How to make forest governance reform real? Formal and informal institutions during implementation of the forest rights act 2006 in India

Abstract

Scholars are increasingly paying much attention on institutions and process of institutional change to find ways to improve environmental governance across the globe. This article tests the existing framework of studying the process of institutional change, particularly in the context of valued resources like forests, and argues for broader framework for improved understanding. Based on intensive field work during the implementation process of the Forest Rights Act 2006 in West Bengal state of India, this article examines the patterns of institutional reform in forestry sector. It shows how ambiguities while framing rules under the central Act helped the states to craft a new institutional structure during the implementation, serving their political interests. It also demonstrates how state agency is working to disrupt legal institutions and maintain pre-existing institutional structure to continue internal culture of forestry and ideology of the forest department. I argue for a broader perspective that not only includes political context and institutional characteristics, but also activities of actors who intentionally adopt informal institutions to resist change, and thereby maintain political power and / or reinforce the bureaucratic ‘command and control’ approach. This approach provides an improved understanding on institutional change and stability, particularly in the context of complex, multi-actor and multi-layered federal structure of forest governance in India.