Science in Environmental Policy Politics, Science, and the Environment Peter M. Haas and Sheila Jasanoff, editors Peter Dauvergne, Shadows in the Forest: Japan and the Politics of Timber in Southeast Asia Peter Cebon, Urs Dahinden, Huw Davies, Dieter M. Imboden, and Carlo C. Jaeger, eds., Views from the Alps: Regional Perspectives on Climate Change Clark C. Gibson, Margaret A. McKean, and Elinor Ostrom, eds., People and Forests: Communities, Institutions, and Governance The Social Learning Group, Learning to Manage Global Environmental Risks. Volume 1: A Comparative History of Social Responses to Climate Change, Ozone Depletion, and Acid Rain. Volume 2: A Functional Analysis of Social Responses to Climate Change, Ozone Depletion, and Acid Rain Clark Miller and Paul N. Edwards, eds., Changing the Atmosphere: Expert Knowledge and Environmental Governance Craig W. Thomas, Bureaucratic Landscapes: Interagency Cooperation and the Preservation of Biodiversity Nives Dolsak and Elinor Ostrom, eds., The Commons in the New Millennium: Challenges and Adaptation Kenneth E. Wilkening, Acid Rain Science and Politics in Japan: A History of Knowledge and Action Toward Sustainability Virginia M. Walsh, Global Institutions and Social Knowledge: Generating Research at the Scripps Institution and the Inter-American Tropical Tuna Commission, 1900s–1990s Sheila Jasanoff and Marybeth Long Martello, eds., Earthly Politics: Local and Global in Environmental Governance Christopher Ansell and David Vogel, eds., What’s the Beef? The Contested Governance of European Food Safety Charlotte Epstein, The Power of Words in International Relations: Birth of an Anti-Whaling Discourse Ann Campbell Keller, Science in Environmental Policy: The Politics of Objective Advice Science in Environmental Policy The Politics of Objective Advice Ann Campbell Keller The MIT Press Cambridge, Massachusetts London, England © 2009 Massachusetts Institute of Technology All rights reserved. No part of this book may be reproduced in any form by any electronic or mechanical means (including photocopying, recording, or information storage and retrieval) without permission in writing from the publisher. For information on quantity discounts, email
[email protected] Set in Sabon by SNP Best-set Typesetter Ltd., Hong Kong. Printed and bound in the United States of America. Library of Congress Cataloging-in-Publication Data Keller, Ann Campbell. Science in environmental policy : the politics of objective advice / Ann Campbell Keller. p. cm.—(Politics, science, and the environment) Includes bibliographical references and index. ISBN 978-0-262-01312-3 (hardcover : alk. paper)—ISBN 978-0-262-51296-1 (pbk. : alk. paper) 1. Environmental policy. 2. Science and state. 3. Scientists—Political activity. I. Title. GE170.K453 2009 363.7'0561—dc22 2008044256 10 9 8 7 6 5 4 3 2 1 for David and Cole Contents Acknowledgements Introduction ix 1 1 Theories of Science in Policy Making 2 Scientists and Agenda Setting 3 Scientists and Legislation 45 85 4 Scientists and Implementation Conclusion 27 139 169 Appendix A: A Primer on the Roots of a Constructivist View of Science in Society 185 Appendix B: Methodology for Analyzing Scientists’ Participation in Legislative Settings 191 Appendix C: Acid Rain Hearings Included in Qualitative Analysis 195 Appendix D: Climate Change Hearings Included in Qualitative Analysis 199 Appendix E: Interviews (Dates an