Transnational Environmental Policy
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Transnational Environmental Policy ‘This readable book is the best treatment of the subject published so far’ Jim Lovelock, Honorary Visiting Fellow, Green College, Oxford ‘Stimulating and thought-provoking’ F.Sherwood Rowland, University of California, Irvine Transnational Environmental Polity analyses a surprising success story in the field of international environmental policy making: the threat to the ozone layer posed by industrial chemicals and how it has been averted. The book also raises the more general question about problem-solving capacities of industrialised countries and the world society as a whole. This case study investigates the regulations that have been put in place at an international level, and how the process evolved over twenty years in the USA and Germany. At the same time, it highlights problem-solving capacities of industrialised countries: is the international community in a position to tackle global environmental threats? Under which conditions is transnational governance without government possible? Combining insights from political science and sociology, Reiner Grundmann develops a policy network approach that traces environmental advocacy in transnational settings. He analyses key scientific controversies based on insights in the sociology of science; and examines risk sociology, institutional analysis and cultural theory in order to understand the role of discourses, norms and ideas in decisions under uncertainty. Based on expert interviews, archive material and mass media analysis, this book challenges commonly accepted accounts of the case which have so far been put forward. Finally, Grundmann suggests lessons to be learnt from the ozone layer scenario and applies them to the case of global climate change. This fascinating study will be invaluable for students and researchers in the sociology of science, public policy and regulation, global environmental and heath problems; and environmental sociology. Reiner Grundmann is Senior Lecturer at the Aston Business School. He is a sociologist and political scientist. He is the author of Marxism and Ecology, and recently co-edited essays by Werner Sombart. Routledge Studies in Science, Technology and Society 1 Science and the Media Alternative Routes in Scientific Communication Massimiano Bucchi 2 Animals, Disease and Human Society Human-Animal Relations and the Rise of Veterinary Medicine Joanna Swabe 3 Transnational Environmental Policy Reconstructing Ozone Reiner Grundmann Transnational Environmental Policy Reconstructing ozone Reiner Grundmann London and New York First published 2001 by Routledge 11 New Fetter Lane, London EC4P 4EE Simultaneously published in the USA and Canada by Routledge 29 West 35th Street, New York, NY 10001 Routledge is an imprint of the Taylor & Francis Group This edition published in the Taylor & Francis e-Library, 2003. © 2001 Reiner Grundmann All rights reserved. No part of this book may be reprinted or reproduced or utilized in any form or by any electronic, mechanical, or other means, now known or hereafter invented, including photocopying and recording, or in any information storage or retrieval system, without permission in writing from the publishers. British Library Cataloguing in Publication Data A catalogue record for this book is available from the British Library Library of Congress Cataloging in Publication Data Grundmann, Reiner. Transnational environmental policy: reconstructing ozone/Reiner Grundmann. p. cm.—(Routledge studies in science, technology, and society; 3) Includes bibliographical references and index. ISBN 0-415-22423-3 (alk. paper) 1. Ozone layer depletion. 2. Environmental policy—International cooperation. I. Title. II. Series. QC879.7 .G78 2001 363.738′75 ′056–dc21 00–062789 ISBN 0-203-46473-7 Master e-book ISBN ISBN 0-203-77297-0 (Adobe eReader Format) ISBN 0-415-22423-3 (Print Edition) To Gabriella, Leon and Rebecca Contents List of tables viii List of figures ix Preface and acknowledgements x List of abbreviations xi 1 Social science and global environmental problems 1 2 Ozone science 34 3 Ozone controversies 64 4 Country comparison 105 5 The road to Montreal 136 6 The Montreal Protocol and after 164 7 Lessons 186 8 Epilogue: the example of climate 204 Appendix 215 Notes 217 Bibliography 231 Index 254 vii Tables 1.1 Typology of goods 7 1.2 Modes of conflict resolution 20 2.1 Nationality of authors and referees of UNEP/WMO reports 53 2.2 Profiles of scientists and their distribution, 1975 56 2.3 Profiles of scientists and their distribution, 1986 56 3.1 ‘Ozone hole’ in scientific journals 104 5.1 The most important European CFC producers and their production capacities 157 6.1 Press reports on demands of scientists, Federal Republic of Germany 181 7.1 Political styles compared 187 8.1 Target greenhouse gas emission reductions by 2012, Kyoto Protocol 212 viii Figures 1.1 Policy networks approach 13 1.2 Typology of ideas 19 1.3 The hermeneutic triangle: distribution of knowledge claims supports A 25 1.4 The hermeneutic triangle: distribution of knowledge claims undermines A 26 1.5 Political options 28 2.1 The expansion of ozone research, selected key words, citation frequency per year 39 2.2 Farman et al. 1985. Monthly means of ozone and CFC 11 and 12 over Halley Bay in October and February, 1958–1984 43 2.3 Scientific advocacy, 1975 and 1987 57 3.1 Relative citation frequency of advocates and sceptics, mean values 1974–1984 71 3.2 Relative citation frequency of advocates and sceptics, mean values 1986–1993 72 3.3 Relative citation frequency of chemists and dynamicists, mean values 1985–1992 72 3.4 Citation frequency of leading scientists as a proportion of the sample, 1974–1992 73 3.5 Airborne measurement of ozone and Chlorine monoxide, 62°S to 72°S 100 3.6 Dramatically low ozone over Antarctica 102 5.1 Production of CFC 11 and 12, USA and Europe 139 5.2 Worldwide CFC applications 141 5.3 Worldwide production of CFC 11 and 12 141 6.1 WMO/UNEP scenarios 168 6.2 Media attention 1974–1990, USA and FR Germany 179 6.3 Occasions for US media reports, 1984–1990 180 6.4 Occasions for German media reports, 1984–1990 181 ix Preface and acknowledgements This book is based on my previous book Transnational Umweltpolitik, which was published in 1999 by Campus. However, it is not a true translation since I have had the opportunity to make several changes. Compared to the German version, I have tried to present the main points in a more convenient way for a different readership, which basically means I have recast the social science discussion by using approaches published in English. I have rearranged and shortened some chapters, but also elaborated the argument at times, above all in the first chapter, which now contains a discussion of cultural theory and social constructivist approaches. I added a new Chapter 8, the epilogue, where I try to interpret the case of global climate change along the lines of the approach taken in this book. Jim Lovelock and Sherry Rowland both read the whole manuscript and made valuable comments. Their thorough reading and detailed comments helped increase the accuracy of my presentation of arguments from the scientific controversy. It goes without saying that I am extremely grateful to them. Both have been protagonists of the controversy, so it was crucial to get their feedback. I would also like to thank Paul M.Malone who translated large parts of the manuscript. All quotes from German sources have been translated into English. Last but not least, my thanks go to my family who competed with me for access to the home computer. A computer literate family is a mixed blessing. On the one hand, they do not perceive me as an extension of the PC (a ‘nerd’); the drawback is that they also demand computing time. We managed to reach agreements mostly by striking simple bargains. When demands became passionate, we had to resort to more comprehensive solutions. This seems to be congenial to topics discussed in this book: management of a common pool resource and variants of problem-solving. We could, in principle, have solved this problem by purchasing more computers, ideally one for every family member. This is where the analogy to the ozone case breaks down: there is only one ozone layer. Birmingham, UK July 2000 x Abbreviations AAOE Airborne Antarctic Ozone Experiment AFEAS Alternative Fluorocarbons Acceptability Study AgV Arbeitsgemeinschaft der Verbraucher AKE Arbeitskreis Energie der Deutschen Physikalischen Gesellschaft ANPR Advance Note of Proposed Rulemaking EAGER Biological and Climatic Effects Research BAS British Antarctic Survey BMFT Bundesministerium für Forschung und Technologie BMI Bundesministerium des Innern BMU Bundesministerium für Umwelt, Naturschutz und Reaktorsicherheit BMW Bundesministerium für Wirtschaft CCOL Coordinating Committee on the Ozone Layer CEQ Council on Environmental Quality CFCs Chlorofluorocarbons CIAP Climatic Impact Assessment Program ClO Chlorine monoxide CLP Chlorine Loading Potential CMA Chemical Manufacturers Association COAS Council on Atmospheric Sciences CPR Common Pool Resources CPSC Consumer Product and Safety Commission DFG Deutsche Forschungsmeinschaft DMG Deutsche Meteorologische Gesellschaft DOC Department of Commerce DOT Department of Transportation DPG Deutsche Physikalische Gesellschaft EC European Community EFCTC European Fluorocarbon Technical Panel EK Enquetekommission ‘Vorsorge zum Schutz der Erdatmosphäre’ des Deutschen Bundestages EPA Environmental Protection Agency FCCC Framework Convention on Climate Change FDA