WORKING PAPER 202 Analyzing multilevel governance in Indonesia Lessons for REDD+ from the study of land- use change in Central and West Kalimantan Rodd Myers Anna JP Sanders Anne M Larson Rut Dini Prasti H Ashwin Ravikumar Working Paper 202 Analyzing multilevel governance in Indonesia Lessons for REDD+ from the study of land-use change in Central and West Kalimantan Rodd Myers CIFOR Anna JP Sanders CIFOR, University of Melbourne Anne M Larson CIFOR Rut Dini Prasti H CIFOR, University of Melbourne Ashwin Ravikumar CIFOR Center for International Forestry Research (CIFOR) Working Paper 202 © 2016 Center for International Forestry Research Content in this publication is licensed under a Creative Commons Attribution 4.0 International (CC BY 4.0), http://creativecommons.org/licenses/by/4.0/ DOI: http://dx.doi.org/10.17528/cifor/006058 Myers R, Sanders AJP, Larson AM, Prasti H RD and Ravikumar A. 2016. Analyzing multilevel governance in Indonesia: Lessons for REDD+ from the study of land-use change in Central and West Kalimantan. Working Paper 202. Bogor, Indonesia: CIFOR. CIFOR Jl. CIFOR, Situ Gede Bogor Barat 16115 Indonesia T +62 (251) 8622-622 F +62 (251) 8622-100 E [email protected] cifor.org We would like to thank all funding partners who supported this research through their contributions to the CGIAR Fund. For a full list of the ‘CGIAR Fund’ funding partners please see: http://www.cgiar.org/who-we-are/cgiar-fund/fund-donors-2/ Any views expressed in this publication are those of the authors. They do not necessarily represent the views of CIFOR, the editors, the authors’ institutions, the financial sponsors or the reviewers. iii Contents Abbreviations v Acknowledgments vii Executive summary viii 1 Introduction 1 2 Methods 3 3 Land use and land-use change in Central and West Kalimantan 7 3.1 Logging 9 3.2 Mining 9 3.3 Agriculture and plantations 9 4 Power and influence over forests in law and in practice 11 4.1 Decentralization and recentralization in law and policy 11 4.2 Multilevel governance powers in practice 13 4.3 Actors’ roles in land-use decisions: perceptions from the case studies 17 5 REDD+ policy and practice 21 5.1 REDD+ progress in Central Kalimantan 23 5.2 REDD+ progress in West Kalimantan 25 5.3 REDD+ obstacles and opportunities 26 6 Multilevel processes and outcomes for communities 29 6.1 Benefits and burdens 29 6.2 Process and outcome legitimacy 34 6.3 Lessons for REDD+ 44 7 Conclusions 46 References 49 Appendix: Case study summaries 54 iv List of figures, tables and boxes Figures 1 Carbon stock in Central and West Kalimantan by vegetation type (million tC). 8 Tables 1 Summary of cases by selection criteria. 4 2 Summary of interviews for each province. 4 3 Summary of cases. 6 4 Comparison of Central and West Kalimantan by key land-use features. 7 5 Community benefits in the case studies. 30 6 Community burdens in the case studies. 31 7 Implementation of FPIC in each land-use change case. 35 Boxes 1 Problems related to a lack of clear authority. 14 2 Spatial planning and the One Map System. 16 3 Multiple levels and use trade-offs: the example of community-managed forests. 17 4 Perspectives on REDD+ from the provinces. 22 5 Funds administration to the provinces. 23 6 Implementation choices affect outcomes for communities in oil palm schemes. 33 7 Land tenure and management trade-offs. 33 8 When is consent truly ‘free’? 37 9 What is ‘participation’? 37 A1 Mega Rice Project Area. 56 v Abbreviations AMAN Aliansi Masyarakat Adat Nusantara (Indigenous Peoples Alliance of the Archipelago) AMDAL Analisis mengenai dampak lingkungan (environmental impact analysis) APL Areal penggunaan lain (other use area, non-forest land) BAPPEDA Badan Perencanaan Pembangunan Daerah (Regional Development Planning Board) BAL Basic Agrarian Law BIG Badan Informasi Geospatial (Geospatial Information Agency) BLH Badan Lingkungan Hidup (Environmental Agency) BPDAS (PS) Balai Pengelolaan Daerah Aliran Sungai (dan Perhutanan Social) (Watershed Management (and Social Forestry) Authority) BPN Badan Pertanahan Nasional (National Land Agency) BPR Badan Pengelola REDD+ (National REDD+ Agency) BPS Badan Pusat Statistik (Central Bureau of Statistics) BOS Mawas Borneo Orangutan Survival Foundation’s Mawas Conservation Program ERC Ecosystem restoration concession license (IUPHHK-RE) FFI Fauna and Flora International FPIC Free, prior, and informed consent FPP Forest Peoples Programme GCF Task Force Governors’ Climate and Forest Task Force HGU Hak guna usaha (land-use permit) HK Hutan konservasi (conservation forest) HKm Hutan kemasyarakatan (community forest) HL Hutan lindung (protected forest) HP Hutan produksi (production forest) HPK Hutan produksi yang dapat dikonversi (production conversion forest) IAFCP Indonesia-Australia Forest Carbon Partnership KFCP Kalimantan Forests and Climate Partnership KLHS Kajian lingkungan hidup strategis (strategic environmental assessment) KOMDA Komisi Daerah (Provincial REDD+ Working Group in Central Kalimantan) KPHL Kesatuan Pengelolaan Hutan Lindung (Protected Forest Management Unit) KPRCP Katingan Peatland Restoration and Conservation Project LBBT Lembaga Bela Banua Talino (Bela Nanua Talino Association) MoF Ministry of Forestry (became part of the Ministry of Environment and Forestry in 2014) MP3IE Master Plan Perluasan Pembangunan Ekonomi Indonesia (Master Plan for Acceleration and Expansion of Indonesia’s Economic Development) MRP Mega Rice Project PTGLD Pola tata guna lahan desa (village land-use planning) REDD+ Reducing Emissions from Deforestation and Forest Degradation and the role of conservation, sustainable management of forests and enhancement of forest carbon stocks in developing countries vi RSPO Roundtable on Sustainable Palm Oil RTRWK Rencana tata ruang wilayah kabupaten (district spatial plan) RTRWP Rencana tata ruang wilayah propinsi (provincial spatial plan) SATGAS Satuan Tugas Persiapan Pembentukan Kelembagaan REDD+ (National REDD+ Working Group) SEKBER Sekretariat Bersama (Joint Secretariat) SHM Surat hak milik (land ownership certification – registered with the BPN) SKTA Surat keterangan tanah-adat (customary land certification – Central Kalimantan) SRAP Strategi dan Rencana Aksi REDD+ (REDD+ Strategy and Action Plan – West Kalimantan) STRADA Strategi Daerah (Provincial REDD+ Strategy – Central Kalimantan) TN Taman nasional (national park) TNBBBR Taman Nasional Bukit Baka Bukit Raya (Bukit Baka Bukit Raya National Park) TTKP Tim Teknis Kerjasama Program (Technical Partnership Program Team) UNORCID United Nations Office for REDD+ Coordination in Indonesia YPSBK Yayasan Pembangunan Sosial Bumi Katulistiwa (Social Development of the Equatorial World Association) Glossary of Indonesian terms Adat Customary Kabupaten District (regency) Kecamatan Sub-district Inti Nucleus (refers to the company in a private-community agricultural system) Plasma Plasma (refers to the community in a private-community agricultural system) vii Acknowledgments This report is a compilation of the efforts of multiple teams, beyond just those of its authors. As such, we recognize and appreciate the collegiality of the global team, all members of which played a part in developing the research instruments and sharing their perspectives from similar experiences in other countries. Laura Kowler, Martin Kijazi, Jazmin Gonzales Tovar, Anastasia Yang and others were invaluable in laying the foundations for this study and supporting it along the way. In Indonesia, several key contacts facilitated our access to communities and key informants. In West Kalimantan, we would like to thank Gusti Hardiansyah and Agustin Lumangkun at Tanjungpura University; Adi Yani from the Department of Environment; Kihon, Agus and Abdias Yas from LBBT; Sulaiman from YPSBK in Sanggau; Darmawan Liswanto and Arang Lorens from FFI; and Hasjim Oemar, Budi Purwanto, Ira Saputri, Soeryadi and their team at PT Pasifik Agro Sentosa. In Central Kalimantan, we would like to thank Dr.Yusurum Jagau, Dr. Suwido H. Limin and Bismart Ferry Ibie from the University of Palangka Raya; Bihokda from the Provincial Government; Ardianson, Bayu Nugroho, Pangeran and Budi Rario from the Kapuas District Government; Dehen, Ewal and Moeliyadi from Kapuas; Kussaritano (Itan) from Mitra LH; Oeban from POKKER SHK; Arie Rompas from WALHI and other local NGOs; Dadut from AMAN; Nick Mawdsley, Benjamin Tular, Fatkhurohman and other KFCP staff; Dr. Laura Graham and Jhanson Regalino from BOS Mawas; Rezal Kusumaatmadja and Dharsono Hartono from PT RMU; Andaman Muthadir from Yayasan Puter; Pietra Widiadi and Lorna Collins from IFACS (USAID); Norhadie Karben, Indu Yetno, Indu Yusdan, Sugiat, Kanisius and Kiting Suta; and particularly the communities of MantangaiHulu, Katunjung, Tumbang Mangkutup, Kalumpang and Petak Puti in Kapuas. We are grateful to all these people and more for their insight and contributions and look forward to the opportunity to work together again in the future. We appreciate the support provided by Prof. Rizaldi Boer, Director of the Bogor Agricultural University’s Centre for Climate Risk and Opportunity Management in Southeast Asia Pacific (CCROM - SEAP), as our research counterpart for Central Kalimantan. We also appreciate the contributions of Moira Moeliono from CIFOR for her text on decentralization in Indonesia and Fitrian Ardiansyah, Andri Akbar Marthen and Nur Amalia of Pelangi Indonesia for excerpts that have been modified from their report on the legal status of land in Indonesia, cited later in this report and commissioned as part of the same CIFOR project.