Negotiating biophysical limits in the European Union’s bioeconomy: a critical analysis of two conflicts over regulating biomass use in EU policy

Abstract

AbstractThe bioeconomy seeks to replace fossil fuels with biomass in various products and industrial sectors. The dominant political bioeconomy project focuses on economic growth and aims to increase biomass demand in the EU. This can exacerbate global land use competition and pressures on ecosystems. However, this project does not consider reducing resource use to tackle biophysical limits. Technological innovations are the means for ensuring sustainability. Few social scientific studies have investigated how actors reproduce or question the dominant bioeconomy project. We contribute to this research gap by using critical policy analysis. We explore how actors address biophysical limits and assert their positions and strategies in policy conflicts stemming from the EU bioeconomy strategy. We thereby identified two central conflicts: regulating bio-based plastics and the cascading use of biomass. Our analysis included position papers, policy documents, and expert interviews. We grouped the actors based on their positions and strategies into three political bioeconomy projects. Thus, in addition to the dominant growth-oriented project, we identified a circular and sufficiency-oriented one. Our analysis indicates that these alternative projects influenced bio-based plastics and bioenergy policies to acknowledge biophysical limits. EU policy even provides measures to reduce plastic use. Nevertheless, the Renewable Energy Directive's approach to cascading use reflects a compromise with the growth-oriented project that might not cap using primary biomass for energy. Overall, we demonstrate that there are potential alliances in promoting alternatives to the dominant bioeconomy project. Setting clear limits is constrained by powerful interests advocating for a growth-oriented bioeconomy.