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Thank you for your comment and for introducing this 'institutional creativity' perspective.
I may want to add that in this context the guidelines didn't really limited the range of stakeholders to be included in the WMOs, on the contrary, the guidelines were very inclusive and considered that everyone in the community should be member and involved in water management. I then quite agree that communities should be allowed to decide themselves who will manage their natural resources; one step further I would say that some communities already decided and made their choices between the different institutions available; in that sense we observed that in many cases communities refer to UPs when they face problems.
Finally, we have to be careful when we consider 'communities' in Bangladesh, and especially if more decision making power is given to these communities. Indeed, what we call a community is far from being a homogeneous group, mechanisms of exclusion/self-exclusion are common and we should always wonder who is in/out and who really holds the decision power.