Using a multilevel governance lens, this paper analyzes ongoing reducing emissions from deforestation and forest degradation (REDD þ ) readiness initiatives in Nepal. We present the evidence of what is happening around these preparatory activities in relation to handling forest tenure issues, stakeholder engagement, developing monitoring and verification mechanisms, and creating benefit-sharing mechanisms. Our aim is to assess whether Nepal is on its way to being ready for full-fledged REDD þ implementation in the next few years. The paper concludes that, while the REDD þ readiness process mobilizes diverse and opposing stakeholders through interactive forums, it pays little attention to basic governance issues such as defining carbon rights and who is authorized to make what decisions about REDD þ rules and practices. Moreover, despite some well-intentioned participatory pilot experiences, fundamental aspects of participation, equity, and fairness remain unaddressed.
ABSTRACT. Over the past 40 years, Nepal has become renowned for its community-based forestry policies, initiatives, and institutions, characterized by local autonomy in decisions about forest management and use and a gradual shift toward more inclusive national policy processes. In recent years, the government, international nongovernmental organizations (NGOs), donors, and some civil society organizations have instigated policy and piloting initiatives for an international climate change mitigation scheme known as "reducing emissions from deforestation and forest degradation and enhancement of forest carbon stocks in developing countries" (REDD+). Although many people see REDD+ as a means of bolstering forest conservation efforts and enhancing rural livelihoods, its broader implications for decentralized forest governance in Nepal and elsewhere remain uncertain and contested. Using policy network analysis and theories of polycentric and network governance, I examined influence, inclusiveness, and deliberation among actors involved in REDD+ policy making in Nepal. Data were collected between June and December 2011 through a survey of 34 organizations from government, civil society, educational and research institutions, international NGOs and donors, and the private sector. I investigated whether policy processes and the configurations of actors involved reflect state-centric, market-oriented, or polycentric governance, and I discuss the implications for decentralized forest governance in general and for the implementation of REDD+ in particular. Results indicate that REDD+ policy making is dominated by a "development triangle", a tripartite coalition of key government actors, external organizations (international NGOs and donors), and select civil society organizations. As a result, the views and interests of other important stakeholders have been marginalized, threatening recentralized forest governance and hampering the effective implementation of REDD+ in Nepal. Key Words: climate change; conservation; decentralization; forest governance; policy networks; South Asia INTRODUCTIONReducing emissions from deforestation and forest degradation and enhancement of forest carbon stocks in developing countries (REDD+) has strong implications for forest governance worldwide. REDD+ is an emerging market-based mechanism designed to curb greenhouse gas emissions through performancebased payments for the protection and sustainable management of forests. Some stakeholders involved in REDD+ believe that it will inject renewed vigor, transparency, and accountability into forest governance and promote decentralized and inclusive modes of governance, considered necessary for forest conservation and reforestation (Springate-Baginski and Wollenberg 2010). Others note its potential to recentralize governance and threaten biodiversity by ignoring social and ecological safeguards, increasing the value of forests to governments (and thus incentives to regain control over them), and promoting more technobureaucratic, carbon-focused ap...
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