The politics of knowledge in black carbon mitigation: Policy entrepreneurship of Finnish actors and the Climate and Clean Air Coalition

Abstract

Mitigation of black carbon (BC) is a potent short-term measure for climate and environmental policy due to the short lifetime of BC particles in the atmosphere. Fewer BC emissions would decelerate warming especially in the Arctic and bring significant co-benefits particularly in populous countries owing to BC’s negative public health, food security and socio-economic effects. However, scientific knowledge on BC remains uncertain regarding the measurement, monitoring and precise effects of BC while the respective global policy framework is fragmented. To address this situation, we scrutinize the science/policy nexus in BC mitigation on the regional level where some promising openings exist. For this end, our new analytical framework focuses on policy entrepreneurs, their interests and cognitive frames, and the structural environment. Utilising content analysis of expert interviews and document data, three cases are covered with significant policy entrepreneurship on BC. First, we examine Finland ‘s high-profile BC initiative, finding it to frame BC pollution as an Arctic climate threat. Second, Finland’s research, development and innovation cluster, which has substantial expertise on air pollution, frames BC as a public health hazard, and scopes prospects for policy frameworks helping to open markets for mitigation technologies and solutions. Third, the Climate and Clean Air Coalition approaches BC with a wide multipollutant frame, driven by broad socio-economic and developmental interests. The Finnish initiative’s potential is found to suffer from insufficient coordination with the RDI cluster. Both Finland’s BC specific and the CCAC’s wider multipollutant frame can in different ways contribute to abatement.