Transformational change through REDD readiness in Nepal: realities amidst expectations

Abstract: The national REDD+ program in Nepal was initiated in 2008 by the Ministry of Forests and Soil Conservation, under the grant support of FCPF/World Bank. The readiness phase, which marks the first phase in the mechanism, has established an institutional set up for REDD governance and prepared policy documents including a draft REDD strategy. Only recently, the country has obtained additional funding for readiness. Preparations for a sub-national project are underway, with the country in pipeline for the carbon fund of the World Bank. In light of these developments, this research sought to comprehend how the readiness process is interacting with and influencing the broader forestry governance in the country. The results support a better understanding of how likely the transformational ambitions of REDD+ are in the context of Nepal, and point to necessary changes to the approach undertaken thus far. The study is based on a documentary analysis and qualitative interviews with experts working with REDD+ in the country. The findings indicate that the readiness process has not been not able to reach its objectives due to the persistence of ineffective governance in the forestry sector, which has largely affected the REDD+ policy-making process. Problematic governance issues include path dependencies and the ‘stickiness’ of the bureaucratic institutions, along with a lack of political commitment. In the light of the lack of cohesion within the pubic authorities involved in the process, donors have turned to NGOs bestowing them with considerable resources. Moreover, the donor-driven readiness mechanism with ‘tailored’ readiness activities has affected the empowerment of government institutions through the heavy reliance on experts and consultants. The REDD readiness process in Nepal thus seems to be plagued with a plethora of issues, mostly stemming from the weak governance in the forestry sector. The research argues that unless donors and policy makers work to reform the forestry sector governance in Nepal, transformational change through REDD+ will be an immensely challenging task.