Complex Use of Land and Water Resources in Luwu, South Sulawesi, Indonesia
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AMBITION, REGULATION AND REALITY Promotor: Prof. Dr Franz von Benda-Beckmann Hoogleraar recht, meer in het bijzonder van het agrarisch recht van de niet-westerse gebieden, Wageningen Universiteit Promotiecommissie: Prof. Dr Frans Hüsken, Katholieke Universiteit Nijmegen Dr Peter Mollinga, Wageningen Universiteit Dr Philip Quarles van Ufford, Vrije Universiteit van Amsterdam Prof. Dr Leontine Visser, Wageningen Universiteit Ambition, Regulation and Reality Complex use of land and water resources in Luwu, South Sulawesi, Indonesia Dik Roth Proefschrift ter verkrijging van de graad van doctor op gezag van de rector magnificus van Wageningen Universiteit, Prof dr ir L. Speelman in het openbaar te verdedigen op vrijdag 14 november 2003 des namiddags om 13.30 in de Aula © Dik Roth, 2003 Ambition, Regulation and Reality. Complex Use of Land and Water Resources in Luwu, South Sulawesi, Indonesia All rights reserved. No part of this publication may be reproduced, stored in a retrieval system of any nature, or transmitted in any form or by any means, electronic, mechanical, photocopying, recording or otherwise, included a complete or partial transcription, without the prior permission in writing by the author. ISBN 90-5808-878-2 Table of Contents Preface and acknowledgements I Glossary, abbreviations and acronyms III Introduction 1 1. Presidents come and go ... 1 2. The regional setting: Luwu 4 3. Legal complexity in the exploitation and management of natural resources 5 4. The main themes of this book 5 5. Structure of the book 12 Chapter 1 The complexities of development 13 1. The hidden normative and legal dimensions of development 13 2. Development: from solution to problem 15 3. Legal complexity 18 4. Debates about resource use and management: continuity and change 23 5. Analyzing complex resource use settings 27 6. Complex resource use in Luwu: approaching the case studies in this book 29 Chapter 2 Land and water in Luwu 35 1. The New Order context of development in Luwu 35 2. Luwu: from kingdom to ‘Miniature Garden’ 37 3. Modernizing land tenure: the limits of state intervention 48 4. Diversity in uniformity: irrigation development in Luwu 54 5. Land and water in Luwu: questions for research 60 Chapter 3 Lebensraum in Luwu: emergent identity, migration and access to land 63 1. Resources, identity and boundaries 63 2. The colonial construction of Toraja identity 65 3. Lebensraum politics: Toraja migration to lowland Luwu 70 4. Politics of identity: the struggle for new political-administrative boundaries 75 5. The Makula agreement and LUTAT affair 82 6. Luwu and Tana Toraja: emergent identity, migration and access to land 91 Chapter 4 The Pompengan Implementation Project: from civil - to socio-legal engineering 95 1. PIP: an irrigation project in the North Luwu Plain 95 2. The Pompengan area: a short history of land tenure, land use and settlement 97 3. A project without beneficiaries 105 4. Turning problems into promises: PIADP 109 5. From PIP to PIADP: simple solutions for complex problems 116 Chapter 5 Limits and limitations of socio-legal engineering: the PIADP land reform and settlement programme 117 1. First impressions of a project 117 2. The beginning: the Sinangkala pilot project 118 3. Land redistribution in Seriti 125 4. Land redistribution in the Salu Jambu and Rongkong areas 136 5. Taking the lead: the special team for conflict solution 141 6. The end: back to project routines 147 Chapter 6 ‘Back to normal’: administrative order and chronic land conflict 149 1. ‘Back to normal’ 149 2. Sinangkala: winning and losing 152 3. Seriti: ‘as long as peace is kept’ 158 4. Salu Jambu and Rongkong: the strength of initial land claims 163 5. The heritage of PIADP: coping with land conflict and tenure insecurity 169 6. PIADP: ambitions of legal regulation, growing complexity and human agency 172 Chapter 7 Kertoraharjo: a Balinese settlement in Luwu 179 1. Entering a Balinese village world 179 2. Kertoraharjo Village 180 3. The early years of settlement 184 4. Competition for land resources 191 5. Multiple administrative and regulatory spaces and arrangements 195 6. Multiple areas of origin: adat differences and local power struggle 203 7. Kertoraharjo: from transmigration settlement to Balinese village in Sulawesi 205 Chapter 8 Land in Kertoraharjo: social differentiation and agricultural diversification 207 1. A village in flux 207 2. Making a living in Kertoraharjo: an overview 208 3. The agricultural basis: irrigated rice farming and cocoa cultivation 211 4. Kertoraharjo land tenure: development and current situation 219 5. Expansion, diversification, differentiation 232 Chapter 9 The hybrid world of subak 235 1. A subak meeting in Kertoraharjo 235 2. The establishment of subak in Kertoraharjo 237 3. Restricting subak: the establishment of TUs and WUAs 240 4. Pekaseh and subak now 244 5. The contested subak: multiple spatial definitions of subak authority 252 6. The hybrid world of subak 261 Chapter 10 The hybrid world of the tertiary unit 263 1. Observations in a Balinese tertiary unit 263 2. Balinese tertiary units and the Kalaena system 265 3. Tertiary units in Kertoraharjo 268 4. Entering through the back door: subak inside the tertiary units 273 5. The hybrid world of the tertiary unit 288 6. Land and water resources in a Balinese transmigrant settlement in Luwu 292 Chapter 11 Luwu: complex regulation in a changing world 299 1. Three cases of complex regulation of natural resource use 299 2. Ambition, regulation and reality: the complexities of development 300 3. Regulation of land and water resources 303 4. Epilogue: Luwu: from New Order to which order? 307 Bibliography 313 Summary in Dutch 333 Maps and figures Map 1 : Indonesia, Sulawesi, Luwu and the research locations 3 Map 2 : colonial classifications of Toraja groups and current administrative boundaries 67 Map 3 : the area of PIP and PIADP 96 Map 4 : land redistribution and settlement in PIADP for an example tertiary unit (TU R1) 114 Map 5 : the use of land registration to manipulate selection for the land reform programme 120 Map 6 : post-project land conflicts and claims on the home yards in tertiary unit D1 155 Map 7 : Kertoraharjo and the Kalaena area 181 Map 8 : administrative spaces and boundaries in Kertoraharjo 185 Figure 1: quaternary water division box, temuku, and use of a wooden temuku 276 Map 9 : changes in infrastructure and farmers’ organization in TU PS3 279 Boxes and tables Box 1: criteria for the selection of beneficiaries of PIADP 112 Box 2: background of transmigrants in Kertoraharjo 188 Box 3: spontaneous migrants in Kertoraharjo 190 Box 4: prani ladang 202 Box 5: basic data on rice cultivation for 32 sample farmers 213 Box 6: irrigated agriculture: labour inputs, expenses and product prices 215 Box 7: the story of a successful Balinese cocoa farmer 218 Box 8: expansion of cocoa gardening into Meko, Central Sulawesi: two cases 226 Box 9: Kertoraharjo pekaseh regulations 245 Box 10: basic data and regulations of subak Utus Sari 247 Box 11: major rituals and ceremonies associated with rice cultivation 249 Box 12: the subak in Alam Buana 260 Box 13: water control and organization in a degraded tertiary unit 272 Box 14: conditions of tertiary infrastructure for irrigation in tertiary unit PS3 275 Box 15: new WUA regulations of tertiary unit PS3 282 Box 16: conditions of tertiary infrastructure for irrigation in tertiary unit KL1ki 285 Box 17: a farmers’ group in KL1ki 287 Table 1: total landownership for families on 239 home yards 221 Table 2: landownership and the three status categories 222 Table 3: farming choices for 239 families according to status categories 223 Table 4: Kertoraharjo land purchases in four zones around Kertoraharjo 224 Table 5: Kertoraharjo land purchases by year categories and main zones 225 Table 6: sharecropping and (total) landownership for three status groups of farmers 228 Table 7: pawning and (total) landownership for three status groups of farmers 231 Table 8: basic data about the four subaks of Kertoraharjo 238 Table 9: WUAs with Kertoraharjo farmers 269 I Preface and acknowledgements The subject matter of this book covers an engagement with Luwu District in South Sulawesi that started early in 1989. In that year I moved to Sulawesi to take up a position as adviser for the land reform and settlement programme of the Pompengan Integrated Area Development Project (PIADP), a bilateral Indonesian-Dutch rural development project. Since then, returning to Luwu, smelling the peculiar mix of flavours of sago, fish, drying cocoa and cloves characteristic of the area, and meeting again with friends and acquaintances feels like coming home. Writing these final words is like closing a door behind me, with the hope of returning once in the future to reopen it. My research was part of the research project ‘Legal Complexity, Ecological Sustainability and Social Security in the Management of Land and Water Resources in Indonesia’, financed by KNAW (Royal Dutch Academy of Sciences). An additional short visit to Indonesia was funded by NWO (Netherlands Organization for Scientific Research), for which I am grateful. Special thanks are due to the other researchers in the programme, Renske Biezeveld, Arie Brouwer, and Juliette Koning, as well as to Keebet von Benda-Beckmann. Our discussions have substantially contributed to the shaping of this book. I also wish to thank all former and current members of the Law and Governance Group of Wageningen University for their comments on parts of this book. I am grateful to Bernd van der Meulen for allowing me some writing time to finish this job. Articles on the themes of this book have been published earlier, and discussed as workshop or conference papers in the initial stages of writing. A paper on the regional history of Luwu and Tana Toraja, with a focus on ethnic identity, was presented at the 1999 conference ‘Hinduism in modern Indonesia’ convened by Martin Ramstedt.