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ALEXANDER RUSER
CLIMATE
POLITICS
AND THE
IMPACT
OF THINK
TANKS
SCIENTIFIC EXPERTISE
IN GERMANY AND THE US
Climate Politics and the Impact of Think Tanks
Alexander Ruser
1 Introduction 1
Index 171
v
List of Figures
vii
List of Tables
ix
CHAPTER 1
Introduction
In April 2016 Bill Nye, American TV personality, trusted expert, and self-
declared “Science Guy”, triggered a small scandal. According to The
Washington Times, Nye had proposed that climate change dissent was made
a criminal, even jailable, offence (Richardson 2016). “Was it appropriate to
jail the guys from Enron?” Nye was quoted as saying, continuing “Was it
appropriate to jail people from the cigarette industry who insisted that this
addictive product was not addictive, and so on?” (Richardson 2016). His
words raise some provocative questions. How should societies respond to
individuals, groups, and industries that query widely held scientific opinions?
Do those who do so deliberately mislead the public? Is it appropriate to com-
pare climate change scepticism and denial with the deliberate and scandalous
deception of stakeholder and regulatory authorities by Enron executives, a
deception that ultimately led to the downfall of that once powerful corpora-
tion and the loss of jobs and pensions of thousands of its employees?
Nye’s comparison of climate denial and cigarette industry campaigns is
perhaps less controversial; both involve the blatant refutation of scientific
evidence. Should, then, the protracted and sophisticated attempts of the
tobacco industry and its imaginative, scrupulous, lobbyists be held legally
accountable for denying the dangers of smoking? When, for instance, the
Tobacco Institute in the early 1970s distributed Smoking and Health: The
Need to Know, a “documentary” which successfully dispelled fears of
contracting lung cancer from cigarettes (Proctor 2012: 89), should they
have been prosecuted?
the end, to make major headlines and was soon displaced by other news
stories? Distrusting the predictions of some scientists is, in the end, differ-
ent from ignoring the obvious threats of nuclear weapons, or the proven
dangers of smoking. Isn’t it?
One obstacle for climate change policy proponents is that many believe
climate change to be a problem that concerns people “someday in the
future”. While the devastating consequences of atomic bombs were entirely
foreseeable, predicting and pinpointing the impact of climate change are
far more difficult. Unable to “prove” that a single extreme weather event,
such as Hurricane Katrina of 2005 or Hurricane Harvey of 2017, was
caused by climate change, scientists have to turn to probabilities and mod-
els to explain the complex interplay of increasing water temperatures and
atmospheric water vapour and pointing out that ‘the strongest storms will
become more powerful this century’ (Hansen 2009: 253).
Nevertheless, scientists feel they have a moral obligation as a scientist to
inform the wider public of the potential consequences. In 2009, for exam-
ple, renowned climate scientists James Hansen published a book which
aimed at telling “[t]he truth about the coming climate catastrophe and
our last chance to save humanity”. The book’s somewhat sensational sub-
title Storms of My Grandchildren encapsulates its urgent and deeply per-
sonal message. As Hansen explains: ‘I did not want my grandchildren,
someday in the future, to look back and say Opa understood what was
happening, but he did not make it clear’ (2009: XII).
His sentiment of ethical responsibility is one reason for the growing
frustration of the international community of climate scientists, activists,
and commentators such as Bill Nye, with climate sceptics and deniers.
Yet it is no coincidence that the “scandal” took place in the US. As we
will see in the course of this book, climate science is particularly con-
tested in the US where political camps disagree sharply over climate poli-
tics. And while climate science is an international undertaking, driven
mainly by an international community of climate scientists and interna-
tional bodies like the Intergovernmental Panel on Climate Change, cli-
mate politics and consulting on the issue still take place at a predominantly
national level.
In 2014, the year before the United Nations (UN) Climate Change
Conference in Paris (COP 21), the comprehensive “The GLOBE Climate
Legislation Study” found that despite a general trend towards more ambi-
tious national climate politics, some industrialized countries (most notably,
the US, Australia, and Japan) had taken a step back (e.g. by lowering their
INTRODUCTION 5
Notes
1. The term “megadeath intellectuals” was coined in the 1960s and refers to
academics who (working at prestigious universities or think tanks such as the
RAND Corporation) were actively involved in producing applicable knowl-
edge to support policies of nuclear deterrence (see Raskin 1963).
2. However, accepting climate science (for whatever reasons) does not
exempt one from making political, that is, normative decisions (see Machin
2013: 11).
References
Hansen, James. 2009. Storms of My Grandchildren. The Truth About the Coming
Climate Catastrophe and Our Last Chance to Save Humanity. London/Berlin/
New York: Bloomsbury.
Kahn, Herman. 1960. On Thermonuclear War. Princeton: Princeton University
Press.
Machin, Amanda. 2013. Negotiating Climate Change. Radical Democracy and the
Illusion of Consensus. London/New York: Zed Books.
McGann, James. 2016. 2015 The Global Go To Think Tank Index Report. Think
Tanks and Civil Societies Program, September 2.
Menand, Louis. 2005. Fat Man. The New Yorker, June 27. https://www.newy-
orker.com/magazine/2005/06/27/fat-man. Accessed 16 Nov 2017.
Nachmany, Michal, Samuel Fankhauser, Terry Townshend, Murray Collins,
Tucker Landesman, Adam Matthews, Carolina Pavese, Katharina Rietig, Philip
Schleifer, and Joana Setzer. 2014. The GLOBE Climate Legislation Study: A
Review of Climate Change Legislation in 66 Countries: Fourth Edition. London:
GLOBE International and Grantham Research Institute, LSE.
Oreskes, Naomi, and Erik, Conway. 2010. Merchants of Doubt: How a Handful of
Scientists Obscured the Truth on Issues from Tobacco Smoke to Global Warming.
New York/Berlin/London: Bloomsbury.
Proctor, Robert N. 2008. Agnotology: A Missing Term to Describe the Cultural
Production of Ignorance (and Its Study). In Agnotology. The Making &
Unmaking of Ignorance, ed. Robert N. Proctor and Londa Schiebinger, 1–36.
Stanford: Stanford University Press.
———. 2012. The History of the Discovery of the Cigarette-Lung Cancer Link:
Evidentiary Traditions, Corporate Denial, Global Toll. Tobacco Control 21:
87–91.
Raskin, Marcus G. 1963. Megadeath Intellectuals. The New York Review of Books,
November 14.
Richardson, Valerie. 2016. Bill Nye, the Science Guy, Is Open to Criminal Charges
and Jail Time for Climate Change Dissenters. The Washington Times, April 14.
10 A. RUSER
Shakir, Faiz. 2006. Big Oil Launches Attack on Al Gore. ThinkProgress, May 17.
https://thinkprogress.org/big-oil-launches-attack-on-al-gore-6f95e972303c.
Accessed 10 July 2017.
Stehr, Nico. 1994. Knowledge Societies. London: SAGE.
The Machinery of Government Committee. 1918. Report of the Machinery of
Government Committee. London: His Majesties Stationery Office.
Treaster, Jospeh B. 1983. Herman Kahn Dies: Futurist and Thinker on Nuclear
Strategy. The New York Times, Obituary, July 8.
Weaver, Kent. 1989. The Changing World of Think Tanks. PS: Political Science
and Politics 22: 563–578.
CHAPTER 2
Introduction
On 1 June 2017, President of the United States Donald J. Trump
announced that the US would pull out of the 2015 Paris Agreement,
arguably the most ambitious, and certainly the most applauded, effort by
the international community to deal with the problem of global climate
change. Donald Trump’s attempts to cast the decision as a “reassertion of
America’s sovereignty” was immediately criticized at home and abroad.
Trump gave political and economic reasons for his decision. According
to the White House, the Paris Agreement would undermine US competi-
tiveness and would cost the US economy jobs while at the same time
diverting precious taxpayers’ money to an illegitimate international cli-
mate fund. The Obama Administration was accused of having negotiated
a “bad deal” which would, in any case, have only a negligible impact on
climate change (cf. https://www.whitehouse.gov/blog/2017/06/01/
president-donald-j-trump-announces-us-withdrawal-paris-climate-
accord).
It is worth noting, however, that the announcement failed to address
the potential risks and dangers of climate change. In fact, it hardly men-
tioned climate change at all. In contrast, the then newly elected French
President Emmanuel Macron stated that Trump had ‘committed an error
for the interests of his country, his people and a mistake for the future of
our planet’ (Watts and Connolly 2017). He further re-emphasized his
How then should the relation between climate science and climate poli-
tics be conceptualized? Should we think of the issue of a scientific “fact”,
which compels political action? Or should we think of climate change as a
political problem to be solved by policymakers who may or may not believe
in climate change? Is dissenting on climate change a legitimate political
position or indicating an alarming denial of reality?
To fully understand the dispute over the “reality” of climate change, to
comprehend the political strategies and finally the role of scientific research
institutes and (political) think tanks, we have to begin with a discussion of
the respective roles “knowledge” can play in public discourses and politi-
cal decision-making.
14 A. RUSER
How do we know that the climate is changing? How can we be sure that
climate change isn’t a clever story made up by a bunch of egotistic climate
scientists desperate to get attention and lucrative research grants? This is
the suspicion recently articulated by Lamar Smith, Republican Chair of
the United States Congress ‘House Science, Space and Technology
Committee’ (cf. Cousins 2017). The claim is symptomatic of an appar-
ently widespread distrust of climate change scientists and policy.
Intriguingly disputes about climate change are said to be raging
between climate change believers and climate change deniers (cf. Waldholz
2017). What does this tell us? Should climate change and climate politics
not hinge upon knowing rather than believing? After all, global, human-
made climate change is among the most urgently researched topics today;
the joint research agenda of the Intergovernmental Panel on Climate
Change (IPCC) alone involves thousands of scientists from around the
world.
How can we know that assessments such as that made by the IPCC—
‘[i]t is extremely likely that human influence has been the dominant cause
of the observed warming since the mid-20th century’ (IPCC Summary
for Policymakers 2013: 17)—reflect the best available knowledge? And,
perhaps even more importantly, how can we know that human activity is
KNOWLEDGE AND CLIMATE 15
the main cause of climate change? Can (alleged) laypersons ever hope to
understand the complex science behind the “facts” of global climate
change? Or are policymakers and their voters alike depended on believing
in science and plan “rational” or “feasible” solutions accordingly?
Climate change is a particularly difficult phenomenon to know. This is
because climate change can neither be experienced directly nor can it be
separated from social, economic, and even cultural aspects. What does it
mean to say that climate change cannot be experienced directly? It is use-
ful here to turn to the definition of “climate” provided by the IPCC:
Climate change in IPCC usage refers to a change in the state of the climate
that can be identified (e.g. using statistical tests) by changes in the mean and/
or the variability of its properties, and that persists for an extended period, typi-
cally decades or longer. It refers to any change in climate over time, whether due
to natural variability or as a result of human activity. This usage differs from
that in the United Nations Framework Convention on Climate Change
(UNFCCC), where climate change refers to a change of climate that is
16 A. RUSER
the amount of CO2 that is absorbed and stored in the world oceans, ibid.:
19–20) and its impact of estimating future developments. Instead of deriv-
ing or predicting a definite future atmospheric concentration of carbon
dioxide, Revelle and Suess refer to a technique that is still the method of
choice for climate scientists: They outline a set of future scenarios (Revelle
and Suess 1957: 25).
Climate researchers have to rely on complex methods of data analysis
and equally complex techniques of scenario development because, as said
above, climate change cannot be experienced directly. It is because of the
complexity of the climatic system that climate scientists are often “build-
ing worlds” by making ‘use of computerized climate models as tools for
producing knowledge of the earth’s climate’ (Miller and Edwards 2001:
16). But what kind of climate knowledge can be derived from computer-
ized climate models?
Within the scientific community the availability of efficient means of
data processing clearly indicates progress. Powerful computers allow for
building ever more sophisticated climate models. This is very important
since ‘[t]he data record of climate (…) is sparse, incomplete, and poorly
fitted to modelling grids. Computer models are used to integrate, filter,
smooth, and interpolate these data, building uniform, consistent global
data sets that now form the basis of knowledge about climatic change over
the last century’ (ibid.: 17).
Basing climate knowledge on models and simulations highlights the
tentative nature of scientific knowledge. The provisional nature of knowl-
edge derived from climate knowledge is not regarded a problem within
the community of climate scientists. Since scientific findings are inevitably
preliminary and prone to falsification by further research, climate scientists
are more concerned with improving their models than with arriving at
“definite” answers. Accordingly, a chapter for the Fourth Assessment
Report of the Intergovernmental Panel on Climate Change on “Climate
Models and Their Evaluation” focuses on the climate models’ capacity for
“projecting future climate change” (Randall et al. 2007: 590).
As stated above, climate models are crucial for understanding the com-
plex processes and mechanisms of a changing climatic system. Relying on
“models”, “scenarios”, and “simulations” therefore does not indicate a
deficit. Unlike their use in everyday language, complex simulation and
computer modelling are epitomizing progress in the context of climate
science:
Only through simulation can you systematically and repeatedly test varia-
tions in the “forcings” (the variables that control the climate system). Even
more important, only through modelling can you create a control—a simu-
lated Earth with pre-industrial levels of greenhouse gases, or without the
chlorofluorocarbons that erode the ozone layer, or without aerosols from
fossil fuel and agricultural waste combustion—against which to analyse what
is happening on the real Earth. (Edwards 2010: 140)
The system you are dealing with is just too large and too complex. You can
isolate some things, such as the radiative properties of gases, in a laboratory,
but to understand how those things affect the climate you need to know
how they interact with everything else. (Edwards 2010: 139)
There is no “control Earth” that you can hold constant while twisting the
dials on a different, experimental Earth, changing carbon dioxide or aero-
sols or solar input to find out how they interact, or which one affects the
climate most, or how much difference a change in one variable might make.
(ibid.: 140)