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NGO Influence in the Implementation of the Kyoto Protocol: Compliance, Flexibility
Mechanisms, and Sinks
Abstract
While most scholars agree that NGOs make a difference in global environmental politics,
there has been little systematic work that looks at the actual influence NGOs have on policy
outcomes. This paper looks to shed some new light on the question of NGO effectiveness
through an evaluation of the role played by NGOs in the climate negotiations. We begin with
a brief sketch of different kinds of green NGOs, along with a review of the sorts of strategies
and resources they employ. Next, we look to gauge the influence that NGOs have had on
recent rounds of negotiations to do with compliance, flexibility mechanisms, and appropriate
crediting rules for sinks. Our analysis is based on detailed interviews with members of some
of the most prominent environmental NGOs involved in climate work. Finally, we suggest,
based on our findings, some means by which NGOs may look to extend their influence in the
development of the climate regime. Our analysis points to the crucial need for further
“insider” capacity – that is, NGOs are likely to have the most far-reaching influence on future
climate negotiations if they foster ways to work closely and collaboratively with key
negotiators and governments.
Introduction
There has been tremendous growth in the number of nongovernmental organizations (NGOs)
participating in international negotiations and conferences about environmental issues over
the last two decades. Most scholars agree that NGOs do make a difference in global
environmental politics,
1
but it is contestable to what extent their efforts have actually affected
international negotiation outcomes and domestic implementation of commitments. Little of
the literature on NGOs has addressed what actual influence they have on policy outcomes,
and those studies that have attempted to address this question have often confused influence
with NGO access, activities or resources in assessing policy outcomes.
2
For these reasons a
more systematic approach to measuring and analyzing NGO influence has been called for.
3
In this paper, we begin to take up this challenge by examining the role of
environmental NGOs in making and implementing rules for compliance, sinks, and the
flexibility mechanisms under the UN Framework Convention on Climate Change (UNFCCC
1992) and its Kyoto Protocol (1997). Disagreement over these issues resulted in the failure
and suspension of the Sixth Conference of the Parties (COP6) in November 2000 at The
Hague.
4
At the resumed COP6 in July 2001 in Bonn, the Parties resolved many of the
controversial issues and endorsed a political agreement. A few months later, at COP7 in
Marrakesh, a legal text was adopted, containing many of the key rules necessary to bring the
Kyoto Protocol into operation. We focus on the influence of NGOs in negotiations on the
1. For example, Chatterjee and Finger 1994; Princen and Finger 1994; Wapner 1996; and Raustiala 2001.
2. Betsill and Corell 2001. Exceptions to this observation include Skodvin and Andresen 2003, Corell and Betsill
2001; Newell 2000; and Arts 1998.
3. Betsill and Corell 2001.
4. Lefeber 2002.
Convention