Policy integration in a newly established natural resource-based sector: challenges for sustainability

This paper examines the integration of economic and environmental policies in Uruguay’s forestry sector since the 1990s. Based on a qualitative analysis of policy documents, sector reports, parliament hearings, and semi-structured interviews with key stakeholders we demonstrate that policy integration has continuously increased with no major setback using the framework of Candel and Biesbroek. To understand the drivers and dynamics of this evolution we draw on concepts from the advocacy coalitions framework. This shows that although there is a broad consensus that environmental concerns in the forestry sector need to be addressed, two main environmental advocacy coalitions have crystallized with fundamentally different core beliefs as to what exactly sustainability means in relation to the forestry sector. This divergence of beliefs and political polarization regarding the meaning of sustainability in the forestry sector is an important obstacle to a more holistic approach which is a key element of the highest levels of policy integration. Our analysis suggests that such holistic approaches require a normative political basis, particularly for a complex and multidimensional topic like sustainability. While participatory approaches may help to foster this, this is by no means straightforward and it is likely that longer time periods are needed for this. It also indicates that the role of international actors, notably foreign transnational companies and international civil society in processes of policy integration deserves more attention and a better conceptualization in existing theoretical frameworks.