The Evolution of Institutions for Multi-Level Governance of Forest Commons: The Case of Community Forest User Groups Federation in Nepal

Abstract

"With prolific research and practical innovations on the natural resource commons, attention is now shifting to understand how multi-level institutions emerge (or fail to emerge), linking local level commons institutions to different layers of governance. This paper tells the story of the networking of local level community forest user groups (CFUGs) into a nation-wide network, known as the Federation of Community Forestry User Groups, Nepal (FECOFUN). Over the past 15 years of its existence, and with over 15 thousands member CFUGs, FECOFUN has evolved as a critical bridge between local commons and multi-scalar processes of forest governance, articulating local voices in different spheres of policy making. In doing so, FECOFUN has also ‘radicalised’ local commons users beyond fatalistic mindsets, nurtured historically through hierarchical social institutions in Nepal. The evolution and functioning of FECOFUN was made possible through various factors, such as active leadership, unfolding democratic political system, and internal crisis into the anti-devolutionary forces, such as techno-bureaucratic mindset of state forest agencies. The case of FECOFUN shows that, such networking involves tremendous amount of transaction costs, which is subsidized by donors, leading to weak internal accountability of the network. Likewise, when FECOFUN emerged as a significant field of power and influence after 2000, it is facing increasingly tough challenges in maintaining fair rules and practices of power and benefit sharing among the network leaders and activists. Moreover, the network is also facing an increasing challenge to regulate the behaviours of its leaders to maintain ethical practices (avoiding corruption). Notwithstanding these internal weaknesses, FECOFUN has forged a much needed link of local forest commons at sub-national and national level governance. The paper concludes by drawing key lessons from Fcommons regarding the prospect, challenges and effectiveness of multi-scale institutions of commons in forest and natural resources governance."