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The Decentralization of Forest Governance ES DFG 6-10 8/10/08 17:03 Page Ii ES_DFG_6-10 8/10/08 17:03 Page i The Decentralization of Forest Governance ES_DFG_6-10 8/10/08 17:03 Page ii The Earthscan Forest Library Series Editor: Jeffrey A. Sayer The Decentralization of Forest Governance: Politics, Economics and the Fight for Control of Forests in Indonesian Borneo Moira Moeliono, Eva Wollenberg and Godwin Limberg The Forest Certification Handbook 2nd edition Ruth Nussbaum and Markku Simula The Forest Landscape Restoration Handbook Jennifer Rietbergen-McCracken, Stewart Maginnis and Alastair Sarre (eds) Forest Quality:Assessing Forests at a Landscape Scale Nigel Dudley, Rodolphe Schlaepfer, Jean-Paul Jeanrenaud, William Jackson and Sue Stolton Forests in Landscapes: Ecosystem Approaches to Sustainability Jeffrey A. Sayer and Stewart Maginnis (eds) Forests, People and Power:The Political Ecology of Reform in South Asia Oliver Springate-Baginski and Piers Blaikie (eds) Illegal Logging: Law Enforcement, Livelihood and the Timber Trade Luca Tacconi (ed) Lessons from Forest Decentralization: Money, Justice and the Quest for Good Governance in Asia-Pacific Carol J. Pierce Colfer, Ganga Ram Dahal and Doris Capistrano (eds) Logjam: Deforestation and the Crisis of Global Governance David Humphreys Plantations, Privatization, Poverty and Power: Changing Ownership and Management of State Forests Mike Garforth and James Mayers (eds) Policy that Works for Forests and People: Real Prospects for Governance and Livelihoods James Mayers and Stephen Bass The Politics of Decentralization: Forests, Power and People Carol J. Pierce Colfer and Doris Capistrano The Sustainable Forestry Handbook 2nd edition Sophie Higman, James Mayers, Stephen Bass, Neil Judd and Ruth Nussbaum ES_DFG_6-10 8/10/08 17:03 Page iii The Decentralization of Forest Governance Politics, Economics and the Fight for Control of Forests in Indonesian Borneo Edited by Moira Moeliono, Eva Wollenberg and Godwin Limberg London • Sterling,VA ES_DFG_6-10 8/10/08 17:03 Page iv First published by Earthscan in the UK and USA in 2009 Copyright © Moira Moeliono, Eva Wollenberg and Godwin Limberg, 2009 All rights reserved ISBN-13: 978-1-84407- 586-7 Typeset by MapSet Ltd, Gateshead, UK Printed and bound in the UK by Cromwell Press,Trowbridge Cover design by Susanne Harris For a full list of publications please contact: Earthscan Dunstan House 14a St Cross St London, EC1N 8XA, UK Tel: +44 (0)20 7841 1930 Fax: +44 (0)20 7242 1474 Email: [email protected] Web: www.earthscan.co.uk 22883 Quicksilver Drive, Sterling,VA 20166-2012, USA Earthscan publishes in association with the International Institute for Environment and Development A catalogue record for this book is available from the British Library Library of Congress Cataloging-in-Publication Data The decentralization of forest governance : politics, economics and the fight for control of forests in Indonesian Borneo / edited by Moira Moeliono, Eva Wollenberg and Godwin Limberg. p. cm. ISBN 978-1-84407-586-7 (hardback) 1. Forest policy–Indonesia–Malinau. 2. Forest management–Indonesia–Malinau. 3. Logging–Indonesia–Malinau. I. Moeliono, Moira M. M. II.Wollenberg, Eva. III. Limberg, Godwin. IV.Title: Politics, economics and the fight for control of forests in Indonesian Borneo. SD657.I5D435 2008 333.7509598'3–dc22 2008017439 The paper used for this book is FSC-certified. FSC (the Forest Stewardship Council) is an international network to promote responsible management of the world’s forests. ES_DFG_6-10 8/10/08 17:03 Page v Contents List of Figures,Tables and Boxes ix List of Contributors xiii Introduction xv List of Acronyms and Abbreviations xix Part I Theoretical and Contextual Background 1 Between State and Society: Decentralization in Indonesia 3 Eva Wollenberg, Moira Moeliono and Godwin Limberg States and societies 3 Decentralization 4 Indonesia’s transformation 7 2 The Geography of Malinau 25 Moira Moeliono and Godwin Limberg Topography, soils and climate 26 The forest resources of Malinau 28 A short history 30 People and conflict 32 Livelihoods 34 3 The Cultural Politics of Collaboration to Control and Access Forest Resources in Malinau, East Kalimantan 43 Steve Rhee Introduction 43 Brief history of interethnic relations in Malinau 44 Stakeholders or identities in the district of Malinau 45 District government as a microcosm of broader ethnic tensions and power struggles 50 District government initiatives to consolidate control and power: Bringing government closer to keep people farther away 51 Villagers’ relations to district government: Access and accountability couched in networks of patronage 53 Conclusions 54 ES_DFG_6-10 8/10/08 17:03 Page vi vi The Decentralization of Forest Governance 4 Biodiversity, Landscapes and Livelihoods: A Local Perspective 61 Douglas Sheil, Miriam van Heist, Nining Liswanti, Imam Basuki, Meilinda Wan,with the help of the people of Paya Seturan, Long Lake, Punan Rian, Langap, Laban Nyarit, Long Jalan, Liu Mutai and Gong Solok The need for conservation in Borneo 61 The need to gauge local perceptions 62 Local perceptions 66 The importance of plants 73 The importance of the forest 75 A closer look at the respective value categories 76 On plantation developments 83 Local choices for local actions 84 Conclusions 85 Part II Small-scale Timber Harvesting in Malinau 5 Impact of Small Timber Harvest Permits on Villages in the Malinau Watershed 91 Godwin Limberg Development of IPPK in the Malinau watershed 91 What did villages get out of it? 95 What lessons have been learned? 103 What does this mean for the future? 106 6 Who, How and for What? Negotiations and Outcomes from IPPK Agreements between Communities and Brokers in Malinau 109 Charles Palmer Research methods 110 The organization of negotiation in Malinau 110 Themes in the organization of negotiations 112 Negotiated outcomes:What were the communities negotiating for? 125 Actual outcomes from IPPK agreements 128 Discussion 130 Conclusions 133 7 The Effect of IPPKs on Household Livelihoods in Malinau District, East Kalimantan 139 Kewin Kamelarczyk and Uffe Strandby Introduction 139 Study locations 141 Research methods 144 Discussion 159 Conclusions 168 ES_DFG_6-10 8/10/08 17:03 Page vii Contents vii 8 A Comparison of Damage Due to Logging under Different Forms of Resource Access in East Kalimantan, Indonesia 173 Haris Iskandar, Laura K. Snook,Takeshi Toma,Kenneth G. MacDicken and Markku Kanninen Introduction 173 Study sites 174 Methods 176 Results 177 Discussion 184 Conclusions 189 9 Tane’Olen as an Alternative for Forest Management: Further Developments in Setulang village, East Kalimantan 193 Ramses Iwan and Godwin Limberg Setulang village 193 Development of the Tane’Olen 194 How the villagers fought for Tane’Olen 195 New developments around the Tane’Olen 201 Part III Other Developments Driven by Decentralization 10 Winners Take All: Understanding Forest Conflict in the Era of Decentralization in Indonesia 207 Made Sudana Introduction 207 Methodology 208 Conflict before and after decentralization 208 General patterns 213 The role of local government 214 Conflict analysis 216 Uncertain claims 217 Conclusions 218 11 Tenure and Adat in Malinau 221 Moira Moeliono and Godwin Limberg The national and legal context 222 De facto land tenure and the role of adat 224 Land-use planning 229 The Punan of Malinau and claims to land 232 Conclusions: Disconnects of policy 233 ES_DFG_6-10 8/10/08 17:03 Page viii viii The Decentralization of Forest Governance 12 The Realpolitik of Village Representation and Participation 241 Eva Wollenberg Introduction 241 The contradictions of representation and participation 242 Decentralization policies 245 Representation and participation in practice 246 Conclusions 258 13 New Experiments Shaping Government and Society Interactions 263 Moira Moeliono and Godwin Limberg Local government in Malinau and incentives to address poverty 264 From timber harvest (IPPK) to sustainable forest management? 269 Conservation district 271 Agreements 275 Conclusions 276 14 Riding the Rapids: Synthesis and Conclusion 281 Eva Wollenberg, Moira Moeliono and Godwin Limberg Emerging local political orders 282 Impacts upon marginalized groups 287 Impacts upon forest management and the forest 293 Looking forward 296 Index 299 ES_DFG_6-10 8/10/08 17:03 Page ix List of Figures,Tables and Boxes Figures 1.1 The structure of forest administration before decentralization 13 2.1 Administrative map of Malinau 26 2.2 Location of the 27 villages of the upper Malinau River 27 2.3 Distribution of ethnic groups in Malinau 33 2.4 Average household income (million rupiah per year) 35 2.5 In 2004, the government moved to the new office complex, depicted here 39 4.1 Distribution of samples by eight summary site-type classes 65 4.2 Map of sample locations, by type and community 73 4.3 Total number of specific species uses recorded, by value category 74 4.4 Total proportion of useful species plotted by sample type and ethnicity of the informants 74 4.5 The proportion of useful species plotted against overall species count 75 5.1 Location of the 27 villages of the upper Malinau River 93 6.1 Promised and actual fees paid for the first IPPK agreements reviewed in Malinau 127 7.1 Percentage allocation of pair-wise ranking of income-generating activities:The percentage indicates how often an income activity was considered highest relative to the total number of comparisons/ pair-wise rankings 146 7.2 Frequency of income activities represented in pair-wise rankings (relative availability) and the relative importance of income size: All three
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