Heads in the clouds, feet in the sand: Multilateral policy coordination in global environmental issues

This is a study of how issues that can only be solved through cooperation (such as commons issues) reach the international agenda and how states then form policy on those issues. Extensive primary data are used in analyzing (1) accession of stratospheric ozone depletion and global climate change to the international agenda and (2) the policy formation of ten states on these issues. This study shows that commons issues reach the international agenda through the actions of intergovernmental organizations in defining the problem, and the political activities of a leader state (such as the US on ozone) or a state acting as a policy entrepreneur. In the extensive literature on international cooperation most studies emphasize the importance of system level variables. Adapting the two-level games approach to multilateral issues, this study argues that, as commons issues do not directly threaten the security of most states, state policy on such issues primarily reflects domestic political necessities. In effect, foreign and domestic policy on such issues become unified. Through analysis of secondary and primary data, including more than 30 interviews with representatives of both developed states (the US, Canada, the UK, and Japan) and developing states (Brazil, India, Algeria, Mexico, and Thailand), and the Soviet Union, this study shows how domestic factors influenced foreign policy decisions and actions. The study shows that states seem to be less interested in absolute or relative gains in international negotiations that in maximizing domestic political rewards from its choice of foreign policy. Finally, through study of the accession of the global climate change issue it is appears that knowledge may be politically derived. States required a open-quotes consensusclose quotes among the technical experts before initiating the international negotiations. Politics seems to have played a large part in forming the technical consensus and in communicating it to states