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A B S T R A C TThis paper contributes to an emerging body of literature on policy experimentation and governance transformation processes. We use the example of REDD+ as consisting of policy experiments in an emerging domestic policy domain to understand obstacles to transformations in forest and climate governance. We ask two interlinked questions: to what extent did the establishment of the REDD+ Agency challenge 'business as usual' in Indonesia's forest and climate policy arena?; and what does this mean for a transformation away from policies and governance that enable deforestation and forest degradation? We draw on the transformation literature to better understand the role of REDD+ to achieve a transformative shift in climate governance. As an experiment of transformative climate governance, the study of REDD+ provides important insights for other forest or climate programs. Our analysis shows that the REDD+ Agency was successful in some extend in introducing an alternative governance mechanism and in shaking the governance structures but we also note that some of the key actors thought that greater ownership was achieved when the REDD+ Agency was dissolved and the mandate was returned to the ministries. We conclude that policy experimenting is a process, and while the creation of novel policies and their experimentation is important, also their assimilation may lead to new opportunities.

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Abbreviations vi Acknowledgments viii Executive summary ix 1 Forest cover in the DRC as estimated by different authors Approximate correlation between current and historical provinces 3 Types of forest in the DRC, their characteristics and related titles 4 Estimated deforestation rates in the DRC between 1990 and 2015 5 Changes to the classification of direct and indirect causes of deforestation and forest degradation in the DRC 6 Actual and anticipated forest CO 2 emissions reduction in the DRC 7 Decentralized administrative organization in the DRC according to the 2006 Constitution 8 Breakdown of responsibilities according to the Constitution and laws on decentralization 9 Breakdown of responsibilities across the three levels of forest governance according to the Forest Code and its implementation texts 10 Types of land in the DRC and their main characteristics 11 Forest categories according to the 2002 Forest Code 12 Evolution and performances of the DRC's strategy for development 13 Population growth between 2010 and 2015 14 Distribution of the DRC's energy capacity across former provinces, by source 15 Volumes of mine production between 2005 and 2015 (1st semester) 16 Value of mineral exports (million USD) from the DRC between 2005 and 2015 17 Ministries involved in REDD+ 18 Events in the REDD+ initialization phase 19 Events in the REDD+ readiness phase 20 Events in the investment phase 21 REDD+ strategy pillars and their objectives 22 Funding portfolio already planned by the Central African Forest Initiative (CAFI) 23 Programs approved by the REDD+ National Steering Committee as of June 2017 List of figures, tables and boxes v Boxes 1 Moratorium on the attribution of new forest titles: Issues and implications for forest governance in the DRC 2 International environmental conventions that have been ratified by the DRC 3 Indigenous peoples' rights to customary ownership of land and forests

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The Democratic Republic of Congo (DRC) has implemented Reduced Emissions from Deforestation and forest Degradation (REDD+), a process that requires inclusive decision making and accountability. Our research analyses the participation of policy actors in DRC by asking: (1) Who is involved in national REDD+ policy making and what is their interest in participating in core policy events? (2) What level of participation do the different political actors have in core policy events? (3) To what extent do the outcomes, of REDD+ policy events incorporate different preferences of policy actors? We found that although actors' interest in REDD+ policy events have increased over time, their concerns have rarely been taken into account in decision-making processes. The presence of local civil society and indigenous group organizations is weak while international organizations play a major role in the REDD+ arena. REDD+ is treated as a project rather than being embedded in national politics.