NGOs and the EU's Climate Change Policy: An Advisory Trap?
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This paper examines the influence of environmental NGOs in the EU’s climate change policy-making. The EU’s climate change policy has shifted rather dramatically by the adoption of the EU Emissions Trading Directive in 2003 if one recalls that the EU was a leading opponent to the emissions trading up to the 1997 Kyoto Conference. Unlike conventional wisdom in the literature on NGO politics, the European environmental NGOs were neither influential nor coherent throughout this process. Environmental NGOs working in the EU’s climate change policy network were not only unable to imprint their objection to the emissions trading onto the policy outcome, but co-opted by the new policy paradigm of the EU. The cooptation of environmental NGOs, I contend, can be explained by the trade-off between political opportunity and issue-framing capability that NGOs experience when actively participating in the policy network. The participation in the policy network can provide NGOs with ample ground for enhancing policy influence, but may degenerate them into advisory assistants unless it is accompanied by the issue-framing capability. With the participation in the various formal and informal policy networks of the EU, the environmental NGOs were able to maximize their political opportunity, but only at the expense of their issueframing capability. The advisory trap of this kind, I argue, was the underlying force behind the cooptation of environmental NGOs within the EU ETS.
Abstract
This paper examines the influence of environmental NGOs in the EU’s climate change policy-making. The EU’s climate change policy has shifted rather dramatically by the adoption of the EU Emissions Trading Directive in 2003 if one recalls that the EU was a leading opponent to the emissions trading up to the 1997 Kyoto Conference. Unlike conventional wisdom in the literature on NGO politics, the European environmental NGOs were neither influential nor coherent throughout this process. Environmental NGOs working in the EU’s climate change policy network were not only unable to imprint their objection to the emissions trading onto the policy outcome, but co-opted by the new policy paradigm of the EU. The cooptation of environmental NGOs, I contend, can be explained by the trade-off between political opportunity and issue-framing capability that NGOs experience when actively participating in the policy network. The participation in the policy network can provide NGOs with ample ground for enhancing policy influence, but may degenerate them into advisory assistants unless it is accompanied by the issue-framing capability. With the participation in the various formal and informal policy networks of the EU, the environmental NGOs were able to maximize their political opportunity, but only at the expense of their issueframing capability. The advisory trap of this kind, I argue, was the underlying force behind the cooptation of environmental NGOs within the EU ETS.
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