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(2007)
Studies of lobbying try to determine the influence and power of non-governmental actors on public policy. Although influence is very difficult to measure empirically, many continue to push for better research design to solve the problem. Through case studies of business-government relations in the United States and the European Union, this article argues that the difficulties with power and influence concern not only their operationalisation, but they also reflect conceptual confusions. Trying to determine the ‘winners’ and ‘losers’ of a policy issue can be misleading, since power also structures apparently harmonious exchange relationships. The perceived success of business lobbying in the cases studied depended on the governments' receptiveness to their demands, which in turn depended on strategic advantages they saw for themselves in international negotiations. Even when business appears to lead the dance, it is more promising to look at resource distribution and the interdependence of both sides, instead of assuming the domination of business power over policy outcomes.
Observers generally assume that firms which engage in lobbying know what they want. Business—government relations and especially the corporate political activities of network operators during the basic telecommunication negotiations of the World Trade Organization present a slightly different picture. European monopoly providers benefited from the old international regime and initially ignored trade discussions in their sector. In the course of negotiations, however, they became part of a three-level game, which obliged them to consider national, European, and multilateral objectives simultaneously. In the course of these complex negotiations, their preferences evolved. Because governments advanced independently on the liberalization project, companies adapted their policy stances from reluctance to support for the negotiations. This article thus cautions against treatments of lobbying that consider preferences as exogenously given.
Business–government relations on trade issues are generally characterized as protectionist lobbying or – less often – lobbying for the liberalization of markets. However, with the evolution of the trading system, negotiations today concern not just market opening, but also the regulatory frameworks that structure international trade. This transformation has important consequences for the ways in which private interests can contribute to trade negotiations. Instead of simply trying to exert pressure, businesses and other private actors now form working relationships with governments based on expertise, learning, and information exchange. This article illustrates these new forms of public–private interactions with examples from the USA, the European Union, and Brazil.