Towards a territorialisation of the circular economy: Spatial planning challenges in Rotterdam

In response to the environmental challenges of the linear economy, cities increasingly embrace the circular economy (CE) as a sustainable alternative. In the Netherlands, where circularity is a national priority, Rotterdam provides a compelling case to examine how an urban CE transition can take shape. Unlike the extensively studied Amsterdam, Rotterdam offers a contrasting perspective as a city with a growing economy and industrial character. Yet, as Rotterdam advances its CE agenda, spatial and institutional challenges emerge. While CE is promoted as a model for sustainable urban development, its spatial embedding (e.g., how land, infrastructure, and governance support circular processes) remains insufficiently understood. This research investigates how public policies and strategies shape the territorialisation of CE in Rotterdam. Combining policy document analysis, semi-structured interviews with public and private CE actors, and spatial mapping of CE projects, the study reveals that space is gaining strategic importance in CE governance. The analysis identifies a ‘two-wave’ dynamic in Rotterdam’s CE transition. The current first wave emphasises innovation, flexible regulation, hub creation, and collaboration. However, as initiatives mature, their demand for manufacturing sites, logistics, and regional coordination intensifies. For Rotterdam to progress into a second wave, it must strengthen spatial planning, regional governance, and provide physical space for circular industries to scale up. Conceptualising CE territorialisation as a wave process, this study contributes to theories of circular cities, highlighting that CE transitions cannot succeed without integrating spatial and political dimensions.