Why have only two of the eleven original members of the Western Climate Initiative implemented a cap-and-trade system? This article compares the implementation of cap-and-trade in California and Quebec versus in New Mexico and British Columbia. Ideas around the reality of anthropogenic global warming and the legitimacy of cap-and-trade created favorable context in three jurisdictions, although institutions condition the expression of these ideas in the policy-making process. Since parliamentary institutions concentrate power, elite consensus is more important in Canada, while in the United States public opinion plays a more significant role. However, ideational factors shaped by political institutions do not explain differences in cap-and-trade implementation. Growth in shale gas production, welcomed in British Columbia and New Mexico but resisted by Quebec and marginal in California, further explain different outcomes. Ideas, mediated by institutions, are the necessary prerequisites for action, while material factors influence policy instrument choice.

This paper contributes to our understanding of why delegitimising focusing events, combined with the mobilisation of policy losers, does not always result in major policy change by undermining a monopolistic policy image and policy subsystem. Based on a close enquiry of American biofuel policy development, it argues that we can make headway in this endeavour by focusing on three factors: first, the congruence of a policy image with core values of the polity; second, the multidimensionality of a policy image; and third, policy image management strategies that maintain cohesion among coalition supporters and respond to outside criticism. In understanding better why some policy images (and policy monopolies) prove resilient when they come under assault, this paper offers a single case plausibility probe supported by indicative evidence from other policy studies.

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This is a pre-print version of the following publication: Houle, David (2018), Reclaiming the Atmospheric Commons: The Regional Greenhouse Gas Initiative and a New Model of Emissions Trading. Cambridge, MA: MIT Press. 256 pages. ISBN 9780262529303, $35.00 paperback. Leigh Raymond. 2016. Review of Policy Research, 35 (3): 491-493. doi:10.1111/ropr.12304.

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