Carbon dioxide removal: A source of ambition or of delays? Examining expectations for CDR in Swiss climate policy

Carbon dioxide removal (CDR) is recognized as an important tool for addressing residual emissions and achieving net-zero emission targets. While some have cautioned that a focus on CDR in policy processes may lead to delayed efforts to mitigate emissions, others have argued that such concerns are unwarranted. Nevertheless, the circumstances under which CDR could help or delay emissions mitigation in given contexts remain unclear. This paper explores the emerging discourse on CDR in Switzerland. We examined how the CDR community legitimizes CDR and limits its scope, and what the implications are for emissions mitigation. Switzerland is home to growing businesses in CDR and has pioneered the implementation of international offsetting projects under Article 6.2 of the Paris Agreement. We found that numerous promises help legitimize and attract interest in CDR. Actors use discursive strategies and rules to limit CDR and avoid disappointment in its contribution to climate mitigation. The idea that emission reduction should prevail over removal is promoted accordingly, which ironically helps legitimize the CDR idea yet dodges the question of how much removal is possible and for balancing which emissions. Superficial engagement with the issue is reinforced by the normalization of inflated promises and the sentiment that the mitigation deterrence rhetoric erodes trust in CDR. We argue that this can contribute to mitigation delays by evading the debate on what it is possible to remove and taking resources from alternative measures. We recommend a thorough discussion to examine the risks and the implementation of rules that minimize them.