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INTERESTGROUPS AS POLICYINSTRUMENTS: The Role of ENGOs in the NAFTA Environmental Side Deal Negotiations Michael S. Southem Department of Political Science Submitted in partial fulfillment of the requirements for the degree of Master of Arts Faculty of Graduate Studies The University of Western Ontario London, Ontario. Septernber, 1997. O Michael S. Southern 1997 National Library Bibliothèque nationale 1*1 ofCanada du Canada Acquisitions and Acquisitions et Bibiiographic Services services bibliographiques 395 Wellington Street 395. rue Wellington OttawaON K1AON4 OttawaON K1A ON4 Canada Canada The author has granted a non- L'auteur a accordé une licence non exclusive licence allowing the exclusive permettant à la National Library of Canada to Bibliothèque nationale du Canada de reproduce, loan, distribute or sell reproduire, prêter, distribuer ou copies of this thesis in microform, vendre des copies de cette thèse sous paper or electronic formats. la forme de microfiche/fiilm, de reproduction sur papier ou sur format électronique. The author retains ownership of the L'auteur conserve la propriété du copyright in ths thesis. Neither the droit d'auteur qui protège cette thèse. thesis nor substantial extracts fiom it Ni la thèse ni des extraits substantiels may be printed or othewise de celle-ci ne doivent être imprimés reproduced without the author' s ou autrement reproduits sans son permission. autorisation. This thesis examines the use of non-governmental organizations as instruments of government. It focuses on the policy-making processes in Canada and the United States. An evolution of the Canadian and American policy-making processes is outlined. Three distinct stages in that evolution are identified. The first is that of non-govemrnental organizations (NGOs) acting as advocates of public policy. The second describes the institutionalization of NGOs in the policy-making process. During the second stage. NGOs became important policy resources of govenunent for the provision of expertise and the delivery of services to the public. In the third stage of the evolution of the policy-making process, the daim is made that non- govemmental organizations are increasingly being recruited as instruments of governrnent for the promotion of po 1itical agendas. In order to demonstrate the use of NGOs as instruments of governrnent, this thesis examines the negotiation and ratification of the environmental side deal of the North American Free Trade Agreement (NAFTA) and the relationship that existed among members of the environmental movement, and policy-makers in Washington and Ottawa. The number of people 1 would like to thank in this project are far too nurnerous to mention individually. There are a few, however, without whose help 1 could not have succeeded. First and foremost, to my advisor, Professor Donald Abelson. Despite my repeated efforts to try your patience, you have always ken there. Whenever 1 lost sight of the big picture or couldn't keep my mind focused on 'the hook' of this project, you led me back with your wisdorn and experience. Without your guidance and motivation early on, it is unlikely that 1 would have ever undertaken this project or this degree. You have been an inspiration, a mentor and a friend. To Say thank you simply isn't enough. To Professor Michael Lusztig, now at Southeni Methodist University in Dallas, Texas and Christine Carbeny. You have both always provided me with such sound advice and a willing ear io bend whenever I needed it. Your fnendship over the past two yearshasmeantsomuchtome. Iamlookingforwardtospendingtimewithyoufor years to corne. To Professors Martin Westmacott and Doug Long, thank you for the encouragement that you have given me over the last year. Your support and consideration during this process have been as indispensable to me as the lessons I have leamed fiom each of you on how to be an outstanding teacher. It is those skills upon which 1 will now rely so heavily. Most importantly, to my parents Robert and Charlotte Southem and my sister, Leslie. Thank you for the unfailing support that you have given me despite my shifting moods and need to be alone with my thoughts throughout this process. In the completion of this work, 1 hope that you will share in my pride, as 1 have shared in your love for so many years. And last, but certainiy not least, to the myriad of friends who 1 have banished fiom my office while trying to finish this thesis.. My door is once again open! Page . .. Certificate of Examination............................................................................................ -11... Abstract................................................................................................... ... ................... 111 Acknowledgrnents......................................................................................................... iv Table of Contents............................ ,., v ............................................................................ .. List of Figures .............................................................................................................. vli... List of Acronyms ......................................................................................................... VIII CHAPTER ONE .The Changing Nature of the Policy-Making Process ......................................................................................... 1 The Case Study................................................................................................... 2 Chapter Breakdown ........................................................................................... -4 CHAPTER TWO .A Look Inside the Policy-Making Process in Canada and the United States......................................................... 6 Interest Group Behavior and the Policy-Making Process ................................... 7 The Canadian Policy-Making Process and the Policy Comrnunity Mode1................... ... ..................................................... 13 Issue Networks and the Arnerican Policy-Making Process .............................. 19 The Expansion of Policy Cornrnunities and Issue Networks ............................ 22 Advocacy Coalitions and the Coalescence of Non-Govemrnental Organizations ....................................................... -26 The Emergence of Interest Groups as Instruments of Govemment .................. 30 Conclusion ....................................................................................................... -33 CHAPTER THREE .Case Study: the negotiation and ratification of the environmental side deal of the North American Free Trade Agreement .............................................................. -36 Background ....................................................................................................... 37 The Readiness of the Environmental Movement.............................................. 39 The Amencan Perspective................................................................................ 41 The Environmental Movement as Policy Advocate .............................. 43 CHAPTER THREE .(cont.) The Environmental Movement and the NAFTA Environmental S ide Deal ........................................................... 49 Clinton. the Environmental Movement and the North Amencan Commission for the Environment WACE) ...............55 The Environmental Movement and the Provision of Policy Expertise........................................................................ -56 NAFTA and Environmental NGOs as Legislative Tools...................... 57 The Canadian Perspective ................................................................................. 62 ENGO Activity and NAFTA in Canada................................................ 63 Observations and Discussion ........................................................................... 1 CHAPTER FOUR .ConcIusions and Implications for Further Study ......................... 77 Methodological Constraints.............................................................................. 78 Implications of this Study ................................................................................. 80 Questions for Future Study............................................................................... 83 .. Bibliography................................................................................................................. 85 Vita 93 Descri~tion Page 2- l(a) Pressure Groups as Policy Advocates ........................................ 1 1 2- 1(b) Pressure Groups as Policy Resources............. ... ............... 1 3 Pressure Groups as Instruments of Govemment........................ 3 1 CCP Court Challenges Prograrn CEC Commission for Environmental Cooperation CELA Canadian Environmental Law Association CIEL Center for International Environrnental Law CUFTA Canada-U.S. Free Trade Agreement EDF Environrnental Defense Fund ENGO Environmental Non-govemmental Organization FOE Friends of the Earth FTA Free Trade Agreement GATT General Agreement on Tariffs and Trade 1JC International Joint Commission ITAC International Trade Advisory Cornmittee NAAEC North Amencan Agreement on Environmental Cooperation NACE North American Commission on the Environrnent NACEC North American Commission on Environmental Cooperation NAFTA North American Free Trade Agreement NGO Non-govemmental Organization NRDC Natural Resources Defense Council NRTEE National Round Table on the Environrnent and the Economy NWF National Wildli fe Federation

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