#ONSTRUCTINGA'LOBAL2ESPONSE /ZONE$EPLETION AND#LIMATE#HANGE /ZONE$EPLETION AND#LIMATE#HANGE -ATTHEW*(OFFMANN #ONSTRUCTINGA'LOBAL2ESPONSE /ZONE$EPLETION AND#LIMATE#HANGE /ZONE$EPLETION AND#LIMATE#HANGE -ATTHEW*(OFFMANN Ozone Depletion and Climate Change SUNY series in Global Politics James N. Rosenau, editor A complete listing of books in this series can be found at the end of this volume. Ozone Depletion and Climate Change Constructing a Global Response Matthew J. Hoffmann State University of New York Press Published by State University of New York Press, Albany © 2005 State University of New York All rights reserved Printed in the United States of America No part of this book may be used or reproduced in any manner whatsoever without written permission. No part of this book may be stored in a retrieval system or transmitted in any form or by any means including electronic, electrostatic, magnetic tape, mechanical, photocopying, recording, or otherwise without the prior permission in writing of the publisher. For information, address State University of New York Press, 194 Washington Avenue, Suite 305, Albany, NY 12210-23 Production by Kelli Williams Marketing by Anne M. Valentine Library of Congress Cataloging-in-Publication Data Hoffmann, Matthew J., 1972– Ozone depletion and climate change: constructing a global response / Matthew J. Hoffmann. p. c.m. — (SUNY series in global politics) Includes bibliographical references and index. ISBN 0/7914-6525-X (hardcover: alk. paper) — ISBN 0-7914-6526-8 (pbk.: alk. paper) 1. Ozone layer depletion—Environmental aspects. 2. Climate changes— International cooperation. 3. Environmental management—International cooperation. I. Title. II. Series. QC879.7.H64 2005 363.738'75526—dc22 2004024571 10 9 8 7 6 5 4 3 2 1 84 Contents List of Illustrations vii Preface ix Acknowledgments xi List of Abbreviations xiii List of Interviewees xv Chapter 1 Participation Matters: Governing Ozone 1 Depletion and Climate Change Chapter 2 Alternative Stories: Explaining the Rise and 21 Evolution of Universal Participation Chapter 3 The Verbal Model: Adaptation and the 33 Norm Life Cycle Chapter 4 Modeling the Norm Life Cycle 55 Chapter 5 Ozone Depletion: The Emergence of Universal 83 Participation v Chapter 6 The Governance of Climate Change I: 123 Universal Participation and the Framework Convention on Climate Change Chapter 7 A New Global Response? The Evolution of 161 Universal Participation and the Governance of Climate Change Chapter 8 The Complexity of Constructing a Global 187 Response Notes 201 Works Cited 229 Index 249 SUNY series in Global Politics 257 vi CONTENTS List of Illustrations Figure 1.1 Steps of Analysis 18 Figure 4.1 Schematic of the Model 64 Figure 4.2 Population Predictions—Low Noise, 67 No Entrepreneur Figure 4.3 Population Predictions—High Noise, 67 No Entrepreneur Figure 4.4 Population Predictions—Low Noise, 68 Entrepreneur Present Figure 4.5 Population Predictions—High Noise, 70 Entrepreneur Present Figure 4.6 Public Rule Usage in Population 70 Table 4.1 Effect of the Reach of the Norm Entrepreneur 73 Table 7.1 COP 1–3 at a Glance 186 vii This page intentionally left blank. Preface Ozone depletion and climate change present the international community with enormous governance challenges. Given the large stakes involved with mitigating or living with ozone depletion and climate change, it is no won- der that the governance of these problems is a crucial concern on the world political stage. Conventionally, studies focus on economic costs and benefits and/or scientific knowledge in their analyses of environmental governance. In contrast, this study is driven by a fundamental curiosity about the social foundations of global environmental governance. Specifically, I find it cru- cial to uncover how actors understand and frame the problems that they face before attempting to explain the negotiations, treaties, rules, and insti- tutions that most consider to be the stuff of governance. Norms form this social foundation, shaping which actors participate, how they view “prob- lems,” and how they approach solutions. Therefore, examining the evolu- tion of social norms is a necessary aspect of explaining how global environmental governance has unfolded and will unfold in the future. This book investigates the foundations of global environmental gover- nance for ozone depletion and climate change, tracing the evolution of par- ticipation norms—what states are required to participate in governance solutions—and examining how these understandings have shaped the global response to these crucial problems. The analysis is informed by constructivist thought about the emergence and evolution of norms as well as insights from the study of complex adaptive systems. Combining these two ap- proaches allows me to integrate macro level change in the normative context through the norm life cycle with micro level change in actors through a process of complex adaptation. The result is an enhanced understanding of social norm dynamics and thus the foundations of governance. ix [...]... issues and negotiations is often assumed and taken for granted, rather than explained Ignoring this facet of the governance of ozone depletion and climate change is a mistake The governance of these issues cannot be separated from fundamental understandings of who should participate2 and thus neither can our explanations of governance be separated from an explanation of participation In the pages that... House Climate Change Task Force) Chapter One Participation Matters Governing Ozone Depletion and Climate Change The US desires an integrated climate change treaty, “designed to involve all nations and dynamically reflect and incorporate each nation’s unique circumstances into the development of a truly global response strategy.” —Testimony of Richard Morgenstern, Deputy Assistant Administrator U.S EPA,... However, what was clear throughout the early climate change negotiations that led to the FCCC, as well as the latter post–Kyoto Protocol negotiations was that U.S stalling, delaying, and obstinate strategies were all based on a prior understanding of climate change as a problem requiring universal participation Universal participation has been at the foundation of the debates between the United States and. .. chlorofluorocarbons (CFCs).18 In essence, chlorine breaks ozone molecules and starts a chain reaction that can last for years This chemical reaction is of interest because stratospheric ozone absorbs the ultraviolet (UV) part of solar radiation UV radiation causes skin cancer and can severely damage plant life Thus, a thin layer of ozone molecules 10 Ozone Depletion and Climate Change protects humanity from... dynamic global responses in ozone depletion and climate change The third stage of analysis consists of qualitative case study analysis—the subject of chapters 5–7 Armed with empirical expectations and the norm life cycle/complexity theory framework, I turn to the empirical case studies of the ozone depletion and climate change negotiations Participation Matters 19 In chapters 5and 6 I trace the social... Bringing a complex systems perspective together with social constructivism facilitates a full accounting of the development and evolution of foundational social norms, readily applicable to the participation norms that are the empirical target of this analysis Global Governance and Participation Participation norms shape the boundaries for the GG of ozone depletion and climate change in important ways and. .. linkage Instead, it is attributable to the universal participation norm and precedent set in the ozone depletion negotiations • The United States has often been criticized for failing to pursue significant actions to curb climate change the problem U.S 8 Ozone Depletion and Climate Change recalcitrance in the late 1980s as well as today is an immutable fact—the United States has not been a climate leader... universal participation, the climate change negotiations followed a 12 Ozone Depletion and Climate Change different trajectory When the international community first began to address climate change in 1990, confronting this global environmental problem already required universal participation—the international community had locked in to universal participation This understanding shaped how the international... depletion negotiations, more than one hundred states attended each of the negotiating sessions that culminated in the Framework Convention on Climate Change. 35 Universal participation was part of the international community’s fundamental understanding of climate change Everyone knew that all states should participate in the negotiations and most states did participate The participation of the global. .. There was no obvious way to approach global environmental problems, and yet in the 1980s and 1990s, the international community locked in to universal participation as the appropriate way to address ozone depletion and climate change and other global environmental problems.17 Lock-in Around Universal Participation The story of the lock-in around universal participation begins with the international community’s . end of this volume. Ozone Depletion and Climate Change Constructing a Global Response Matthew J. Hoffmann State University of New York Press Published by State University of New York Press, Albany ©. M. Valentine Library of Congress Cataloging-in-Publication Data Hoffmann, Matthew J., 1972– Ozone depletion and climate change: constructing a global response / Matthew J. Hoffmann. p. c.m. — (SUNY. international com- munity and significantly shaped states’ understandings of climate change. Universal participation thus defined participation re- quirements for the early climate change governance