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The Plastics Game of Thrones: What is the Plastics Pollution problem represented to be in the Plastics Treaty negotiations?
Stockholm University, Faculty of Science, Stockholm Resilience Centre.ORCID iD: 0000-0002-8501-051X
(Department of Science and Environment, Roskilde University)
(University of Gothenburg)
Stockholm University, Faculty of Science, Stockholm Resilience Centre.
(English)Manuscript (preprint) (Other academic)
Abstract [en]

Negotiations for an international legally binding instrument to end plastics pollution are a highly-contested arena framing “plastics pollution” as a global policy problem. High and low-ambition groupings of political actors strive to control the problem representation, a power struggle ultimately affecting everyday people worldwide and the planetary environment.

Drawing on Plastics Treaty negotiation texts from 2022 and 2024, with participant observations of Intergovernmental Negotiating Committee sessions (INC-1 to INC-5.1), we critically interrogate evolving representations of the plastics pollution problem, combining Bacchi’s “What is the Problem Represented to be” (WPR) approach with a social-ecological systems perspective. Our approach contextualizes problem representation within understanding of sustainable systems.

A minority group of countries has dominated the INC process, representing plastics pollution as a consumer waste problem, where inadequate end-of-life management of plastic (a single undifferentiated material) affects the marine environment. These low-ambition actors, notably petro-states, exert power over the INC process through stalling, lobbying, mis- and disinformation, political pressures and even intimidation by industry actors. Left unproblematized are human rights, just transition, effects of plastics (complex assemblages of chemicals) on human health, and transboundary responsibilities of plastics producers, including on climate and biodiversity.

These issues are red line items for petro-states, while civil society groups, Indigenous people, and sustainability-concerned scientists press for their inclusion in the Plastics Treaty. By INC-5.1, most member states supported a higher-ambition treaty, yet no treaty text was agreed. Viewing problem representations as social-ecological issues shows how a narrow waste framing is unjust, exacerbating existing impacts of plastics pollution, especially on already vulnerable communities.

National Category
Political Science (Excluding Peace and Conflict Studies) Environmental Studies in Social Sciences
Identifiers
URN: urn:nbn:se:su:diva-247103OAI: oai:DiVA.org:su-247103DiVA, id: diva2:1998805
Available from: 2025-09-17 Created: 2025-09-17 Last updated: 2025-09-17
In thesis
1. The global plastics pollution challenge: A social-ecological perspective
Open this publication in new window or tab >>The global plastics pollution challenge: A social-ecological perspective
2025 (English)Doctoral thesis, comprehensive summary (Other academic)
Abstract [en]

Plastics and their pollution have been understood as inert, safe materials whose environmental impacts arise only after disposal, caused by careless consumers and poor waste management practices. This representation, constructed by industry over decades, reduces plastics pollution to a waste problem, one assumed solvable through clean-ups, recycling or technological fixes. This thesis challenges that simplification, by studying plastics pollution as an inseparable social-ecological challenge. This approach reveals plastics as deeply embedded in ecological degradation, toxic chemical use, dependency on fossil fuels, and systemic social injustice. Plastics pollution disrupts multiple Earth system processes, with many irreversible impacts. This requires governance approaches grounded in justice, equity, and planetary stewardship. 

Adopting a systems-based perspective, the research establishes plastics pollution as an issue of concern at planetary scale. It presents a multi-metric approach for characterizing the complex, large-scale and long-term impacts, and it also shows why a narrow focus on biophysical metrics is inadequate information for science-policy processes. With a particular focus on ongoing Plastics Treaty negotiations, it describes efforts by scientists with policy-influence to reframe the plastics pollution issue as an inseparable social-ecological challenge. 

Paper I situates plastics pollution within the planetary boundaries framework as a representative case of novel entities. Paper II traces how plastics pollution interacts with all other planetary boundaries, including climate change, biosphere integrity and biogeochemical flows, highlighting the need for multiple control variables across the full impact-pathway (i.e., from fossil fuel extraction and production to Earth system disruption). Paper III critiques narrow ecological framings, emphasizing the need for integrated responses that account for social, economic, and political drivers. Paper IV operationalizes this integration through an interdisciplinary multi-expert elicitation process, identifying quantifiable indicators that span environmental, human health, governance, and economic dimensions. Paper V applies a feminist discourse policy analysis to the Global Plastics Treaty negotiations, showing how dominant, industry-aligned representations shape the treaty’s ambition, while exposing sustainability “winners” and “losers” embedded in these representations.

Across all these papers, this thesis underscores the limitations of technocratic, single-metric governance approaches. It advances empirically derived indicators and analytical tools that can support more sustainable global governance, while stressing that sustainable solutions must operate across the full life-cycle of plastics, confront entrenched industrial interests, and address historical and structural injustices. It highlights the risks of science being instrumentalized or sidelined in policy contexts, and the need for deep reflection on these issues. These findings argue for transparent, power-aware science-policy interfaces that integrate plural knowledges, including marginalized voices to inform systemic solutions. They further show that while urgency is undeniable, slowing research and policy design to enable deliberation, trust-building, and co-production can yield more meaningful and equitable outcomes.

Place, publisher, year, edition, pages
Stockholm: Stockholm Resilience Centre, 2025. p. 75
Keywords
Plastics pollution, social-ecological systems, complexity, problem representation, science-policy interface.
National Category
Environmental Sciences
Research subject
Sustainability Science
Identifiers
urn:nbn:se:su:diva-247105 (URN)978-91-8107-396-6 (ISBN)978-91-8107-397-3 (ISBN)
Public defence
2025-10-31, Hörsal 6, hus 4, Albano, Albanovägen 20, Stockholm, 09:00 (English)
Opponent
Supervisors
Available from: 2025-10-08 Created: 2025-09-17 Last updated: 2025-10-01Bibliographically approved

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