The topography and hydrology bisected by the political boundary dividing Canada and the United States makes binational environmental policy problems inevitable. Many of these problems are handled without dissention, but some are causes of conflict. From the Lake of the Woods to Puget Sound, and from the Gulf of Alaska to the Beaufort Sea, the international boundary is ruler-straight. Geophysical and bioregional features are bisected politically, with little regard for ecosystemic relationships. (Lynton Caldwell 1992) ********** Canada and the United States share a set of ecosystems that span the North American continent and the transboundary nature of environmental problems creates the need for cooperation between the two countries at multiple levels. Certainly, we have learned much over the past two decades about the binational environmental relationship, where federal officials in both countries seek to exercise influence through diplomatic channels and collaborate via joint mechanisms such as the International Joint Commission. Adding to the state of knowledge on Canada-United States environmental relations are the growing number of studies aimed at unearthing less prominent subnational cross-border linkages. Subnational interactions are more likely to take place within the realm of the workaday, yet are just as important for the state of the overall environmental relationship as national-level diplomatic interactions. Our understanding of the trilateral environmental context is rather more recent, although it is becoming clear that the continental influence tends to operate through collaborative science and shared problem definition. As Alan Schwartz, a long-time observer of Canadian-American environmental relations, explains: there is a complex web of interactions on many levels...which holds most issues at bay as minor, behind-the-scenes irritants rather than allowing them to develop into full-blown crises. (1) To grasp the full complexity of the Canada--U.S. environmental relationship, one must employ a multi-faceted framework for analyzing cross-border interactions. This requires both a multi-level approach that takes into account interactions at the subnational, national, and continental levels and attention to different modes of cross-border interaction. More specifically, it is necessary to combine examinations of, first, formal relations or negotiations generally conducted by senior-level officials and, second, less visible, working relations among mid-level officials, experts and non-governmental organizations, which can lead to the development of likeminded epistemic communities. The recent Canadian-American negotiations on the Ozone Annex to the Canada--United States Air Quality Agreement demonstrate that analyses ought not to focus on national-level interactions at the expense of subnational and supranational relations or, alternatively, concentrate on formal, high-level interactions at the expense of mid-level working relations. Certainly, the manner in which the binational negotiations unfolded over 1999-2000 is an important part of the overall story. However, the development of a transboundary network of officials, experts and nongovernmental actors at multiple levels during the 1990s was critical. Out of this network, a web of cross-border support for addressing ground-level ozone via specific policy instruments gradually evolved. Framing the Analysis: Lessons From a Burgeoning Literature During the 1980s and into the 1990s, many studies of CanadianAmerican environmental relations focused primarily on the efforts of federal officials in the two countries to coordinate domestic and crossborder political dynamics in order to further bilateral aims, much as two-level game theorists would. In Putnam's classic characterization, cross-border negotiations consist of, first, Level I negotiations, or bargaining between negotiators from different countries which leads to tentative agreement, and, second, Level II negotiations, or separate discussions with domestic interests about whether to ratify this tentative agreement. …
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