A separate problem is presented by the Kyoto Protocol, the agreement placing sharp restrictions on greenhouse gas emissions that the administration negotiated but has said it will not submit to the Senate in its current form. The administration’s efforts to begin enforcing the Protocol by regulation, and Congress’s efforts to prevent enforcement pending Senate action, have obscured a more fundamental difficulty. If the Protocol, or anything like it, were ratified, it would commit the United States to costly environmental efforts under the continuing supervision of one or more international bodies. Compliance would presumably be subject to our domestic legislative and regulatory procedures—that is, to our constitutional form—but, once again, the Executive would have the upper hand in developing policy and presenting the Congress with political faits accomplis. It is important to notice in this respect that the crafting of international agreements involves the participation of “non-governmental organizations” (“NGOs”—the international euphemism for private interest groups) on more formal, quasi-official terms than in domestic rule-making under our administrative procedure laws.