EU politics on decarbonizing shipping is an argumentative struggle in which actors try to make others see the problem and policy solutions according to their views and seek to position other actors in a specific way. This article critically analyses, by means of argumentative discourse analysis, the politics and policy process related to the recent adoption of the FuelEU Maritime regulation, the world’s most ambitious legislation for decarbonizing maritime shipping. Different storylines and discourses as well as agency of policy actors on the problems and policy options defining the meaning of decarbonization are analysed. Two discourses framed the debates, focusing on (i) incremental change and technology neutrality to meet moderate emission reductions and maintain competitiveness, and (ii) transformative change and technology specificity to meet zero emissions and gain competitiveness and global leadership in the transition towards a hydrogen economy. Policy actors successfully used discursive agency strategies such as multiple functionality and vagueness to navigate between and resolve conflicts between the two discourses. Both discourses are associated with the overarching ecological modernization discourse and failed to include issue of a just transition. The heritage of the ecological modernization discourse creates lock-ins for a broader decarbonization discourse, thus stalling a just transition.

The concept of policy entrepreneurs has gained increasing attention in studies of climate policy and governance since it foregrounds the role of agency in understanding policy change. However, agency of policy entrepreneurs in the policy process is largely political and conceals the power that shapes how public problems and policies are framed and defined. Thus, policy entrepreneurs should be confronted with the challenge of generating legitimacy, accountability and justice of their actions and the implementation of their targeted policy change. Drawing on political-philosophical theories of liberal and deliberative democracy this paper outlines a conceptual framework for critical analytical as well as normative research on strategies and impacts of policy entrepreneurs. Empirical research on the strategies and impacts of policy entrepreneurs in recent policymaking on climate policy and governance in the EU and Sweden identifies several democratic deficits. In all, the paper brings ideology and politics into research on policy entrepreneurs. It is suggested that not only the strategies used, but also the ideologies of actors that use them, is the causal mechanism that links the policy entrepreneurs to the outcomes, and thus if their advocacy will facilitate or hamper a just transition to climate neutrality and sustainability.

Sweden has long been hailed as a role model in climate policy. But the new right-wing government supported by a far-right populist party is undertaking a paradigm shift in Swedish climate policy and governance. This paper critically analyses this paradigm shift from perspectives of legitimacy, accountability and justice. These are democratic norms important in the analysis of a just transition to climate neutrality. Severe democratic deficits of the policy process and the policies proposed and adopted are identified. The deficits are explained by the neo-corporatist political system of Sweden, the dominance of the (neo)liberal discourse of ecological modernization in Swedish environmental policy, and an ongoing process of autocratization driven by anti-democratic far-right populist parties throughout Europe. The paper ends by suggesting how climate policy and governance can be democratized and re-politicized, that also give room for climate justice advocates to take part in policy processes.