a problem and solve it incrementally. A major intent of the Kyoto protocol was to provide a decision framework that would solve the carbon problem with a single set of numbers: national caps that would cut all greenhouse gases. This approach is now viewed as a failure in that it tackled the carbon problem holistically when a more incremental or piecemeal method might have produced more results. By contrast, the Montreal protocol of 1987 focused on chlorofluorocarbons (CFCs). It cut all of them in ten years and prevented 189 billion tons of carbon dioxide emissions (compared to only 10 billion tons prevented by Kyoto) (The Economist 2009c, 21). In general, since most policy problems complex and ill structured, a more effective means of solution would be to divide them up or unpack them and solve each one incrementally.