Creating conditions for sustainability transformation through transformative governance – The case of plastic food packaging in Finland

Transformative governance is an emerging approach to addressing major sustainability challenges. Despite the mounting research on this topic, there is still limited understanding on how to create conditions for transformation in practice. Through an analytical frame of transformative governance, in this qualitative case study we investigate how policies and governance in Finland have created conditions for sustainability transformation in food packaging, a key source of plastics pollution, and how the joint implementation of different transformative approaches affects their power to induce systemic change. Our results, based on policy mapping and stakeholder interviews, show that applying principles of transformative governance is necessary but not yet effective enough for creating conditions that encourage and motivate key actors to advance in sustainability transformation. Joint implementation of different transformative approaches and modes of governance can be beneficial, but it is also challenging and may in the worst case even weaken the transformative power and slow down progress. The current governance has fostered packaging waste recycling but does not effectively solve the root cause of unsustainability: mounting consumption of single-use packaging, despite current policy targets and active use of transformative approaches. To reduce packaging consumption and create favourable conditions for packaging reuse, more emphasis is needed on transformative innovation policies, as well as setting more ambitious and proactive measures such as implementing tighter legislation and carrying out ex-ante impact evaluations when designing new policies and regulation. Integrative governance should also be strengthened to improve directionality and policy coherence.