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Forests in Transition
Multi-stakeholder processes
and forest politics in Cambodia
Forests in Transition
Multi-stakeholder processes
and forest politics in Cambodia
Community forestryearly 1990s
mid 1990s
• a few CFs
• ~ 40 CFs• units in 2 nat’l agencies• Network• Working Group• training team
nat’l MS platforms
Community forestryearly 1990s
mid 1990s
2001
• a few CFs -- int’l NGOs
• ~ 40 CFs -- int’l NGOs & IOs• support units in 2 nat’l agencies• Network• Working Group• collab. training team
• ~ 200 CFs (100,000 ha)• many organisations & locations• experience in MSP• need to clarify policy
Multi-stakeholder Task Force & ConsultationMajor stakeholders involved in community forestry
RGC Institutions
NGO’s
Communities
Others
CF Working Group
TASKFORCE
periodicmeetings
smallworkinggroups
work-shops
draftCommunity
ForestrySubdecree
Multi-stakeholder Process
Result: success !• draft Community Forestry Subdecree
(national policy that recognised pluralism)
• integrated CF & Forestry, overcoming ‘turf’ struggles
• elevated MSP (policy formulation)
• demonstrated MSP effectiveness for resolving contentious problems
Community Forestry Subdecree
• Task Force ► Forestry Dept / MAFF
• revised Subdecree -- important MSP agreements lost
• many stakeholders opposed revisions
• but the revised Subdecree was approved
• the MSP had not succeeded
Why had the MSP failed?• Immediate cause
RCG under pressure to demonstrate Forestry reform to donors, especially to the World Bank & IMF
• General cause
differences between CF & Forestry as ‘policy streams’
Policy streams: CF & Forestry
Community forestry• aim:
communities benefit from forests (CFs)
• main stakeholders– communities– NGOs, IOs, MoE– Forestry Dept
Forestry• aim:
improve large-scale forest concessions
• main stakeholders– Forestry Dept / RGC– donors / World Bank– concessionaires
Some commonality, but different ‘centers of gravity’
Forestryearly 1990s
1994-1997
• logging escalated rapidly
• rampant corruption & logging
• emblematic of Cambodia’s problems
Forestryearly 1990s
1994-1997
1998 -
• logging escalated rapidly
• rampant corruption & logging
• donors acted; World Bank took lead
• Forestry reform = improving large-scale forest concessions
Forestryearly 1990s
1994-1997
1998 -
• logging escalated rapidly
• rampant corruption & logging
• donors acted; World Bank took lead
• Forestry reform = improving forest concessions
• marginalised Community Forestry
Forestryearly 1990s
1994-1997
1998 -
2000 -
2003 -
• logging escalated rapidly
• rampant corruption & logging
• donors acted; World Bank took lead
• reform = improving forest concessions
• marginalised: CF “policy stream”
• IMF & World Bank conditionality: reform included new Forest Law
• RGC approved draft Forest Law (& ‘revised’ CF Subdecree)
policy streams, MSP, & power
Community forestry Forestry
MSP success MSP failure
differences between ‘policy streams’• aims & priorities• stakeholders (center of gravity)• relative power
‘Real-politic’ of forests
Cambodia in the 1990s:
• multi-dimensional transition
• intense political struggles
• leaders / factions: financial needs & desires
‘Real-politic’ of forestsForests as ‘currency’ in power struggles
‘Real-politic’ of forestsall leaders / factions: logging & log trade
“mutual accommodation of elites”
‘Real-politic’ of forestsRGC: promises vs. actions
“public transcript” vs. “shadow transcript”
‘Real politic’ of Forestry “Shadow transcript”
policy: enabling logging & timber trade;
controlling land
main stakeholders– elites / patrons– networks / clients
“Public transcript”
‘reform’ policy: improving forest
concessions
main stakeholders– Forestry Dept / RGC– donors / World Bank– concessionaires
‘Real-politic’ of Forestry “Shadow transcript”
policy: enabling logging & timber trade;
controlling land
since 1989, timber exported worthest’d $2.4 billion
“Public transcript”
reform policy: improving forest
concessions
2004: no credible evidence of reform
policy streams, power, & MSPCommunity
ForestryReal-politic of forests
Forestry
public transcript(‘reform’)
& shadow
transcript
commun-ities
benefit from
forests
shadowtranscript(forests as
political currency)
MSP seminar participants?