Negotiating Without Nature: Multilateral Negotiation of Genetic Engineering Biotechnology via the Convention on Biological Diversity and the Cartagena Protocol on Biosafety by Mary Hutcheon A dissertation submitted to the Faculty of Graduate Studies and Research in partial fulfillment of the requirements for the degree of Doctor of Philosophy Department of Political Science Carleton University Ottawa, Ontario October, 2006 © copyright 2006, Mary Hutcheon Reproduced with permission of the copyright owner. Further reproduction prohibited without permission. 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Abstract Genetic manipulation is a controversial novel technology generating widespread debate about its viability to solve problems of biodiversity damage and loss. During negotiation of the Convention on Biological Diversity, 1992 (CBD) biotechnology was presented as a beneficial tool for managing the world’s dwindling biological resources. When the Cartagena Protocol on Biosafety, 2000 (CPB) was negotiated, biotechnology was acknowledged for its potential to destabilize the world’s natural diversity, despite claims from multinational agribusiness and pharmaceutical firms of continued benefit. Both regimes situate technological development as a solution to biodiversity losses, asserting that horizontal genetic modification is beneficial since its risks can be controlled. Although multilateral environmental negotiation included non-state actors in the regime formation process, perspectives supporting indigenous and other approaches that advocated greater respect for natural limits were dismissed if these perspectives were also resistant to developing economic and technological solutions that would override natural boundaries. The preference for industrial intensification suggests a bias in negotiation practice and theory towards a materialist conception of nature, in which the sole purpose of negotiation is to satisfy interests that promote international state-led economic development. This dissertation is a critical analysis of contemporary multilateral negotiation practice and theory regarding environmental matters. This dissertation suggests that human relationships to nature are political; therefore, negotiation theory and practice cannot be driven solely by economic or social principles. A unique challenge of multilateral negotiation is its inclusion of a broad spectrum of perspectives; however, nation-states cannot represent nature easily. Nature is multidimensional, mutable and discursive. Furthermore nature is both present and absent from the negotiation table, posing a significant challenge as it is a featured subject without voice and representation autonomous from human association. The difficulty of nation-state representation of nature at the negotiation table is explored through negotiation of biotechnology at international conferences sponsored by the United Nations Environment Programme (UNEP) from 1987 to 2000. Negotiation as a process of regime formation and public forum decision-making is examined to understand how matters about nature are resolved. Considered herein are ways in which ideas about nature and human relationships influenced the substantive debate during multilateral negotiation. Reproduced with permission of the copyright owner. Further reproduction prohibited without permission. iii Acknowledgements To the trees that house birds and squirrels, all of whom are going about their daily routines and facilitating my attention on what matters. To the birds and squirrels for giving up their homes to print this work. To the trees for sacrificing their life. To the sky, sim and moon for guiding me everyday. To Rita, my mom, who always worried when I wandered off without paying attention to knowing where I was going. To Terry, my dad for whom talking politics is always important. To Uncle George who wanted a book and to Uncle Dennis who showed me how to travel the world. This dissertation is a record of my journey. To my friends who said, “hurry up”, it is now done. Writing this dissertation would have been impossible without finding the proper materials. I am very much indebted to Susan Tudin, librarian at Carleton University for starting me off by surfing through CD ROMs and other bibliographic resources at the very beginning of this project. I also extend much appreciation to Brad Duplisea for providing me with references and source material about Canadian government/industry partnerships involved in biotechnology policy and negotiation. For a peek into the world of grass-roots organizing and resistance to biotechnology, I am forever grateful to the tireless support of people involved in Food Action Ottawa and Gene Action. I am very much grateful to Kiera Ladner for her support by suggesting people to read and hear speak and whose own dissertation challenged my thinking and with it broadened my worldview. Throughout this project encouragement from friends has kept me working and focused. With much appreciation for your listening, questioning, talking, reading, walking and laughing along with me: Elisabeth Abergel, Khrishna Bera, Matthew Behrens, Frances Colletti, Clayton Dignard, Sheila Donohue, Pam Huber, Marie Huot, Jamie Kneen, Soha Kneen, Mike Kaulbars, Angela Pinchero, Laura Shevchenko, Paul Smith, Vallie Steams, Mark Stokes, and Rachel Sutton. My dissertation work was assisted through conference presentations of papers reflecting early conceptual thinking and drafts of chapters. I am thankful for supportive comments and constructive criticism of the papers I presented for several International Studies Association annual conferences, namely Vincent Della Sela, Michael Maniates, Marianne Marchand, Mary Meyer, Lynne Mytelka, V. Spike Peterson, and Deborah Stienstra. Support for conference attendance is much appreciated from Graduate Studies and Research Office, Public Affairs and Management and the Department of Political Science of Carleton University. I am especially grateful to Anna Kim, Valerie Pereboom Reproduced with permission of the copyright owner. Further reproduction prohibited without permission. iv and Bonnie Schmidt for your assistance in helping me navigate the administrative maze of life as a university student. My understanding of negotiation as it matters to environmental, ecological and political circumstances could not have grown without the help of my dissertation committee. Thank you Radha Jhappan whose conversations about biotechnology, native land claims and political resistance challenged my perception; and for introducing me to the work of Vine Deloria Jr. and Ward Churchill, without which 1 would not have been able to notice what was ignored and dismissed. Thank you Jill Vickers who insisted that I use my own voice to write what matters, so that I would find answers to my questions and with it challenge my assumptions of politics shaped by race, class and gender. Lastly, I am ever so appreciative of my supervisor, Michael Dolan whose patience, encouragement and guidance ensured that my thoughts and ideas were focused on this dissertation; and for providing me the intellectual tools so I could think through my own ideas and questions to investigate negotiation. Thanks to all of you for sharing generously your thoughts, books, time, enthusiasm, humour and hospitality. Reproduced with permission of the copyright owner. Further reproduction prohibited without permission. List of Abbreviations and Acronyms AI artificial insemination AIA advance informed agreement AIDS Acquired Immune Deficiency Syndrome