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Climate Change and Rural Institutions in Nepal Hari Dhungana, Adam Pain, Dil Khatri, Niru Gurung and Hemant Ojha

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Climate Change and Rural Institutions in Nepal Hari Dhungana, Adam Pain, Dil Khatri, Niru Gurung and Hemant Ojha DIIS WORKINGDIIS WORKING PAPER 2013:16PAPER Climate Change and Rural Institutions in Nepal Hari Dhungana, Adam Pain, Dil Khatri, Niru Gurung and Hemant Ojha DIIS Working Paper 2013:16 WORKING PAPER WORKING 1 DIIS WORKING PAPER 2013:16 HARI DHUNGANA Dr. PhD, Southasia Institute of Advanced Studies and ForestAction Nepal ADAM PAIN Visiting Senior Researcher, DIIS e-mail: [email protected] DIL KHATRI PhD Candidate, ForestAction Nepal NIRU GURUNG Research Officer, ForestAction Nepal, and Fellow Researcher, Southasia Institute of Advanced Studies HEMANT OJHA Dr., Southasia Institute of Advanced Studies DIIS Working Papers make available DIIS researchers’ and DIIS project partners’ work in progress towards proper publishing. They may include important documentation which is not necessarily published elsewhere. DIIS Working Papers are published under the responsibility of the author alone. DIIS Working Papers should not be quoted without the express permission of the author. Climate Change and Rural Institutions is a four-year collaborative research programme which explores the role of district level institutions in providing an enabling environment for climate change adaptation. The programme is coordinated by DIIS in collaboration with partners in Nepal, Uganda, Vietnam and Zambia. The programme is funded by Danish Research Council for Development Research, with additional support from the Climate Change, Agriculture and Food Security Programme under the CGIAR Partnership. For more information, please see www.diis.dk/ccri DIIS WORKING PAPER 2013:16 © The authors and DIIS, Copenhagen 2013 Danish Institute for International Studies, DIIS Østbanegade 117, DK-2100, Copenhagen, Denmark Ph: +45 32 69 87 87 Fax: +45 32 69 87 00 E-mail: [email protected] Web: www.diis.dk Cover Design: Carsten Schiøler Layout: Allan Lind Jørgensen Printed in Denmark by Vesterkopi AS ISBN: 978-87-7605-623-0 (print) ISBN: 978-87-7605-624-7 (pdf) Price: DKK 25.00 (VAT included) DIIS publications can be downloaded free of charge from www.diis.dk 2 DIIS WORKING PAPER 2013:16 CONTENTS Acronyms 4 Abstract 6 1. Introduction 7 2. The impact of climate change in Nepal 9 2.1 Changes in temperature and rainfall 9 2.1.1 Temperature 10 2.1.2 Rainfall 11 2.2 Disasters triggered by extreme climate events 12 2.3 Gradual environmental change 16 3. Climate change and institutions in Nepal 18 3.1 The institutional landscape 18 3.1.1 A ‘failing’ state? The elusive political settlement 18 3.1.2 Decentralisation 20 3.1.3 Sub-national government, disaster management and climate change 21 3.1.4 The roles of markets and civil society 22 3.2 Institutional structures for response to climate change 27 3.2.1 Roles in disasters associated with floods, landslides and earthquakes 27 3.2.2 Roles in climate change adaptation 31 4. Policies, plans and mandates affecting climate change adaptation 32 4.1 National climate change policies 32 4.2 Financing climate change actions 34 4.3 District-level action 36 5. Conclusion 38 References 40 3 DIIS WORKING PAPER 2013:16 ACRONYMS ACOFUN Association of Collaborative Forest Users ADB Asian Development Bank ADS Agricultural Development Strategy AICL Agriculture Inputs Company Limited APM All Party Mechanism CAPA Community Adaptation Plan of Action CCC Climate Change Council CCNN Climate Change Network Nepal CCRI Climate Change and Rural Institutions CDM Clean Development Mechanism CF Community forestry CFM Collaborative Forest Management CFUG Community Forest User Group CHESS Child Health and Environment Save Society CIAA Commission for the Investigation of Abuse of Authority CPA Comprehensive Peace Agreement CPN-UML Communist Party of Nepal (Unified Marxist Leninist) CSO Civil Society Organization DADO District Agriculture Development Officer DANAR Dalit Alliance for Natural Resources DDC District Development Committee DDMC District Disaster Management Committee DDP Disaster District Plan DFID Department for International Development, UK DFO District Forest Officer DISCO District Soil Conservation Officer DNA Designated National Authority DoF Department of Forest DRM Disaster Risk Management DRR Disaster Risk Reduction FECOFUN Federation of community Forestry Users, Nepal FNCCI Federation of Nepalese Chambers of Commerce and Industries GCM General Circulation Models GLOF Glacier Lake Outburst Floods GoN Government of Nepal HIMAWANTI Himalayan Grassroots Women’s Natural Resource Management 4 DIIS WORKING PAPER 2013:16 ICIMOD International Centre for Integrated Mountain Devlopment ICRC International Committee for the Red Cross IFRC International Federation of the Red Cross and Red Crescent Societies ILO International Labour Organisation INGO International Non Government Organisation IPCC Intergovernmental Panel on Climate Change LAPA Local Adaptation Plan of Action LDC Least Developed Country LDO Local Development Officer LDRMP Local Disaster Risk Management Planning Guidelines LFP Livelihood and Forest Project LIBIRD Local Initiatives for Biodiversity Research and Development LSGA Local Self Governance Act MCCICC Multi-Stakeholder Climate Change Initiatives Coordination Committee MoAC Ministry of Agriculture and Cooperatives MoE Ministry of Environment MoFSC Ministry of Forests and Soil Conservation MoHA Ministry of Home Affairs MOSTE Ministry of Science, Technology and Environment NAPA National Adaptation Programme of Action NCDM National Council for Disaster Management NDMA National Disaster Management Authority NEFIN Nepal Federation of Indigenous Nationalities NFA Nepal Foresters’ Association NGO National Government Organisation NRCS Nepal Red Cross Society NRRC Nepal Risk Reduction Consortium NSDRM National Strategy for Disaster Risk Mangement RECOFTC The Centre for People and Forests REDD Reducing Emission from Deforestation and Forest Degradation SPA Seven-Party Alliance UNDP United Nations Development Programme UNDRIP UN Declaration of Rights for Indigenous People UNFCCC United Nations Framework Convention on Climate Change VDC Village Development Committee 5 DIIS WORKING PAPER 2013:16 ABSTRACT lated to this, effects of climate-linked disasters and change may often, although not always, This working paper provides a summary of be localized and of small scale with respect initial findings on the factors influencing to human impact in the mountains and hills how meso-level institutions in Nepal are although not in the plains. But the absence responding to climate change and extreme of a political settlement and the weakness of climate events. the state, a significant presence and influence Nepal is still experiencing difficult process- of donors juxtaposed against a dynamic and es of transition from war to peace. Underly- increasingly contentious civil society leads ing these difficulties and central to a view of to an extremely complicated, often muddled Nepal as a state with limited capabilities is the and context specific institutional landscape at ongoing challenge to its legitimacy, the failure all levels of the state to perform in terms of delivery The climate change agenda has made in- of basic public goods and reduce poverty, roads into policy processes and into the pro- all underpinned by the persistence of an old grammes and activities of the Government political elite based on old social hierarchies of Nepal entities and several donor agencies and practices leading to enduring patterns of and service providers. Despite political con- social exclusion. tention and conflict, climate policy seems Through a combination of landscape fea- to have been supported by relevant govern- tures characteristic of mountainous coun- ment agencies. A significant part has been tries, a largely subsistence agrarian sector, concerned to localise the climate change high poverty levels, and limited government and disaster agenda and the development of capability Nepal has been ranked as the policies. These still need translation into de- fourth most at risk country according to one tailed policy and programmatic instructions Climate Change Vulnerability Index. Natural for the meso-level government institutions. disasters – especially landslides and droughts But policy development on climate change in the mountains and hills and floods in the and disaster risk is mainly dictated and driv- Terai – accentuated by extreme weather en by donor agencies, and there is less own- events are argued to be likely to have a signif- ership across various levels of governments. icant impact on agricultural production and In some cases, government officers at the livelihoods, especially for marginal locations district level are even not aware of the plans farmed by the more food insecure house- that they themselves endorsed – indicating holds. Although there is talk of climate poli- a co-option in climate change and disaster cy integration or climate mainstreaming with planning by donor-funded organisations assumptions of government coherence this who are keen to legitimize their own work is far from reality. The state and government through these plans. are internally complex and incoherent, and the institutional landscape around climate change is complex both at national and dis- trict levels. Nepal’s mountainous landscape makes it difficult to make wide generalizations about climate change impacts, risks and effects. Re- 6 DIIS WORKING PAPER 2013:16 1. INTRODUCTION the poverty incidence has fallen from about 42 percent in 1995/96 to 25.4 percent of the This working paper provides a summary of estimated population of 28 million in 2009 initial findings on the factors
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