The formative phase of German carbon dioxide removal policy: Positioning between precaution, pragmatism and innovation

Since net-zero greenhouse gas emissions targets have become a keystone of European and German climate policy, a debate about the need to actively remove carbon dioxide from the atmosphere in addition to drastically reducing emissions has emerged. Although still relatively scarce, empirical studies on the emergence of carbon dioxide removal (CDR) on the political agenda have shown that variations in the constellations and positions of policy-relevant actors play a key role in shaping patterns of CDR policymaking. The German and wider European Union (EU) CDR policy space is emergent, and political actors are just beginning to position themselves. Building on our previous work which established a typology of CDR policy integration patterns and developed a discourse analytical framework for mapping CDR-policy-relevant speaker positions, we present the first fine-grained empirical reconstruction of CDR-policy-relevant actors and their positions in the German context. Our analytical approach aims to improve understanding of patterns in CDR policymaking by showing that on the EU, national, and subnational levels, a multitude of institutional actors may adopt differing positions as the CDR policy space evolves. In addition to identifying fine-grained ‘ideal types’ of positions that policy actors may adopt in the formative phase of German CDR policy, our analysis provides an empirical ‘map’ of CDR policy-relevant actors and explores hypotheses about emerging discourse coalitions and potential conflict cleavages.