Naya Sharma Paudel

Community Forestry and the Threat of Recentralization in Nepal: Contesting the Bureaucratic Hegemony in Policy Process

Nepals community forestry program has been touted as a successful case in decentralized forest management. However, the government of Nepal has often constrained the autonomy of local communities as an apparent attempt to reverse decentralization. This article identifies the mechanisms through which decentralized reforms and growing deliberative culture of policy process are attenuated. To this end, we analyze an amendment proposal of the government to revise the Forest Act 1993—a widely recognized legislation for democratic decentralization—with the tacit aim of re-equipping the government forestry staff with substantial power. This article shows that the government often monopolizes the policy process and obstructs community forestry, while failing to address its own governance deficits. While acknowledging the importance of an antagonistic form of resistance, we emphasize the combination of alliance-led resistance and research-informed deliberation as an effective strategy to contest inappropriate policy decisions and promote a deliberative culture.

REDD+, transformational change and the promise of performance-based payments: a qualitative comparative analysis

Reducing emissions from deforestation and forest degradation (REDD+) has emerged as a promising climate change mitigation mechanism in developing countries. This article examines the national political context in 13 REDD+ countries in order to identify the enabling conditions for achieving progress with the implementation of countries’ REDD+ policies and measures. The analysis builds on a qualitative comparative analysis of various countries’ progress with REDD+ conducted in 12 REDD+ countries in 2012, which highlighted the importance of factors such as already initiated policy change, and the presence of coalitions calling for broader policy change. A follow-up survey in 2014 was considered timely because the REDD+ policy arena, at the international and country levels, is highly dynamic and undergoes constant evolution, which affects progress with REDD+ policy-making and implementation. Furthermore, we will now examine whether the ‘promise’ of performance-based funds has played a role in enabling the establishment of REDD+. The results show a set of enabling conditions and characteristics of the policy process under which REDD+ policies can be established. The study finds that the existence of broader policy change, and availability of performance-based funding in combination with strong national ownership of the REDD+ policy process, may help guide other countries seeking to formulate REDD+ policies that are likely to deliver efficient, effective and equitable outcomes. Policy relevance Tropical forest countries struggle with the design and implementation of coherent policies and measures to reduce emissions from deforestation and forest degradation. Evidence on which factors and configurations are crucial to make progress towards these challenging policy objectives will be helpful for decision makers and practitioners at all levels involved in REDD+. Key findings highlight the importance of already initiated policy change, and the availability of performance-based funding in combination with strong national ownership of the REDD+ process. These findings provide guidance to REDD+ countries as to which enabling conditions need to be strengthened to facilitate effective, efficient and equitable REDD+ policy formulation and implementation.

The Deliberative Scientist: Integrating Science and Politics in Forest Resource Governance in Nepal

Viewing resource management essentially through a biophysical lens has provided too restricted a perspective for understanding complex political processes surrounding forest management. The case of community forestry in Nepal demonstrates a range of experiences of complex political processes, including conflicts and collaboration, especially between technical forest officials and local forest dependent people. Despite innovative legislative and institutional frameworks already in place, community forestry in Nepal still experiences the effects of techno-bureaucratic control. Such control is manifested in the entire range of processes related to planning, management, and monitoring of forestry activities. To understand this situation, we apply the conceptual lens of deliberative governance, that is, governance whose arrangements have been devised from both scientific and local knowledge. This chapter provides practical examples to offer insights into the application of deliberative governance in forestry practices. We identify how different aspects of managerialist, techno-bureaucratic domination (legitimated by principles of positivist science) are deliberatively challenged by local people, civil society activists, and action researchers to improve governance practices. We also identify situations and deliberative processes through which forest managers themselves begin to realize the limits of an antideliberative scientific approach, and apply more reflexive and deliberative approaches to knowledge and decision-making in forest management. In doing so, we eschew taking an absolute position for or against indigenous knowledge or scientific enterprise, but seek to demonstrate that neither technocratic prescription nor reliance on local knowledge alone is adequate for sustainable management of forests. What is needed, as Fischer (1998) argues, is a deliberative engagement between the claims to knowledge by both scientists and citizens. In our experience, this deliberative process provided a foundation for less constrained dialogue, greater collaboration, and mutual learning in the direction of more evidence-based decision-making. This approach is however not free from challenges related to power and techno-bureaucratic control.

Secondary level organisations and the democratisation of forest governance: Case studies from Nepal and Guatemala

This paper examines the emerging role of secondary level organisations in the democratisation of forest governance by analysing two cases of forest-based collective action in Nepal and Guatemala. It explores the conditions surrounding the emergence and growth of these secondary level organisations, and examines the nature of their organisational approaches, strategic actions, and the resulting outcomes in terms of democratising forest governance. The organisations discussed in this paper are products of broader decentralisation processes and represent organised and empowered forest people. They are capable of shifting the balance of power in favour of community level institutions, and can compel state agencies to become more accountable to the needs of forest-dependent citizens. As a result, by leading collective action beyond the community to a secondary level, these organisations have influenced forest governance by making it more democratic, equitable and productive.

REDD+ politics in the media: a case from Nepal

This paper analyzes public discourse on Reducing Emissions from Deforestation and Forest Degradation (REDD+) as it is portrayed in the media and examines how this influences effective and equitable outcomes of REDD+ in Nepal. It draws on analysis of articles in three national newspapers and interviews with radio and newspaper journalists, governmental and non-governmental stakeholders, and technical experts. Findings show that REDD+ coverage has been limited in the Nepalese print media and overall reporting on REDD+ has declined over time. The discourse is currently dominated by a small number of experts and development project implementers who portray REDD+ optimistically as an opportunity to benefit from carbon markets, while contributing to sustainable forest management. There was limited representation of the interests and concerns of marginalized groups and local communities in the public debate, thus underplaying the complexities and challenges of REDD+ development and implementation in Nepal. While the absence of debate on potential negative impacts can be explained partly by the dominance of optimistic voices in the media, it was also attributed to journalists’ limited access to independent knowledge and understanding of the issue. The resulting lack of balanced information in the public domain could undermine both the effectiveness of REDD+ implementation and its equitable outcome.

Does collective action sequester carbon ? the case of the Nepal community forestry program

This paper estimate the effects of collective action in Nepal’s community forests on four ecological measures of forest quality. Forest user group collective action is identified through membership in the Nepal Community Forestry Programme, pending membership in the program, and existence of a forest user group whose leaders can identify the year the group was formed. This last, broad category is important, because many community forest user groups outside the program show significant evidence of important collective action. The study finds that presumed open access forests have only 21 to 57 percent of the carbon of forests governed under collective action. In several models, program forests sequester more carbon than communities outside the program. This implies that paying new program groups for carbon sequestration credits under the United Nations Collaborative Programme on Reducing Emissions from Deforestation and Degradation in Developing may be especially appropriate. However, marginal carbon sequestration effects of program participation are smaller and less consistent than those from two broader measures of collective action. The main finding is that within the existing institutional environment, collective action broadly defined has very important, positive, and large effects on carbon stocks and, in some models, on other aspects of forest quality.

Reframing community forest governance for food security in Nepal

The growing challenge of food insecurity in the Global South has called for new research on the contribution of forests to food security. However, even progressive forest management institutions such as Nepals community forestry programme have failed to address this issue. We analyse Nepals community forestry programme and find that forest policies and local institutional practices have historically evolved to regulate forests either as sources of timber or as a means of biodiversity conservation, disregarding food security outcomes for local people. Disciplinary divisions between forestry and the agriculture sector have limited the prospect of strengthening forest–food security linkages. We conclude that the policy and legislative framework and formal bureaucratic practices are influenced by ‘modern forestry science’, which led to community forestry rules and practices not considering the contribution of forests to food security. Furthermore, forestry science has a particularly narrow focus on timber production and conservation. We argue for the need to recognise the importance of local knowledge and community practices of using forests for food. We propose adaptive and transformational approaches to knowledge generation and the application of such knowledge in order to support institutional change and policy reform and to enable landscape-specific innovations in forest–food linkages.

Can Bureaucratic Control Improve Community Forestry Governance

The Ministry of Forest and Soil Conservation (MoFSC) of Nepal has recently passed a proposal and drafted an amendment bill to revise the Forest Act 1993. This Act provided the legal foundation for community forestry programme in Nepal during the past two decades. However, the MoFSC has justified its recent move for legal change by citing anecdotal cases of irregularities and illegal felling in some parts of Terai and Churia region. But the Federation of Community Forest Users, Nepal (FECOFUN) and other civil society organizations have strongly opposed this move. As a result, positions on the move have polarized, and sparked off resistance and opposition at local to national levels. In this context, this paper examines the proposal in terms of the process and contents, and assesses how it impacts the community forestry programme and whether the proposed change would bring about expected outcomes. Doing this we hope to enrich the deliberation on this issue.We suggest that, in terms of the process, MoFSC has undermined the multi-stakeholder and deliberative process, which was being progressively adopted over the past few years in forestry sector policy making. Some key assumptions behind this proposal have therefore become flawed. We also find that the proposed changes stipulated in the proposal are likely to aggravate the problems in community forest user groups — particularly corruption, illegal felling, and inequity — that MoFSC commits to resolve. We suggest that multi-stakeholder based and deliberative process can help identify the problems and remove flaws of this proposal. This process needs to be informed by a robust and independent study of the problems in order to be able to determine workable solutions.

Rapid silviculture appraisal to characterise stand and determine silviculture priorities of community forests in Nepal

Community forestry in Nepal is an example of a successful participatory forest management program. Developments in community forestry in four decades have focused on the social and governance aspects with little focus on the technical management of forests. This paper presents a silviculture description of community forests and provides silviculture recommendations using a rapid silviculture appraisal (RSA) approach. The RSA, which is a participatory technique involving local communities in assessing forests and silviculture options, is a simple and cost-effective process to gather information and engage forest users in the preparation of operational plans that are relevant to their needs. The RSA conducted on selected community forests in Nepal’s Mid-hills region shows that forests are largely comprised of dominant crowns of one or two species. The majority of studied community forests have tree densities below 500 stems per hectare as a consequence of traditional forest management practices but the quality and quantity of the trees for producing forest products are low. Silviculture options preferred by forest users generally are those which are legally acceptable, doable with existing capacities of forest users and generate multiple forest products. For sustainable production of multiple forest products, the traditional forest management practices have to be integrated with silviculture-based forest management system.

Transforming local natural resource conflicts to cooperation in a changing climate: Bangladesh and Nepal lessons

ABSTRACT Since the 1990s, climate change impact discourse has highlighted potential for large scale violent conflicts. However, the role of climate stresses on local conflicts over natural resources, the role of policies and adaptation in these conflicts, and opportunities to enhance cooperation have been neglected. These gaps are addressed in this paper using evidence from participatory action research on 79 cases of local collective action over natural resources that experience conflicts in Bangladesh and Nepal. Climate trends and stresses contributed to just under half of these conflict cases. Nine factors that enable greater cooperation and transformation of conflict are identified. Participatory dialogue and negotiation processes, while not sufficient, changed understanding, attitudes and positions of actors. Many of the communities innovated physical measures to overcome natural resource constraints, underlying conflict, and/or institutional reforms. These changes were informed by improving understanding of resource limitations and indigenous knowledge. Learning networks among community organizations encouraged collective action by sharing successes and creating peer pressure. Incentives for cooperation were important. For example, when community organizations formally permitted excluded traditional resource users to access resources, those actors complied with rules and paid towards management costs. However, elites were able to use policy gaps to capture resources with changed characteristics due to climate change. In most of the cases where conflict persisted, power, policy and institutional barriers prevented community-based organizations from taking up potential adaptations and innovations. Policy frameworks recognizing collective action and supporting flexible innovation in governance and adaptation would enable wider transformation of natural resource conflicts into cooperation. Key policy insights Climate stresses, policy gaps and interventions can all worsen local natural resource conflicts. Sectoral knowledge and technical approaches to adaptation are open to elite capture and can foster conflicts. Many local natural resource conflicts can be resolved but this requires an enabling environment for participatory dialogue, external facilitation, flexible responses to context, and recognition of disadvantaged stakeholder interests. Transforming conflict to greater cooperation mostly involves social and institutional changes, so adaptation policies should focus less on physical works and more on enabling factors such as negotiation, local institutions, knowledge, and incentives.