Federalism and Policy Implementation: A Case Study of Malaysia's Central Forest Spine Policy

Abstract

Malaysia’s biodiversity standing is significant to the country and the world. Regardless of its importance and the increased efforts to save its biodiversity through forest and wildlife conservation, implementation of the Central Forest Spine (CFS) policy remains a challenge. Though it is a comprehensive and seemingly inclusive federal policy, a variation in implementation outcomes exists among states involved. Many implementers acknowledge a stand-off between the federal and state governments, blaming it on characteristics of federalism and its challenges of policy implementation. This research aims to understand factors that have influenced the implementation of the CFS in some states and not others, and to what extent the federal nature of Malaysia plays a part in explaining policy success or failure. To understand the variation in policy outcomes, I used a theory inspired by the policy network analysis. Using the contextual interaction theory (CIT), I observed the influence of formal and informal powers, availability and quality of information and agencies’ motivation vested in each implementing entity. In doing so, this study also identified veto players, implementing officials and actors as well as target groups across federal and state levels. The findings of this study reveal that the Malaysia’s federal structure does highly influence the Central Forest Spine policy implementation. The formal and informal powers of federal and state implementers do play a significant role in ensuring implementation success. Additionally, Sultans have informal but visible powers in ensuring conservation and preservation activities are undertaken, championed or advocated for. The magnitude of power they hold and practice, despite the descriptions in the Constitution, is demonstrated through their lifestyle and demands. I also conclude that intergovernmental relations are highly dependent on inter-party relations, while the same political parties at federal and state levels find a way to resolve their differences. This study also contributes to two theoretical bodies of knowledge: federalism and policy implementation. A key finding of my research is that contrary to the literature’s emphasis on constitutional power, it is informal powers in Malaysian federalism that influenced CFS policy implementation success. Malaysian federalism demonstrates overlaps in the forestry, wildlife and environmental protection domain although the constitution describes separation of powers and these powers are assigned to states. Furthermore, Malaysia’s environmental governance and policy sector indicates a decentralisation in spite of literature indicating a centralisation or consolidation of powers for other domains, especially finances. The policy implementation mechanism practices in Malaysia are still largely top-down despite the policies requiring active participation from front line implementers to ensure success, especially in the environmental policy area. Unlike the Western representation on how the role of street-level bureaucrats is significant to the success or failure of policy implementation, the actors involved in the environmental policy sector in Malaysia do not play an extensive role. Rather, the policy implementation outcome is determined by the political pay masters of the implementers involved.