Replication Data for: Implementation of a Climate Policy Monitoring System in Brazil: Political Challenges for Coordination on Multilevel Governance Arrangements

After the failure of the Kyoto Protocol, a new architecture of international climate governance gradually emerged in the Paris Agreement establishing a division of roles for climate governance: states, which are formal members of the United Nations Framework Convention on Climate Change (UNFCCC), set goals and incentives, while non-party actors’ action conditioned implementation. As the UNFCCC framework remained state-based, less attention has been given to how non-party actors interact with national governments to enable multilevel governance arrangements for implementing climate policies. This work contributes to filling this gap by investigating the unsuccessful Brazilian initiative to implement a monitoring, reporting, and verification (MRV) system, part of the UNFCCC framework, led by the Federal Climate Articulation Group (NAFC, in Portuguese). The NAFC was a venue for subnational participation within the governance structures of federal climate policy, whereas non-state actors provided technical knowledge. We consider the MRV system to be a public policy instrument and non-party actors to be border agents supporting capacity building through the translation of technical issues into policy options. Based on qualitative analysis of documents and interviews, we found that such influence did not enable capacity building due to the limited decision-making power of federal agents, which led to the non-implementation of an MRV system.

《京都议定书》失效后，国际气候治理的全新架构逐步在《巴黎协定》中成型，并确立了气候治理的角色分工：作为《联合国气候变化框架公约》（UNFCCC）正式缔约方的国家，负责制定气候治理目标与激励措施，而非缔约方行为体的行动则为政策实施提供支撑。由于该公约框架仍以国家为核心主体，现有研究对非缔约方行为体如何与国家政府展开互动，以搭建落实气候政策的多层级治理架构的关注相对不足。本研究通过考察由巴西联邦气候协调小组（葡萄牙语缩写NAFC）主导的、隶属于该公约框架的监测、报告与核查（MRV）系统建设未获成功的案例，填补了这一研究空白。NAFC是联邦气候政策治理架构内的地方参与渠道，而非国家行为体则为该进程提供技术知识支撑。本文将MRV系统视作公共政策工具，将非缔约方行为体定义为通过将技术问题转化为政策选项，从而支持能力建设的边界行动者。基于对文献资料与访谈记录的质性分析，研究发现，由于联邦层面行动者的决策权有限，这类非缔约方行为体的影响力并未有效推动能力建设，最终导致MRV系统未能落地实施。