GOVERNING MANGROVES UNIQUE CHALLENGES FOR MANAGING INDONESIA’S COASTAL FORESTS JULY 2017 GOVERNING MANGROVES UNIQUE CHALLENGES FOR MANAGING INDONESIA’S COASTAL FORESTS Mani Ram Banjade Center for International Forestry Research (CIFOR) Nining Liswanti Center for International Forestry Research (CIFOR) Tuti Herawati Center for International Forestry Research (CIFOR) Forestry Research Development Agency (FORDA) Esther Mwangi Center for International Forestry Research (CIFOR) JULY 2017 This report is made possible by the generous support of the American people through the United States Agency for International Development (USAID). The contents of this report are the sole responsibility of its authors and do not necessarily reflect the views of USAID or the United States government. This publication was produced for review by the United States Agency for International Development by Tetra Tech, through a Task Order under the Strengthening Tenure and Resource Rights Indefinite Delivery, Indefinite Quantity (USAID Contract No. AID-OAA-TO-13-00016). Suggested Citation: Banjade, M.R., Liswanti, N., Herawati, T., & Mwangi, E. (2017). Governing mangroves: Unique challenges for managing Indonesia’s coastal forests. Bogor, Indonesia: CIFOR; Washington, DC: USAID Tenure and Global Climate Change Program. This report is available at: https://www.land-links.org/ www.cifor.org/library Prepared by: CIFOR for Tetra Tech Tetra Tech 159 Bank Street, Suite 300 Burlington, VT 05401 CIFOR Jl. CIFOR, Situ Gede Bogor Barat 16115 Indonesia Principal Contacts: Stephen Brooks Land Tenure and Resource Governance Advisor USAID Office of Land and Urban Bureau for Economic Growth, Education, and Environment [email protected] Matt Sommerville, Chief of Party [email protected] Cristina Alvarez, Project Manager [email protected] Megan Huth, Deputy Project Manager [email protected] Cover photo by Rio Ahmad/Blue Forests. Coastal Field School participants from Kurri Cadi, Maros, South Sulawesi discuss the results of a trend analysis in preparation for mangrove restoration activities. CONTENTS ACRONYMS & ABBREVIATIONS V ACKNOWLEDGMENTS VI EXECUTIVE SUMMARY VII 1 INTroducTION 1 2 METHodology 5 3 Mangrove Governance AND TENURE: NATIONAL POLICY AND LEGAL Framework 8 3.1 Government Agencies and Authorities Responsible for Mangrove Management 9 3.2 Legal and Policy Architecture for Mangrove Conservation and Management 9 4 Mangrove Governance AND TENURE IN PracTICE IN LAMPUNG Province 14 4.1 Status of Mangroves in Lampung Province 15 4.2 Government Sectoral Responsibilities over Mangroves 16 4.3 Village Site Selection 19 4.4 History and Motivation for Community-based Mangrove Management 19 4.5 Village-level Tenure and Property Regimes in Mangroves 19 4.6 Village-level Mangrove Management Institutions 22 4.7 Gender and Mangrove Governance 25 4.8 Collaborative Mangrove Management 27 4.9 Community Efforts at Mangrove Rehabilitation 27 5 OPPORTUNITIES AND CHALLENGES FOR THE Governance OF COASTAL Mangrove FORESTS 29 5.1 Overlapping Governmental Jurisdictions and Regulations 30 5.2 Rights Distribution and Tenure Security 30 5.3 Benefits Capture and Distribution 31 5.4 Coordination among Key Stakeholders for Mangrove Governance 32 5.5 Outcomes of Mangrove Rehabilitation Efforts in Study Sites 32 5.6 Gender Equality 33 5.7 Conflict Resolution 34 5.8 Monitoring, Review, and Learning 34 6 RecommendaTIONS FOR POLICY, PracTICE, AND ResearcH 35 6.1 Strengthen National-level Coordination on Mangrove Governance 36 6.2 Devolve Mangrove Governance and Tenure to Communities 36 6.3 Consider Gendered Dimensions of Mangrove Management 37 6.4 Systemize Tenure Arrangements and Mangrove Rehabilitation 37 6.5 Support Regulating Large-scale Investments in Mangrove Areas 37 6.6 Pursue Income Generation Opportunities 38 6.7 Recommendations for Future Research 38 REFERENCES 39 APPENDIXES 41 A Data Collection Instruments 41 B List of Legislation affecting Mangrove Management and Governance 57 LIST OF FIGURES, TABLES, BOXES FIGURE 1 Distribution of mangrove forests in Indonesia 3 2 Research sites in Lampung Province 6 3 Organizational structure of BPDPM in Pahawang village 22 TABLES 1 Number of people involved in focus group discussion in each research site. 7 2 Responsible agencies, their roles, and authority in mangrove resource governance 10 3 Matrix showing different pieces of legislation and the aspects of governance they address 13 4 Summary of implementing agencies for mangrove resource management in Lampung Province. 17 5 Population and mangrove forest area in selected sites 20 6 Key features of the selected sites 20 7 Rationale behind perception of tenure security in different territories in Pahawang village 21 8 Rationale behind perception of tenure security in different categories of land in Purworejo village 21 9 Local rules and practices in Pahawang village 23 BOXES 1 Global status of mangroves 2 2 On changing authority from District Forestry Agency to Marine and Fisheries Department 31 ACRONYMS & ABBREVIATIONS APL areal penggunaan lain (Area for Other Land Uses) BAPPENAS Badan Pembangunan Nasional (National Development Planning Agency) BPDPM Badan Pengelola Daerah Perlindungan Mangrove (Community Institution for Mangrove Protection and Management) BPHM Balai Pengelolaan Hutan Mangrove (Mangrove Forest Management Center) CIFOR Center for International Forestry Research CO2 Carbon Dioxide FAO Food and Agriculture Organization FGD Focus Group Discussion KII Key Informant Interview KKMN Kelompok Kerja Mangrove Nasional (National Mangrove Working Group) LMC Lampung Mangrove Center MMAF Ministry of Marine Affairs and Fisheries MOEF Ministry of Environment and Forestry NGO Nongovernmental Organization PES Payments for Ecosystem Services REDD+ Reducing emissions from deforestation and forest degradation in developing countries SWAMP Sustainable Wetlands Adaptation and Mitigation Program UNEP United Nations Environment Program UNILA Universitas Lampung (University of Lampung) USAID United States Agency for International Development WATALA Friends for Nature and Environment ACKNOWLEDGMENTS We would like to acknowledge the contribution of various people and institutions for their inputs and support during the entire assessment process. First, we wish to thank the U.S. Agency for International Development (USAID) for their funding support. We wish to offer special thanks to Dr. Steven Lawry, Director of Forests and Governance Research, Center for International Forestry Research (CIFOR), for his intellectual contribution in research design and inputs to the final report. We are grateful to Stephen Brooks, Land Tenure and Resource Governance Advisor at USAID as well as Nayna Jhaveri with Tetra Tech (on USAID’s Tenure and Global Climate Change Program) for their support and overall guidance in the assessment’s design and implementation. Many thanks to Daniel Murdiyarso, Principal Scientist at CIFOR headquarters in Bogor, Indonesia, for his inputs on identifying sites and for providing resources related to mangrove ecosystem and actor engagement. We would also like to acknowledge the support and contribution provided by various individuals and agencies in Lampung Province in Indonesia, and sites we visited in Pasawaran and East Lampung districts. We are indebted to the kind support offered by Dr. Indra Gumay Febryano, Senior Lecturer at the University of Lampung, in accessing documents, linking with relevant individuals and agencies, and connecting us with the research sites. Similarly, we wish to thank Pak Sony, then Head of the District Forestry Agency in East Lampung District, for his support in selecting sites, providing information, and linking us with communities. We also wish to thank Eko Sulistiantoro, of the nongovernmental organization WATALA (Friends for Nature and Environment) for his assistance in data collection in Margasari village. We also wish to acknowledge the help of the people who supported our data collection activities in the villages. In particular, we wish to thank Pak Yani from Margasari village, Pak Isnaen from Pahawang village, and Pak Samsudin from Purworejo village for their warm welcome and support during data collection in their respective villages. Most of all, we would like to extend our special thanks to all the respondents and participants of this research from village, district, province, and national levels who offered their views and shared information. EXECUTIVE SUMMARY Fishing among mangroves: Two young boys throw their cast nets amongst the world’s most productive mangrove system in Mimika, Papua, Indonesia. Credit: Robert Hewatt/USAID IFACS This report provides an analysis of the governance authorities implement them. In addition, the report and tenure dimensions of managing coastal mangrove analyzes mangrove management in practice, especially forests in Indonesia. It is part of a broader study that governance and institutional arrangements at the local level, includes a global review and a national-level study of to better understand how these arrangements function mangrove governance and tenure in Tanzania focusing on and ultimately how they influence mangrove resources. the Rufiji delta. The report analyzes national-level legal We highlight the experiences of three villages in Lampung and institutional frameworks to provide an indication province, which gives us rich insight into the local-level of how different sectoral regulations address mangrove dynamics of mangrove management within different types governance and