Bookkeeping rather than climate policy making: national mitigation strategies in Western Europe

Climate change mitigation is a wicked problem that cuts horizontally across sectors and vertically across levels of government. To address it effectively, governments around the world, in particular in the EU, have developed several generations of multi-sectoral national mitigation strategies (NMS) since the early 1990s. Although NMS became the main effort to systematically coordinate mitigation policies, few works have studied them comparatively so far. The present article fills this gap by analysing how the EU-15 group of countries operationalized climate protection through NMS. First, we introduce the three roles policy strategies usually aim to fulfil: besides being policy documents they also represent governance processes (supposed to coordinate sectoral implementation), and capacity-building efforts. Empirically, we then explore the rationale, origins and prevalence of NMS. Subsequently, we characterize them as policy documents (with regards to their contents and structures) and as governance processes that address capacity building only implicitly. Based on existing assessments we finally review some performance indications of NMS. We find that in particular second- and third-generation NMS aimed to take their governance function seriously but resembled ‘lacklustre bookkeeping' of emissions, targets and mitigation options. Instead of approximating NMS towards their obviously overcharging governance function, we suggest to recalibrate them towards their communication and capacity-building function in a way that goes beyond bookkeeping. Policy relevance The present article shows that NMS fail to effectively govern climate change mitigation across a broad range of sectoral policy domains. Since most European countries have adopted not one but up to three generations of NMS since the 1990s, this finding is highly relevant for them -- and for all others aiming to adopt similarly broad strategies. Instead of piling one strategy on top of another irrespective of their implementation, and instead of abolishing mitigation strategies altogether, we recommend recalibrating them towards what they can realistically accomplish: effective communication and capacity building so that NMS can advance from lacklustre bookkeeping to actively promoting a government-wide climate change mitigation vision. The article can help governments to realise that renewing integrated strategies such as NMS without overhauling them comes close to flogging a dead horse.