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Issue Framing and Preference Change: The Evolution of the European Union Position on Emissions Trading within the Climate Change Regime

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Abstract:

The United States was an early advocate of including greenhouse gas (GHG) emissions trading in the Kyoto Protocol. American officials pointed to the success of the domestic sulfur trading program in the United States and argued that emissions trading provided an efficient mechanism to reduce emissions in a cost-effective manner. The United States attempted to frame the issue as one of efficiency. It does not matter where greenhouse gases are emitted. They have the same effect on climate change. Therefore, it does not matter where emission reductions are achieved. American negotiators argued that the marginal cost of reducing GHG emissions in other countries were much lower than reducing emissions in the United States. It would thus be more cost effective to purchase emission reductions achieved in other countries. The European Union and environmental NGOs attacked the trading initiative as an attempt by the United States and its supporters to avoid their responsibilities to reduce domestic emissions. They framed the issue as one of national responsibility and equity. All developed countries should rely primarily on domestic initiatives to reduce GHG emissions. The way the issue was framed made it difficult for several EU member states to openly support the emissions trading initiative – despite their need to utilize emissions trading to meet their individual emission reduction commitments. However, the European Union has become much more supportive of emissions trading and is actively working to develop a viable trading mechanism. The evolution of the EU's position provides an interesting case study to explore the relative value of the Constructivist literature's emphasis on social interaction, persuasion, and learning on the framing of emerging problems and the definition of national preferences versus a materialist focus on the costs and benefits of policy options. To what extent did the framing of the problem constrain the policy preferences of EU member states? Does the evolution of the EU's position primarily reflect a process of persuasion and learning, or does it indicate a shift in the understanding of the costs and benefits of meeting the Kyoto commitments?

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emiss (211), trade (137), state (114), eu (114), mechan (81), intern (78), would (77), reduct (74), negoti (65), domest (60), countri (53), flexibl (53), unit (52), kyoto (51), propos (50), develop (45), european (44), credit (44), american (42), commit (40), meet (39),

Author's Keywords:

Climate Change, Framing, Emissions Trading, European Union, United States
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Name: International Studies Association
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http://www.isanet.org


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MLA Citation:

Cass, Loren. "Issue Framing and Preference Change: The Evolution of the European Union Position on Emissions Trading within the Climate Change Regime" Paper presented at the annual meeting of the International Studies Association, Le Centre Sheraton Hotel, Montreal, Quebec, Canada, Mar 17, 2004 <Not Available>. 2008-10-10 <http://www.allacademic.com/meta/p72549_index.html>

APA Citation:

Cass, L. , 2004-03-17 "Issue Framing and Preference Change: The Evolution of the European Union Position on Emissions Trading within the Climate Change Regime" Paper presented at the annual meeting of the International Studies Association, Le Centre Sheraton Hotel, Montreal, Quebec, Canada Online <.PDF>. 2008-10-10 from http://www.allacademic.com/meta/p72549_index.html

Publication Type: Conference Paper/Unpublished Manuscript
Review Method: Peer Reviewed
Abstract: The United States was an early advocate of including greenhouse gas (GHG) emissions trading in the Kyoto Protocol. American officials pointed to the success of the domestic sulfur trading program in the United States and argued that emissions trading provided an efficient mechanism to reduce emissions in a cost-effective manner. The United States attempted to frame the issue as one of efficiency. It does not matter where greenhouse gases are emitted. They have the same effect on climate change. Therefore, it does not matter where emission reductions are achieved. American negotiators argued that the marginal cost of reducing GHG emissions in other countries were much lower than reducing emissions in the United States. It would thus be more cost effective to purchase emission reductions achieved in other countries. The European Union and environmental NGOs attacked the trading initiative as an attempt by the United States and its supporters to avoid their responsibilities to reduce domestic emissions. They framed the issue as one of national responsibility and equity. All developed countries should rely primarily on domestic initiatives to reduce GHG emissions. The way the issue was framed made it difficult for several EU member states to openly support the emissions trading initiative – despite their need to utilize emissions trading to meet their individual emission reduction commitments. However, the European Union has become much more supportive of emissions trading and is actively working to develop a viable trading mechanism. The evolution of the EU's position provides an interesting case study to explore the relative value of the Constructivist literature's emphasis on social interaction, persuasion, and learning on the framing of emerging problems and the definition of national preferences versus a materialist focus on the costs and benefits of policy options. To what extent did the framing of the problem constrain the policy preferences of EU member states? Does the evolution of the EU's position primarily reflect a process of persuasion and learning, or does it indicate a shift in the understanding of the costs and benefits of meeting the Kyoto commitments?

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Document Type: .pdf
Page count: 25
Word count: 10066
Text sample:
Issue Framing and Preference Change: The Evolution of the European Union Position on International Emissions Trading Loren R. Cass Department of Political Science College of the Holy Cross Worcester MA 01610 LCASS@HOLYCROSS.EDU Draft Please do not cite without the permission of the author. This paper was prepared for the International Studies Association Conference Montreal Canada March 17th to 20th 2004. The European Union’s position on the use of emissions trading as a strategy for reducing GHG emissions presents an
23 intentions of the sponsor is critical to its acceptability. The EU was in a position to fundamentally shape the emissions trading regime with the support of environmental NGOs and the European public. European leadership only became viable once the US was removed from the emissions trading debate. If the US had continued in the negotiations the international emissions trading debate would have continued to be tainted by American sponsorship and the perception of American attempts to buy its


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