Actor Misalignment in Planning Practices

Abstract Circular economy is difficult to accomplish in practice. This study aims to develop understanding of how the multi-actor interplay between planning practices at different level of aggregation in circular economic systems creates hindrances for implementation of circular supply chains. Using circular aggregates in Sweden as an example case, the paper takes a systems perspective to capture the interdependencies between actors’ processes. Data is collected through interviews and workshops with local municipalities, a county administrative board, developers, transporters, contractors, and material suppliers over a four-year period. In the paper, we identify a lack of alignment between the planning practices of different actors and the siloed functioning of municipal departments leading to an uncertainty of who should act and when to act. This misalignment is characterized by three dimensions: organization, time, and responsibility. Through this, the paper makes a theoretical contribution to research on circular economy by introducing the concept of “lateness of action” and demonstrating how this arises from the lack of alignment between diverse planning practices. This paper contributes by highlighting the critical role of tactical planning in bridging strategic policy and operational practices in circular construction, enabling more effective coordination, reduced information asymmetry, and consistent policy implementation to support the development of functioning reuse markets for secondary aggregates.