That's not true. It is being driven by court decisions, so you need to look at the SCOTUS rulings on CO2 in 2007, 2011, and 2014.
http://www.nytimes.com/2014/08/27/us/politics/obama-pursuing-climate-accord-in-lieu-of-treaty.html?_r=0
http://www.foxnews.com/politics/2014/08/27/obama-reportedly-plotting-end-run-around-congress-on-global-climate-change-deal/
http://www.washingtonpost.com/posteverything/wp/2014/08/27/obamas-gambit-of-escalation-on-climate-change/