Horizontal policy coherence starts with problem definition: Unpacking the EU integrated energy-climate approach

The existing policy coherence literature usually takes problem definition for granted. Building on the case of the Energy Policy for Europe we argue that a focus on shifting problem definitions adds depth to the analysis of policy coherence as it allows us to problematize the standard on which the judgment of coherence is based. We further argue that problem definition is instrumental in enabling certain horizontal policy options. Empirically, the European Union's (EU's) support of carbon capture and storage (CCS) technologies illustrates that policy coherence between EU energy and environmental policies is increasingly conceptualized as an integrated approach headed for climate change mitigation and a low-carbon economy. We show that by shifting the focus of policy integration and coherence from environment to climate policy, CCS moved from the margins to the center of available policy options. Arguably, this comes at the expense of coherence if viewed from a broader sustainable development perspective.