From Emissions Trading to the European Green Deal: Understanding Shifts in EU Climate Governance

The article analyses the shift in the modes of EU climate policy over time. We argue that this process followed a cumulative rather than disruptive logic in which governance approaches were not replaced but layered on top of each other. The emergence of each successive governance approach can be explained with reference to opportunities and constraints arising from three arenas: the international climate change negotiations; interactions between the European Commission, the European Parliament and EU Member State governments; and interactions with EU societal forces. The article proceeds in four steps. First, we develop an analytical framework consisting of three elements: a typology of governance approaches building on Boasson and Tatham’s work (this special issue); an explanatory framework that – on the basis of an historical institutionalist perspective on change and the literature on EU (environmental/climate) policy-making – pays particular attention to international pressures, interest aggregation among the main EU institutions, and the general state of the European integration project. Second, based on the typology of governance approaches, we analyse the successive layering of EU climate governance approaches. The empirical analysis focuses on the elaboration and adoption of key EU measures, i.e. the Emissions Trading Directive (2001-3), the Climate & Energy Package for 2020 (2007-9), the 2030 Climate & Energy Policy Framework for 2030 (2014-18) and the emerging European Green Deal. It finds a shift from a dominant market-based logic over a strengthening of socio-technical elements to a new emphasis on procedural governance. Third, we investigate the identified key factors to find an explanation for the successive shifts in the governance approach. Three institutional configurations appear to be particularly relevant: the two-level character of the EU’s involvement in international negotiations, the tension between more and less ambitious Member States, and the EU’s exposed democratic legitimacy and accountability. The final part discusses the findings, including the legitimacy and accountability challenges and opportunities arising from the Energy Union and the emerging European Green Deal.