Institutional layering in climate policy: Insights from REDD+ governance in Indonesia

Abstract

The transformation of forest governance in low- and middle-income countries has been accelerated due to increased international pressure for climate change adaptation. These efforts, however, have been severely limited by inefficiencies within the forest-related state institutions tasked with addressing governance challenges, such as coordination, mediating political interests, and strategy-setting. This article contributes to the discussion of forest governance by providing an alternative view of such constraints. Using the case of the Reducing Emissions from Deforestation and Forest Degradation (REDD+) program in Indonesia, we examine the institutionalization process of the climate agenda in the forestry sector and how it influences forest governance transformation. We argue that the climate agenda has been institutionalized in Indonesia’s forest institutions by embedding climate objectives within the existing institution, a process known as layering. However, such assimilation of climate governance within the existing bureaucracy has arguably limited its transformative capacity. Despite the downsides, institutional layering has proved to be more resilient for long- term climate investment in a non-climate consensus country like Indonesia. We highlight the importance of examining the domestic political setting for explaining the institutionalization process of climate objectives. The interplay between politics and institutions provides a critical lens for understanding limitations to the transformative capacities of forest governance over time.