This paper presents an original model of agenda manipulation in the negotiations for a new treaty or constitution. We show that rather than producing chaos, agenda manipulation can often be used to establish initial agreement on a treaty or constitution. We show a mechanism by which the participation constraint will be met for every participant, even though explicit utility transfers are either impossible or non-credible. We illustrate with the example of heresthetics aimed at climate change negotiation and the 2015 Paris Agreement.
