Norm emergence as agenda diffusion: Failure and success in the regulation of cluster munitions

The research on international norms offers several models of their evolution; however, a convincing model specifically depicting the phase of norm emergence is still lacking. Macro models (e.g. the norm life cycle) focus on the overall evolution of norms and distinguish the emergence phase as one among others, but they remain too rough. Meso models focus on a specific phase, but on phases other than norm emergence, such as diffusion (e.g. the signalling model) or enforcement (e.g. the spiral model). If they do focus on emergence, this focus remains case-specific and lacks theorisation. Micro models (e.g. the persuasion model or the funnelling model) focus on specific sequences within a phase. In this article, I develop one model of norm emergence by conceptualising it as the diffusion of a problem through different agendas and the discursive transformation of a problem into a (problem-solving) norm. The model distinguishes four sequences of norm emergence: problem adoption by norm entrepreneurs; issue creation in the public sphere; candidate norm creation in the institutional-deliberative sphere; and norm creation in multilateral negotiations. I illustrate the utility of this model by tracing the emergence of the norm against cluster munitions.