[dhimes]

I think it can be that way, but I don't know if it always is. For instance, in making marine laws for pleasure boaters lobbying occurs where a group (BoatUS, for example, or the non-profit United States Power Squadrons) will push for a law (or to prevent one) without a real profit motive. These are about things like requiring people to wear life jackets in dinghies or being allowed to anchor in certain regions.