Although debate about the physical science of global warming continues, it is increasingly clear that the centre of gravity of the climate change controversy is moving from science to politics (Bruce et al. 1996, Houghton et al. 1996, Watson et al. 1996). Nowhere is this shift more visible than in the European Union (EU), even though neither Europe's contribution to the problem of climate change, nor its risks therefrom, would seem to demand a leading engagement. In 1987, the twelve nations of the European Community emitted only 12 per cent of the CO2 emissions from fossil fuels. The United States was responsible for 22 per cent; the bloc of the centrally planned economies 36 per cent (EC 1992a: 9). By 1993, the EU-12 accounted for 14.5 per cent of the global total. The accession of Austria, Sweden and Finland raised the EU share to over 16 per cent. Bur the United States still produces more than 25 per cent and the now depressed economies of Central Europe and the former Soviet Union over 17 per cent.