Advances in Social Science, Education and Humanities Research, volume 167 First International Conference on Administrative Science, Policy and Governance Studies (1st ICAS-PGS 2017) Second International Conference on Business Administration and Policy (2nd ICBAP 2017)

The Management of National Park Through the Multi Stakeholder Partnership

Humphrey Wangke School of Environmental Sciences, Universitas Jakarta, Indonesia Email: [email protected]

Abstract--The illegal logging and the encroachment National Park’s forest that have rich biodiversity in the is not only have impacts which would be useful in order to achieve on the loss of biodiversity of flora and fauna but sustainable development post 2015 such as poverty also cause the ecological losses. The governance of reduction, the availability of employment, nutrition partnership managed by the Kutai National Park and clean drinking water. It is believed that this Management through the establishment of Mitra partnership will not only enhance the people’s sense Kutai has not succeed in reducing the threat of forest of belonging to the park but also deal with the destruction in Kutai National Park. By do not problem of poor law enforcement and the involving the stakeholders in the management of Indonesian government’s lack of contributions in Kutai National Park have caused the failure of the the conservation of the park. The efforts to find the partnership. In partnership, Kutai National Park right solutions to address the global environmental Authority and local communities should become issues such as loss of biodiversity, the illegal key actors in management, assisted and supported logging, and the natural disasters are now its time to by district governments, corporations, and be implemented in Kutai National Park. NGOs.Through the qualitative method, the research found an idea to renewing the form of partnership to Keywords-- Multistakeholder Partnership; managing the Kutai National Park by involving Kutai National Park, Biodiversity; Illegal Logging; more stakeholders in the partnership that will be Governance; Collaborative. formed formally. The engagement of multi stakeholder in this matter expected to save the Kutai

I. INTRODUCTION parties in planning, implementation and evaluation. Therefore, the collaborative The collaborative approach is essential management is an effort to give positive in the management of the conservation area impact on the welfare of local community because it requires not only the local living in the conservation area. community involvement but also requires In the Regulation of the Minister of the capacity of the conservation’s expertise, Forestry (Permenhut) No. 19 Year 2004, the companies and the government [1]. The meaning of the collaborative management is involvement of various parties cannot be the implementation of an activity or separated from the necessity to increase the handling a problem in order to improve the local communnity’s capacity in conserving effectiveness of the management of the area the biodiversity of the conservation area. collectively and synergistically by the One thing that also essential to be noticed in parties based on the mutual understanding this collaborative conservation effort are the and consensus. The collaborative equality and justice principle among the management is required in order to address

Copyright © 2017, the Authors. Published by Atlantis Press. This is an open access article under the CC BY-NC license (http://creativecommons.org/licenses/by-nc/4.0/). 322 Advances in Social Science, Education and Humanities Research, volume 167

the protracted issues on a conservation area The conflict between Kutai National such as a national park. Mostly the Park Authority and the East Kutai District conservation areas in Indonesia are under Government occurred because of the district pressure due to three major threats, as follow government often felt burdened by the claims and occupations by local community, national park existence in its territory [2]. the industrial encroachment and the The lack of understanding from local competency conflicts between the central communities and district governments on and local governments over the natural the importance of the forest conservation for resources [2]. This conditions also happened the future of human beings become the on the management of conservation areas in obstacle on the sustainable management of Kutai National Park [3]. Kutai National Park. The errors on the forest The occupation by the local community utilization occur in various forms such as becomes inevitable because of very high neglecting the egulations, apply corruption’s dependant on land and forest products in practice, abuse of power, illegal logging Kutai National Park (KNP), which have including trading the wild forest’s products. been done illegally. One of the driving Another error mistake is also in the form of factors for the high level of dependant on illegal forest conversion for other utilization Kutai National Park and and forest products commonly known as deforestation or is because the majority of local community activities that resulting forest destruction or are poorly educated, so that the variety of known as forest degradation. work that can be done is also very limited. In order to overcome the limitations on The local community in Kutai National Park the management of national park, one of the only understand cultivating and farming. policy carried on by the government is The economic condition of local through partnership, which is through the communities lived under the poverty line, Minister of Forestry Regulation which threathning the forests and No.P.19/Menhut-II/2004 in regard to the biodiversity in Kutai National Park. Collaboration of Nature Conservation Area Until the 1970’s local community collect Management (Kawasan Suaka Alam) and timber from Kutai National Park’s forest Nature Conservation Area (Kawasan areas in limited numbers. However, entering Perlindungan Alam). Through the the 1970’s when the state began massively collaboration, the management of Kutai exploiting the forests around Kutai National National Park is not solely carried out by the Park, known as the “banjir kap” means Kutai National Park’s Management as an transporting timber through the river, local institution that have been given communities began to exploit the situation management’s mandated but by involving by taking large quantities of timber from stakeholders that have concerns to Kutai Kutai National Park’s illegally. Being National Park in order to achieve the concerned that Kutai National Park would management objectives. The developed idea be more damaged if the illegal logging are in order to optimize the management of lefted, a Forest Protection and Nature Kutai National Park is by establishing Conservation officer at that time, Mr. Saleh partnerships with the companies around Juta directed which land in Kutai National Kutai National Park which is incorporated in Park could be worked on by the community. Mitra Kutai National Park. This mislead habit carried on even though However, the overall partnership the Kutai Wildlife Sanctuary changed its between the Kutai National Park Authority name to Kutai National Park in 1995. and the Mitra Kutai National Park appears

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not yet able to improve the management of enforcement, and multistakeholder Kutai National Park. This can be seen from partnerships. While the secondary data the increasing number of forest destruction obtained through literature and document in Kutai National Park. According to data studies. The data that obtained were from the Kutai National Park Authority, in analyzed using qualitative data analysis 2009 the forests’s damages in Kutai technique that describing a problem based National Park has reached the number 20% on the facts. from the total area with the range of damage The determination of the informant area reached 1,125.1 hectares/year. The research was conduct intendedly and increasing number of forest degradation is partially through snowball sampling caused by the rampant of illegal logging and technique that following the informant's the encroachment activities. previous information in order to determine Deforestation and forest degradation the next informant [4, 5]. The research ultimately have a negative impact on involved 60 informants from the livelihoods and community welfare, superstructure and infrastructure.1 The key therefore, compliance with the law and good informants of this research are Head of governance needs to be taken seriously by Kutai National Park, South Sangatta all stakeholders in Kutai National Park. The Subdistrict and Teluk Pandan Subdistrict, frail of community compliance with forestry the Head of Village in both subdistricts. The matters and governance arrangements must other informants are local communities who be addressed through a mutual live inside the Kutai National Park. understanding of the sustainable forest Validation or the validity testing of data management. The compliance with the law conduct by triangulation of sources and and forest good governance are essential for methods. The triangulation of the source is country and communities that its livelihoods conduct by checking the data to other data depend on forests. sources. The other triangulation method is With this kind of background, this paper conduct by interview, followed through by will analyze how the management of Kutai the checking with observation, and National Park through the multi stakeholder documentation [4]. partnership should be done so the utilization can be sustainable? III. RESULT

II. METHOD A study conducted by [6], state that the conservation areas are still urgently needed This research using qualitative approach due to several considerations: first, most of by taking location in Kutai National Park, national parks in the world adequately are East Kutai , East not large enough to sustain rare species Province. The type of data that used is the populations. Many protected areas in the primary data obtained through interviews world are smaller than 10,000 hectares 143 and field observations for two months period or approximatelyt 80% of the total protected from December 2014 until January 2015. The informants in this research were made 1 The Suprastructures circle are government officials up of government officials, NGOs, consist of Minister of Forestry, District Government, companies and local communities. The data Environment Agency, Forestry Agency, TNK, Kodim 0808 Sangatta, Sangatta District Police, collected is related to the problem of Sangatta State Attorney, Sangatta District Court, managing Kutai National Park, law Head of Sub-District and Head of Village. While the infrastructure is a local community.

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areas in the world are in the IUCN I-VI [3]. Kutai National Park is one of the category. Smaller parks own significant conservation areas that faced a very complex local interest, but the research results show problem since its formation in 1995. The that only 10,000 ha of parks own the Kutai National Park authority is established potential to slowing down the long-term along with the establishment of Kutai species loss. Second, many endemic sites National Park inherits a very complicated with high species richness have no legal issue that potentially destroys the national protection, and the pressure of the land park. conversion, especially for agriculture, are From the field’s observation the biggest increases. problem inheritance faced by Kutai National In line with the statement of [6], the Park are illegal logging, conversion of land, formation of Kutai National Park are and land ownership demands by the local inseparable from the characteristics of the communities. The presence of the local forest area, which are: 1. The wide of the communities in the Kutai National Park area area nearly 200.000 hectares, 2. Having that occurred prior to the establishment of unique and particular characteristic natural Kutai National Park becaming the emerging resources of flora and fauna, ecosystems and of the problem. The management of Kutai natural phenomenon are still intact, 3. One National Park became more complicated or several ecosystems inside the core zone when in 1997, the formed East Kutai there are materially have not changed due to Regency did not support the Kutai National the human exploitation and occupation, 4. Park conservation policy by the central Kutai National Park is still possible to be government. This condition encouraged the developed as a natural tourist attraction for arise of conflicts of interest involving Kutai the public with the purpose of recreation, National Park Authority as the manager with education and cultural. The above the local communities and the district mentioned 4 features of Kutai National Park government of East Kutai. are met the requirements of the International The development of Kutai National Park Union for Conservation of Nature (IUCN) is not only obstracted by the local for the establishment of a national park. communities and the East Kutai district Even so the Kutai National Park has other government that do not support the advantages which is located in the lowlands conservation, but also because of its own and the widening shape along the equator less strategic position. The Kutai National lines with range from the coast of the Strait Park area is surrounded by the centers of of Makasar toward the west approximately economic and urban growth resulting from 60 kilometers. Through the establishment of the policy of regional expansion of Kutai National Park, the protection and the and East Kutai Adminstrative cities, also preservation of types of ecosystems, flora surrounded by the natural resources and fauna species inside the national park extraction companies such as oil and gas can be conduct in a sustainable manner so mining, coal mining and forestry companies that the utilization of the welfare of the local such as Forest Concession Right (Hak community must be conducted in a Pengusahaan Hutan) and industrial controlled manner. Plantation Forest (Hutan Tanaman Industri). Although the conservation areas are still Based on the RAPPAM (Rapid needed but the effectiveness of national park Assessment and Prioritisation of Protected management is still questionable by many Area Management) Report on 2005, as parties [7], including in Kutai National Park quoted by [8], Kutai National Park becomes

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a conservation area with the highest level of Mitra Kutai, a collaboration between Kutai threat and pressure among 40 (forty) National Park Authority and 9 (nine) national parks in Indonesia. Whereas, the extraction companies located around the Kutai National Park has a very high richness KNP area. All of 9 (nine) mining companies of biodiversity and therefore it has a very are as follow PT Pertamina, PT Badak NGL crucial role for the achievement of various (PT BNGL), PT Surya Hutani Jaya (PT goals or objectives in the Sustainable SHJ), and PT Kaltim Prima Coal (PT KPC), Development Goal’s such as poverty PT Indominco Mandiri (PT IM), PT Pupuk reduction, the availability of employment, Kaltim (PT PKT), PT Kaltim Parna Industri nutrition and clean drinking water. As a (PT KPI), PT. Kaltim Methanol Industri (PT lowland tropical rain forest, the Kutai KMI) and PT Pama Persada Nusantara (PT National Park has 1.148 species of identified PAMA). The establishment of the flora, 80 species of mammals, which 22 cooperation is intended to assist the Kutai species are protected, 368 species of birds National Park Authotity in the management and 2.000 . The Kutai National of the Kutai National Park. Park is also a habitat for crocodiles, honey However, in its implementation, the bears, and tree leopards. The illegal logging bipartite collaboration between the Kutai and the encroachment in the Kutai National National Park Authority and Mitra Kutai has Park is not only have impacts on the loss of not been able to improve the performance of biodiversity of flora and fauna but also Kutai National Park management. The cause the ecological losses. indication that can be used here is the high The ecological value of Kutai National level of illegal logging and land function Park is remarkable. One hectare of the forest conversion. According to Saparudin from is estimated to produce 0.6 million oxygen the NGO Bina Kelola Lingkungan (Bikal), consumed by 1,500 inhabitants per day in the failure of the collaboration is due to the order to well breathe of relief. 1 hectare of Mitra Kutai only acts as financial the forest will dump 2.5 tons of CO2 per contributors but not involve in the year from the atmosphere or 6 kilograms of management (Interview in Bontang dated th CO2 per cigarette per year. The forest also in 23 of December, 2014). Meanwhile [3] store 900 cubic meters of groundwater and mentioned that, the members of Mitra Kutai able to lower the temperature between 5-8 have experienced the saturation due the degrees Celsius. If the KNP is depleted, its programs activity are not conduct ecological losses are too high [9]. The KNP continuously and not intended to overcome required to support economic development the basic problems in Kutai National Park. through its ecological functions, is However, considering the real conditions particularly vulnerable to the exploitation of in the field, the source of the problem lies in forest resources along with the increasing the un-involvement of the local communities need for the resources to improve the in the management of the Kutai National economic growth of local communities and Park. Similar with local communities, local governments. practically there are no NGOs, both domestic and abroad are involved in the IV. DISCUSSION management of Kutai National Park. As a result, the ability of the Kutai National Park In carry out the management of Kutai to communicate the indirect values of the National Park, the Kutai National Park conservation activities to the local Authority has established which is known as communities is obstracted. For an example,

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about the the losses arising from the illegal National Park areas. For that purposed the logging or land clearing within the area, partnership should embrace all concerned losses incurred if the animals die, and losses parties for the future of Kutai National Park. from water pollution in the upstream area or The involvement of the local if the water storage capacity in the upstream communities is essential given the long- area decreases which cause the water flow standing local community in and around the decreases drastically. As revealed by the area before it is established. Therefore, by informants, the Kutai National Park eliminating local communities in the Authority never tells residents which areas management of the conservation areas is they allow to use, whilst, the borders of the unlikely impossible, considering their Kutai National Park in the local interaction, understanding and communities are seem unclear. dependencyce on the region are already too The lack of communication cause conflict high. The local community should be between the local communities and the considered an asset which its existence can Kutai National Park authority about the support the realization of the conservation status of the area and the possible activities area management. It is time for the state to conduct in the area. Poor communication build collaboration among the stakeholders quality also devitalise the inter-agency in order to manage the conservation area in a coordination within and around the Kutai sustainable and prosperous way for the local National Park as they work independently community. on the basis of their respective agency plans Based on observation and interview, the without any coordination. The management of Kutai National Park is still miscommunication occurs because the Kutai not optimal yet. Although the management National Park Authority practically works paradigm has shifted from a safeguard alone in managing the Kutai National Park. approach to a collaborative approach in The Mitra Kutai that formed, only function which emphasize on the participation of the as a financial contributions, not involved in parties through the partnership, the existing management. Similar with the local partnership is unable to cope with the communities. they have become escalation of the forest degradation. marginalized within the Kutai National Park According to [10], the public-private area. partnerships requires the collaboration in In order to reduce the communication order to be functioning, however, the goal is gap, the research findings that the only to achieve coordination and not to partnership that involving only two parties achieve the consensus decision-making. will be difficult to implement optimally. Therefore, the partnership in the national Although the companies incorporated in park management through should involve Mitra Kutai provide the financial the stakeholders in the decision-making, contributions to the management of Kutai including in planning, implementation and National Park but the condition of Kutai the assessment. National Park is not getting better. More To be able to implement the planning, widespread communication and implementation, evaluation program, then dissemination of and effective information the partnership should be formal. Each will increase the awareness and the stakeholder involved is a representative of a commitment of various stakeholders in order stakeholder who understands the importance to maintain the integrity and the of a conservation forest such as Kutai sustainability of the ecosystems within Kutai National Park. In partnership, Kutai

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National Park Authority and local the flora and fauna species that endangered communities become key actors in or vulnerable and shall be protected management, assisted and supported by (Endangered Species of Wild Fauna and district governments, corporations, and Flora) such as the Ulin Tree and the Orang NGOs. There are several objects that require Utan. The existence of Kutai National Park collective agreements for jointly designed is very pathetic, it is marked by logging and partnerships among stakeholders to be burning, the increasing number of people effective, such as national park governance, live therein, and many parties that threaten institutional establishment, land tenure, land the existence of Kutai National Park by and incentive restrictions, road access reducing the wide range of Kutai National diversion, land boundaries, law Park’s area. enforcement, and sustainability of Kutai The national park management paradigm National Park. In accordance with the theory which has been conduct all this time must be of sustainable development, the object of changed. The top-down approach practiced arrangement will focus on economic, social by Kutai National Park Authority have and ecological aspects. failed in order to bring forward the local The failure of Mitra Kutai in managing community’s initiatives and participation, the Kutai National Park provides an and also not accommodative to the needs of important lesson that National Park must the local communities. The top-down have a new approach that can be applied by approach in fact do not emphasize the local the Authority, the local community, and any communities’ capacity and the other other stakeholders who have concerns with stakeholders involved in environmental Kutai National Park as a managed object. management, so there is no sense of Until now, the paradigm that emerged in the ownership among those who involved. The community is the function of the Authority NGOs were also not found in Kutai National which is appear not more than as a object’s Park. guard, which will catch the local community Given the real conditions on the field, the if they tried to use Kutai National Park dominant role of the government should be without permission from the Kutai National reduced because it has created difficulties Park Authority. Kutai National Park for the development of sustainable Authority paradigm as a "watchdog" is management of the conservation areas. The already developed and attach to the people stakeholders’ interest in Kutai National who live and residence in the area of Kutai Park, such as local communities and local National Park. Even the local governments governments, the NGOs and the intellectuals seem to be unwilling to compromise with now it is time to involved in it, in order to the Kutai National Park Authority related to accommodate the actual interests and the condition of the local society in the conditions on the field, in accordance with region. Therefore, a new approach is the capacity of the stakeholders involved in required to address all the gaps that arise in it. the management of Kutai National Park. In line with the development of the In principle, Kutai National Park as a control and the management practices of Nature Conservation Area shall be national park, the function of Kutai National supported and conserved by the stakeholders Park Authority in several other national considering it has the economic and parks is already running in a new paradigm. ecological benefits. This is certainly related In some national parks, such as Bromo to the biodiversity contained in it, especially Tengger (BTS) and Alas Purwo,

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which the Authority formerly acting as a Development on 2002 in Johannesburg. “watchdog”, nowadays become consultants Since then, the partnership approach has which provide inputs in the form of been used to resolve problems related to the thoughts, ideas for the improvement of the natural resources such as health, the water exisxting system and give recommendation governance and the climate change. a solution of problem solving together with Referring to [1], in a partnership-based the government and the local communities. collaboration the parties involved are In order to carry out this role, the voluntarily will share the functions, rights authority has a nature as a characteristics and the responsibilities for conservation of catalyzer, providing the constructive the protected areas and associated resources suggestions that applicable for the progress [11]. On theory are explained the of the society, however remain independent governance of the partnership should be in carry out the operational activities in conduct formally by involving the safeguarding the national park. In this case, infrastructure’s party or the suprastrucuture the authority can be a strategic business which have the same purpose or objectives partner for the community, the company and [12]. Their involvement should be conduct the government, so the awareness of the start from planning, implementation and to community will arise by itself in regard to evaluation without neglecting the equality in the importance of the national park for them decision making. The local communities as well as bring a new job for them without who live around the Kutai National Park destroying the forest. should be the key person which expected to The efforts to find the right solutions to participate and give benefits from the address the global environmental issues such resources management. The partnership on as loss of biodiversity, the illegal logging, the conservation emphasized in the and the natural disasters are now its time to development of wildlife-based tourism, so be implemented in Kutai National Park. An the communities receive the benefits without innovative approach is required in order to damaging the Kutai National Park. resolve the environmental issues caused by From the field research shows that the human greed which stand against the whether the Kutai National Park authority, governance model whom controlled by the the local communities, the district state. The multi stakeholders partnership governments, the corporations and the between the government agencies, business NGOs strongly desire to work together in actors, the NGOs and the local communities order to solve problems in Kutai National it should be done in order to increase the Park. This kind of initiative has never been possibility of creating a safe space for done before by Kutai National Park human beings. authority. The existence of this strong desire The collaborative partnership is a step forward because the assumption of governance are expected to be more the equality in cooperation partnership has efficient, effective and inclusive. A bottom- never happened. Moreover, the government up multi stakeholder partnership is the through the Ministry of Forestry is aware the answer for maintaining and managing importance of th ecommunity involvement sustainable conservation areas. This in forestry development, especially related multistakeholder partnership has played an to the prevention of the illegal logging and important key role in order to implementing the forest encroachment since the end of the the sustainable development objectives since ’s era [13]. the World Conference on Sustainable

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Through the establishment of the [2] Moeliono, M. and Purwanto, E. 2008. A Park in collaborative relationship among the Crisis: Local Governance and National Policy. Paper presented at “Governing shared resources: stakeholders will facilitate the emerge of connecting local experience to global voluntary compliance. However, the challenges” Biennial Conference of the arrangements should be made clear and easy International Association for the Study of The to understand also related to the territory Commons, Cheltenham, England, July 14-18 borders which can be utilize by local 2008. [3] Falah, Faiqotul. (2013). Study on Collaborative communities should be clearly defined and Management Effectiveness of Kutai National mutually agreed on. The trained rangers Park (Kajian Efektivitas Pengelolaan with complete and highly motivated are Kolaboratif Taman Nasional Kutai), Jurnal essential to the national park's sustainability, Analisis Kebijakan Kehutanan), Vol. 10 No. 1, however the adequate governance must pp. 37 – 57. [4] Sugiyono. (2010). Memahami Penelitian ensure that penalties are applied and Kualitatif (Understanding Qualitative Research), consistently enforced. Alfabeta, Bandung [5] Irawan, Prasetya. (2006). Penelitian Kualitatif V. CONCLUSION dan Kuantitatif Untuk Ilmu-ilmu Sosial (Qualitative and Quantitative Research for Social Science). Departemen Ilmu Administrasi FISIP The multistakeholders partnership which UI, Depok. involving the stakeholders in the Kutai [6] Naughton-Treves, L., Holland, M.B., Brandon, K. National Park are become the solution to (2005). The Role Of Protected Areas in save the Kutai National Park from the Conserving Biodiversity and Sustaining Local destruction. The involvement of the Livelihoods. Annu. Rev. Environ. Resour, 30:219–52. Naughton-Treves, L., Holland, M.B., stakeholders the Kutai National Park’s Brandon, K. (2005). The Role Of Protected management, such as Kutai National Park Areas in Conserving Biodiversity and Sustaining Authority, NGOs, local communities, and Local Livelihoods. Annu. Rev. Environ. Resour, companies, start from the planning until the 30:219–52. evaluation will increase their sense of [7] Hayes, Tanya M. (2006). Parks, People, and Forest Protection: An Institutional Assessment of belonging and responsibility to save the the Effectiveness of Protected Areas, World Kutai National Park forest. Through the Development Vol. 34, No. 12, pp. 2064–2075. formal consent agreements, the stakeholders [8] Supriatna, J. (2008). Melestarikan Alam will share duties and responsibilities in Indonesia. Jakarta: Yayasan Obor Indonesia. accordance with their capacity. The [9] Kutai National Park. (2013). The lungs of the increasingly hollow world (Paru-paru dunia involvement of companies which is yang Berlubang), Kompas.com, 23 April, previously incorporated in Mitra Kutai is not accessed July 30, 2017. only a financial contributor but also involve [10] Ansell and Gash, Collaborative Governance in in the management of Kutai National Park. Theory and Practice, Journal of Public Administration Research and Theory, 2007, ppl. 544. REFERENCE [11] Nshimbi, Muleba and, Vinya, Royd. Impacts of Public-Private Partnership on Local Livelihoods [1] Borrini-Feyerabend, G. (1996). and Natural Resource Dynamics: Perceptions CollaborativeManagement of Protected Areas: from Eastern Zambia, Resources 2014, 3, pp. Tailoring the Approach to the Context. Gland 471-487. (Switzerland): Issues in Social Policy, [12] Brinkerhoff, Derick W., and Brinkerhoff, IUCN.Andrade, G. S. M., and J. R. Rhodes. Jennifer M. (2011). Public-Provate Partnerships: 2012. Protected areas and local communities: an Perspectives on Purposes, Publicness, and Good inevitablepartnership toward successful Governance, Public Administration and conservation strategies? Ecology and Society Development, 3, pp. 2-11. 17(4): 14.

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[13] Minister of Forestry Regulation No. P.39/Menhut-II/2013 on empowerment of local communities through partnership. (Peraturan Menteri Kehutanan nomor P.39/Menhut-II/2013 tentang pemberdayaan masyarakat setempat melalui kemitraan).

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