Natural Resources Management in a Decentralized Framework [PDF]

Technical Assistance Consultant’s Report

Project Number: 35181 July 2007

Indonesia: Natural Resources Management in a Decentralized Framework

Prepared by AGRICO Limited, New Zealand in association with ANZDEC Limited, New Zealand; Development Alternatives, Inc, USA; and PT INTERSYS Kelola Maju, Indonesia

For The Ministry of Home Affairs, Government of Indonesia

This consultant’s report does not necessarily reflect the views of ADB or the Government concerned, and ADB and the Government cannot be held liable for its contents. (For project preparatory technical assistance: All the views expressed herein may not be incorporated into the proposed project’s design.

FINAL REPORT ADB TA No 4687-INO: NATURAL RESOURCE MANAGEMENT IN A DECENTRALIZED FRAMEWORK (NRMdf) Prepared for the

Asian Development Bank and the

Ministry of Home Affairs Government of Indonesia

Prepared by

AGRICO Limited, New Zealand in association with ANZDEC Limited, New Zealand; Development Alternatives Inc., USA; and PT INTERSYS Kelola Maju, Indonesia July 2007

ADB TA 4687-INO: Natural Resource Management in a Decentralized Framework Final Report

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Table of Contents Page List of Abbreviations

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I.

EXECUTIVE SUMMARY

1

II.

INTRODUCTION

9

III.

TA IMPLEMENTATION A. Purpose - ADB and BANGDA Goals B. Role of TA C. TA Structure D. From Project to Practice E. Mobilization of Inputs and Human Resources F. Achievements and Outputs G. Implementation of the Three NRMdf Components H. NRMdf Stakeholder Evaluation I. Evaluation of TA Design and Implementation

18 18 18 19 20 24 28 29 41 44

IV.

KEY TA FINDINGS A. Persistent Problems of Decentralized NRM B. Major Spatial Challenges for Decentralized NRM C. Role of MoHA in Decentralized NRM Governance

46 46 51 61

IV.

POST-PROJECT ~ MAINTAINING MOMENTUM OF NRMdf INITIATIVES A. Approaches for Institutional Organization and Coordination B. Reform for Harmonization among Development Policies and Programs C. NRA, Resource Valuation and Green GDP to Improve Spatial Planning D. Strategic Environmental Assessment E. Carrying Capacity (Land Capability and Suitability) F. Conflict Management G. Community Participation in Spatial Planning and Exploitation Licensing H. Planning Awareness

63 64 64 64 64 64 64 64 65

V.

BEYOND THE TA ~ OPPORTUNITIES FOR WIDER SUPPORT OF DECENTRALIZED GOVERNANCE OF NATURAL RESOURCE MANAGEMENT A. Governance and Management of Natural Resources B. Program

66 66 66

VI.

PROJECT MAPS

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VII.

POSTERS

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VIII.

APPENDICES 83 Appendix 1: Role of MoHA in Natural Resource Management .............................................. 83 Appendix 2: BANGDA Governance Principles ...................................................................... 87 Appendix 3: Governance Principles ...................................................................................... 89 Appendix 4: List of Seminars and Workshops ....................................................................... 93 Appendix 5: NRMdf Briefing Notes........................................................................................ 95 Appendix 6: Outputs from Terms of Reference ..................................................................... 97 Appendix 7: Technical Papers............................................................................................. 101 Appendix 8: Website ........................................................................................................... 105 Appendix 9: Consultant Outputs.......................................................................................... 109 Appendix 10: Review of Decrees ........................................................................................ 113 Appendix 11: Project Site Characteristics........................................................................... 117 Appendix 12: Approach for District Engagement ................................................................. 119 Appendix 13: Regional Workshops Conclusions ................................................................. 123 Appendix 14: Outputs by Components ................................................................................ 131 Appendix 15: District Site Selection Criteria ........................................................................ 135

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ADB TA 4687-INO: Natural Resource Management in a Decentralized Framework Final Report

Appendix 16: Appendix 17: Appendix 18: Appendix 19: Appendix 20: Appendix 21: Appendix 22: Appendix 23: Appendix 24:

Site Visit Schedule......................................................................................... 137 Work Group Findings..................................................................................... 139 Contact List ................................................................................................... 145 Website Structure .......................................................................................... 147 Project Milestones ......................................................................................... 151 Proposed Project Concept............................................................................. 153 Evaluation Questionaire ................................................................................ 155 Evaluation Questionnaire for Study Tour ....................................................... 157 Study Tour Group .......................................................................................... 159

Tables Table 1: Consultant Mobilization ......................................................................................................... 25 Table 2: Evaluation of NRMdf Tools by Regional Partners ................................................................ 42 Table 3: Specific Areas of NRMdf Support in Selected Districts ......................................................... 65

Figures: Figure 1: NRMdf Fit with Regional Development Planning ................................................................ 20 Figure 2: Scope of the Strategic Issues to which the NRMdf “Toolkit” was applied in Support of Good Decentralized Governance of NRM .................................................................................................... 22 Figure 3: Schematic of Outputs Process for Each NRMdf Component (C1, C2 C3) ........................... 23 Figure 5: TA Proposal’s Schema of Activities ..................................................................................... 24 Figure 6: SEA for Preparation of New or Revised Spatial Plans ........................................................ 36 Figure 7: NRMdf Approaches for Exploitation Licensing, Conflict Resolution and Control under Existing Spatial Plans ......................................................................................................................... 36 Figure 8: NRM Awareness Poster....................................................................................................... 78 Figure 9: TA Awareness for NRM ...................................................................................................... 79 Figure 10: Functional Coordination to Ensure NRM Sustainability ..................................................... 80 Figure 11: Conflict Resolution in NRM Poster.................................................................................... 80 Figure 12: Coordination Poster ........................................................................................................... 81 Figure 13: Strategic Environmental Assessment ................................................................................ 81

Maps Map 1: Cianjur District West Java Province ........................................................................................ 70 Map 2: Lombok Barat District, West Nusa Tenggara Province ........................................................... 71 Map 3: Kutai Districts (3), Mahakam River Basin, East Kalimantan Province ..................................... 71 Map 4: East Kalimantan RTRWP Spatial Plan.................................................................................... 72 Map 5: East Kalimantan Forest and Water Areas (SK79) ................................................................... 72 Map 6: Change in East Kalimantan Forest Area from sk79 to RTRWP............................................... 73 Map 7: East Kalimantan Deforestation 1985-2000.............................................................................. 74 Map 8: Carry Capacity Methods for Protection Forest Bandung District ............................................. 75 Map 9: Land Use Impacts of Cianjur Urban Plan for 2013 .................................................................. 75 Map 10: Overlapping Village and State Forest Jurisdictions in East Kalimantan................................. 76 Map 11: Mahakam River Network East Kalimantan ............................................................................ 77

ADB TA 4687-INO: Natural Resource Management in a Decentralized Framework Final Report

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List of Abbreviations adat ADB assets Badan Balai BANGDA BAPEDALDA BAPPEDA BAPPENAS BKPRD BKPRN BPDAS BPPT Bupati CGIAR CIDA CSR DAK DAU DfID DG Dinas ego-daerahisme ego-sektoralisme ego-sentralisme EIA EPI ESP EU FAO GDP GoI GTZ INO ITT JICA Kabupaten Kecamatan KLS Konkurensi LG Masyarakat MCRMP Menteri MoFr MoHA NGO NR NRA NRM NRMdf NRMP OTDA PDRB Hijau Perda PP PSDA

Customary Law Asian Development Bank Financial, physical, natural, social, human and knowledge assets or capital Agency Institute Regional Development Agency Regional Agency for Environmental Management Regional Planning Board National Planning Board Coordinating Agency for Regional Spatial Planning Coordinating Agency for National Spatial Planning Badan Pengelola Daerah Aliran Sungai Agency for Assessment and Application of Technology Head of District Consultative Group on International Agricultural Research Canadian International Development Agency Corporate Social Responsibility Specific Annual Budget Allocation to the Regional Governments General Annual Budget Disbursement to the Regional Governments U.K. Department for International Development Directorate General Public Service Delivery Institution excessive regionalism excessive sectoral bias excessive centralizing bias Environmental Impact Assessment Environmental Performance Index Environmental Services Program European Union Food and Agriculture Organization of the United Nations Gross Domestic Product Government of the Republic of Indonesia German Technical Cooperation (officially known as Deutsche Gesellschaft für Technische Zusammenarbeit) Indonesia International Training Tour Japan International Cooperation Agency District Sub-District Kajian Lingkungan Strategis (SEA) Decentralization principle of concurrent action in Act 32 Local Government the People/the Community ADB Marine and Coastal Resources Management Project Minister Ministry of Forestry Ministry of Home Affairs Non-Government Organization Natural Resources Natural Resource Accounting Natural Resource Management Natural Resource Management in a Decentralized Framework USAID’s Natural Resources Management Project Directorate General for Regional Autonomy, MOHA Green Regional Gross Domestic Product Regional Regulation (Peraturan Daerah) Government Regulation (Peraturan Pemerintah) Proyek Pengelolaan Sumberdaya Alam (NRM)

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PSDA-kod pusat pusat-daerah R4 razia Renstra Renstrada Resource Valuation RPJM RPJP RTRW RTRWN SDA SEA SENRA SFA Sub-Dit TA ToR USAID UU

ADB TA 4687-INO: Natural Resource Management in a Decentralized Framework Final Report

Proyek Pengelolaan Sumberdaya Alam – Kerangka Otonomi Daerah (NRMdf Project) Center Center (national) – Regional (province, district) relations Rights, Roles, Responsibilities and Relationships Law enforcement raid on illegal activities, e.g., logging, mining Strategic Plan Strategic Regional Plan VESDAL Medium Term Development Plan Long-term Development Plan Rencana Tata Ruang Wilayah Rencana Tata Ruang Wilayah Nasional Natural Resources Strategic Environmental Assessment Strategic Environmental and Natural Resource Assessment State Forest Area Sub-Directorate Technical Assistance Terms of Reference United States Agency for International Development Udang-Udang (Act of Parliament)

ADB TA 4687-INO: Natural Resource Management in a Decentralized Framework Final Report

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EXECUTIVE SUMMARY

1. The final report of the Asian Development Bank (ADB) TA No. 4687-INO: Natural Resource Management in a Decentralized Framework (NRMdf) covers the activities, achievements and lessons of such a capacity building and communication effort to help local government (LG) raise planning awareness about the actual condition of natural resources in their regions and how to achieve better inter-institutional coordination (both horizontally and vertically from the capital to village communities) for natural resource management (NRM) in spatial planning, exploitation licensing and conflict resolution. 2. Decentralization of NRM in Indonesia has in principle brought decision-making closer to both regional and local communities most affected by its outcomes, while maintaining effective oversight by national government agencies. In practice, this desirable goal remains elusive. Natural resource and environmental degradation persist. Short-term resource management mindsets prevail among both the private and state sectors. NRM laws and institutions collide creating ambiguity and uncertainty which serves those with vested interests. Horizontally within and across regions and vertically between different layers of government administration from national parliament to powerful sector agencies through to village councils, conflicting interests raise barriers to achieving workable allocation of roles and responsibilities -- the critical konkurensi of Decentralization Act 32. 3. The mandate of the Ministry of Home Affairs (MoHA) includes the responsibility to guide regional development and facilitate the coordination of government agencies to foster decentralized governance. This mandate provides jurisdiction and authority to play a major role in decentralized governance of NRM. The TA suggests that decentralization of administration without NRM is unlikely to succeed due to the role of the environment and natural resources in local social and economic development. The rationale for expanding the role for MoHA in advocating and developing decentralized NRM is reflected in BANGDA’s (Regional Development Agency) principles of good governance developed through a participatory program in 2001. The four governance principles of “transparency, participation, responsiveness and accountability” (and cross-cutting “timeliness” from the two principles of “efficiency” and “effectiveness”) are the essential building blocks for managing natural resources and addressing the major opportunities and threats that local people face. Most of these solutions are multi-sector in nature and require far wider consideration of both spatial and temporal impacts. 4. The ADB TA paper established the purpose of TA 4687-NRMdf as mainstreaming principles and approaches of sustainable NRM into LG decision-making and to improve LG capacity and capability to sustainable manage their natural resources in selected districts through: (i) enhanced government oversight, (ii) proposed improved practices, and (iii) information dissemination and awareness raising. NRMdf was guided by an adaptation of BANGDA’s vision, namely, “Support for Achieving Regional Self-reliance for Management of Regional Natural Resource Development which is Harmonious and Sustainable.” 5.

The NRMdf project consisted of the following three components: (i) (ii) (iii)

6.

Policy analysis and institutional strengthening NRM development planning Information for decision-making

Two inter-related strategies for LG capacity building were pursued by the project: (i)

First, assessment of landscape-wide environmental and economic use values through processes that invite greater community participation in the process as well as dialogue over implications of such improved environmental understanding.

(ii)

Second, better inter-institutional relationships and coordination (both horizontally and vertically from the capital to village communities) for NRM in spatial planning, exploitation licensing and conflict resolution both part of the overarching purpose of increasing planning awareness about the actual condition and value of natural resources in their regions.

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ADB TA 4687-INO: Natural Resource Management in a Decentralized Framework Final Report

7. Capacity-building during the project included the use of participatory hands-on processes and the preparation of written outputs which were adapted during work with regional partners and national counterparts to be relevant to present needs. This report does not present all the strategic and technical analyses and does not include the range of handbooks produced by the TA as part of the capacity building program. These documents are available through BANGDA and ADB. The TA produced the following range of outputs:

8.

(i)

Strategic Issues Papers. The idea behind such papers was that they were relatively quick to produce at an early stage of the project, inviting open discussion among a broad range of different stakeholders by raising the issues but not necessarily coming up with a particular set of solutions and recommendations.

(ii)

Analyses and Recommendations. A series of papers with analyses and recommendations related to project goals were prepared.

(iii)

Handbooks or Manuals. The project’s handbooks, based upon the above analyses, were considered by counterparts and regional partners to represent the most important tools and approaches for adoption by LG in its efforts to improve spatial management of natural resources.

(iv)

Educational Posters. The aim of the posters ranged from “attention-grabbing” about key messages to a sequence of problem presentation and options for solutions through the application of NRMdf tools.

1.

Component 1: Policy Analysis and Institutional Strengthening

The following were the major activities and processes used in completing Component 1. a.

Identification of major NRM issues

9. The TA worked with BANGDA and BAPPENAS (National Planning Board) counterparts from the Directorate for Facilitating Spatial Planning and Environmental Management, identified important NRM and other environmental issues and then worked closely with subnational partners to develop potential management options to address the priority issues within the context of a decentralized NRMdf. The priority issues fall within one of three thematic areas being: (i) (ii) (iii)

Government Agency Roles and Responsibilities Planning Awareness Spatial Planning b.

Policy development in BANGDA

10. The BANGDA Directorate for Facilitating Spatial Planning and Environmental Management invited NRMdf to provide support and input into their policy development program. The TA provided inputs and comments on the following draft MoHA Ministerial Decrees in terms of the needs and requirements for decentralized NRM: (i) (ii) (iii) (iv)

Spatial Planning, handled by Sub-Dit Spatial Planning; Natural Resource Management, handled by Sub-Dit Natural Resource Management; Upstream-Downstream Water Resource Management to Control Flooding, handled by Sub-Dit Water Resources; and Revision of PP25 on division of authorities among national and regional authorities, handled by OTDA (Directorate General for Regional Autonomy) for the challenge of establishing workable rights, responsibilities, roles and relations among government agencies (R4).

11. The TA used the policy development program to strengthen BANGDA’s capacity and to incorporate BANGDA’s ten principles of good governance developed through their 2001 urban multistakeholder dialogue. These principles were often re-examined, elaborated and then used to guide the policy development process including their application to spatial planning and exploitation licensing under decentralized NRM. Throughout the TA these basic principles were used to reflect and

ADB TA 4687-INO: Natural Resource Management in a Decentralized Framework Final Report

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reorientate discussions and proposals relating to NRMdf. An important outcome of the TA was to recognize that the principles could be grouped into five subgroups that were critical for BANGDA overall policy role. These subgroups were: (i) (ii) (iii) (iv) (v)

Strategic Vision Transparency, Accountability, Participation and Responsiveness Efficiency, Effectiveness and Professionalism Rule of Law and Other Control Mechanisms Poverty Reduction c.

New or revised spatial plans for LG

12. The NRMdf TA specialists supported BANGDA during meetings with delegations from provinces and districts that were at various stages of developing and presenting new or revised spatial plans, e.g., Raja Empat District, West Papua Province and Nusa Tenggara Barat Province. The meetings provided a good opportunity to develop a more operational insight into spatial planning issues and also a means for BANGDA to reflect, identify key lessons and how to respond to these. Most importantly the meetings clearly established the nature of the relationship between LG and national agencies. d.

Development of Strategic Environmental Assessment and Environmental Performance Index

13. Two approaches have been the focus of work with BAPPENAS and BPPT (Agency for Assessment and Application of Technology): (1) Strategic Environmental Assessment (SEA). NRMdf supported the development of SEA approaches to NRM and the establishment of a clearing house for information on SEA initiatives in Indonesia and other SEA literature; and (2) Environmental Performance Index (EPI). NRMdf’s EPI and SEA specialists worked with the BPPT study team.1 NRMdf is focusing on a pragmatic approach to EPI for districts and provinces that could evolve into a performance benchmarking program once capacity and data levels are built. 2.

Component 2: NRM Development Planning

14. Component 2 concentrated on introducing improved approaches or tools to promote better decentralized governance of NRM. Six Districts were selected from 20 candidate districts. After the field visits a communication network was established to maintain follow-up contact among regional partners and national counterparts.

1

a)

Site selection process: A set of purposive criteria was developed and applied to a list of 20 proposed districts. After applying these criteria and discussions with BANGDA and BAPPENAS counterparts, the six districts were selected. The selected districts allowed most decentralized NRM issues to be included except for international border and post-natural disaster situations. It includes ADB Marine and Coastal Resources Management Project (MCRMP) areas in two of the districts Lombok Barat and Kutai Timur.

b)

Selected district sites: Six district sites were chosen in Java, Sumatra, Kalimantan and West Nusa Tenggara, namely, (1) Cianjur, West Java Province, (2) Lombok Barat, Nusa Tenggara Barat Province, (3) Kutai Barat, (4) Kutai Timur and (5) Kutai Kartanegara, East Kalimantan Province, and (6) Solok, West Sumatra Province. The sixth district visit had to be cancelled because of LG having to address floods and landslides around the scheduled time.

c)

District engagement in the field: District engagement followed a series of stages designed to introduce new ideas for better natural resource and environmental management in spatial planning, licensing exploitation and conflict resolution, as well as planning awareness on the importance of these ideas. Introductory pre-visits to

The EPI team is in the same division as BPPT counterparts working on natural resource accounting.

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ADB TA 4687-INO: Natural Resource Management in a Decentralized Framework Final Report

provincial capitals were followed by a planning workshop, work with partner agencies and finally a results workshop was undertaken.

15.

d)

Follow-up engagement with district partners: A two-day national workshop was held in Jakarta from 22–23 November 2006 to carry forward the process of NRMdf engagement with the selected districts and their provinces. The national workshop has the objectives of: (i) strengthening natural resource and environmental management capacity by identifying concrete and practicable actions; and (ii) establishing a network of regional and national practitioners.

e)

The resource toolkit: The various approaches or tools either apply good governance principles directly or enhance knowledge about natural resources which require greater social inclusivity to be effective. Tools were applied to one or both of two fundamentally different kinds of spatial problem for decentralized NRM: (i) preparation of revised or new spatial plans and (ii) exploitation of licensing planning and allocation, and subsequent control under existing spatial plans.

The set of approaches in the resource toolkit is divided into three categories: (i)

Planning awareness (a)

(ii)

(iii)

Planning awareness. Overarching the two more technical categories, below, planning awareness is concerned with raising LG awareness about the benefits of better environmental management as a safeguard to sustain growth and development.

Encouraging inter-institutional coordination and conflict resolution in line with the concurrency principle within law 32 (a)

Approaches for inter-institutional coordination, vertical and horizontal. Stipulated in regulations but problematic because of policy conflicts, institutional culture differences and entrenched vested interests that gain from separateness.

(b)

Conflict resolution. Systematic management of conflict. First and foremost, through low-cost identification, classification and prioritization. Effectively bringing disagreeing parties to the table through emphasis on interests rather than positions.

Participatory capacity strengthening to increase stakeholders knowledge about actual natural resource and environmental conditions (a)

Strategic Environmental Assessment (SEA). SEA is both a technical (resource information) and governance (community participatory) tool. Within Indonesia SEA is in its infancy and as yet has not been regulated creating the opportunity to develop best practice that would inform the development of regulations. Currently SEA offers a highly adaptable approach to dealing with NRMdf and as such should be promoted. SEA is applicable to a wide range of spatial planning scenarios from conventional district and provincial spatial planning to policy development and management planning for watersheds, coastal zones, urban settings and special (Wilayah Khusus) areas. Ideally if however rather unconventional, SEA can be carried forward for the purposes of spatial plan evaluations.

(b)

Resource valuation (VESDAL). Adaptation of the full suite of resource valuation elements, emphasizing direct and indirect uses to assess marginal differences among two alternatives. Such assessments account for over 85% of the total estimated economic value and can initially be office-based and low-cost.

ADB TA 4687-INO: Natural Resource Management in a Decentralized Framework Final Report

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(c)

Natural resource accounting for Green GDP (PDRB Hijau). Influence decisionand policy-makers at local and national levels. Although not yet a mainstream part of official GDP assessments, Green GDP is of interest to districts that are expected to bear the control costs of exploitation licenses approved at the national level. That is, LG consider the information included in Green GDP estimates to be useful for developing bargaining power with the central agencies that continue to retain powerful interests.

(d)

Land carrying capacity. The TA demonstrated the implications of two different methods currently in use by government agencies for calculating carrying capacity. Each option provides vastly differing estimates of, for example, the extent of necessary conservation areas making the use controversial while providing opportunities for exploitation.

(e)

Environmental Performance Index (EPI). A performance index system was planned for districts; however this could easily be adapted to provide information on performance at the regional and provincial levels. The TA recommends the use of a voluntary program, at least during its development stages, to attract willing participants who see it as a means for attracting ecosensitive investments or government rewards. Perhaps ultimately the reporting of an EPI may be mandatory with disbursement consequences for general (DAU) and special (DAK) district budget calculations.

Component 3: Information for Decision-Making

16. Various means of general information dissemination were adopted during the projects, among them: (i) Capacity-building presentations on the selected districts and provinces on the resource toolkit as well as to national counterparts (presented in the Interim Report); (ii) Manuals or handbooks and posters derived from these presentations, analyses and field observations as well as interactions with regional partners; (iii) An NRMdf website; and (iv) Communication network. 17. The key findings to emerge during implementation of NRMdf analytical studies, interactions with national counterparts and regional partners, and other observations in the field are outlined below: (i)

Although the complexity of NRM has increased since decentralization, there are common problems experienced across regions that are compounded by poor and inappropriate governance systems.

(ii)

Institutions playing a pivotal role in decentralized governance of NRM are changing as democracy and decentralization develop alongside each other, especially at the district level.

(iii)

The gap between de jure and de facto natural resource exploitation remains large and threatens the development of orderly and predictable NRM processes.

(iv)

For LG to think strategically about decentralized NRM entrenched mindsets must change if more constructive and effective NRM systems are to emerge.

(v)

Policy dissonance and discord over NRM can be resolved but probably only in the long term.

(vi)

Horizontal and vertical coordination among government institutions is urgently required if environmental principles for NRM are to become part of general development priorities.

(vii)

Processes to revise or prepare new spatial plans can be significantly improved through more realistic, participative and systematic information gathering.

(viii)

First steps promoting proper use, instead of, abuse of existing spatial plans.

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(ix)

Other spatial management approaches such as river basin management can complement those based upon administrative boundaries.

(x)

Gaps between policies and practice constrain opportunities for greater community participation.

(xi)

Increased institutional capacity is of limited value without increased motivation for change.

(xii)

MoHA’s facilitation support for good governance of NRM is becoming crucial as decentralization and democracy take root and develop in ways that are difficult to predict.

18. The following outcomes are expected to be maintained and possibly expanded after the end of the project: (i)

Some NRMdf recommendations adopted in draft MoHA decrees on NRM, spatial planning, upstream-downstream relationships and allocation of roles and responsibilities for NRM among different levels of government administration (NRMdf already informed that several recommendations for the new NRM decree will incorporate project suggestions).

(ii)

BANGDA distributes NRMdf capacity building handbooks and policy papers systematically and ad hoc to LG, especially those that visit BANGDA to present spatial planning issues.

(iii)

Formal guidelines on appropriate structures for LG environmental agencies (for those tools deemed by BANGDA to be of most value, probably, coordination mechanisms, SEA, Natural Resource Accounting (NRA) and Green GDP and planning awareness).

(iv)

Some NRMdf tools included in LG development programs, notably SEA, NRA and Green GDP.

(v)

Communication network tapped by potential donor support for decentralized NRM (provided someone is assigned to manage the list).

(vi)

Website potentially a long-lived resource (provided there is continuous technical maintenance and content management).

Future Opportunities 19. The conclusion of NRMdf’s demand-driven analysis, field testing with LG and preparing inputs for effective capacity building has revealed the need for a more comprehensive and medium-term support that targets the building of good NRM governance in Indonesia. At stake is far more than NRM. As governance success and failure can explain many of the negative outcomes of NRM, so misgovernance of NRM can negatively impact efforts at overall governance reform, undermining the rule of law and fueling corruption, in turn distorting democratic development and orderly decentralization, further undermining NRM governance, and so on. Effective support for decentralized NRM must recognize and act on the nexus between governance and management of natural resource. 20. To be effective, any future donor intervention should operate on all NRM fronts - locally and nationally - without spreading itself too thin. While demanding, the TA believes that this is attainable if guided by clear and workable non-sector themes. Given the central role of institutions in governance and their development status in the regions, institutional strengthening and capacity building are obvious assistance targets. The themes below link output through process, to ensure capacity building is translated into appropriate actions. Thus:

ADB TA 4687-INO: Natural Resource Management in a Decentralized Framework Final Report

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Capacity building and enabling policy conditions for, (a)

technical approaches to systematic gathering of sufficiently-detailed information about the status of natural resource endowments (spatial, social and economic considerations) collected in ways which are as far as possible more participatory and public, e.g., SEA.

(b)

good governance principles to be applied to safeguard long-term development under decentralized NRM.

where, (a)

there are clear sustainable incentives for subsequent application through adapted programs and policy reform, e.g., ranging from individual rewards to the consequences of an EPI for an entire district,

(b)

there is recognition that sustainable decentralized NRM requires vertical and horizontal integrity, i.e., acknowledgement of inter-institutional linkages across and between districts, from national ministries to village communities and the poor amongst them (from masyarakat to menteri),

(c)

some significant and low-cost first steps are identified and achievable to build momentum for institutional change.

21. The NRMdf instruments that show most promise for making a positive contribution to decentralized NRM with the resources available in a much larger project are: (i)

SEA for spatial and development planning related to NRM as well as subsequent evaluation.

(ii)

NRA for Green GDP to inform development planning and exploitation licensing.

(iii)

EPI for an incentive / disincentive system for NRM outcomes.

(iv)

Planning Awareness to increase the likelihood of incorporation of environmental considerations in spatial and development planning as well as a role for community involvement in planning processes.

(v)

Application of the five core principles of good governance of NRM: (i) transparency as a vanguard governance principle for the preparation of spatial plans and the licensing processes that should be consistent with them, that encourages (2) accountability. Subsequent institutions for (3) greater inclusivity or participation, (4) institutional responsiveness, and (5) cross-cutting timeliness.

22. MoHA is considered a logical partner for future donor assistance to support decentralized governance of NRM. Indeed, BANGDA has already submitted a proposal for such a project in the Blue Book (see Appendix 21). Non-sectoral BAPPENAS and BPPT have obvious interests in further support for NRM. LGs have already demonstrated a keen interest in the kind of support that NRMdf has provided, although preferring more physical and financial kinds of assistance. 23. Any future, large-scale assistance should obviously include key government, local community and business stakeholders. Dealing with stakeholders, however, requires professional facilitators with proven track records under circumstances that may include significant disputes and conflict. 24. The TA believes that districts should remain the focus of the kind of assistance described above but these should be grouped in clusters, e.g., river basin or coastal groupings. Any follow-on project would seek to build a comprehensive NRMdf based on planned priority actions that inform future government investment programs and guide or control the use of local resources while recognizing the importance of cumulative ecosystem wide effects. The ability to develop such a comprehensive NRMdf in a cluster of districts would provide a significant demonstration of successful decentralization that fully integrates NRM.

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ADB TA 4687-INO: Natural Resource Management in a Decentralized Framework Final Report

25. Given the rapidly-changing developments in the NRM institutional modalities, especially in the resource rich areas, it is recommended that before formal project preparation is initiated, a scoping phase explore and confirm the extent to which the necessary preconditions exist.

ADB TA 4687-INO: Natural Resource Management in a Decentralized Framework Final Report

II. A.

9

INTRODUCTION

Background and Structure of TA Outputs

26. The Asian Development Bank (ADB) TA No. 4687-INO: Natural Resource Management in a Decentralized Framework (NRMdf) targets the important nexus of the relationship between poverty and natural resource management (NRM) by strengthening management of NRM within decentralized governance. The TA worked with pilot districts and priority natural resource issues to demonstrate improved management systems. The TA focused on NRMdf management functions to define the roles, rights and responsibilities required for achieving more effective NRM by both central and decentralized institutions. The TA identified management implementation needs including mechanisms for providing horizontal and vertical coordination between agencies and institutions. The TA support also included developing management and decision support tools for implementing a decentralized NRM framework. An important contribution of the TA was to develop awareness, knowledge and capacity within management agencies with access to a shared communication network. 27. The final report outlines the activities, achievements and lessons of the TA including the capacity building to help local government (LG) raise awareness about the current status of natural resources in their regions and the achievement of improved inter-institutional coordination (both horizontally and vertically from the national level through to local communities) for NRM in spatial planning, exploitation licensing, and monitoring of NRM including conflict resolution. The main text reports on key features of TA implementation, key findings, and proposed future directions. The purpose of the report is not to provide a comprehensive technical report but to provide a summary of implementation lessons. 28. The technical outputs of the TA are provided separately and include technical analyses of (i) strategic issues for decentralized NRM, (ii) analytic papers, (iii) management handbooks, (iv) awareness and education posters, and (v) an NRMdf website. The technical outputs have been produced as separate outputs that can be replicated and distributed for local stakeholder and agency use. B.

Development Context 1.

The elusive yet attainable goal of sustainable decentralized NRM

29. The goal of decentralization of NRM in Indonesia is expected to bring decision-making closer to regional and local stakeholders directly affected by the outcome of NRM, while (at least in theory), maintaining effective oversight by national government agencies. In practice, this desirable goal remains elusive and often unavailable. Natural resource and environmental degradation persists due to a range of perverse incentives. These perverse incentives reflect the historical and in some instances contemporary development paradigms that continue to underpin economic development and the realities of local and subnational institutions being assigned responsibility without the commensurate skills, capacity, procedures and resources to affect change. 30. Short-term resource management mindsets among both the private and state sectors continue to prevail and favor extracting short-term benefits without due consideration for the often significant spatial and temporal costs created and imposed on those that do not benefit. In this regard NRM laws and institutions often collide. Many existing laws and institutions were created for rapid economic development through centralized sector interests that are directly antagonistic to NRM goals and objectives. The increasing assignment of NRM to regional and LG places these institutions in direct conflict with these powerful sector and central interests. As such the often newly established and under resourced decentralized institutions face the impossible task of managing either the central interests or the negative effects of these powerful centralized economic interests. Not unsurprisingly the decentralized agencies have to-date only limited impact and success due to lack of resources, capacity and most of all the lack of a comprehensive management framework for natural resources with supportive institutional arrangements including laws, regulations, procedures and organizations able to balance the existing economic interests. Horizontally across regions and vertically between different layers of government administration from national parliament to village council, conflicting interests raise barriers to achieving the effective allocation of roles and responsibilities -- the critical assumption and foundation of konkurensi or concurrency of Decentralization Act 32.

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31. Symptoms of degradation and the immediate or proximate causes of the degradation have often been highlighted, however many of the underlying causes that explain inappropriate or harmful resource management are not known or are ignored. Often the lack of consideration reflects ignorance and misunderstanding, however there remain many instances where this reflects vested interests of those benefiting from inappropriate resource use including some in the public sector. To date, policy and institutional responses often fail as they respond more to the symptoms and not the underlying causes that are necessary to change in order to make a positive difference. As such the NRM policy environment is currently littered with persistent, and often accepted, policy and institutional failures. 32. Invaluable lessons from Indonesian experiences of NRM success and failure go largely unheeded and as a result mistakes recur and while some benefit many, mostly local communities, experience additional costs and losses while receiving no share of the benefit. Understanding the reasons for these outcomes and designing systems that increasingly remove the bias for economic exploitation at the cost of local communities and their resources is essential if poverty is to be addressed and if decentralization is to be effective. For example, why do some villagers illegally log forest resources or fish illegally by bombing coral habitats, while elsewhere villagers oppose and reject such practices; why in other instances does a mining company restore and reclaim after it is mined while others leave polluted holes; why do some farmers prevent fire escaping from plots they are clearing, while elsewhere other farmers make not the slightest effort to manage their own fires; and why authorities sometimes come down heavily upon illegal natural resource extractors while at other times they accept bribes and look the other way. If the underlying causes of these outcomes are not understood, the emergence of effective management is limited to chance. 33. The myth of irreconcilable conflict between development and conservation continues to fuel distrust among investment and conservation forces. The distrust and lack of shared knowledge invariably results in the exploitation interests prevailing while conservation looses. Firstly there needs to be continued recognition that conservation is not preservation. Conservation in the context of sustainable development is not simply defined as non-use but the ability to protect the productive capacity of an ecosystem, a natural resource or to provide substitutes for non-renewable resources through time. As such, conservation seeks to define and manage natural resources and economic development within the limits of acceptable or appropriate use and not simply no-use. Where current use is excessive or the effects of proposed use exceed the productive capacity there is a need to adjust current use rights or preclude rights to resources leading to conflicts. 34. Through these conflicts the provision and dissemination of misinformation is a common strategy which over time has resulted in a number of often unchallenged myths. Possibly, the most serious myth in NRMdf is that the more that a policy prohibits use, the more effective the protection and therefore the conservation of resources i.e., that effective policy is about command and control of use and not about enabling appropriate use. Consequently Indonesia suffers from a plethora of ineffective and unenforceable exploitation bans, e.g., banning logging over large areas, the export of logs, and insistence upon zero-burning, etc., and the inappropriate outcomes of resource use continue to accumulate and expand. 35. Sectoral policies and programs are unable to affect NRM problems that are driven by crosssectoral or even non-sectoral issues including political and institutional failures or distortions, e.g., civil service structure and incentives, policies for fiscal, trade, industry and agricultural development, let alone political imperatives and the social underpinning of resource use. Market failures that allow negative environmental externalities are thus compounded by policy failures, and the divisive divide between de jure NRM and de facto resource use continues to grow ever wider. The decentralization of NRM has in most instances simply aggravated this situation. 36. The challenge facing natural resource managers is to define what is necessary to align NRM policies, regulations and institutions with the ongoing demands for social and economic development i.e., how does Indonesia achieve sustainable development? To achieve sustainable development agencies and their management systems urgently need to bridge and then reduce the divide between NRM policies and their implementation on the one hand, and their actual impacts of society on natural resources and the environment on the other. 37. For the local institutions with limited capacity to be assigned responsibility for managing these competing interests it is a daunting challenge. The TA seeks to assist LG identify where and how to start to make a lasting difference through decentralized NRM. The TA sought to first address what can

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be learnt from past policy and approaches to development and then to provide support for improving decentralized management of NRM. The next two sections provide a brief overview of policy, program and project directions in support of NRM in Indonesia and lessons learned or yet to be learned from this experience. 2.

Policy, program and project support for decentralized NRM

38. Decentralization in Indonesia has a long history. During the Orde Baru (New Order) era (1967–1998), regional autonomy was on the development agenda. Indeed its origins could be traced to the recognition of traditional village administration in Article 18 of the 1945 Constitution of the Republic Indonesia. Act No. 5 on Village Administration, however, effectively disempowered the traditional village administration by assigning the determination of village area and leadership under the authority of higher levels of government. Over the last decade of the Orde Baru a regional autonomy program of 28 pilot districts proceeded at a glacial pace and was incomplete. For example, any decisions regarding NRM, although involving district government required approval by Central Ministers directly or their branch offices known as Kanwil. Donor assistance with district government was either discouraged or strictly confined. 39. Donor assistance tended to be sectoral and deferential to support the centralized control of NRM. Thus, fisheries, agriculture, forestry and water resource sector projects were supported by the multi-lateral donors (World Bank, ADB, FAO, EU), bilateral (DfID, GTZ, JICA, USAID), and inter alia, international donors such as Ford Foundation and research organizations under the CGIAR. One notable exception to the trend for sectoral support was the Natural Resource Management Project (NRMP) supported by USAID under various management regimes from 1991 to 2005. 40. With the passing of the Orde Baru, political momentum shifted towards more democracy and as a consequence increased decentralization. After Act 22 of 1999 on Regional Autonomy, support for regional autonomy and good governance attracted wide ranging donor support. Initially, those donor with existing donor projects or programs in 1998 reorientated work programs to support a move towards decentralization or to assist the Government in defining how to decentralize, e.g., GTZ’s Decentralization Support Project. USAID’s NRMP (Natural Resource Management Project) initiated a landmark stakeholder dialogue on decentralized forestry resource management (Gugus Tugas). Under this initiative government agencies spoke publically about bureaucratic shortcomings relevant to achieving the expected NRM outcomes as a whole. While dialogue was initiated the donor programs still focused on sectoral approaches with the main change being the inclusion of crosssectoral and multi-stakeholder decentralization issues related to their sector, e.g., DfID’s Multistakeholder Forestry Program (1999-2006) and the 2007 World Bank-led donor paper on strategic options for forestry. The forthcoming Berau Bulungan NRM Project in East Kalimantan should have a broader NRM focus. Since 2004, ADB has had an ongoing presence in supporting decentralized governance of NRM at all administrative levels. 41. For several years there has been an Indonesian constituency (most notably, BANGDA in MoHA and BAPPENAS, some LGs and various NGOs including WWF Indonesia) working towards greater recognition of overarching need for NRM governance and the contrality of NRM to the decentralization process as a means of averting the outcomes of the existing sectoral programs. Unsurprisingly the existing institutional incentives and power of those benefiting from existing sectoral approaches have resulted in a range of institutional responses to protect and even strengthen the sector based model. This opposition to such a law came from various entrenched government and private interests and with hindsight has not been factored into the planning of decentralized reforms adequately. The breakthrough was a parliamentary instruction IX of 2001 to government to initiate the framing of a new law on agrarian and NRM. Coinciding with the year of the revised Regional Autonomy Law No. 32, BANGDA, BAPPENAS and BPPT asked ADB for TA support for decentralized NRM in 2004 and subsequently requested a follow-on TA to carry forward the process through more local engagement. 3.

Lessons from decentralized NRM

42. Several fundamental lessons emerge from the experience to-date from the support for decentralized NRM. These lessons arise both from sectoral policies and initiatives and the cross sector experiences. Not all of these lessons have been acknowledged or learned, i.e., applied in new policies or on the ground.

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(i)

The Divisive Divide. The divide that persists between de jure and de facto NRM is indicative of a disconnect between people’s livelihoods on the one hand and new laws, policies, plans and programs on the other. The extent of separation between the de jure and de facto arrangements for NRM reflects the extent of policy and institutional failure that persists and in some instances is allowed to persist. The disconnection of practice and policy is however, typical of a policy led reform process; however there is a need to monitor and ensure that the gap is reduced through time. If the divide persists it becomes divisive and may be exploited to undermine the wider decentralization and democratization process. In Hernando de Soto’s words, when “laws fail to reflect the way people arrange their lives” those laws will not have the critical mass of public support they need to be respected. One example is the perennial problem that new and revised district and provincial spatial plans are not respected by stakeholders when it comes to licensing and control of and accountability for natural resource exploitation. A key lesson both internationally and locally is that good law comes from an understanding of good practice and only on very rare occasions the reverse. As such the lesson for Government and Donors is to build and communicate good practice models for the development of policy and laws to support decentralization.

(ii)

Resistance to decentralization reforms. Unified political will remains key to resolving the problem of the gap between de jure and de facto NRM. International experience shows that major decentralization is not unlikely in a democracy where most of the electorates are local. Currently some national government agencies oppose decentralization and do so by raising issues about local capacity, ecosystems that cross local jurisdictions and nationally important resources to undermine proposed reforms based on local solutions for national problems. The theory of institutional economics and bounded rationality explain this behavior – yet few donor and government analysis specifically address this issue. By not addressing the issue the reform process is prolonged and often derailed by the powerful and those with vested interests in the status quo. Agency power or perceived power often leads to the agencies concerned with inter-departmental harmony being less powerful and reluctant or unable to oppose the powerful sector interests.

(iii)

Integration of good governance with NRM governance. Support for decentralized governance (and related fiscal management) and NRM is often perceived as operationally separate. Some donor and government agencies design programs with governance and natural resource governance separated. In reality, this is not possible and the exclusion of NRM from the mandate of decentralized local agencies results in their ineffectiveness. The separation of mandates also leads to unnecessarily fragmented efforts and high transaction costs for stakeholders, local agencies and sectoral interests. The evidence of benefits from integrated and decentralized approaches is clear and mostly undisputed – what is disputed is who controls the benefits and who bears the costs. Decentralized governance failures explain much natural resource mismanagement and the increasing costs of this mismanagement. The continuing and evolving processes that lead to mismanaged natural resources undermine efforts at good governance by negatively impacting on (i) transparency, (ii) accountability, and (iii) certainty. This loss of governance undermines the development of LG capacity and systems.

(iv)

Balancing support for national and regional NRM. Some donor initiatives support and persist in exaggerating the importance of operating at the national level, even when they are engaged locally. Undeniably national policy can be critically empowering or disempowering of good decentralized governance, but the pioneers of decentralized governance are in the regions, and understanding their successes and failures as well as the experience of nurturing success, make the most compelling arguments for national reform. It is a matter of balance that experience shows is not easy to get right.

(v)

Tensions between the Center and the Regions. International experience in decentralization is reflected in Indonesia’s experience to-date. Decentralization is introduced and therefore viewed within the prevailing perspectives of centralized

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systems and institutions. This view is often used to highlight difficulties with the transition to a decentralized administration with the Center claiming that continued decentralization is inappropriate due to (a) increased corruption and money-politics that creates incentives for over-exploitation of natural resources, and (b) the ever present lack of capacity. These criticisms raise fears amongst political decisionmakers, fears that are subsequently exploited to reverse or minimize decentralization. The exclusion of NRM from decentralization is a major objective of those raising the fears and needs to be factored into reform proposals and procedures. The accusations are often correct but may in fact reflect past approaches and ongoing practices carried out by central agencies where public agencies and the private sector behave in a typically rent-seeking manner believing it is “our turn”. In this regard the available capacity suffers from the same problem of lack of sufficient motivation to act in a more socially-responsible manner (“S3 do not necessarily behave better than S1” or “we can buy the expertise if we need it”). There is a significant need to understand the process that is currently taking place. That is the old system is seeking to retain its power, influence and benefit streams while the new systems are using the remaining voids and uncertainties to garner power and benefits. These outcomes are indicative of incomplete decentralization reforms and are not necessary outcomes of the reform process. Corruption and harmful natural resource exploitation prevailed during the Orde Baru era – something that is clearly demonstrated by the current state of natural resources in Indonesia. These outcomes were achieved through centrally control agencies and it is against this base line that new systems need to be assessed and evaluated – not simply an ideal system. Many of the past outcomes were far less visible because they were geographically remoter, less exposed in terms of the public domain and not a subject of “polite” media attention.2 As long as the Center and the regions eye each other with the suspicion that these different viewpoints reflect, the social capital of trust to resolve differences will remain in short supply. A major lesson for NRM is that any management system needs to be comprehensive and as such needs to address the roles and functions at all levels of administration. As such there needs to be clear mandate, jurisdiction and authority over all natural resources within a management framework that specifies the roles, rights and responsibilities of each agency, and the management relationships between these.

2

(vi)

Village voice. Policies and donor programs in decentralized management emphasize the rights, roles, responsibilities and relationships (R4) among national, regional and district administrations. As such the framework that is emerging is purely public sector administration based, missing is the role of local community or village that should not be considered as part of a separate object of support but as an integral part of the above framework. Most NRM jurisdictions overlap with village areas and affect local livelihoods, particularly those of the poor who are more dependent on the environment than any other stakeholder. The largest number of users of natural resource are those living in local communities and these offer significant opportunity to reduce the cost and increase the effectiveness of any NRM program. Despite the scattered best intentions of donors, LG and NGOs, opportunities for harnessing village communities human, social and knowledge capital or better governance of NRM remain hugely underutilized. Within the decentralization program there are valuable lessons from places like India and the Philippines where villages are included as an integral part of NRM with spectacular improvement in NRM outcomes. Assistance has tended to focus on opportunities for local community management of natural resources, critically ignoring the empowering importance of increasing community involvement in natural resource planning, licensing, control and policy-making, let alone so-called villagedriven accountability of district government.

(vii)

Lessons to be learned. There is a problem that most lessons are not learned. To date there is little evidence that (i) donors, (ii) public agencies and (iii) stakeholders

Until the late 1990s, it was almost unheard of for approved technical reports or news articles to use the term “illegal logging” because of its implied criticism of government failure.

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review, evaluate and then change behavior due to lessons from past and ongoing experience. Most donor and government programs while including evaluation and lessons learned only do so after the majority of investment is made which provides insufficient time for adapting and applying the lessons about concept, strategy and future design. There is a persistent failure in the sector based on the more humbling acknowledgement that “what we thought we knew but experience taught us otherwise”. Many of the hard truths about outcomes have previously been reported and ignored by donors, recipient institutions and decision-makers. As a result, failed policy and project approaches for NRM persist and support current sector based approaches. 4.

What has worked and what has not?

43. A wide array of development projects has included NRM goals, either in part (sectoral) or as a central theme. Most NRM projects, from small-scale to multi-million dollar and multi-year, have claimed varying degrees of success. Some have been more forthright than others about their failings, however, such as in the case of the World Bank’s watershed management project of the mid-1990s which was set up to learn from the failures of the previous six projects and was subsequently found to have repeated some of the same mistakes. One common failing of past NRM projects, admitted by the project funders themselves, has been to see the development challenge as largely technical, consisting primarily of design and engineering tasks or the preparation of policies, plans and programs as expert exercises, participatory more in name than practice. The infrastructure and information that remain after the projects has tended to be neglected thereafter, little accessed let alone used. Structural adjustment lending on the other hand has prompted policy reforms that resulted in unintended negative effects. Of course these weaknesses are not unique to NRM projects. 44. Local “grass-roots” initiatives, some with outside assistance, have had and continue to have encouraging outcomes where the emphasis has been more on fostering good governance (particularly, transparency, participation and accountability) than technical solutions. The key to success has been genuine participation of primary local stakeholders. Such projects have managed to reduce illegal and excessive resource exploitation, in some cases through government recognition of customary (adat) institutions, e.g., coral (ADB support for Marine and Coastal Resources Management Project in West Lombok), community-based reforestation (LP3ES and Konsepsi NGO in West Lombok and Watala NGO in West Lampung), soil and water resource management projects (World Bank support) that have been genuinely inclusive. 45. While such local initiatives have had a lasting beneficial impact, unfortunately national policymakers have generally been unmoved by them, in part because their smallness casts a small development footprint, in part because they challenge entrenched distrust of local action by national agencies. Although many projects have claimed to integrate action in the field with influence on policymaking, this important kind of interaction has rarely worked as designed. 46. Last but not least is the developing policy arena related to transboundary domestic and international NRM issues - among and between villages, districts, provinces and national government through to international relations (ranging from island and marine sovereignty). Opinion is sharply divided about whether the Decentralization Law 22 of 1999 did too little or too much to decentralize NRM. Law 34 of 2004 resolved some but not all the problems. The revision of PP25 of 2000 is eagerly awaited as a means of resolving disputes between national and regional government over rights, roles, responsibilities and relationships. The proposal from some political quarters for a constitutional amendment to further empower the Council of Regional Representatives (Dewan Perwakilan Daerah) could have a much greater impact still on NRM. 47. It is difficult to accurately assess what has worked and what has not. The difficulty being that the objective of interventions is not always aligned to the objective of improved NRM outcomes. While many projects or programs have recorded NRM as an objective, the objective is often narrowly defined in terms of responding to a specific NRM issue and not the overall goal of improved NRM per se. Further, it is highly improbable that any one initiative creates the outcome or changes to the overall system to enable success to be assigned. What needs to be understood is what was done, what worked and in what context that this has worked. Past approaches have, as outlined above, adopted different approaches and strategies. These range from technical approaches such as the watershed management programs, to policy driven approaches (e.g., USAID NRMP) and the community NRM

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programs in forestry, coastal resources and increasingly in water resource and watershed management. All of these initiatives provide valuable lessons in defining improvements as most have successes - to varying degrees. Even failures inform decision-makers and are useful if the outcomes are identified and communicated. What is fundamentally different in the current context of decentralized NRM is that it requires a management framework approach. The need for such an approach is the lesson from past programs and projects. That is a technical top-down sector approach can only achieve certain outcomes. Likewise a community-based approach achieves certain outcomes but not others. To achieve comprehensive NRM outcomes requires all approaches and tools to be implemented within a systems approach, something like the decentralized NRMP. 48. To achieve comprehensive and effective NRM requires institutionalized systems, not parallel project approaches that have their own special rules or procedures. A major lesson for future NRM programs is the need to operate them as institutional strengthening programs that support and deliver programs through the institutions and their own staff. 49. Set against the background of NRM successes, failures and uncertainties surrounding future directions, this TA chose to build capacity and develop tools whilst attempting to work with LG. This included providing access to information and the provision of training providing a platform for further work. 5.

A niche for exploring modest but significant assistance

50. There is clearly much to learn from past experience and including how to address the political, social and economic obstacles to better governance of decentralized NRM. Given the overwhelming scale and complexity of NRM decentralization problems, it is understandable to want to intervene on all major fronts, applying “best practices” and “integrated development” processes. Such a change strategy may be thwarted or less effective as there is simply too much that needs to change for the optimal solution. Thus, reform must not just identify major goals but the roadmap of “how to get there?” Aiming for nothing less than the ideal runs the risk of “the perfect getting in the way of the good”, with frustration at failed dramatic change instead of encouragement from modest but more attainable successes. 51. Better and shared understanding among stakeholders about the underlying causes of decentralized mismanagement of natural resources and lessons learned from Indonesian experience, combined with increased awareness of decision-makers about actual local conditions, are needed to nurture the social and political capital required for change in the direction of sustainable development. For that capital to translate into positive reform, however, NRM initiatives must be strategic, realistic and timely. They must take into account the prevailing institutional weaknesses, limited absorptive capacity for assistance and modest financial resources of government agencies. Given the wide and complex array of NRM problems along a broad multi-sectoral front, prioritization becomes paramount. More important still is the under-appreciated imperative of timely action. 52. Introducing new approaches for building NRM capacity at the LG level that are well-focused, realistic and timely is the aim of this TA project for NRMdf. The TA’s approach integrates technical information-gathering with information-sharing in ways which enhance the cornerstone of social capital - mutual trust, in turn encouraging more effective coordination among local and higher levels of government administration. A key strategy for the TA implementation was to develop the view of stakeholders to “THINK BIG, start small”, so that pragmatic and small changes and successes can create community interest in more change and provide evidence to convince planners to provide more resources. A significant lesson is that effective NRM within a decentralized framework will emerge overtime as agencies and their staff build capacity, skills and knowledge of the systems to be managed. The emergence and adoption of an NRMdf needs to be accepted as both necessary and desirable and not as an acceptable reason for discontinuing decentralization. 6.

MoHA’s role in facilitating better governance of NRM

53. In Indonesia there is currently a growing awareness that governance failures lie at the heart of natural resource mismanagement and must be addressed by appropriate government action. Manifestations of such failures include:

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(i)

Lack of effective coordination among government agencies horizontally across the same district, and vertically between regions and between higher (national and provincial) and lower (village) levels of administration.

(ii)

Policy and planning inconsistencies both horizontally and vertically, e.g., disconnects between budget (APBD/N), policy-making (UU, PP and Perda), long and medium-term planning (RPJM/P) and spatial planning (Tata Ruang).

(iii)

NRM decision-making, especially the process of licensing, that (a) (b) (c) (d) (e)

is not transparent; does not invite participation of those whose livelihoods are affected; does not assure adequate accountability for exploitation outcomes; with long delays; and lack of general respect for laws and rules.

54. In general, there is a poor understanding amongst the public and planners regarding the determinants of good governance required for NRM sustainability. Problem-solving is often led by technical solutions cast in sectoral interests rather than through addressing underlying causes through the application of basic and good governance principles. Solutions often prove at best to be temporary and mostly fail due to the inability to recreate the parallel arrangements used to pilot or manage donor supported programs. Yet these programs are often repeated. For example, the lack of sufficient community participation and project management accountability of top-down management of reforestation schemes results in technically-proper large-scale tree planting but no subsequent land care; some years later, the approach is repeated. Promoting rules of good governance is needed for all natural resource sectors whether for exploitation or conservation. In the absence of a Department for Natural Resources, only a non-sectoral government agency is likely to regulate effectively the nexus between good governance and NRM, the one influencing the other, especially in resource-rich areas. 55. The mandate of MoHA to guide regional development and facilitate proper coordination of government agencies as well as its commitment to fostering good decentralized governance underpins its authority and jurisdiction to play a leading role in decentralized governance of NRM. It is largely free of sectoral bias (ego-sektoralisme), and structured to support regional autonomy, opposing recentralizing tendencies of some national government agencies (ego-sentralisme) and any excessive regulatory zeal of LGs (ego-daerahisme). 56. While OTDA (of MoHA) focuses on decentralization per se, BANGDA handles governance of NRM through its Directorate for Facilitating Spatial Planning and Environmental Management (see Appendix 1 for a full discussion of MoHA and BANGDA’s mandate on NRM). The rationale for a continuing and even expanding, role for MoHA in guiding decentralized NRM can be found in BANGDA’s participation with stakeholders to identify principles of good governance in 2001 (see Appendix 2). The core set of four governance principles of “transparency, participation, responsiveness and accountability” (and cross-cutting “timeliness” from the two principles of “efficiency” and “effectiveness”) offers trans-sectoral solutions to some of NRM’s major problems. 57. Starting with Law 22 of 1999 and the revised Law 32 of 2004, the MoHA was assigned responsibility for overseeing the decentralization process. In doing it collaborates with LGs and with various ministries including the Ministries of Environment, Marine Affairs and Fisheries, Agriculture and Forestry as well as BAPPENAS. All are working on an agenda to incorporate sustainability into NRM, setting up various guiding and regulatory instruments to define functional assignments for the differing layers of government and their minimum service standards. To effectively implement national policies on NRM and deliver both technical and public services, the coordination between environment agencies at district levels and those of agriculture, fisheries, forestry and public works remains one of Indonesia’s most important and formidable challenges. Again, the adherence to good governance principles can significantly advance the cause of inter-institutional coordination. 58. Recognizing the growing complexity of NRM in Indonesia since decentralization, MoHA has sought means to address the challenge of harmonious regional development. While the nature of local governance influences NRM, so NRM processes and outcomes influence local governance. These influences can be positive and negative. The situation is made significantly more complex by the

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uneven distribution of natural resources between regions with some “or blessed with natural resource riches and others cursed by their lack of natural resources or the past impacts of NRM”. Towards strengthening capacity for facilitating good decentralized governance of NRM, MoHA with support from the ADB, has a TA program based in BANGDA. 59. The present project on Natural Resource Management in a Decentralization Framework (TA 4687-INO), referred to as NRMdf, carried forward the conceptual and general thematic approach of a previous TA project in 2003 (TA 3523-INO) to a more hands-on level with greater emphasis on the engagement of LG and post-project continuity. The main findings from TA-3523 were used to guide implementation of NRMdf especially the centrality of the concept of “Spatial Planning Plus”, i.e., ensuring that conventional spatial planning incorporate an environmental sustainability component. The achievement an effective spatial planning system is central to an effective decentralized NRM framework as it is through an agreed and recognized plan that competing needs and interests can be coordinated and managed. Without any plan all parties will simply seek to maximize their benefits irrespective of the needs of others or the environment. While conceptually important and relatively straightforward the spatial planning system has a long history and one that is already intertwined with the powerful agencies such that future revision or reform of the plans or the planning procedures will, like decentralization, face strong opposition by those that benefit from the existing systems.

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III. A.

TA IMPLEMENTATION

Purpose - ADB and BANGDA Goals

60. The ADB TA paper established the purpose of TA 4687-NRMdf as mainstreaming principles and approaches of sustainable NRM into LG decision-making and improve LG capacity and capability to sustainable manage their natural resources in selected districts through: (i) enhanced government oversight, (ii) proposed improved practices, and (iii) information dissemination and awareness raising. 61. NRMdf was guided by an adaptation of BANGDA’s vision (visi) of “Support for Achieving Regional Self-reliance for Management of Regional Natural Resource Development which is Harmonious and Sustainable”.3 The project’s mission (misi) are to: (i)

Encourage adoption of Approaches and “Tools” for Good Decentralized Governance of NRM, that are: x x x

(ii)

Contribute to: x x

B.

Strategic ~ Appropriate to major NRM challenges. Realistic ~ Taking into account institutional weaknesses and limited absorptive capacities for assistance. Practical ~ How to start and create momentum for change, no matter how modest.

Reducing poverty; and Supporting national development through sustainable economic growth.

Role of TA

62. NRMdf TA program was used to support BANGDA, the Executing Agency of TA 4687. Although day-to-day communications between NRMdf TA and BANGDA counterparts was undertaken, periodic meetings were also held with all three principal national partners of the project, namely, BANGDA, BAPPENAS and BPPT. Other major partners in the TA program were the five LGs where pilot work was undertaken and individuals from each who are now part of a pusat-daerah (center-regional) communication network. 63.

3

The NRMdf TA team sought: (i)

To be demand-driven as part of national-level capacity building, and worked with BANGDA Sub-Directorates to provide input to policy formulation (see Appendix 4 on list of seminars and workshops attended).

(ii)

To engage with LG, under BANGDA direction, to introduce, select and identify development steps for the application of innovative approaches and tools to achieve better governance of NRM, taking into account prevailing institutional weaknesses and how to start.

(iii)

To contribute to existing working groups and networks for developing NRM approaches relevant to project goals, e.g., SEA with BAPPENAS and Ministry of Environment, and EPI with BAPPENAS and BPPT.

(iv)

To achieve national out-reach through the establishment of a website to be maintained by BPPT for at least two years after the project ends.

(v)

To develop a communication network of NRMdf partners to sustain itself after the end of the project.

BANGDA’s formal vision statement is “Achieving Regional Self-reliance for Management of Regional Development which is Harmonious and Sustainable”.

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C.

19

TA Structure

64. The NRMdf TA included development of the three main components (see Appendix 5 for a bilingual project brief). Implementation involved some variation from the original component descriptions based on new information and experience; however the intent of the TA proposal and original ADB project paper was completed. 1.

Component 1: Policy Analysis and Institutional Strengthening

65. Analysis of the decentralization policy and legislative framework as it impacts on efforts to achieve sustainable NRM, taking into account experiences gained from past ADB-assisted and other related projects. A review of current roles and functioning of LG for NRM and environmental protection, as defined by enacted laws, regulations and guidelines. Assistance given to MoHA in formulating new policies on NRM, spatial planning, upstream-downstream management, and allocation of roles and responsibilities to different levels of government administration from the central to village levels. Particular emphasis was placed on recommendations for: (i) institutional strengthening and reform at the district level, and (ii) improvements in the vertical and horizontal coordination among different types of government agency involved in decentralized NRM. 2.

Component 2: NRM Development Planning

66. Reflection and incorporation of sustainable NRM and environmental considerations into LG development planning processes was the primary goal of this component. Technical support aimed at strengthening spatial planning of district administration. Review and analysis of the current spatial planning practice revealed bottlenecks to which options were discussed and solutions proposed. Means of overcoming the poor linkage between the district government development planning process and village-based NRM was also addressed. Examples of districts pioneering better integration of topdown and bottom-up approaches in NRM were identified. Participative approaches to increasing knowledge about the status and nature of actual natural resource conditions were identified and defined. Improved systems of good NRM governance practices from past project and pioneering districts were used to illustrate potential ways forward, e.g., the better integration of planning and evaluation systems through SEA is a major recommendation of this component. 3.

Component 3: Information for Decision-making

67. Tools and information materials on environmentally-sound and economically-viable spatial planning were prepared to raise awareness among LGs and the public at large. Dissemination of these was through the various meetings and forums, attempts at developing and using a project website and the production of handbooks. The handbooks are intended to be for both policy-makers and practitioners and are able to loaded onto the web page. 68. Translating information into accessible knowledge for the stakeholders from five selected pilot districts was an important strategy. A website was established to provide comprehensive information on decentralized NRM in Indonesia that incorporates sustainability principles; however there remain unresolved technical constraints to access and uploading datasets, especially in the regions where internet access is often slow and costly. Among the specific approaches disseminated were SEA, EPI, resource valuation, natural resource accounting (NRA), carrying capacity implications, conflict resolution and awareness. The website is currently operated and maintained by BPPT for at least two years after the end of NRMdf TA and includes a low-speed and narrow-band text-based version for easier access in the regions. 69. Two elements of the TA (in selected field sites) were consistent with support for ADB’s NRM sector strategies for marine and coastal management, agriculture and rural development, water resources management and environmental protection, and related ADB project interventions; and two Millennium Development Goals: x x

Number 1 Eradicate extreme poverty and hunger to ensure environmental sustainability, and Number 7 and Number 9 for integration of the principles of sustainable development into country policies and programs and reverse the loss of environmental resources.

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ADB TA 4687-INO: Natural Resource Management in a Decentralized Framework Final Report

70. Thus the TA aimed to contribute not only to the goal of sustainable economic growth through environmentally sound decentralized NRM in general but also to poverty reduction. 71.

D.

The TA with counterparts identified two priority development issues: (i)

Assessment of landscape-wide environmental and economic use values through processes that invite greater community participation in the determination of values as well as dialogue over implications such as improved environmental understanding.

(ii)

Better inter-institutional relationships and coordination (both horizontally and vertically from the capital to village communities) for NRM in spatial planning, exploitation licensing and conflict resolution. These issues are central parts of increasing planning awareness about the actual condition and value of natural resources in their regions.

From Project to Practice

72. Figure 1 shows BANGDA’s perception of the role of the NRMdf project as supporting implementation of Act 32 on decentralization. They specifically sought to strengthen processes for spatial planning by incorporating strategic environmental safeguards, resource valuation and natural resource carrying capacity considerations to become Spatial Plan ++.4 Data and information from Spatial Plan ++ should in turn inform and influence both medium-term and long-range development plans (RPJM and RPJP, respectively) in a more sustainable direction. These plans should then guide regional strategic planning and annual budget preparation processes. On the control side, another NRMdf instrument, an EPI for district has incentive and disincentive potentials for encouraging better environmental performance by raising environmental awareness locally as well as allowing crossdistrict comparisons with reward and penalty implications.

Regional Development & NRMdf Approaches Articles 13, 14, 18

Article 150

RPJP/M Plan

Act 32/2004

DATA & INFORMATION

Article 151

Strategic SKPD Plan

RKPD

Annual Budget

Article 152

Spatial Plan ++

Implementation

Control

Resource Valuation

Regional NR Potential & Basic Data

SEA Environment Index

Figure 1: NRMdf Fit with Regional Development Planning

4

Act 32 replaced Act 22 of 1999.

ADB TA 4687-INO: Natural Resource Management in a Decentralized Framework Final Report

21

73. The scope of the strategic issues to which the NRMdf “toolkit” was applied in support of decentralized governance of NRM is shown in Figure 2. While taking into account the various government administration levels involved in decentralized NRM, the main focus was on the needs of district government, addressing various policy and institutional constraints to spatial planning of natural resources. The spatial planning scope included both the process of preparing new or revised spatial plans and the application of existing spatial plans to manage exploitation licensing and control. Mechanisms for revealing and disseminating information about the status of natural resource and environmental management in districts as well as NRMdf management tools were made available through a website, with a text-based version for the regions with slow internet access. 74. The process of introducing and testing NRMdf “outputs” such as analytical papers and manuals or handbooks is shown in Figure 3. The relationship between planned project outputs and the TA proposal is indicated in Appendix 6. Referring to the TA proposal’s schema of activities (Figure 4), the only significant differences in NRMdf implementation were those arising from the client’s identified demands: (i)

Public awareness in general was dealt with as a planning awareness challenge (incorporating public awareness components).

(ii)

Direct evaluation of NRMdf project impacts was conducted as an end-user survey. An impact-based EPI than could be used to track general environmental and NRM interventions at the district level was also explored.

(iii)

Enhancing MoHA’s capacity to more effectively meet its mandate has focused, at BANGDA’s request, more on developing the Ministry’s good governance justification for a role in decentralized NRM than recommending any reorganization (problematic and very long-term). More important than changing the organizational structure of MoHA (not realistic in the short- and medium-term) is a clear and compelling understanding of why a non-sectoral ministry should be so intimately involved in decentralized NRM.

75. In response to BANGDA requests during the Inception Phase, careful attention was paid to individual consultant tasks to avoid unnecessary duplication, that all outputs were clear and agreed for each of the three project components and that counterparts could better identify the skills set available for capacity building and collaboration into BANGDA’s policy development. Appendix 9 lists the planned set of outputs per consultant, while Appendix 14 consists of planned outputs according to the three major project components. Appendix 7 lists the final complement of outputs in the form of strategic issues papers, analytical papers, handbooks or manuals, and posters.

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ADB TA 4687-INO: Natural Resource Management in a Decentralized Framework Final Report

Scope of the Strategic Issues to which the NRMdf “Toolkit” was applied in Support of Good Decentralized Governance of NRM

GOVERNMENT INSTITUTIONS * R4 Rights Roles Responsibilities Relationships

POLICIES, LAWS AND REGULATIONS Guiding, Informing, Regulating and Providing Incentives for Sustainability

to resolve : lack of legal clarity, resource conflict, fiscal constraints, low accountability

to resolve: limited environmental considerations, legal gaps and contradictions, and poor law enforcement

National

Province

District

Village

IMPROVED NRM PLANNING of SPATIAL DOMAINS * NRA and Green GDP * Marginal Resource Valuation * Carrying Capacity * Strategic Environmental Assessment * Inter-institutional Coordination * Planning Awareness APPROPRIATE NRM EXPLOITATION LICENSING AND CONTROL under EXISTING SPATIAL PLANS * Transparent and Inclusive Exploitation Licensing * Conflict Resolution * Planning Awareness NATIONWIDE INFORMING DECISIONMAKING for DECENTRALIZED NRM * Website information and dialogue * Communication network * Resource “toolkit”

Figure 2: Scope of the Strategic Issues to which the NRMdf “Toolkit” was applied in Support of Good Decentralized Governance of NRM

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ADB TA 4687-INO: Natural Resource Management in a Decentralized Framework Final Report

NRMdf TA National and Regional NRMdf Partners

Spatial Dimensions of Decentralized NRM Identifying Strategic Issues

Technical Proposal

C1 National Policy amd Institutional Analyses and Position Paper C2 C3

Website Information and Communication Network for Local and National NRM Decision-making

Collaborative development of NRM “Toolkit” Handbooks with District and Provincial Governments

District-level Testing and Capacity Building

Strategies and Approaches for Good Decentralized Governance of Natural Resource Management

Figure 3: Schematic of Outputs Process for each NRMdf Component (C1, C2 C3)

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ADB TA 4687-INO: Natural Resource Management in a Decentralized Framework Final Report

Awareness Campaign

Spatial Planning review

Administrative Procedure Review

Policy and Institutional Review

Legal Review

de facto framework Status of NRM - trends - past programs - institutional arrangements - administrative procedures - information systems - current capacity

Compare

de jure framework NRM Framework - roles - respoonsibilities -rights - relationships NRM Institutions - Mandates - Jurisdiction - Authority - Procedures

Revised NRM Framework

Spatial Planning Guidelines

Testing, Piloting, Validating Awareness Raising , Capacity Building of MOHA, LG Staff

Integration of NRM with Spatial Planning and Economic Development Planning

Revised NRM Administrative Guidelines

Testing, Piloting, Validating Awareness Raising , Capacity Building of MOHA, LG Staff

Information Systems

Revised Guidelines, Training Materials and Administrative Procedures Draft MOHA Action Plan LG/District Action Plan Legal Reform Agenda's

Identify Districts

Decision Support Tools (Economic Valuation, Natuarl Resource Accounting, Strategic Environmental Assessment, Threat Analysis, Participatory mapping, Participatory monitoring)

Development

Identification of Performance Indicators

Updating

Transfer to BPPT

District Benchmarking

District Benchmarking

Survey

Survey

Figure 4: TA Proposal’s Schema of Activities

E.

Mobilization of Inputs and Human Resources 1.

Office and Equipment

76. BANGDA provided the TA office close to the counterpart Directorate for Facilitating Spatial Planning and Environmental Management, encouraging a close working relationship both for general project implementation and demand-driven technical collaboration, e.g., commentary on the formulation of some new NRM policies. 77. Equipment purchased for the project was handed to the Government at the end of the project. This equipment included two laptops, two desktop computers, four pocket hard-disks, printer, fax, photocopier, digital projector and office furniture. 2.

Personnel

78. After the replacement of two domestic consultants early in the project because they could not make available enough time to work on the project, and one who died, two replacements made up the full complement of domestic consultants with one of the existing consultants extended to take on extra duties. During December 2006 to February 2007 three domestic consultants were contracted as specialists in: (i) natural resource taxation; (ii) mechanisms for conflict resolution; and (iii) GIS spatial interpretation and illustration/mapping. The planned TA input to natural resource revenue and taxation was not completed due to the prolonged approval process required for the proposed candidates. Once approval was obtained, none of the three proposed candidates was available. This left insufficient time to find replacements and the input was cancelled. 79. Two additional international consultants were contracted for: (i) spatial planning for community-based forest resource management, (ii) and development of an EPI for districts and provinces.

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ADB TA 4687-INO: Natural Resource Management in a Decentralized Framework Final Report

80.

The Project’s personnel mobilization is shown in Table 1. Table 1: Consultant Mobilization Consultant

Christopher Bennett [01-CB] Indra Perwira [02-IP] Iskandar Muda Purwaamijaya [03-IM] Kunkun Jaya Gurmaya [04-KG] (replaced Dedi Sediati) Yaya Suyana (replaced Supriyo Ambar) [06-YS] (Arifin Soetrisno left, not replaced; tasks taken over by Dajaan) Amiruddin A. Dajaan Imami [07-AD] Matius Suparmoko [08-MS] Marcelinus Molo [09-MM] Heri Noviandi [10-HN] Lien Herlina [11-LH] Jim Davie [12-JD] Lars Blomkvist [13-LB] Martin Hardiono [14-MH] Suhardi Suryadi [15-SS]

Specialist Position Team Leader & Natural Resources Management Deputy Team Leader & Policy and Institutional Development Participatory Spatial Planning

Mobilization Date

Total PersonMonths

19 June 2006 (pre-mobilization, 9 & 11 June)

7.0

21 June 2006

7.5

27 June 2006

5.0

Natural Resources Management

22 August 2006

4.8

Environmental Management

7 August 2006

5.0

Environment and Natural Resources Management and Legislation

27 June 2006

0.47

Public Administration

27 June 2006

5.0

27 June 2006

4.0

3 July 2006

3.5

27 June 2006

3.0

27 June 2006

4.0

1 November 2006

1.5

9 November 2006

1.0

GIS Spatial Interpretation

December 2006

0.75

Mechanisms for Conflict Resolution

December 2006

0.75

Environmental Economics and Accounting Conflict Resolution and Community Development Website Management Public Relations & Planning Awareness Environmental Performance Index Spatial Planning for Community-based Forest Management

Notes: /1/ [01-] to [16-] refer to headings of all electronic file names for each individual specialist’s outputs (see Appendix 7 for List of Technical Papers). Person-months are per approved Contract Variation No. 2 dated 28 November 2006. /2/ A planned consultancy for a natural resource revenue and taxation consultant was not realized due to the prolonged ADB approval process leading to the three candidate consultants being unavailable and there being insufficient time left within the TA to mobilize alternatives.

81. Further to a request from BANGDA, from December to January only consultants able to provide full-time services with a record of commitment to working with BANGDA counterparts were invited to contribute their time to the final phase of the project. During this period the TA concluded the capacity building activities of the project, in particular presentations of results to BANGDA and to specialist working groups, e.g., SEA Working Group, preparation of posters and handbooks for use by regional and national government agencies. 82. This team was central to the presentation of project achievements to BANGDA and its Directors and included: (i) Yaya Suyana covering natural resource and environmental assessment aspects, (ii) Amiruddin A. Dajaan Imami handling inter-institutional coordination as well as its challenge for conflict resolution over NRM, and (iii) Lien Herlina who provided the planning awareness inputs.

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ADB TA 4687-INO: Natural Resource Management in a Decentralized Framework Final Report

3.

Project site visits and related activities

83. The overall experience of the TA and their national counterparts when they introduced new tools and approaches to NRM planning and decision-making to achieve improved governance of natural resources was positive. There were however, lost opportunities in this process due to the design of the TA. The major constraints were (i) the absence of financial support for LG and other local stakeholders to jointly test the proposed approaches through actions other than dialogue and capacity building, and (ii) the unwillingness of LG to engage in new NRM approaches without clear support from national government. This support needed to be in the form of both approval of the processes and the guarantee that the Government would recognize the outcomes of the processes such as the revised spatial planning systems. The TA is unable to fully test or pilot the improved NRM planning tools without active participation of LG and stakeholders as partners not only as this would have undermined a core principle of NRMdf, namely, greater stakeholder inclusivity in decision-making for spatial planning and natural resource exploitation but due to the need to use existing institutional mandates and their available capacity. Nonetheless, stakeholders showed immediate interest and willingness to learn more about the NRMdf’s resource toolkit and its application to local NRM problems. 84. Engagement with LG therefore centered on jointly identifying local NRM problems, introducing possible tools to manage those problems, giving examples of how those tools could be applied locally and working through their application as far as time and resources allowed. Major examples of the TA supported programs include: (i) resource valuation to understand the implication of spatial planning alternatives in East Kalimantan Province, (ii) consequences of different carrying capacity methods in Bandung District, (iii) SEA for the coastal zone of Cianjur District and for urban planning in agricultural land in Cianjur municipality, and (iv) establishing appropriate organizational structure for environmental offices by reference to three basic different types across the five districts. Each local example was used to develop the necessary sections for the NRMdf manuals or handbooks. 85. The planned site visit to Solok District was cancelled as it coincided with a season of unusually intense landslides. BANGDA decided that the LG was preoccupied with the landslide problems which lasted for two months during the last half of the project. BANGDA agreed however, that Solok would be visited early after the end of the project to test the NRMdf district engagement model with a full complement of supporting manuals and posters as well as selected analytical papers. 86. Between 28 August and 29 September 2006, the TA specialists conducted field visits to the following project sites. First to Cianjur District in West Java Province, then to Lombok Barat District in Nusa Tenggara Barat Province and the three Kutai Districts in East Kalimantan Province. In each district, two workshops were held: a planning workshop and a results workshop. A return visit was made to Cianjur, the first field site, to conclude engagement along the lines developed during subsequent field visits elsewhere. Plans were made to return to each of the selected sites after the project with a full suite of visual aides (posters, handbooks and presentations). 87. A national workshop for regional partners from the above five districts and their provinces, national counterparts and other national agencies was held in Jakarta from 22-23 November 2006. The purpose of the workshop was to bring together LG representatives from each of the selected areas to share experiences among themselves and amongst selected national agencies. The workshop also discussed further the NRMdf development tools introduced by the project for (1) policy development and institutional coordination, (2) spatial planning alternatives and (3) planning awareness. The workshop was used to introduce a communication network among regional and national agencies interested in sharing their experience regarding the integration of environmental considerations in spatial planning and related exploitation licensing. 88. A project evaluation questionnaire was prepared and submitted to partners (see below and Appendix 22). 4.

International Training Tour (ITT)

89. During the project, various international options were explored. Three candidates stood out. First, South Africa for its wide and varied experience in applying SEAs (some 50 in all). Second,

ADB TA 4687-INO: Natural Resource Management in a Decentralized Framework Final Report

27

5

RECOFTC and Wagningen International’s NRM spatial planning governance workshop in Thailand. Third, New Zealand where SEA, spatial planning, environmental monitoring and NRM policy reform experiences offered the best opportunity for participants to learn what was applicable to their local conditions. The further advantage to the New Zealand option was the top-up budget offered by the New Zealand Government bilateral program (NZAID) allowing more NRMdf partners to participate. The Government of Indonesia covered domestic travel costs within Indonesia. 90. The objectives of the ITT were to (i) further increase capacity of the government partners, (ii) develop the communication network for NRMdf in order to ensure continuity of benefits beyond the lifetime of the project and form the basis of a dialogue for new projects in support of sustainable decentralized governance of NRM in Indonesia, and (iii) increase the sense of shared ownership in approaches introduced by the NRMdf. 91. Led by BANGDA, 12 central and regional partners of the project were selected, on the basis of their progressive attitudes, appropriate capacities and positions for improving decentralized NRM (see Appendix 24). New Zealand hosts included Commissioner for the Environment, NZAID, NZ Landcare Trust and AGRICO Ltd. 92. From 4 to 12 March 2007, the ITT group were introduced to (a) regional planning for NRM according to the New Zealand Resource Management Act (RMA), (b) district planning within the wider regional resource management planning framework, (c) definition and implementation of environmental monitoring focusing on indicators of both water and land use, and their impacts on water quality – this included the use of data to assess the trade-offs for tourism and fisheries, (d) the activities of community land care groups on farm and community planning approaches and methods, their experiences and impacts, (e) community participation in district planning, (f) how land care for rural communities builds social capital for improved spatial planning, monitoring and evaluation, and (g) the role of the office of Commissioner for the Environment including Strategic Environmental Assessment. 93. In turn, the ITT group (i) made brief presentations of Indonesian experience to hosts, (ii) prepared a findings statement (rumusan) at the end of the ITT, one from central agencies and one from regional agencies, and (iii) each participant filled out a questionnaire evaluating the relevant benefits of the ITT (Appendix 23). 5.

Website

94. The first stage of establishing a website was the provision of a server and supporting hardware located in the computer laboratory of the BPPT. BPPT agreed to maintain the site for at least two years after the end of the NRMdf. The TA provided a website consultant who spent most of his work time in the laboratory working with NRMdf counterpart staff. He was mobilized during the first and third phases of the project. A small amount of his time was available to work with BANGDA computer technicians on the problematic issues over the management of the BANGDA website. These issues included access to the website and content management. The issues were only resolved at the time of TA completion limiting the ability of the TA to support the ongoing development and use of the website. 95. The greatest challenge for the website was to provide consistent and easy access to the site, to ensure that it was regularly updated, and make it available particularly to the regional partners whose internet access is severely constrained by access speed and capacity. The regional internet constraints are significant where access speeds are typically five-times less than in Jakarta and major cities. At the time of handing over the website to BPPT and BANGDA counterparts in February, there were outstanding issues related to obtaining any access and also the speed of access once on the website. The BPPT IP was overcrowded and lacked the capacity and bandwidth, and after several months BPPT assigned a dedicated IP which allowed uploading of TA materials and increased access. Additional content was added or linked from related NRM projects such as the previous ADBsupported project, TA-3523-INO 2005 and USAID-BAPPENAS NRMP 1991-2004. Whereas the new IP address set-up was welcomed, questions remain as to the most appropriate institutional home for

5

Two week workshop on Landscape Functions and People: Applying Strategic Planning Approaches for Good Natural Resource Governance. Source: http://www.recoftc.org

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ADB TA 4687-INO: Natural Resource Management in a Decentralized Framework Final Report

the website to ensure ongoing and effective post-project management. While BPPT has technical capability the strongest incentive for maintaining and promoting the web page lies with BANGDA. 96. The overwhelming consensus among counterparts was that the website should be in Indonesian, wherever possible with summaries in Indonesian, in order that updating after the end of the project would be feasible and poor quality English might deter international interest. The website structure at the end of the project remained essentially the same as that presented in the Mid-term Report (see below and Appendix 19). F.

Achievements and Outputs 1.

Pragmatic progress

97. The timeframe of the TA in relation to the many and complex NRM challenges in Indonesia today demanded that emphasis be on “what pragmatically can be done” with available resources (seadanya) rather than dwelling only on “what ideally must be done (seandainya). A start towards improved approaches was considered as important as waiting for all resources and conditions to be in place which of course they rarely are. The timing of the TA was appropriate in the sense of maintaining local interest in NRM and enabling the further strengthening of both capacity and tools that should enable increased future budgetary support. The approach taken is more feasible when activities are not held up to ideals that are too high, accepting better rather best practices, or better before good governance. 98. Furthermore, there was an issue of continuity, i.e., what will happen on the first day after the TA completion? To ensure ongoing involvement the TA prioritized analytical and capacity building work taking into account the institutional realities of LG including (i) small operational budgets generally restricted to specific non-adaptive projects, (ii) disincentives to innovate, (iii) weak organization and motivation for improved service delivery, (iv) resistance to knowledge sharing, (v) variable law enforcement, and (vi) formal and informal financial targets that are threatened (at least in the short term) by incorporating environmental principles in overall development planning and implementation. 99. To ensure that during and after the project the “tools” and approaches introduced by NRMdf took hold and expanded, the project adopted two guiding principles for engagement with LGs based on past experience of LGs themselves. The first was an exhortation by the Head of BAPPEDA (Regional Planning Board), Lombok Barat District reflecting the limited absorptive capacity of local institutions, the second from OTDA,6 MoHA, about ways to make the most of decentralization opportunities: (i) (ii)

“THINK BIG, start small”. “Think incrementally depending upon your capacity”.

2.

Reports produced

100. The TA produced a wide range of outputs in the form of issue papers, analytical papers and handbooks that supported the capacity building program and which can be reproduced for wider use (see Appendix 7). The outputs consisted of:

6

(i)

Strategic Issues Papers. A total of 12 strategy papers were produced early in the TA and used to generate open discussion among a broad range of different stakeholders by raising pertinent NRM issues but not necessarily coming up with a particular set of solutions and recommendations. The topics were related to the strategic issues identified for decentralized NRM by the TA in collaboration with counterparts and regional partners.

(ii)

Analyses and Recommendations. A total of 17 papers with analyses and recommendations related to project goals were prepared. The topics were mostly

Responsible for framing the replacement to Government Regulation PP25 of 2000 on roles and responsibilities of different levels of government administration.

ADB TA 4687-INO: Natural Resource Management in a Decentralized Framework Final Report

29

related to strategic issues identified by the TA partners often building on the Strategic Issues papers and ongoing MoHA policy formulation process. These papers were often modified following the case study experiences generated during TA implementation.

G.

(iii)

Handbooks or Manuals. A total of 12 handbooks, based upon the above analyses, were considered by counterparts and regional partners to represent the most important tools and approaches for adoption by LG in its efforts to improve spatial management of natural resources.

(iv)

Educational Posters. The aim of the posters ranged from “attention-grabbing” about key messages (e.g., planning awareness and inter-institutional coordination) to a sequence of problem presentation and options for solutions through the application of NRMdf tools (e.g., SEA, Resource Valuation and Conflict Resolution). Roll-up posters were designed for convenient transport and display.

Implementation of the Three NRMdf Components

101. The following sections cover implementation of the project in terms of its three main components, as well as the sequencing of project interventions. 1.

Component 1: Policy Analysis and Institutional Strengthening a.

Identifying spatial NRM issues of strategic significance

102. A priority for the TA was to identify major spatial issues of decentralized NRM in Indonesia. An expert analysis was completed and then modified through participatory review informed by the analytical findings, discussions with counterparts at the national level and further refined during engagement with regional partners. The results were incorporated into the Strategic Analysis Papers as well as used to adapt the NRMdf tools and approaches for introduction to the selected districts. 103. BANGDA counterparts from the Directorate for Facilitating Spatial Planning and Environmental Management identified the following important NRM and other environmental issues of current concern: (i)

Government roles and responsibilities: (a) (b)

(c)

(ii)

Planning awareness: (a)

(iii)

Regional government respect for national laws for NRM, environmental management and spatial planning processes. Rationalization of roles and responsibilities for NRM among national and regional agencies in line with Act 32’s Konkurensi or concurrent action (in contrast to deconcentration of the previous Orde Baru era). Appropriate organizational structure for local environmental agencies (office, agency or service unit).

Changing regional mindsets to accept the economic and social importance of good environmental management and raising planning awareness to achieve this, rather than reliance on short-term financial revenue flows from unsustainable NRM.

Spatial planning: (a)

(b) (c) (d)

Better coordination among national and LG and local communities for improved spatial planning processes. Reviving the Coordinating Agency for Spatial Planning (BKPRD). Resolving differences between regional spatial planning and national state forest areas. Mangrove deforestation for shrimp pond development. Conversion of agricultural land for building development schemes.

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ADB TA 4687-INO: Natural Resource Management in a Decentralized Framework Final Report

104. BAPPENAS counterparts prioritized the technical strategic issues for which they needed to gain a better understanding. These included the status of natural resources, their carrying capacity and potential to safeguard natural resources and the environment through the application of SEA. 105. BPPT on the other hand, emphasized the strategic importance of its long-standing interest in environmentally-sensitive measurements of growth, e.g., NRA and the preparation of green GDP. Together with BAPPENAS, BPPT noted the need to compare environmental performance among districts and provide budgetary rewards and penalties accordingly. In effect, the development of a performance benchmarking program. 106. The regional partners’ perspective on their strategic priorities identified inter-institutional vertical and horizontal coordination difficulties amongst and between government agencies from national to village levels as a major concern. This concern is often expressed in LG being able to provide the expected levels of service provision. 107. Priority needs relate to both actual and envisaged roles for each TA partner - with BAPPENAS staff wanting information on assessment of performance, BPPT wanting criteria for adjusting economic growth indicators and subnational staff wanting to know how to link and align the various influences and interests that interact with them. b.

Emerging issues

108. The strategic issues of increasing importance (some articulated in the Strategic Issues and Analytical papers, others by project partners during engagement with the regions), were as follows: (i)

Persistent disconnect between laws, budgets and plans. Lack of harmonization among the four basic kinds of policy-making and development planning – national laws, regional laws, regional annual development budgets and spatial planning (refer to Figure 1). Undoubtedly the issue will be addressed in the long term as democracy and decentralization mature, however MoHA could assist LG in identifying potential conflicts and how these could be addressed by each of the levels of administration.

(ii)

Increasing public dissatisfaction with spatial planning. The failure of spatial plans to sustainably guide and or control natural resource exploitation and rehabilitation increasingly leads to declining support in spatial planning as a useful management tool. As a result of the poor application of plans, environmental degradation on land along waterways and in the sea continues to increase, e.g., floods, landslides, soil erosion, forest fires, conversion of forests to agriculture. There is growing public dissatisfaction with spatial planning shortcomings. Two major failures must be addressed: (1) insufficient background data about actual environmental and carrying capacity conditions, and (2) participation in the spatial planning process by local communities whose lives are impacted by the plan and subsequent natural resource exploitation licensing. Further, there needs to be consideration of the status of the spatial plans being developed. The plans need to be ratified as statutory plan that hold not only the private sector but all government and nongovernmental agencies to account. This will require the relationship between the remaining sector agencies and the spatial plans to be resolved and clarified.

(iii)

Limited inter-institutional coordination. Arguably, the most critical emerging issue remains the unclear and inefficient coordination systems among institutions responsible for NRM. This includes both horizontal and vertical coordination. Horizontally within agencies and stakeholders operating at the same administrative level (e.g., within or between districts and townships) and vertically between levels among national ministries, provincial, district and village administrations. The underlying cause for this issue is the continued lack of clarity over mandate, jurisdictions and authority, something that existed under the previous centralized administration system and which has subsequently been compounded with the process of decentralization. The replacement of PP25 on the allocation of roles and responsibilities among different levels of administration will be pivotal to the future of decentralized NRM. Extreme examples of this issue can be found in the inter-related

ADB TA 4687-INO: Natural Resource Management in a Decentralized Framework Final Report

31

transboundary jurisdictional issues, both domestically and internationally, e.g., haze from forest and land fires, and the illegal trade in logs and wildlife. (iv)

Perceived conflict between development and environmental management objectives. There is a poor appreciation among decision-makers and resource exploiters regarding the potential synergy between development, growth and environmental safeguards. These perceptions are, in part, a mindset problem; they also reflect a history of conflict between environmental goals and economic development imperatives due to the approach adopted for economic development. This approach sought to utilize the rich natural resources to generate economic wealth irrespective of the costs. Decision-makers need to access information that demonstrates with far greater clarity the potential opportunities for more sustainable development and how incentives or disincentives can be created to encourage the desired behaviors necessary to achieve sustainable outcomes. c.

BANGDA policy development

109. The BANGDA Directorate for Facilitating Spatial Planning and Environmental Management invited NRMdf to provide input and comment on the draft MoHA Ministerial Decrees (see Appendix 10) including decrees on: (i) (ii) (iii) (iv)

Spatial Planning and its evaluation, handled by Sub-Dit Spatial Planning; Natural Resource Management, handled by Sub-Dit Natural Resource Management; Upstream-Downstream Water Resource Management to Control Flooding, handled by Sub-Dit Water Resources; and Revision of PP25 on division of authorities among national and regional authorities, handled by OTDA for the challenge of establishing workable rights, responsibilities, roles and relations among government agencies (R4). d.

Role of BANGDA and other MoHA DGs in decentralized governance of NRM

110. Despite MoHA’s stated roles including the responsibility to promote good governance of decentralized management of NRM, sectoral ministries typically question its involvement in NRM, perceiving a duplication of roles or loss of influence. From BANGDA’s vision statement that addresses the needs of decentralized NRM in Indonesia, there is a clear BANGDA view on its role - “Achieving regional self-reliance for management of regional development which is harmonious and sustainable”. 111. During the TA implementation period the above vision statement was subsequently adapted to: “Support for achieving regional self-reliance for management of regional natural resources development which is harmonious and sustainable”. 112. BANGDA’s mandate thus invites involvement in inter-institution relations, including conflict resolution when necessary. Furthermore, the application of good governance principles is especially relevant as a means of facilitating spatial planning and environmental management while leaving it to the technical ministries to work within their technical functions. BANGDA’s general ten principles of good governance from a 2001 urban multi-stakeholder dialogue were taken as a starting point (Appendix 2), restructured and applied to spatial planning and exploitation licensing under decentralized NRM. The original ten principles were clustered into the following categories. i. (i)

Strategic vision ~ appropriate to meeting the most important development challenges. ii.

(i) (ii)

Vision

Management

Effective and Efficient ~ getting the job done well whatever the available resources. Professionalism ~ Public service spirit and commitment.

32

ADB TA 4687-INO: Natural Resource Management in a Decentralized Framework Final Report

iii. (i)

(ii) (iii) (iv)

Transparency ~ first and foremost, a key catalyst for better decentralized governance and management of NRM, especially when change is opposed by entrenched vested interest. Accountability ~ encouraged by transparency but limited unless there is Participation ~ of key stakeholders that is fair and efficient Responsiveness ~ that is also timely, so that “responsibility” does not just mean authority. iv.

(i)

Social responsibility

Equity ~ social justice, especially poverty reduction. v.

(i) (ii)

BANGDA core governance principles

Managing harm

Control ~ effective sanctions. Law Enforcement ~ rule of law. e.

LG proposals to BANGDA for new or revised spatial plans

113. The NRMdf TA specialists were invited to attend meetings at BANGDA with delegations from provinces and districts who were at various stages of presenting their new or revised spatial plans, e.g., Raja Empat District, West Papua Province and Nusa Tenggara Barat Province. Positions of LG and national ministries were identified and clarified as part of the defining of a strengthened spatial planning program. NRMdf’s role was in capacity building rather than analytical work to resolve actual problems; the TA generally attended such meetings providing comments for BANGDA. The meetings were, however, an invaluable means of gathering evidence about some of the problematic relationship between LG and national agencies. f.

Development of SEA and EPI with BANGDA, BAPPENAS and BPPT

114. Whereas governance development issues were of most interest to BANGDA, all three counterpart agencies were involved in environmental monitoring and assessment issues particularly with respect to: (i)

Strategic Environmental Assessment (SEA). The TA worked with the TA partners and counterparts on applications of SEA at the case study sites. NRMdf also supported the establishment of a clearing house for information on SEA initiatives in Indonesia and other SEA literature. The clearing house was located at the NRMdf website (http://nrm-df.bppt.go.id). Among the SEA initiatives covered in the clearing houses were the BAPPENAS-CIDA Project on Strategic Environmental and Natural Resource Assessment (SENRA), BAPPENAS-UNDP Project on Critical Environmental Pressure Points, both located in Aceh as well as NRMdf work on SEA in East Kalimantan. The TA was also involved in setting-up and participating in a working group for SEA policy development that included the Ministry of Environment.

(ii)

Environmental Performance Index (EPI). NRMdf responded to a request to work closely with a BPPT-BAPPENAS team undertaking a study to develop an EPI system 7 for Indonesia and the EPI study team based in BPPT. NRMdf’s role was to explore early and pragmatic steps towards a workable EPI, e.g., identifying existing systematic and regular data collection of acceptable quality to make up an initial set of indicators for testing the index idea.

2.

Component 2: NRM Development Planning

115. Within Component 2 the TA concentrated on introducing improved management approaches and tools to support better governance within a decentralized NRM system. Six districts were selected

7

The EPI team was in the same division as BPPT counterparts working on natural resource accounting.

ADB TA 4687-INO: Natural Resource Management in a Decentralized Framework Final Report

33

from 20 candidate districts provided by the Government. After field visits a communication network was established to maintain follow-up contact among regional partners and national counterparts. a.

Site selection process

116. The following set of purposive criteria was developed and applied to the 20 districts proposed by Government for inclusion within the TA: (i)

District characteristic fit with NRMdf goals;

(ii)

Strategic NRM and environmental issues, notably, cross-border issues (e.g., rural/urban, district-district, province-province, international border, upstreamdownstream), conservation vs. development (e.g., pressure to convert mangrove to fishponds, natural forest to plantation forests, etc.);

(iii)

Reform-mindedness of districts including achievements in sustainable natural resource and environmental management;

(iv)

Degree of districts’ fiscal dependence on natural resources-based revenues. Two ‘resource-rich” and two relatively “resource poor” districts chosen viz a viz revenue generation;

(v)

BANGDA and BAPPENAS preference regarding issues or their ongoing programs;

(vi)

District participation in ADB-financed initiatives, e.g., marine and coastal resources management, water resources management projects, and/or LG finance and governance reform;

(vii)

Availability of necessary data;

(viii)

Logistics, ease of access to the district; and

(ix)

Different kinds of environmental administration, e.g., comparison of environmental agencies organized as Dinas (service implementer), Badan (agency) or Kantor (office) e.g., Dinas for Environment in Kutai Barat, Badan or Regional Agency for Environmental Management (BAPEDALDA) in Kutai Timur or Kantor Analysis Dampak Lingkungan for Office for Environmental Impact Analysis.

117. The above grouping enabled the major decentralized NRM issues to be included in the TA work program with the exception of international border and post-natural disaster situations. It included ADB project (MCRMP) areas in two of the districts - Lombok Barat and Kutai Timur. b.

Selected sites

118. After applying these criteria to a shortlist of 20 districts and in discussion with BANGDA and BAPPENAS counterparts, six districts were prioritized for inclusion within the TA. The six district sites were chosen in Java, Sumatra, Kalimantan and West Nusa Tenggara. A matrix of the key characteristics of the selected sites is shown in Appendix 11. 119.

The characteristics of the six selected districts and sites were: (i)

Cianjur District (Map 1) in West Java Province, close to Jakarta (and ease of followup post-project learning visits), faces significant population pressure effects, rural/urban land use conflict, significant upstream/downstream effects and water resource management (features of most of Indonesia’s approximately 400 districts), a growing sense of river basin community, population pressure, reforestation/ deforestation issues, conservation vs. development disputes, conflict between stand land managers and local poor farmers.

(ii)

Lombok Barat District (Map 2) in West Nusa Tenggara Barat Province for its LG reforms of forest, land, watershed and coastal resource management based on

34

ADB TA 4687-INO: Natural Resource Management in a Decentralized Framework Final Report

equitable community participation with positive results. These include community efforts to prevent illegal logging and fishing, pioneering payment by downstream communities for upstream water resource protection services (based upon traditional systems), yet resistance to reform remains entrenched among government agencies. The district displays “ridge to reef” range of ecosystems. It included some promising examples of improved NRM, e.g., community-based reforestation and the application. Lombok Barat is ADB MCRMP site (iii)

Kutai Barat, Kutai Timur and Kutai Kartanegara Districts (Map 3) in East Kalimantan Province are neighboring resource-rich districts in danger of overexploitation of timber, mining and fish commodities, and community-based coral resource management.8 Conflict between private companies (mining, plantation and forest enterprises) and local communities has been a feature of the district and its neighbor for many years. Illegal logging and mining are serious problems. A participative initiative to produce a Perda for community-based forestry resource management has been closely watched both by supporters and opponents within and outside of government institutions. MoHA was asked by the Ministry of Forestry (MoFr) to revoke the Perda. One of the main reasons for choosing Kutai Timur and Kutai Barat was to address river basin management issues, particularly upstreamdownstream effects across administrative jurisdictions. Kutai Barat has a Dinas (or Public Service Delivery Institution) for environmental issues, whereas Kutai Timur has a more conventional Badan (or Agency), namely, BAPEDALDA, allowing comparison of two different kinds of administrative structure.

(iv)

Kutai Timur for field work in parallel with Kutai Barat (see above). Kutai Timur was a site for NRA work by BPPT. It is an example of a district created from a larger area with the problems of a relatively new administration. It has suffered serious forest fires and deforestation in the past, most notably the lowland forest Kutai National Park that is under acute threats of further forest loss. Kutai Timur is also an ADB project site.

(v)

Kutai Kartanegara initially left out from the shortlist because of its unusually high natural resource wealth (oil/gas, timber, fresh and saltwater fisheries, plantation and minerals). Together with Kutai Timur and Kutai Barat it covers most of the major river basin of the Mahakam River of major social and biological importance. Its inclusion allows consideration for upstream-downstream and cross-district issues. It is also an example of a relatively new district with the associated issues of limited capacity and systems.

(vi)

Solok in West Sumatra Province was selected due to the LG being a strong proponent of decentralization and public sector reform led by a pioneering District Head who is now the Provincial Governor. The district offers a representative ecological and economic cross-section of Sumatra from the eastern lowland plains to highland rice and vegetable centers as well as protected areas. Although the site visit had to be cancelled because its scheduling coincided with a particularly severe flood and landslide season, BANGDA undertook to prioritize it for a post-project visit to test the NRMdf district engagement model. c.

District engagement

120. District engagement followed a series of agreed steps designed to introduce new ideas for improved natural resource and environmental management in spatial planning, licensing exploitation and conflict resolution, as well as planning awareness on the importance of these ideas (see Appendix 12). The major steps in the engagement process involved: 121. Pre-visit to the provincial capital. BANGDA stressed to the TA the importance of supporting the coordinating and facilitation role of provinces as described in Act 32 and hence the need to approach the Governor’s Office first to introduce the program, followed by visits to the provincial

8

Between the two districts on the same river lies one of Indonesia’s most resource-rich districts, Kutai Kartanegara, one of the candidate sites of ADB TA 3523–INO.

ADB TA 4687-INO: Natural Resource Management in a Decentralized Framework Final Report

35

BAPPEDA. The process was supported through with formal BANGDA letters of introduction to both subnational agencies. A week before the field trip, a small team visited the BAPPEDA Provincial Office to give an overview of intentions and request coordination with district government, which was also invited to attend. This visit usually ranged from one to three days, including travel. 122. District-level activities. The program started with a planning workshop in which the LG presented its perception of major NRM issues and problems, followed by introduction by NRMdf toolkit of approaches that could be applied to resolve these problems. The major natural resource and environmental management issues identified through this process were: (i)

Cianjur District: x Conflicting land use classifications between District and Jakarta over allocation for agricultural and tourism, and conservation, respectively. x Neglect of coastal resource management, including uncontrolled and destructive sand-mining. x Deforestation effects on water resource protection, particularly for irrigation and reservoir management. x Town planning that inadequately protects green areas.

(ii)

Lombok Barat District: x Scarcity of water especially in springs. x Quarrying that damages soil and water. x Increasing damage to coral. x Forest clearing and illegal logging. x Conflicts over water resources.

(iii)

Three Kutai Districts of the Mahakam River Basin: x Overlapping land uses (agriculture, forestry and mining). x Difficultly over reconciliation for the spatial plan. x Ex-mining areas not reclaimed. x Unauthorized (illegal) logging and mining. x Deforestation. x Forest and land fires. x Coastal degradation caused by development of [fish and shrimp] ponds.

123. The principal partner for capacity building was the local government (LG). Finally, LG meetings were set up for the following three days, the TA team being divided into three groups to discuss the following major cross-cutting subjects: (i) (ii) (iii)

Spatial Planning Revision Institutional Coordination and Conflict Resolution Planning Awareness

124. After the planning workshops, individual consultants met with LG partners and stakeholders on the application of NRMdf tools and approaches, adapting prepared presentations to be more locally relevant. As time and availability allowed, meetings were held with local parliament members, NGOs and villagers. Information was also gathered for improvement of the project’s analytical papers (Component 1) by gaining a better understanding of topical issues as well as the LG perspective. 125. A results workshop took place at the end of the field visit. During the workshop the TA presented its overview and recommendations on the needs and options for both a long-term comprehensive roadmap for the institutionalization of NRMdf and also on the first steps or immediate actions that could be undertaken with existing limited resources. In each case, examples were offered of how a start could be made long before all financial and human resources were in place. The presentation and discussions identified a range of next steps for NRMdf, and dialogue engagements were identified with the national workshop held in November being identified as one of the priorities. Other priorities included specific demand-driven issues that could be used to illustrate the application of the tools and recommendations developed by the TA, e.g., applying marginal resource valuation to the two spatial plan alternatives in East Kalimantan. Finally, a written concluding statement or rumusan of the visit and workshop findings was agreed upon (see Appendix 13).

36

ADB TA 4687-INO: Natural Resource Management in a Decentralized Framework Final Report

126. During the workshop a specific session addressed spatial planning and how this could be linked to the concepts and benefits of applying SEA. The schematics in Figures 5 and 6 were used to introduce the application of the NRMdf tools and approaches to (i) inform the preparation of different kinds of spatial plans through SEA, and (ii) manage exploitation licensing and conflict issues under existing spatial plans, respectively.

Figure 5: SEA for Preparation of New or Revised Spatial Plans

Figure 6: NRMdf Approaches for Exploitation Licensing, Conflict Resolution and Control under Existing Spatial Plans

d.

Follow-up engagement with district partners

127. A two-day national workshop was held in Jakarta from 22–23 November 2006 to carry forward the process of NRMdf engagement with the selected districts and their provinces. The national workshop sought to (i) strengthen natural resource and environmental management capacity by identifying implementable and practicable actions, and (ii) to establish a network of regional and national practitioners that could continue to share experiences.

ADB TA 4687-INO: Natural Resource Management in a Decentralized Framework Final Report

128.

37

The workshop used three working groups, similar to those for the field work, namely: (i) (ii) (iii)

Spatial planning revision (application of SEA, NRA, resource valuation, carrying capacity); Policy integration, institutional coordination and conflict resolution; and Planning awareness and website use.

129. Participants included district and provincial partners, counterparts from BANGDA’s Directorate for Facilitating Spatial Planning and Environmental Management, national ministries and TA specialists and their counterparts. A number of breakout sessions was completed by each group. Each breakout session consisted of: (i)

Overview of approaches introduced by the NRMdf team during visits to the selected districts as well as the major NRM issues in each of the districts.

(ii)

Regional partner responses: x Which tools are expected the most appropriate or suitable to be implemented in each region? x Which institutions should be directly involved? x What kinds of financial and human resources required? x Identification of early steps that can be taken, in other words, “THINK BIG, start small”.

(iii)

Preparation of a concluding statement of findings (rumusan) and commitments for each group (see Appendix 17). e.

Institutional platform for decentralized governance of NRM

130. Both the TA and BANGDA sought to develop a network of NRM practitioners from those individuals and agencies that participated in the TA. The network was considered to offer the opportunity for BANGDA to continue to build concepts and also provide an opportunity for the subnational agencies to have input to the BANGDA program. The network of practitioners has emerged as a communication network managed by BANGDA for ongoing dialogue on support for decentralized governance of NRM. Some members of the network were selected to participate in an international training tour (ITT) of New Zealand to share the experiences with some of the key NRMdf tools, notably, participative spatial planning, environmental monitoring and SEA (see above). The intention of the ITT was not only to increase knowledge and experience but also strengthen collaboration between central and regional functionaries who rarely get the chance to work together and “compare notes” in this way. f.

NRMdf resource toolkit

131. The NRMdf toolkit includes strategic issue papers, handbooks and research and awareness papers, and posters. The various components of the NRMdf resource toolkit either apply good governance principles directly or enhance knowledge for more effective NRM. The approaches apply to one or both of two fundamentally different kinds of spatial problem for decentralized NRM, (i) revision or production of improved spatial plans (the latter when new districts are created), and/or (ii) exploitation licensing planning and allocation, and subsequent control under existing spatial plans. The resource toolkit provides unimportant resource set of training and support of staff that can continue to be developed by Government, NGOs and the donor program. 132. The application of NRMdf tools will only have limited impacts without the required policy settings to establish enabling conditions for sustainable NRM, nationally and locally. Currently the toolkit is built on the existing institutional framework and not the “ideal” NRMdf option. Solutions beyond the NRMdf tools are discussed in the recommendations for “ways forward” in the section on key findings in this report. 133. The toolkit is referenced in this report by text square brackets. Refer to the technical papers developed by the TA, namely, strategic issues [si], analyses and recommendations [a&r], handbooks /

38

ADB TA 4687-INO: Natural Resource Management in a Decentralized Framework Final Report 9

manuals [bp] and posters [po]. A full list of outputs is provided in Appendix 7, which also indicates which are in Indonesian10 and which in English. 134. A three-part typology is used to present the range of approaches and tools that form the toolkit. Each part of the typology and its contents are outlined below. i.

Planning awareness

135. Planning awareness and knowledge is a cross-cutting or overarching theme for the toolkit and relates directly to the more technical aspects of the NRMdf. The term “planning awareness” seeks to highlight the need for knowledge of the range of alternate planning systems and approaches. This awareness includes the need for awareness of the costs and benefits of environmental management and its central role in sustaining economic growth and development. For the TA the primary focus is on achieving awareness of LG staff and representatives. The issues are [bp#1] and poster resources [po#1]. The TA developed the overview that planning awareness consists of: (i)

Changing “mindsets” of development planners through changes understanding, as well as providing the means for motivating change.

(ii)

Design and implementation of appropriate public campaigns for more effective inclusion of local communities in spatial planning processes that affect their livelihoods and ways to reach them with similar messages.

(iii)

To broaden the knowledge and information base of spatial planning through the use of stakeholder and stakeholder perspective analysis and outreach other than LG, in particular NGOs, private sector [si#11] and village communities.

(iv)

Undertaking formal evaluation and lessons learned exercises. Lessons from NRM experience in Indonesia need to be identified, shared and applied in an ongoing manner. The use of lessons learned is far less confrontational than directives or recommendations and advocacy. As such shared lessons empower more progressive institutions with knowledge and motivation to exert influence on institutions and individuals that resist change towards more environmentally-sound management [a&r#18].

(v)

Draws on knowledge gained from the approaches listed below. ii.

in

NRM

Inter-institutional coordination and conflict resolution

136. Coordination and conflict resolutions are major priorities and also legal requirements in the sector. There is a need to ensure that government programs address these issues in a mechanism or framework that is consistent with Law 32’s Concurrency Principle including: (i)

9

Approaches for inter-institutional coordination, vertical and horizontal. These approaches are stipulated in regulations but remain problematic because of policy conflicts, institutional culture differences and entrenched vested interests gained from separateness [si#1,2,3,5 & 9; a&r#1,2,3,7 & 15; bp#2 & 3; po#3]. Some of the key issues addressed in this theme are: x

Identification of appropriate government agency structures that are effective in implementing the envisaged strategies for environmental and NRM.

x

Opportunities for better coordination in central agency branch offices located in the regions. The role of planning in regional coordination along with reporting obligations is stressed as currently being a major weakness.

bp = buku pagangan or handbook. Wherever possible, reports were provided in Bahasa Indonesia to enable the MoHA to distribute and use the reports after the TA completion as part of their ongoing capacity development and support functions.

10

ADB TA 4687-INO: Natural Resource Management in a Decentralized Framework Final Report

x

(ii)

Typically policy targets making discretionary exploitation licensing (forestry, plantation, mining, fishing) more efficient and accountable. Critical to this is the need for transparency of both national and local processes and the role of transparency in building accountability and certainty. The TA recommended a three-phase program where Phase 1 involved making processes and decisionmaking open to the public at all levels from the region to the village. Phase 2 would require the same openness to be applied to the processes for issuance of draft licenses and annual work plans. The Phase 3 requirement is identified as a need for the development of dispute resolution institutions and procedures to be established.

Conflict resolution. A major theme and need identified during nearly all TA work programs was the need to develop and institutionalize systems for the systematic management of conflict [si#8 & 9; a&r#12 & 13; bp9 & 10; po5]. Key needs identified for these requirements included: x

Conflict resolution needs to be first and foremost addressed through introducing low-cost (or cost effective) methods for the identification, classification and prioritization of issues including the perspectives of the primary stakeholder groups.

x

Effective systems for bringing disagreeing parties to the table through emphasis on their interests (costs and benefits) rather than from arguing about individual positions.

x

The critical trajectory of building trust and the need for all parties to work from common datasets.

x

Appropriate institutional arrangements to enable conflicts to be managed and resolved at the lowest level for the least cost whilst ensuring systems for persistent conflict to be resolved through mediation, arbitration, negotiation, or simply by third party resolution in the courts. iii.

(i)

39

Building natural resource and environmental knowledge using participation

Strategic Environmental Assessment (SEA). The TA supported the wider application of SEA for regional and subregional planning purposes. SEA offers some strategic advantages in that it develops a strong technical assessment by building and sharing resource datasets. These datasets are built using open processes that build community involvement and enhance governance. Possibly the biggest advantage of SEA is that it is currently not regulated and therefore its use is therefore open to definition in terms of what SEA involves and how it will be applied. As such SEA remains highly adaptable offering the chance of building best practice models before it is defined in legal terms [si#4; a&r#6; bp#4; po#3 & 6]. Further SEA is: x

Prioritized as an alternative to typical expert ad hoc team approaches (Timisasi).

x

Strengthened through social legitimacy because of public information being disseminated and through ensuring participation is invited from all parties.

x

The underlying adoption of a systems approach – both physical and institutional systems. The systems approach means that SEA is applicable to a wide range of spatial planning scenarios from conventional district and provincial spatial planning to policy development and management planning for watersheds, coastal zones, urban settings and special (Wilayah Khusus) areas.

x

Ideally, SEA processes would be carried forward for the purposes of spatial plan evaluations (there is a forthcoming MoHA decree on this subject).

40

ADB TA 4687-INO: Natural Resource Management in a Decentralized Framework Final Report

x

(ii)

(iii)

As a systems model SEA is well suited and able to accommodate information from a range of disciplines and also resource users. As such, there is an ability to include stakeholder perspectives along with biophysical assessments, estimates of resource valuation, green GDP and EPI parameters within planning decisionmaking.

Resource Valuation (VESDAL). The TA identified demand for the increased use of economic valuation information. However the resource constraints and the scope of some planning decisions is such that this requires adaptation of the available options for resource valuation methods, tools and information sets [a&r#8,9 & 11; bp#8; po#6]: x

Emphasizing direct and indirect uses to assess marginal differences among two alternatives. Such assessments account for over 85% of the total estimated economic value and can initially be office-based and low-cost.

x

Starting with assessment of functional areas of presumed corresponding resource condition (e.g., assumption that protection forest consists entirely of forest), modified in the light of actual forest cover data and valuation consequences.

Natural Resource Accounting (NRA) for Green GDP (PDRB Hijau). The proposed use of adjusted national and subnational accounts to reflect the effects on natural resource and the environment and the use of such data to influence decision- and policymakers at local and national levels [a&r#10; bp#7]: x

Although not mainstreamed as part of official GDP assessments, NRA is of interest to districts that are expected to bear the control costs of exploitation licenses approved at the national level.

x

Resource accounting can reverse the common idea reported by BANGDA that LG perceive spatial plan preparation as a means of preparing development plans to meet growth and investment targets. The impact on accounting data is useful for creating increased planning awareness

(iv)

Land carrying capacity. Demonstrating the implications of the currently two differing methods in use by government agencies of calculating carrying capacity, each resulting in widely different estimates of necessary conservation areas. The TA proposes the use of the eight-parameter technique already used by some agencies that results in a smaller, more acceptable area for conservation than the past three parameter approach [si#3; a&r#3; bp#5].

(v)

Environmental Performance Index (EPI). A major difficulty for all NRM agencies and staff is the lack of performance feedback or a system of measuring effectiveness of plans and strategies. One option that the TA reviewed and supports is the concept of district, regional and national level benchmarking on agreed performance indicators [si#12; a&r#14]: x

The system needs to be voluntary, at least during its development stages, to attract willing participants who see it as a means for attracting eco-sensitive investments or government awards.

x

Once established on a voluntary basis the indicator system could be mandatory and the performance achieved used to allocate budget resources with the general (DAU) and special (DAK) district budget calculations.

x

A clear need to ensure that during the early development stages the system is pragmatic and responds to the available resources and capacity. To do so, the system will need to be based upon regular, simple, low-cost, existing and readilymeasured parameters of appropriate quality.

ADB TA 4687-INO: Natural Resource Management in a Decentralized Framework Final Report

x 3.

Those responsible for data collection and analysis need to see it being used at all levels.

Component 3: Information for Decision-Making a.

137. them:

41

General information dissemination

Various means of general information dissemination were adopted during the projects, among

(i) (ii) (iii) (iv)

Capacity-building presentations on the selected districts and provinces on the resource toolkit as well as to national counterparts (presented in the Interim Report). Manuals or handbooks and posters derived from these presentations, analyses and field observations as well as interactions with regional partners. Website. Communication network for the ongoing use by MoHA and members. b.

NRMdf website development ~ http://nrm-df.bppt.go.id

138. Website development lagged behind other project activities, partly due to prioritized field work with the districts and partly to ensure enough project content was in place to present a comprehensive and coherent picture of the NRMdf approach. Technical difficulties described above plagued this part of the TA and meant that once sufficient information was available, regular uploading was interrupted and those who wished to enter or use the site were frustrated. 139. One early activity for developing the website was to identify and address the particular challenges of website development. In an internet world of abundant choices and limited time, few visitors give a website a second chance. Not only must the content be pertinent to the visitor, but also accessible. A text-based version of the website was developed for regional visitors that are faced with typically very slow internet access speeds. 140. As part of the TA handover to NRMdf counterparts, each of the three counterparts designated someone to manage website input and responses, in collaboration with the BPPT site administrator for technical maintenance. The site will be managed and maintained by BPPT in this way for two years after the end of the project. 141. The structure of the website allows for a range of passive searching and interaction and is essentially as presented in the Interim Report (see Appendix 19), in outline: (i) (ii) (iii) (iv) (v) (vi) (vii) (viii) (ix) H.

Introductory front page News articles Publications Glossary of terms Information on donor-GoI projects on past and present decentralized NRM, including NRMdf, TA 3523, NRMP 1991-2004 and ESP 2007 Information on other projects related to decentralized NRM Clearing house for information on implementation of SEA, EPI, NRA, Green GDP, Planning Awareness and Conflict Resolution (activating SEA first) List of environmental laws and regulations Outside communications with website

NRMdf Stakeholder Evaluation 1.

Project evaluation by regional partners

142. About 100 regional partners in the communication network were contacted by mail, phone and in-person, and asked to fill out questionnaires with their evaluation of the NRMdf project (see Appendix 22). The results from 15 questionnaires filled out by senior regional partners visiting Jakarta are discussed below.

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ADB TA 4687-INO: Natural Resource Management in a Decentralized Framework Final Report

143. The first section evaluated the relationship of the partner to NRM and the project. All respondents worked in the area of NRM and all had had contact with the project; 75% participated in the National Workshop of November 2006. Most acknowledged that their names were on the NRMdf communication network, while 20% still reported that they were not yet part of the network and another 20% said they were unaware of their inclusion or not. 144. On their assessment of the usefulness of NRMdf content to their work, the responses ranged from fairly useful (2) to extremely useful (4) in a scale of 0-4. The average response was 2.1. Of the various approaches and tools introduced by NRMdf, the respondents were asked to select important and most important ones, and then asked to state if enough information was provided and whether or not it was too technical. Table 2 below summarizes these results in terms of proportion of respondents who selected a response (in the columns). Table 2: Evaluation of NRMdf Tools by Regional Partners (% of partners selecting a given response) NRMdf Tool or Approach

Most Important (1)

Important (2)

Not selected as important

Planning Awareness

7

30

63

Policy Harmonization

20

47

33

Inter-Institutional Coordination

30

26

44

Conflict Resolution

13

40

47

Strategic Environmental Assessment

13

30

43

Resource Valuation

0

40

60

Green GDP

13

26

39

Land Carrying Capacity

0

40

60

145. Each respondent identified more than one tool of importance. All but one selected tools which rated as being most important. The subject judged most frequently to be of greatest importance was inter-institutional coordination. It was also most often selected as important. The second choice for the highest rank of importance was policy harmonization (among different kinds of national and regional policy, in particular the “Big Four” - national and regional laws, development and spatial planning). Interestingly, planning awareness was at the lower end of the selection spectrum, partly perhaps because of the implication that a favorable rating also indicated a lack of sensitivity to environmental problems. There was less spread surrounding the selection of tools for importance. Respondents clearly thought about what was more or less important accounting for the relatively high incidence of non-selection. 146. All but one respondent thought that the information provided was useful. The same respondent thought the material not technical enough; all others felt the information met their technical needs. On written material provided (mostly hard copies of PowerPoint presentations), 20% thought it not enough, 7% too much, the balance of 73% responding that they had received enough. When asked about their understanding of oral and written information provided during presentations and discussions, over two-thirds of respondents reported understanding either “all” or “most” of the NRMdf information; 20% had understood only half of both the written and oral information. None admitted to understanding less. 147. No one had attempted to access the website. A third explained that they had not had time, another third that they did not know the site address, and another third simply answered no. These answers reflect the common fact that regional government people rarely access the internet and therefore rarely pay attention about the internet. During each site visit, information on the website address was given. (Incidentally, had the partners tried to access the internet, they would have been frustrated by the access problems described above). While a significant resource and tool in Jakarta the usefulness of the website in terms of subnational access to information is less apparent. The website may simply empower the central agencies and their staff.

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148. Eighty percent of respondents planned to add some work activities in the long term to apply what they had learned from the NRMdf. In the short term, 73% would try. Among their ideas for action that would play out over the long term, were: (i) (ii) (iii) (iv) (v) (vi) (vii)

Promotion of NRMdf ideas Formulation of a regional regulation (Perda) for environmental services Better identification of natural resource endowments Calculation of Green GDP Apply the methods to justify conversion of production to protection forest Apply spatial planning down to the local community scale Use in support of the National Partnership Movement for Water Resource Protection.

149. One caveat expressed here and frequently during field trips by LG partners was individual interest in incorporating NRMdf ideas but refusal to do so as an institution until given higher authority to do so. 150. The respondents reported that the likely short-term actions (“THINK BIG, start small”) that they would promote included: x x x x

Act on conclusions reached during the national seminar of November 2006. Attempt NRA for East Kutai. Determination of appropriate areas for designation as protection forest areas. Public awareness campaigns for management of the Mahakam Delta and exploitation licensing processes in that area

151. Asked for their recommendations to NRMdf for more support for decentralized NRM, respondents suggested the following: x x x x x x x x x 152.

Use the communication network to spread ideas on sustainable environmental management to and between regions. Policy formulation at the regional level. Implement a full NRMdf-type project at the regional level especially in remote, international border and coastal areas where budgets are inadequate for the challenges. Institutional strengthening not just of government agencies but also NGOs and local communities. Use areas of actual project success to demonstrate to other areas. Show how exploitation licensing can truly respect spatial plans. Prepare master spatial plans for the Tenggarong River, including areas at risk of flooding. Engage District Head and Parliaments in NRMdf-type approaches. Make sure that any NRMdf-type projects are based upon clear communication among managers and end-users.

Of the above the following have a strong fit with the NRMdf TA namely, regional partners: x x x x 2.

have generally understood and thought through which of the NRMdf approaches are of most use to their local circumstances, they are prepared to act in the short and long terms, would like to learn more about how to operationalize the tools (the handbooks they will be sent will help), and are concerned about going too far down a new road without approval from higher government authorities that the tools and their results will be taken seriously. Participant evaluation of International Training Tour (ITT)

153. The 12 participants thought the ITT useful; some reported that it was very useful. The information input was mostly understood and considered sufficient but not too technical. The achievement of a high level of knowledge about local ecosystem conditions was noted. What was learned was considered by participants relevant to natural resource and environmental management needs in their districts and provinces. Regional ITT participants urged that a greater number of LG functionaries be invited to go on such ITT in the future.

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154. While the degree of community participation in land care management clearly impressed the participants, this was not specifically reflected in their plans for action upon their return. However, they did admit a heightened awareness of the need to incorporate environmental factors into regional development. Upon their return to Indonesia, they planned: x

Short-term actions, including a better job of enforcing existing environmental regulations, better coordination among major stakeholders, establishing a forum for discussion of environmental issues, test the usefulness of environmental considerations in existing planning processes, and better communication between decision-makers and operations in the field.

x

Long-term plans included policy reform at the local level to incorporate environmental considerations in development and spatial planning, better and more open environmental data management, continuous funding sources for environmental management that are appropriately shared and coordinated between local and national government, public awareness campaign for the environment, and dissemination of appropriate environmental information to sectoral agencies.

155. One of the purposes of the ITT was to forge a more effective communication network among regional and national project partners to carry forward the principles of NRMdf after the end of the project. About half of the ITT participants were enthusiastic contributors to dialogue with hosts in New Zealand. These same participants were eager to continue NRMdf development upon their return to Indonesia. BANGDA continued to involve them actively in a new project for environmental management supported by DANNIDA. I.

Evaluation of TA Design and Implementation

156. Responding to the draft final report of NRMdf, ADB asked what could have been done better and whether there were any problems with the TA design? The answer to this question is difficult in terms of knowing exactly how much influence the TA has had and also recognizing that the TA was operated within a NRM institutional framework that is incomplete and often antagonistic to good governance. 157. The inception phase lasted longer than planned due to diverging understanding of the scope and focus of the TA, delays to mobilization of local consultants and slow decision-making regarding the proposed work plans and approach. There was a delay in field work due to a necessary change in consultants brought about by problems of insufficient availability and related delay in counterparts obtaining a clear understanding of the work program. Field work, however, was largely finished by the time the fasting month of Ramadan began. 158. Other weaknesses included (i) the lack of LG financial support to move forward and pilot some of the concepts and tools developed, (ii) the scope of case studies over six (reduced to five) districts was too optimistic and resulted in limited resources being spread too thinly, (iii) the need to have a more comprehensive critical mass of expertise from outside of Indonesia to address the wide range of issues that arise, and (iv) the need for faster ADB consultant approvals to ensure time is available to use the nominated experts before the end of the TA. 159. One weakness which stood out was the slow development of the website. The site was inaccessible for long periods and therefore public responsiveness could not be judged. By the time that accessibility had been improved (though still not optimal) by assigning a dedicated IP address to the site, the project was in its closing stages. 160. The lack of a truly tripartite meeting in the inception phase was a major shortcoming. Unfortunately, during the defining inception phase, it was not possible to coordinate a meeting between counterparts and ADB to ensure expectations and perceptions were in alignment and consistent with the work programs. The result was that there were differing views regarding the project goals and field realities including the lack of counterpart budget for much of the implementation period to (i) optimize participative in-service training and capacity building opportunities, and (ii) implement pilot testing of innovative approaches for better decentralized governance of decentralized NRM. The pragmatic approach of the TA, counterparts and regional partners tended to diverge from ADB’s expectations, while nonetheless meeting the overall goals of the accepted TA proposal. During project

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implementation, the two half-day meetings with the ADB Project Officer in September and November were extremely valuable. 161. The TA design set broad goals that were attainable but underestimated the importance of ensuring counterpart budgets at the local level to fund participative activities. Little would have been served by the consultants trying to carry out the innovative approaches in isolation. For this reason, there was an adaptive emphasis on introducing a portfolio of approaches and how they could be applied to locally-identified NRM problems, as far as possible jointly working through some examples with regional partners. 162. One of the strengths of the TA design was that it enabled the development of a platform for follow-on work and future assistance in support of better decentralized governance of NRM. At the time of completing the final report, the NRMdf approach is being used as the basis for a new project (see section on Beyond the TA).

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IV.

KEY TA FINDINGS

163. The following section presents the key findings to emerge during the implementation of NRMdf analytical studies, interactions with national counterparts and regional partners, and other observations in the field. Each set of findings is qualified with supporting arguments that developed during NRMdf implementation especially the policy and institutional dialogues, the completion of technical analyses (such as the executive summaries included in Appendix 9), and preparation of capacity building materials and field trip reports (Appendices 14 and 15 of Interim Report). We conclude each finding with recommendations on the way forward in the short term given present institutional resource endowments and limited absorptive capacity, while indicating future goals. 164.

The findings are presented in the following three sections: (i) (ii) (iii)

A.

Persistent problems of decentralized NRM Specific major spatial challenges for decentralized NRM Role of MoHA in introducing decentralized governance of NRM – the advantage of a non-sector department to foster better governance of the natural resource sectors.

Persistent Problems of Decentralized NRM 1.

Complexity

165. Although the complexity of NRM has increased since decentralization, there are common problems experienced across regions that are compounded by poor and inappropriate governance systems. (i)

Complexities. At a national working meeting to revive the BKPRD (Coordinating Agency for Regional Spatial Planning) in July 2006 (Appendix 4), there was general agreement that spatial planning under decentralization was far more complex than before and therefore more difficult to manage. The contributing factors being that there are: (a) (b) (c)

(ii)

More agencies and procedures involved with unclear mandates and jurisdictions. Overlapping, often contradictory regulations issued nationally and regionally. More opportunities for rent-seeking and corruption.

Common challenges. Field work highlighted some major decentralized NRM problems are common to many areas, including the five districts visited (see Appendix 15), e.g., (a)

Land-based spatial planning. Institutional constraints to improving spatial plans due to ambiguities and overlapping jurisdictions for land use management, e.g., the irreconcilable differences over spatial plan land functions that currently persist between LGs and the MoFr, affect most districts. The MoFr currently controls decisions over inner and outer boundaries of state forest areas covering two-thirds of Indonesia’s land base severely marginalizing the value of spatial planning outside of the forest estate.

(b)

Coastal spatial planning. Coastal spatial planning that remains disconnected from the surrounding land-based planning systems, e.g., deforestation for mangrove establishment arguably the least controlled kind of forest management. There is growing awareness of the need to plan and manage at the level of ecosystem and the need to integrate coastal spatial planning with the wider catchment planning of land systems that interact with the coastal ecosystems. To date such integration is yet to fully emerge and become operational.

(c)

Cross-boundary relationships. Cross-district and cross-township and other cross-border issues, e.g., upstream-downstream factors in shared river

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basins, differing urban-rural priorities between districts and townships, interprovincial and international issues.

(iii)

(d)

Inter-sector competition. Inter-sector competition for land, e.g., among mining, plantation and forestry agencies that seek to gain “market share” from the revenue streams or the control over assets remains unaddressed. Whilst the issue has been recognized for some time there has been no progress in resolving the issue in a manner that is consistent with the policy goals of decentralization or NRM.

(e)

Competing exploitation scales. Conflict among large and small-scale natural resource extraction, e.g., the race for timber and gold among licensed largescale enterprises and small-scale illegal exploiters (in contrast to the relatively harmonious production and trade arrangements among smallholder tea and oil palm farms and nearby plantations and processing plants).

(f)

Exploitation externalities. Large-scale enterprise externalities that are poorly regulated, e.g., effluent from pulp and paper mills, oil palm mills and sugar plantations as well as water degradation from river and side sand and stone quarrying and the ability of these enterprises to externalize environmental costs that persists despite knowledge of the issue.

(g)

Ecosystem function externalities – the example of water supply. Water resource supply is declining creating problems arising from sector-based land use decision-making and the resultant change to land use, particularly deforestation negatively affecting water delivery functions. Within these same landscapes the demand for water is increasing causing increased competition and conflict over water resource access as well as associated environmental impacts from floods, landslides and general soil erosion. But awareness of forest cover increases where little forest remains reflecting the impact of scarcity on the lives of civil society.

(h)

Fire damage. Uncontrolled forest and land fires. However in situations of increased certainty of tenure and surrounded by neighboring farmland, most smallholder farmers and large-scale plantation managers take care to avoid spread of fire and as such fire is considered to be a symptom of these more fundamental and underlying causes.

Root causes. The above examples of common problems faced by decentralized NRM and despite their own complexities are driven by a few underlying or root causes: (a)

Uncertainty of tenure (land use uncertainty), both for large and small-scale enterprises creating “neighborless land” (World Bank, 2003) where “taking is favored over making” (World Bank, WDR, 2002). Uncertainty of tenure include situations involving: x

Non-transparent and often discretionary processes for forest concession license: (i) award, (ii) extension procedures, and (iii) concession cancellation.

x

Community forestry licenses restricted to temporary permits that fail to provide the necessary certainty over future benefits from improved management.

x

Smallholder rights to agricultural land use more secure than natural forest creating incentives for land conversion.

x

Uncontrolled fires where there are unclear rights and responsibilities to land.

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(b)

(c)

(iv)

Undervaluation of natural resources driven by misguided policies directly or indirectly encouraging wasteful utilization and, in the case of forestry resources, raising the opportunity cost of natural forest management, in turn encouraging conversion to higher value-added and more labor-intensive agriculture due to the: x

Complex array of formal and informal taxes from national to regional levels on forest products, exacerbated by corrupt informal taxes.

x

Narrow interpretation of value allowing low resource taxes for clear cutting of natural forests.

x

Log export ban depressing domestic prices.

Unregulated externalities, that allow “taking rather than making” (sensu WDR 2003), for example: x

“stick-holders” fail to enforce the rule of law, relying instead upon the “law of rules”, namely, overly-prescriptive and high-cost regulations which effectively result in short run opportunistic behavior,

x

stipulate inputs and outputs rather than the desired and measurable outcomes or impacts and often do not support transparent procedures for decision-making,

x

many current regulations support compliance or control and do not support the wider goal of sustainability,

x

the focus on control and specification of rights etc. invite corruption of the “stick-holders” by paying them to look the other way, and

x

deter site-specific adaptation and innovation.

Environmental information and good governance. The above underlying causes are exacerbated by a number of management system deficiencies that can be largely addressed through the application of better-informed governance, (a)

Natural resource information for spatial planning and exploitation licensing and control. Increased information and knowledge about the status of actual natural resource endowments, approved management systems and natural resource managers, incorporating local community knowledge. There is a need to ensure that all stakeholders, agencies and oversight agencies use common datasets.

(b)

Transparency. Public availability of such information and knowledge, clarifying accountability for consequences of NRM.

(c)

Inclusivity (participation). Involving local communities in decision-making about spatial planning and license exploitation processes in areas that firstly affect their livelihoods.

(d)

Resource allocation (certainty). Government-approval of community-based NRM that supports designated land functions.

(e)

Sustainability. Explicit incorporation of environmental and social factors in spatial planning and exploitation licensing as safeguards of growth and development.

166. Way forward. The above issues can be addressed through the ongoing building of awareness of common problems, identification of their underlying causes, and the recognition of the role of better

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governance to remedy them, encouraging the development of adaptive resource management systems with supporting toolkits for managers that are developed and proven locally and thereafter extended to nationwide application. 2.

Changing institutional roles

167. Institutions playing a pivotal role in decentralized governance of NRM are changing as democracy and decentralization develop alongside each other, especially at district level. Many of these institutions are old while some have newly emerged, originating at various levels of administration. Their reach is broader than generally accepted and more closely tied to NRM. Following Williamson’s analysis, institutions operate at four levels,11 (i) (ii) (iii) (iv)

Customs, traditions, norms and religions – change slowly, not directly governed by economics. Institutional rules of the game - property rights and the working of the political system, the judiciary and the bureaucracy. Play of the game - the governance of institutions. Resource allocation.

168. Institutions change slowly, even after dramatic political and social change (Braudel, 1988). New institutions, however, are less bound to the past but may nonetheless mold themselves on old ones while maintaining distinct and separate identities. Institutional development at the LG level has often moved away from the established norms and lines of authority that are represented in old institutional arrangements. 169. While national agencies often raise concerns that regions have weak institutions and lower capacity to manage natural resource, these concerns are not unexpected and may not be more efficient than past centralized approaches which have proven to be largely ineffective. What needs to be recognized in the combination of introducing decentralization and democratization is creating forces that support increased governance and accountability due to the need for LG to provide better service delivery. These forces include: (i)

Accountability. LG is closer to the people and responds to local community satisfaction or displeasure more directly than national agencies, particularly when livelihoods are impacted by NRM decision-making. x

(ii)

Inter-institutional competition. Competition among districts for: x x

(iii)

National annual budget disbursement (DAU and DAK); and Industrial and commercial investments (in the long term).

Awareness and status of natural resource endowments. Knowledge of the actual status and potential of actual environmental and natural resource endowments is increasing at the local level for reasons of proximity, responsibility and necessity. x

11

Of course, there is always the risk of populist responses of District Heads (Bupatis) to “buy votes” by providing local communities (backed by commercial enterprise) opportunities to exploit renewable resources in low-cost, high-impact extractive ways that undermine sustainability, e.g., the HPHH (Hak Pemungutan Hasil Hutan) licenses before 2002 and similar licenses since. The point is that increased accountability can be the foundation on which to build the kind of improved and better-informed spatial planning, licensing and control approaches promoted by NRMdf.

This trend would accelerate if national databases were made more readily accessible to the regions.

Oliver Williamson, 2000. “The New Institutional Economics: Taking Stock, Looking Ahead”, Journal of Economic Literature, pp595-613. cit. Martin Wolf (2005), “Why Globalization Works”, Publ. Yale University Press, Endnote 3 of Chapter 3, pp326.

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x

Meanwhile, national agencies can only consider the macro-level datasets which hides the variation that exists at the local level risking them to be ignorant of local conditions. This can become a serious constraint to good governance of NRM when the Center still retains hands-on control of resource extraction, e.g., o Inner and outer boundary setting only decided by the MoFr. o MoFr licensing of heavy equipment in each forestry concession. o Reciprocal information exchanges remain a long way off.

(iv)

These accountability-driven trends tend to be stronger at the district than at the provincial level.

(v)

The relatively increased demand for better service delivery at the LG level is slowly being translated into LG interest in acquiring greater technical expertise, either through:

(vi)

x

Outsourcing, although this requires sufficient LG skills and capability with supporting organizational systems and resources to ensure selection of properlyqualified outside agencies such as consultancy companies, and the systems and human capacity to hold them accountable to the results.

x

In-house skills at all levels including LG. The strength of the skill base in LG was apparent at the national workshop when LG and National Departmental GIS experts matched each other “pixel to pixel” when discussing spatial planning problems.

The present knowledge gap between the national and local levels is expected to continue to narrow over time; at least as far as hands-on natural resource management is concerned. International experience indicates that as decentralization becomes institutionalized that the subnational agencies will have access to far more detailed information and the knowledge at this level will gradually surpass that held nationally

170. Way forward. District level responses are increasingly demand-driven and will result in the building of appropriate capacity and knowledge for effective NRM. As such, the institutions at this level offer a potentially fertile ground for well-targeted external assistance for institutional strengthening but not through parallel project initiatives. The challenge for national agencies is to recognize and further enable the positive combined forces of democracy and decentralization that are shaping regional approaches to NRM, while maintaining appropriate oversight i.e., the central agencies also need to reform their systems to fit with an ever changing role as capacity and systems are built locally. Clear definition of roles at this level is essential and overdue and need to be supported with the clarification of the relationships between agencies and levels of administration. 3.

De Jure NR Management vs. De Facto NR Exploitation

171. The gap between de jure and de facto NRM remains large and threatens the development of orderly and predictable NRM processes. The legal system defines natural resource institutional arrangements within the concepts of NRM, however the de facto systems that predominate still maintain a focus of exploitation through personal or sector interests: (i)

There are differing capacity levels between agencies and the current system capacity creates an institutional divide between some national and regional government agencies. According to Act 32, direct NRM should be the purview of LG, with central agencies focusing on setting standards, ensuring oversight and developing national policies. Not all national agencies are willing to relinquish direct NRM and perhaps there is not a universal acceptance of what NRM encompasses. Without acceptance of the decentralized NRM framework, NRM cannot be effective as the mix of de jure and de facto management systems overlap, creating ambiguity and competing interests, resulting in opportunistic rent seeking behavior resulting in these arrangements undermining the decentralization process.

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(ii)

Decentralization is often perceived as being the main driver behind natural resource mismanagement as LG ignore or circumvent existing policies and regulations. For over three decades during the Orde Baru regime, a gap opened between de jure NRM and de facto land use that was far more subtly defined and as a result less visible than the current situation. However, the reality was that significant discrepancies developed and then persisted between de jure and de facto systems under past regimes. Many of these discrepancies have simply been opened to more public scrutiny with decentralization and democratization or have been operated over a far wider number of players.

(iii)

A common refrain is, “we have all the necessary laws and regulations, and all we need is enforcement”. Certainly, law enforcement is important. But some laws and regulations are either contradictory, unreasonable or unjust and directly contribute to the ineffective outcomes currently experienced, e.g.,

(iv)

(a)

Contradictions between Forestry Law 41 of 1999 and Regional Autonomy Law 32 of 2004.

(b)

Improbable minimum stocking rules for timber harvesting or mandatory “zero burning” for poor farmers who use fire responsibly (and for whom zero burning would be much higher cost).

(c)

Highly bureaucratic licensing processes that minimize opportunities for local communities to manage or co-manage natural resource within their village areas.

Where law enforcement succeeds against illegal activities such as mining, fishing and logging, it is often the result of ad hoc raids (razia). In time, the old practices are resumed or simply moved, and much contraband finds its way back onto the market along with confiscated equipment.

172. Way forward. Over the long-term, the goal of a more harmonized system of policy and regulatory development guided by the principle that for laws, regulations and processes to be enforceable they should have public respect and for that to happen they should, in the words of Hernando de Soto, “reflect the way people arrange their lives”. Until they do, spatial plans will continue to be ignored and exploitation and licensing processes allow natural resource mismanagement (i.e., the issue will not change until it is easier for people to participate in the formal licit system as opposed to the informal illicit systems, which requires a more detailed understanding of the costs for both systems). The clear message for donors is to work through local institutions in an attempt to build best practices that can in the future be reflected in legal reforms. B.

Major Spatial Challenges for Decentralized NRM 1.

Strategic approaches needed

173. For LG to think strategically about decentralized NRM, entrenched mindsets must change along with the introduction of a wider set of management options that are both implemented and enforced: (i)

Each district and province is faced with a wide array of NRM problems. With typically limited budgets and institutional weaknesses, strategic environmental thinking to address these problems is essential, setting priorities and allocating resources accordingly. More often than not, the current approach is to attempt to address all issues at once or alternately actions tend to be driven by short-term economic imperatives and revenue rather than long-term safeguarding of natural resources. (a)

Strategic planning for the medium- and long-terms as well as annual budget planning tends to continue to rely upon inputs from individual service and development agencies with their own agendas that are poorly integrated with others. Each agency therefore gains most from lobbying the executive (BAPPEDA) and legislature (DPRD) for their own interests, the result is often

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lengthy and unwieldy plans that comprise of compilations of separate institutional proposals as opposed to a set of integrated strategic actions. (b)

Environmental considerations from one or two agencies tend to be crowded out by the current lobbying and advocacy process.

(c)

The problem is partly one of conventional mindsets that resist change such as adoption of strategic environmental thinking that: x x

174.

“all problems are important”, “growth and development or conservation and stagnation”.

Way forward: (i)

The demonstration of additional value from adopting more coordinated and joint horizontal planning systems.

(ii)

The process and outcome of SEA is as much about learning to think strategically as gaining from environmental and natural resource information derived from SEA.

(iii)

Explicit definition of what “strategic” and “integrated” is and is not, would help.

(iv)

A continued progression towards integrated ecological management systems that respond to economic, social and ecological needs within the prevailing political environment

2.

Policy dissonance

175. Policy dissonance and discord over NRM can be resolved but probably only in the long term. Key issues include: (i)

It has long been recognized that the policies for NRM suffer from a number of shortcomings that leave little room for workable environmental considerations to be achieved. Major shortcomings include complexity, contradictions, sequencing and gaps. The challenge remains how to harmonize four basic kinds of policy development related to decentralized NRM, namely: (a) (b) (c) (d)

(ii)

Long and medium term planning or RPJM and RPJP. Annual LG budgets or APBD. Spatial planning. LG regulations or Perda.

While there is lack of policy harmony for NRM within districts and between districts and provinces, there is a major discord between districts and national sector agencies, in particular the two agencies that formally control almost all of Indonesia’s land: (a)

National Agrarian Agency (BPN). BPN has managed to obtain Presidential Decrees that keep many functions centralized.

(b)

MoFr, formally controlling boundary-setting and natural resource use over twothirds of Indonesia’s land base. MoFr has lobbied MoHA to strike down Perdas that: x

approve district spatial plans that do not conform to Ministerial decrees about forest boundaries (PP25 of 1999 designates the MoFr as the sole setter of inner and outer forest boundaries); and

x

increase community participation in forestry resource management over that explicitly approved by MoFr.

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(iii)

(iv)

12

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Several new sector and non-sector policies are at various stages of development. These policies may reform the policy constraints besetting decentralized NRM. However, some appear to have been prepared in isolation of other ongoing reforms 12 while others are under intense pressure to not change strategic parameters. There is a need to ensure such reforms address not only the rights and responsibilities but also the institutional relationships and coordination between separate reform programs. The anticipated policies are: (a)

New law on NRM - efforts to reform the Agrarian Law of 1960 have apparently stalled.

(b)

Spatial Planning Law to replace Law 24 of 1992.

(c)

New law for coastal resource management.

(d)

Replacement of PP25 of 1999 which assigns authority for government functions to various levels of government administration from the national to the local level.

(e)

MoHA Ministerial decrees on spatial planning, NRM and upstreamdownstream relations to prevent flooding.

The replacement of PP25 is most eagerly anticipated and may prove to be the most important of current reforms by providing the foundation for clarifying the 4Rs (rights, roles, responsibilities and relationships) of national and regional government agencies: (a)

It is arguably the most vigorously contested of the new policies as it will address issues relating to the authority for land ownership and exploitation licensing processes, and remove some of the vagueness often exploited within PP25.

(b)

Three government agencies are making strenuous efforts to be exempt from the decentralization applied to other sectors in the present draft concept. Arguments ranging from national integrity and international conservation agreements are promoted by those agencies arguing for recentralization.

(c)

Existing institutional incentives are often protected through opposing decentralization initiatives for often less than honorable, undeclared rentseeking reasons.

(d)

The PP25 revision process is currently being guided by a firm hand in MoHA.

(v)

Meanwhile, MoHA has informed the public that Regional Autonomy Law 32 of 2004 must be revised, which is likely to be a long process. Some of the above laws and regulations may have to be adjusted through a set of appropriate revisions.

(vi)

New NRM-related policies provide a good example of how governance not only influences NRM but can itself be influenced by NRM. Understandable frustration with failures to secure convictions of illegal loggers, promoters of an anti-illegal logging law are hoping that the presumption of innocence will be suspended for suspected illegal loggers – a precedent with potentially worrying consequences for legal reform.

(vii)

Both LG and the private sector have pointed to the sheer volume and rate of change of national policies and regulations as a serious source of uncertainty and confusion for planning and investment, respectively. LG has mimicked national agencies by often issuing its own set of exploitation regulations.

Interviews with a wide range of sectoral and non-sectoral government agencies revealed how little each knew of the others involvement in the preparation of new laws, even among those involved in broad-based laws such as natural resource and coastal resource management.

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(a)

176.

After a slowdown in the issuing of natural resource exploitation regulations during the transition from the Orde Baru regime, resurgence in regulatory zeal has occurred.

Way forward: (i)

Policy reform will occur over a long period of time. It needs to be better structured by reviews of the impacts of past policies conducted by independent government units (and policy framers themselves). Present policy review units in national departments do not properly fill this function.

(ii)

Veto with Transparent Justification (VwTJ). In answer to the recentralizing tendencies of a few national agencies and their objections to decentralized authority as proposed in draft concepts to replace PP25, the solution lies in granting national sector agencies with oversight authority instead of their present participation in, say, directly approving changes in land functions resulting from spatial planning processes (which involve local and national branches of forestry agencies) or approving exploitation licensing. Under VwTJ, the Minister does not have to sign his approval but is given a reasonable timeframe to object in writing, triggering bilateral efforts at resolution, which if they fail go to independent arbitration. Appeals to MoHA or the law courts would be final recourse.

3.

Horizontal and vertical coordination

177. Horizontal and vertical coordination among government institutions is urgently required if environmental principles for NRM are to become part of general development priorities (i)

One of the most serious obstacles to achieving environmentally-sound decentralized NRM is the persistent institutional disconnect between districts, districts and townships, districts and provinces, and above all, between the regions and the Center. The problem is compounded by tendencies for institutions to suspect the motives of other institutions, for example, the so-called: (a)

Ego-sektoralisme or excessive and intransigent sectoral bias of sectoral agencies reluctant to involve other sectors in their decision-making, let alone lose exploitation opportunities to other sectors, e.g., Departments for Forestry, Mining and Agriculture vying for the same areas in spatial plans for natural resource conservation or exploitation.

(b)

Ego-sentralisme or LG perceptions that national agencies want to recentralize authority over planning, land rights and exploitation licensing for NRM, e.g.,:

(c)

ƒ

Presidential decision to recentralize BPN functions, PP25’s directive that any changes to inner and outer state forest area boundaries needs to be approved by the MoFr, including permits for heavy equipment in all forest management areas.

ƒ

Licensing authority for local-level affairs, such as transfer of heavy equipment into a forest management unit is licensed by MoFr, whereas the annual cutting plan approved at the provincial level can readily accommodate such licensing.

ƒ

Tendency for branches of national agencies to regard themselves outside LG authority, reporting directly to the Governor (BPSDA) or to the Minister (BPDAS, BTN, BPN).

Ego-daerahisme or the corollary perception by national agencies that LG perceives decentralization of NRM as meaning “total devolution of authority to the regions”.

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178.

55

(ii)

Increasing conflict over natural resources operating at various levels is another area demanding better coordination. Rather than haphazard and ad hoc approaches, more systematic recording, classification and understanding is needed. In many cases, a dedicated and credible institution (including a statutory basis for spatial plans) may be the only way to ensure coordination.

(iii)

Coordination may take place but proceeds at a very slow pace, compromising any efforts at timely, effective and efficient action, e.g., the process of changing forest boundaries can take place over a decade. Meanwhile, LG is under pressure for timely land use decisions by local communities and business enterprises, and may decide to refer to its own spatial plan and ignore national directives, e.g., RTRWP 2005-2015 (Map 4) and SK79 of MoFr (Map 5), respectively. In turn, the national agency postpones decision-making until there are complete datasets or administrative procedures are exactly followed, either of which can always be found to be lacking. The outcome is less respect between national and regional agencies and with it failure to achieve Law 32’s concurrency principles of appropriate decision-making at different levels of government.

(iv)

Lack of coordination between LG organizations and their rules and norms occurs despite formal coordination processes. Representatives attend formal coordination meetings but coordination does not necessarily follow. Any additional policies and regulations to handle this problem must deal with this reality.

Way forward: (i)

Appropriate revision of PP25 should play a major role in resolving the problem of inadequate coordination among government agencies. The major tasks for achieving sectoral and regional acceptance of the sensible allocation of rights, roles, responsibilities and relationships among the various levels of government administration.

(ii)

BKPRD for spatial planning coordination has a potentially important role. First, BPN and MoFr, as the two major land agencies, need to be more actively involved in BKPRD. Second, BKPRD could promote if not insist upon more timely procedures by establishing default decision-making, whereby delays exceeding pre-agreed limits automatically trigger the next development stage. Third, building more trust among LG and central agencies through improved mutual understanding of each other’s interests.

(iii)

Similar approaches could be applied to NRM exploitation licensing.

(iv)

For conflict management, conflicts need to trigger a process built upon a systematic approach to timely recording and classification of conflicts, followed by prioritization and a range of potential resolution methods or procedures.

4.

Revised spatial planning processes

179. Processes to revise or prepare new spatial plans can be significantly improved through more realistic, participative and systematic information gathering: (i)

Typically, data for spatial plan preparation are gathered by consultancy companies hired by LGs. Limited time and resources are not conducive to adequate participation by local communities in information gathering, foregoing opportunities for more current and relevant data, and final spatial maps that better reflect actual conditions and are better respected locally.

(ii)

When alternative spatial planning scenarios compete, there is no accepted approach to resolution other than recourse to law - “who decides”, but no systematic and sound economic, social and environmental basis for deciding. For example, how to decide on:

56

180.

181.

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(a)

Banyuasin District’s (South Sumatra) spatial plan which proposes a longestablished sub-district capital be no longer designated as state forest area.

(b)

Raja Empat District’s (West Papua) spatial planning process that seeks to expand its development area to more than 20%; 80% of the new district is designated as state forest area for protection and conservation.

(c)

East Kalimantan’s spatial plan which reduces state forest area but which also converts some production forest to protection forest (Map 6).

(iii)

Different methods for calculating carrying capacity result in the determination of different protection areas (kawasan lindung). For example, within the MoFr two methods are employed, one based upon three criteria, the other upon seven (see Map 7).

(iv)

Different agencies use different base maps, e.g., BPN, MoFr and Ministry of Public Works.

(v)

Information which is already available in one government agency is not shared with others, e.g., BPDAS, Nusa Tenggara Barat Province, not releasing land use information to Lombok Barat District’s spatial planners.

Way forward: (i)

Application of (participative) SEA for spatial planning and subsequent evaluation.13

(ii)

Application of resource valuation to evaluate marginal impacts of alternative spatial plans considering functions as well as actual natural resource endowment, and focusing on direct and indirect use values, starting with available knowledge on economic values of different land uses.

(iii)

Review of the different approaches for evaluating carrying capacity.

(iv)

National policy on appropriate base maps (probably Bakosurtanal’s).

(v)

LG directives on information sharing among government agencies, if necessary backed by Ministerial directives.

5.

Use of spatial plans

Promoting proper use, instead of abuse of existing spatial plans: (i)

Spatial plans have often not been used for development planning, exploitation licensing and control. An example of this abuse being the deforestation in East Kalimantan despite spatial planning (see Map 8). Abuse of spatial plans has included licensing for construction/building or natural resource extraction in protection areas or failure to police illegal activities in both production and conservation areas, e.g., unauthorized mining, timber extraction and fishing.

(ii)

A good spatial plan is no guarantee that actual individuals, organizations or agencies will comply with it. Entrenched and influential vested interests as well as corruption create barriers to the adoption of plans and also influence the effectiveness of compliance programs including law enforcement.

(iii)

Some approaches can help, even in the face of such barriers:

NRMdf reviewed SEA and Resource Valuation applications for alternative spatial planning scenarios in East Kalimantan Province (Maps 4 and 5) and the town of Cianjur, Cianjur District (Map 7).

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(a)

Application of good governance principles for exploitation licensing, notably transparency (especially, site maps), participation (through prior informed consent) and accountability for outcomes (identification of entities responsible for environmental consequences), can create some social checks on environmentally irresponsible licensing.

(b)

Accessible mechanism for dispute resolution over the granting and implementation of exploitation licensing.

(c)

Explicit statements in annual budget plan preparations on conformity or nonconformity with the spatial plan, with appropriate explanations.

(d)

Making accessible to the public, area information and resource value implications of misapplication of the spatial plan.

182. Way forward. First and foremost, there is an urgent need to ensure the transparency of legal exploitation licenses, making these and the processes that issue licenses open to the public and to provide readily accessible information on exploitation sites. This would include who receives and who grants the license. Information should be provided to reach affected village areas before site development begins and should include clear instructions on how to complain or object in an orderly manner. 6.

Planning scales and administrative boundaries

183. Other spatial management approaches such as river basin management can complement those based upon administrative boundaries. Key factors include: (i)

Other spatial planning approaches have value for their geographic rationale per se (e.g., river basins or coastal zones) as they encourage a stronger sense of local ownership in spatial planning than for an entire district.

(ii)

On coastal resource management, there was general concern among visited districts that:

(iii)

(iv)

(a)

coastal zones require special spatial planning attention, e.g., to prevent uncontrolled deforestation of mangroves for shrimp and fish pond development; and

(b)

such spatial planning should nonetheless be well-integrated with conventional spatial planning for each district.

On watershed management, despite supporting institutions under the MoFr: (a)

River basins can cover large areas and a multitude of social and economic institutions far beyond the mandate and capacity of a single ministry to understand and manage water resource protection.

(b)

Management plans tend to have a sectoral bias and are translated into action with great difficulty.

(c)

Multi-stakeholder forums for watershed management rarely remain active long after their formation.

Water resources are critical to the welfare and industry of a wide range of stakeholders. Water can be a unifying principle and the first place to start when serious efforts are made to get better coordination and collaboration among LG and national institutions, diluting the institutional intransigence of some sectors such as mining and forestry. Finding the right coordinating mechanism presents challenges which can nonetheless be met once there is political will.

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184.

Way forward: (i)

Fostering awareness within and between village communities about their watershed neighborhood and the need for collaboration to protect water resources (rasa tetangga), e.g., downstream communities providing tree seedlings for upstream neighbors, and upstream neighbors finding alternatives to riparian areas for garbage disposal. In short, a process that makes neighbors more neighborly or tetangganisasi.

(ii)

Nurturing a network (jaringan) of community, private and state institutions, building from bilateral to multilateral linkages to create a complex series of networks (jejaring) that can then constitute a dynamic multi-stakeholder forum. In the long term this network could become a river basin council under the Water Council (Dewan Air). The formation of these arrangements should start with sub- or even sub-sub-watersheds as fractal parts that thus lend themselves to subsequent larger scale organization (see Map 9). The general purpose being to create a shared sense of dwelling inside a specific river basin domain (Rasa DAS). This requires readily verifiable and transparent outcome-based indicators of success or failure, e.g., establishment of ground and later forest cover that can be tracked remotely and is conducive to efficient ground-truthing.

7.

Linking policy to practice

185. Gaps between policies and practice constrain opportunities for greater community participation: (i)

Many policies mandate community participation in NRM, most notably, PP69 of 1999 for community involvement in spatial planning, but with little effect on the ground. Arguably, for NRM decision-making, community exclusion is more common than community inclusivity or participation.

(ii)

The argument for community participation is generally advanced along social justice and equity lines but there is another argument of no less importance for efforts to bring about sustainable decentralized NRM, namely appreciation of local communities, including the poor, more as NRM assets than liabilities (cost centers for LG or part of illegal logging, burning, mining or fishing enterprises): (a)

14

Knowledge, human and social capital of local people (most of whom are poor), particularly their ability to organize NRM within their village domains. Where they have certainty of access to land and sea they often:14 x

manage fire responsibly, preventing escape fires and producing minimal haze, e.g., smallholder farmers of rubber in Kutai Barat District, East Kalimantan;

x

sustainably reforest denuded areas using traditional forestry approaches, e.g., an agroforestry community in the village of Sesaot, West Lombok District, using a Hutan Kemasyarakatan license in a denuded protection forest area;

x

strive to prevent illegal logging in Sesaot village, West Lombok District;

x

conserve soil when preparing farmland on slopes, e.g., the adaptive traditional guludan terracing system in Cianjur District, West Java; and

x

coral conservation following customary rules or awik awik in West Lombok District.

Examples here are from the visited districts but occur more widely across Indonesia.

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(iii)

186.

59

(b)

Their numbers and where they live is more intimately connected with local natural resources than government service officers and their offices.

(c)

Local communities stand to lose more than any other institution from environmental degradation of natural resources in and around their village areas, and therefore hold the greatest stake and incentive to achieve good NRM (see Map 10).

(d)

Their interest in safeguarding natural resource can exert village-driven bottomup accountability on LG.

(e)

They should by default be logical partners for agencies with sustainable NRM as a major goal.

Resistance to community participation in decentralized NRM has come from: (a)

conservative mindsets that uneducated poor communities cannot be entrusted with commercial NRM rights which they will either inefficiently manage or sell to unscrupulous companies and

(b)

rent-seeking exploitation license-sellers who prefer larger enterprises as higher-value opportunities that’s easier to manage often for their own selfinterest.

(iv)

Ironically, through restricted access to natural resources in state areas and high-cost and bureaucratic licensing procedures, community-based NRM is relatively more highly taxed than large-scale enterprises, although in some cases more successful than larger-scale initiatives, e.g., reforestation. Such policies are regressive and discourage sustainable NRM.

(v)

Community participation covers a wide range of involvement which is helpful to break down into two types: (a)

Community participation in decision-making, primarily spatial planning and exploitation licensing, or

(b)

Community-based management of natural resources, in state areas in collaboration with state agencies, together making up community involvement or inclusivity. The first is a democratic right; the second is an option to be decided through appropriate dialogue. Failing to make this distinction clouds the debate about a proper role for local communities in decentralized NRM.

Way forward: (i)

Learn from experience. Across Indonesia there is a cornucopia of examples of local community practices that support NRM sustainability. In recent years, many of these cases have been documented but lessons remain to be learned by some national and LG institutions. There is a need for a more formal process of shared learning that can encourage changes in institutional mindsets because of well-informed social pressure.

(ii)

Policies in support of community involvement in NRM should acknowledge not only the rights of the local people to be consulted about decision-making for NRM in their village areas but also the value of local people’s human, social and knowledge assets or capital in efforts to achieve sustainability.

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8. 187.

Motivating change

Increased institutional capacity is of limited value without increased motivation for change: (i)

More than once our regional partners reminded NRMdf that increased capacity of government agencies does not necessarily translate into better behavior. One has only to look at the impacts of many capacity building projects to be reminded of this. Increased knowledge is needed but motivation may matter more.

(ii)

LG is particularly sensitive to accusations of lower capacity than national agencies:

(iii)

(a)

LG is investing in increased capacity and is receptive to support for capacity building, driven in part by the immediacy of expectations of local communities consequently feeling more accountability pressure than national agencies.

(b)

LG also point out that their lack of capacity is in part because for much of the time since independence, they were never given meaningful decentralized authority. The solution is hardly to keep back such authority. They further question what the Center has achieved with its greater capacity in the past.

(c)

Even something as innocent as capacity building can lead to acrimony in today’s tensions between local and national government agencies.

Any capacity building initiative like NRMdf must take into account the (a) incentive for beneficiaries to participate in training activities, and (b) the likelihood they will practice what they have learned in a reasonable timeframe. Among a number of LG characteristics that create a disconnect between what may be learned and its application are: (a)

the well-known problem that no significant action is taken by anyone unless under an approved project or “proyek”, nowadays often used in a derogatory way. And a proyek has to first be approved in the coming year’s budget. Lags in fund release can result in on-the-ground action well over a year after its proposal;

(b)

the right (trained) people moved to the wrong sections of LG agencies;

(c)

the difficulty of obtaining long-term funding, e.g., for NRM projects that are of necessity in the long term;

(d)

capacity building may even weaken institutions if it excessively draws down scarce human resources from daily service activities. This has become most evident where institutions are weakened and where natural disasters have impacted buildings and personnel, e.g., post-tsunami Aceh; and

(e)

financially well-endowed training projects may be very well received but leave little of lasting value.

(iv)

The aim must be to create genuine interest in capacity building, and seek opportunities to start applications in simple low-cost ways, generating modest but compelling success to argue for better-funded initiatives and to maintain momentum until fully-funded initiatives can come on line. This has been the approach of NRMdf.

(v)

Capacity building for management of outsourcing of spatial planning and other NRM approaches may be a better option, e.g., for Resource Valuation and SEA, at least for the foreseeable future.

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188.

C.

The proposed way forward: (i)

“THINK BIG, start small”.

(ii)

Lead capacity building initiatives with explicit statements of how LG will apply what is learned and what indicators can be used to track outcomes.

(iii)

Explore incentive systems for the application of increased capacity. These may require more general civil service reform such as that pioneered by Solok District’s Bupati (now the Governor of West Sumatra).

(iv)

Direct some capacity building efforts to the management of outsourced services such as SEA and Resource Valuation.

Role of MoHA in Decentralized NRM Governance 1.

Increasing role and need

189. MoHA’s support for the development of good NRM governance is crucial as decentralization and democracy take root and develops – often in ways that are difficult to predict. BANGDA (MoHA) is concerned about how best to serve decentralized NRM without being perceived by sectoral agencies as interfering with their mandates. Ultimately this will prove to be impossible. There is a much higher priority placed on this than any internal reorganization and task setting among the DGs and Directorates with NRM briefs.15 Ministerial reorganizations play out over a long period of time and seldom result in more change than section/division names. Each DG and Directorate has ingrained reasons for not changing. For example, the 1998 transfer of DG Estate Crops from the Ministry of Agriculture to MoFr - after a couple of years of no change in either institution, the DG was returned to Ministry of Agriculture. MoHA made it clear that it did not see a role for NRMdf in recommending reorganization. 190. As sectoral agencies at different levels of government, industry and local communities all vie for ever scarcer natural resources, guiding principles of good NRM are needed. Given the development nexus between governance and management of natural resources, MoHA’s role through BANGDA in facilitating regional development and harmony, places it in a unique and necessarily nonsectoral position to promote good decentralized governance of NRM. BANGDA’s ten principles of good governance is an excellent starting point for developing principles of good decentralized governance of NRM. Any programs need to address the following five thematic priorities if programs are to facilitate effective decentralized governance of NRM (see above and Appendix 3), The five priorities are:

191.

15

(i)

Strategic ~ appropriate to meeting the most important development challenges.

(ii)

Management Principles - Effective and Efficient ~ getting the job done while making best use of available resources.

(iii)

Core Governance Principles ~ transparency, responsiveness and fundamentally timely inputs.

(iv)

Equity ~ social justice, especially poverty reduction.

(v)

Rule of Law through (a) Control ~ effective sanctions with a reasonable prospect of enforcement, (b) Law Enforcement ~ through application of the rule of law.

accountability,

participation,

Other potentially unique NRM tasks for MoHA could include:

Nonetheless, MoHA organizational issues are dealt with in analytical and capacity building papers on rights, roles, responsibilities and relationships (4Rs).

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(i)

Convey lessons learned from Indonesian experience of decentralized NRM. Many of those lessons are already known to MoHA through its engagement with the regions about their spatial planning and NRM grievances in general.

(ii)

Encourage national and local agencies to establish effective policy review units to provide information about the impact of past policies as part of the process of formulating new policies.

(iii)

Inter-institutional coordination and harmony.

(iv)

In collaboration with BAPPENAS, planning awareness in general.

192. A well-designed and dynamic website can support the above but only if it is readily accessed by those in the regions with very slow internet access and kept up-to-date. 193. Way forward. For BANGDA to develop and implement the ten good governance principles as a starting point for dialogue towards establishment of a set of principles for good decentralized governance of NRM, follow a similar consultative process to that which developed the original ten. The principles would have value for coordination among MoHA’s different sections with an interest in NRM, e.g., in DG OTDA and DG Community Development. To change mindsets of LG and national agencies, establish lessons-learned approaches (e.g., website based) that focus on testing fundamental assumptions in answer to the question, “what we thought we knew but experience taught us otherwise”.

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IV.

63

POST-PROJECT ~ MAINTAINING MOMENTUM OF NRMdf INITIATIVES

194. One of the first questions posed by NRMdf to itself was, “what will happen on the first day after the last day of the project?” The answer to this question did not emerge until capacity building approaches from the project proposal were introduced and then demand-driven choices made over which were of greatest relevance to LG partners and national counterparts. 195.

The following legacy of the project is anticipated. (i)

(ii)

In terms of technical outputs, NRMdf’s legacy will be: (a)

Handbooks on main approaches or tools introduced to the selected districts.

(b)

Strategic issues papers.

(c)

Analyses and recommendations related to the NRMdf tools.

(d)

Educational posters.

(e)

Operational website (Indonesian and English versions) with the above, as well as various NRM-related databases, including policies, past and ongoing decentralized NRM projects; information sources related to the main NRMdf tools and a glossary of abbreviations and definitions; links to LG partners and other websites on decentralization of NRM.

(f)

Communication network of LG and national counterparts.

(g)

Increased familiarity of LG and national counterparts with NRMdf tools, some of them from international training experience.

The following outcomes are expected to survive and even expand after the end of the project: (a)

Some NRMdf recommendations adopted in draft MoHA Decrees on NRM, spatial planning and the use of SEA to evaluate spatial planning, LG regulations, upstream-downstream relationships and allocation of roles and responsibilities for NRM among different levels of government administration (NRMdf already informed that several recommendations for the new NRM decree will incorporate project suggestions).

(b)

NRMdf approach as a platform for future assistance, e.g., the ESP.

(c)

BANGDA distributes NRMdf capacity building handbooks and policy papers systematically and ad hoc to LG, especially those that visit BANGDA to present spatial planning issues.

(d)

Formal guidelines on appropriate structures for LG environmental agencies (for those tools deemed by BANGDA to be of most value, probably, coordination mechanisms, SEA, NRA and Green GDP and planning awareness).

(e)

Some NRMdf tools included in LG development programs, notably SEA, NRA and Green GDP.

(f)

Communication network tapped by potential donor support for decentralized NRM (provided someone is assigned to manage the list).

(g)

Website potentially a long-lived resource (provided there is continuous technical maintenance and content management).

196. Some of the specific introduced approaches and tools were better received than others and will have a greater chance of adoption (see Table 2 for explicit partner district interest in NRMdf approaches and tools at the end of this section).

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A.

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Approaches for Institutional Organization and Coordination

197. There has been universal interest locally and nationally in the project’s ideas on facilitating inter-institutional coordination under the present policy and regulatory regime (until a revised version of PP25 of 2000 is issued), considering aspects of rights, roles, responsibilities and relationships (4Rs). This work is likely to have far-reaching value and interest beyond the end of the project. B.

Reform for Harmonization among Development Policies and Programs

198. The arguments of the need to better integrate major development policies and programs are familiar to policy analysts, but were worth repeating and updating. They should be of value to advocacy groups and reformers in government for some time as the fundamental problems must await long-term developments in the wider policy and political arena. C.

NRA, Resource Valuation and Green GDP to Improve Spatial Planning

199. Employing resource valuation to compare alternative spatial planning scenarios has a good chance of being applied in East Kalimantan. Natural Resource Accounting (NRA) and Green GDP are perceived as environmental reality checks with advantages to districts arguing for greater support to manage the consequences of exploitation licensing and spatial planning decisions made at the national level. Examples of NRA, Resource Valuation and Green GDP relevant to partner districts are included in the handbooks. Among partner districts, Cianjur is likely to be the first to calculate Green GDP. D.

Strategic Environmental Assessment

200. NRMdf’s landscape-wide and participative strategic environmental assessment (SEA) application to spatial and development plans and their evaluation, is less familiar to environmental agencies than a more conventional SEA closely connected to EIA and only focused on formulation plans, policies and programs. That said, SEA is relatively unknown in Indonesia, and no universal model exists. In fact, some LG partners have expressed concern at applying techniques that do not have any kind of government approval. Cianjur and West Lombok have expressed the greatest interest in SEA (examples were developed for coastal zone management and Cianjur urban development and included in the handbooks). Cianjur, which has already applied the conventional SEA approach, is best placed to attempt the more adaptive NRMdf version which draws on parameters from NRA, Resource Valuation and Carrying Capacity techniques. The cost of comprehensive SEA for spatial planning will likely remain an obstacle. E.

Carrying Capacity (Land Capability and Suitability)

201. There was some LG interest in the project’s observations about carrying capacity, notably, different methods yielding different spatial outcomes. Not much can be done unless national guidelines change, which BANGDA may champion whilst using the information and knowledge developed by the TA on SEA. F.

Conflict Management

202. Conflict management approaches were not perceived as a high priority by most regional partners. This may be a reflection of the make-up of the regional partners; overwhelmingly LG civil servants who may complain are largely invisible to higher levels of government administration while failing to notice the lowest level, and village administration which faces a range of NRM conflict situations especially in resource-rich areas. Certainly, horizontal and vertical conflict among LG agencies is perceived as a serious problem though seen more as a coordination problem. G.

Community Participation in Spatial Planning and Exploitation Licensing

203. There were clear LG voices in support of community-based NRM pointing to the value of customary knowledge about NRM and positive behavior of poor local communities who apply such knowledge, e.g., in West Lombok and West Kutai Districts. In both cases, it was the Dinas Kehutanan/ Forestry Service (typically a conservative institution), that most enthusiastically promoted the community-based NRM cause, and decried the highly bureaucratic MoFr policies that make

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community-based NRM so difficult, yet another sign of (a) the difference of today’s Indonesia with that of the pre-1998 Orde Baru era when such criticism would have been unthinkable, and (b) the receptiveness of LG to more inclusive NRM policies than in the past. The project’s main intervention for community participation and its potential tangible legacy has been to recommend policy changes that empower local community involvement in NRM decision-making and use. H.

Planning Awareness

204. Planning awareness is seen by BANGDA as an umbrella for all the above improved approaches and recommendations for policy reform. As an idea and a term, it is arguably unproven, though the project has shown how it might become a successful approach to heightening awareness among planners and other decision-makers of the need to safeguard development with suitable environmental and related social considerations in spatial planning and export licensing. Any packaging by BANGDA of NRMdf materials for dissemination is likely to be delivered as part of planning awareness. 205. For all the local and national interest of the above approaches and recommendations, they must compete for funding and political acceptance with other development approaches. Key to adoption will be to as far as possible maintain momentum of interest and accessibility to relevant information materials. Among the LG partners, BANGDA, BAPPENAS and BPPT, a momentum of interest has been built in the NRMdf approaches and the prospects for carrying them far beyond the project to a larger scale of intervention over a longer timeframe to give the new ideas time to take hold. Table 3: Specific Areas of NRMdf Support in Selected Districts Districts {NRM Characteristics} West Lombok Nusa Tenggara Barat Province Island Tourism

Kutai Barat Kutai Kartanegara Kutai Timur East Kalimantan Province {Mahakam River Basin, Coastal, Rural-Urban, ConservationProduction SFAs} Cianjur West Java Province

Major NRM Problems x x x x x x x x x x x x

x

x x {Highland-Lowland Rural-Urban}

x

District Selection of NRMdf Tools for Specific Issues

Scarcity of water availability in particular springs. Quarrying that damages soil and water. Increasing damage to coral. Forest clearing and illegal logging. Conflict over water resources.

x

Overlapping land uses. Difficulties over reconciliation for the spatial plan. Ex-mining areas not reclaimed. Unauthorized logging and mining. Deforestation. Forest and land fires. Coastal degradation caused by development of [fish and shrimp] ponds.

x

Application of Resource Valuation and SEA to develop databases for above-ground and below-ground natural resources so that: provincial and district spatial plans are appropriate as a basis for (i) medium-term planning, (ii) annual budget planning; and alternative spatial planning scenarios can be judged more objectively.

Conflict between national and LG over area classification for protection and development in rural and urban settings. Neglected coastal zone management. Agricultural encroachment in National Park. Narrow focus of the district environmental agency.

x

SEA application for: (i) urban planning in Cianjur Township and (ii) coastal zone management. Appropriate organizational structure for the district environmental agency. Resource valuation to assess recreational development and conservation scenarios for a state forest area. Application of NRA to estimate Green GDP.

x

x

x x

x

Adoption of NRA and SEA for management of coral and coral-type quarrying. Safeguarding water resources through integrated upstreamdownstream approaches such as environmental services incentives. Public awareness about the above.

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V.

A.

BEYOND THE TA ~ OPPORTUNITIES FOR WIDER SUPPORT OF DECENTRALIZED GOVERNANCE OF NATURAL RESOURCE MANAGEMENT Governance and Management of Natural Resources

206. The conclusion of NRMdf’s demand-driven analysis, field testing with LG and preparing inputs for effective capacity building has revealed the need for, and government receptivity to, more comprehensive and medium-term support for developing good governance of NRM in Indonesia. At stake is far more than NRM. As governance success and failure can explain many of the negative outcomes of NRM, so misgovernance of NRM can negatively impact efforts at overall governance reform, undermining the rule of law and fueling corruption, in turn distorting democratic development and orderly decentralization, further undermining NRM governance, and so on. Effective support for decentralized NRM must recognize and act on the nexus between governance and management of natural resource. 207. Oddly, few major projects embrace the nexus between NRM and good governance. Perhaps, this is because of the way most donor agencies are organized, with natural resource and environmental managers in divisions far removed from social scientists, financial managers and political economists. There have indeed been major NRM projects in Indonesia, the most recent being USAID–BAPPENAS’ NRMP which ended in 2004. The World Bank, JICA, DfID and GTZ have taken on various aspects of NRM, but no agency is currently focusing on the governance-NRM nexus as it plays out as a part of the government’s regional autonomy program. The problem with focusing on specific sectors and issues is the inter-related nature of NRM and its connection to the wider political environment. B.

Program

208. To be effective, any future donor intervention should operate across all aspects of NRM systems and across the range of scales from local to national. To do so however, risks being spread too thinly and being unable to provide a critical mass of support and capacity development. While difficult this can be achieved if clear and workable non-sectoral themes are used to design and implement the program. Given the central role of institutions in governance and their development status in the regions, institutional strengthening and capacity building are obvious assistance targets. Other linked and often interconnected aspects are presented below. 1.

Capacity building for LG policy-making, decision-making and development planning that incorporate sustainability imperatives

(i)

Technical approaches to systematic gathering and sharing of sufficiently detailed information about the status of natural resource endowments (spatial, social and economic considerations) collected in ways which are as far as possible more participatory and public, e.g., SEA.

(ii)

Good governance principles to be applied to safeguard long-term development under decentralized NRM.

(iii)

Policy review to inform new NRM policy-making, drawing on lessons from the above two.

209. Capacity building, however, requires the following pre-conditions to exist if it is to be successful: (i)

Annual budgetary support for implementation of the proposed participative and technical programs is essential.

(ii)

Districts will expect national-level approval of the instruments, approaches and tools being introduced and tried by a future program.

(iii)

There are clear sustainable incentives for subsequent application through adapted programs and policy reform, e.g., ranging from individual rewards to the consequences of an EPI for an entire district.

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(iv)

There is recognition that sustainable decentralized NRM requires vertical and horizontal integrity, i.e., acknowledgement of inter-institutional linkages across and between districts, from national ministries to village communities and the poor amongst them (from masyarakat to menteri).

(v)

Some significant and low-cost first steps are identified and achievable to build momentum for institutional change.

2.

Specific instruments to be offered as part of a portfolio or toolkit

210. Introduction and use of an array of tools for incorporating environmental and natural resource sustainability in spatial planning processes (from plan preparation to use). These should include approaches to achieve more participation and better coordination among stakeholder institutions. As in the NRMdf, the idea is to encourage LGs to make their own choices as to which tools or approaches are most relevant to their NRM challenges. The emphasis should be more on strengthening the process of spatial planning rather than the production of specific spatial plans and the expert technical temptation it brings for a project to produce “glossy” outputs and be judged accordingly. 211. The NRMdf approaches that show most promise for making a positive contribution to decentralized NRM with the resources available in a much larger project are: (i)

Strategic Environmental Assessment for spatial and development planning related to NRM as well as subsequent evaluation.

(ii)

Natural Resource Accounting for Green GDP to inform development planning and exploitation licensing.

(iii)

Environmental Performance Indicators for an incentive/disincentive system for NRM outcomes.

(iv)

Planning Awareness to increase the likelihood of incorporation of environmental considerations in spatial and development planning as well as a role for community involvement in planning processes.

(v)

Application of the five core principles of good governance of NRM. (i) Transparency as a vanguard governance principle for the preparation of spatial plans and the licensing processes that should be consistent with them, that encourages (2) accountability. Subsequent institutions for (3) greater inclusivity or participation, (4) institutional responsiveness and (5) cross-cutting timeliness.

3.

National policy-enabling conditions

212. In parallel with work at the LG level, it would be important to provide analysis and support multi-stakeholder dialogue on the development of national policy-enabling conditions for adoption of improved approaches that foster better decentralized governance of NRM. 4.

Guiding principles

213. Based on NRMdf experiences, the following development principles are suggested for new and large-scale assistance initiatives that are realistic and offer post-project continuity: (i)

Avoid idealistic goals (often requiring unrealistically optimistic assumptions … and ready excuses for failure when they do not hold) that force the project to operate on too many fronts and are high-cost and unlikely to survive the end of the project.

(ii)

Be acutely aware that when it comes to support for LG, “we are where we are with what we have” (Seadanya daripada Seandainya) far removed from ideal circumstances, and have limited resources to work with.

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(iii)

Take into account the limited absorptive capacity of weak local institutions. Such institutions can be overwhelmed by overly-ambitious capacity building, neglecting their main duties in favor of project participation by their best and brightest.

(iv)

Seek opportunities for incremental gains consistent with capacity.

(v)

Think more in terms of “better” than “good”, let alone “best practices”.

(vi)

KISSSS – keep it strategic, simple and start soon (THINK BIG, start small … act now). In other words, avoid long preparation phases that make no significant steps forward until everything is as it should be. Thus, “do not let the perfect get in the way of the good”. Indeed, small early successes can encourage wider stakeholder commitment to support for reaching major goals.

5.

Timing

214. It is recommended that capacity building for the above is implemented during a first phase that also collaboratively identifies the NRM problems and appropriate tools and approaches to solve them, followed by a second phase that involves in-service actual application of selected tools. In parallel, lessons from these experiences would be used to make recommendations for national enabling policy reform. 6.

Potential partners

215. For reasons given above, MoHA is a logical project home for assistance to support decentralized governance of NRM. Indeed, BANGDA has already submitted a proposal for such a project in the Blue Book (see Appendix 21). Non-sectoral BAPPENAS and BPPT have obvious interests in further support for NRM. LGs have already demonstrated a keen interest in the kind of support that NRMdf has provided, although preferring more physical and financial kinds of assistance. 216. Any future, large-scale assistance should include key government, local community and business stakeholders. Dealing with a wider swathe of stakeholders however, requires professional facilitators with proven track records under disputatious circumstances. 7. 217.

Partner engagement

A series of pre-requisites for engagement with regional partners and national counterparts are: (i)

Foundation for action - a trust-building phase for any selected regional partners following the “Trajectory of Trust”, starting with a shared stakeholder analysis to nurture mutual understanding, and including shared learning about past NRM experiences in Indonesia.

(ii)

Jointly asking at the outset, “what will happen on the first day after last day of the project?”

(iii)

Outcome-based monitoring established at an early stage of the project.

(iv)

Shared leaning about NRM experiences in Indonesia followed by lessons to be learned. MoHA can help establish internal project lessons learned instruments at an early stage of the project.

8.

Focus of interventions

218. Districts should remain the focus of the kind of assistance described above, supporting at the same time, provincial functions according to Law 32 and the forthcoming revision of PP25 of 2000. 219. How should partner districts be distributed - as clusters or as hubs (centers of excellence) influencing neighbors? The hub approach suffers from the problem of neighboring districts having a sense of being less favored, receiving fewer benefits and less interested in playing a peripheral role. Clusters capture border issues (district-district, district-adjacent province or country), geographically-

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defined areas (e.g., river basins, coastal zones and peri-urban areas), encourage positive competition, reduce the risk of reliance on only one district partner and have logistical advantages. 220. It is suggested that one option could be a cluster of districts in each major island group would be feasible. This would allow all major NRM issues to be covered under a range of development settings and for the Government to replicate and build from these pilot clusters. Ideally, such clusters should have a separate rationale, e.g., the 11 districts in the heart of Borneo conservation strategy of WWF, the several districts in which major national parks are found such as Leuser and Kerinci Seblat, districts making up an island group, districts making up a major river basin such as the Mahakam in East Kalimantan (from ridge to reef), coastal districts or districts along an international border. 221. A longer selection phase than for NRMdf would allow a more systematic, less purposive sampling method and subsequent analytical comparisons of progress. A candidate shortlist could then be assessed through the kind of three-day introductory visit developed by NRMdf once all the tools and dissemination materials had been developed. 9.

Scoping

222. Given the rapidly-changing NRM development landscape, especially in resource rich areas, before formal project preparation is initiated, a scoping phase should explore the extent to which the following conducive development conditions exist: (i)

Stakeholder awareness of the major problems of decentralized NRM and the need to foster change to resolve them.

(ii)

Some achievable and significant first steps are feasible.

(iii)

Risks of failure (from unreasonably optimistic assumptions of political will to opposition on the ground from vested interests) and mitigation identified.

(iv)

Sufficient human and financial resources that can be mobilized to establish effective and replicable interventions.

(v)

A shared vision of sustainable NRM among major stakeholders and the likelihood that this will result in sufficient accountability pressure to keep support on track.

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VI.

PROJECT MAPS

Map 1: Cianjur District, West Java Province

ADB TA 4687-INO: Natural Resource Management in a Decentralized Framework Final Report

Map 2: Lombok Barat District, West Nusa Tenggara Province

Map 3: Kutai Districts (3), Mahakam River Basin, East Kalimantan Province

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Map 4: East Kalimantan RTRWP Spatial Plan

Map 5: East Kalimantan Forest and Water Areas (SK79)

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Map 6: Change in East Kalimantan Forest Area from SK79 to RTRWP

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Map 7: East Kalimantan Deforestation 1985-2000

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Map 8: Carry Capacity Methods for Protection Forest, Bandung District

Map 9: Land Use Impacts of Cianjur Urban Plan for 2013

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Map 10: Overlapping Village and State Forest Jurisdictions in East Kalimantan

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Map 11: Mahakam River Network, East Kalimantan

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VII.

POSTERS

Figure 7: Planning NRM Awareness

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Figure 8: TA Awareness for NRM

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Figure 9: Functional Coordination to Ensure NRM Sustainability

Figure 10: Conflict Resolution in NRM

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Figure 11: Spatial Planning Coordination

Figure 12: Strategic Environmental Assessment

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VIII.

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APPENDICES

Appendix 1: Role of MoHA in Natural Resource Management C.

Area Development and Good Governance

1. The MoHA (Departemen Dalam Negeri, Depdagri) influences many aspects of national and LG across Indonesia - from the national government agencies to village administration, among which is decentralized governance for NRM. Concerned with regulating and ensuring effective and harmonious regional development and autonomy (pembangunan dan otonomi daerah) across over 400 districts and 30 provinces, regional financing, people empowerment and poverty alleviation, and peace and public order, MoHA’s policy directives and guidelines as well as its authority to strike down LG regulations place it in a unique position to foster good governance in Indonesia. 2. MoHA’s mandate as determined in Decree 102 of 2001 is summarized by the Ministry on its website (www.depdagri.go.id) as assisting the President in conducting some of the governance of domestic affairs by carrying out: x x x x

governance aspects of domestic affairs and regional autonomy; guidance and coordination of duties as well as departmental service delivery; adoption of research and development and specific education and training in support of policies for domestic affairs and regional autonomy; and oversight of functional implementation.

3. These broad duties underpinned by a strategy to maintain national policy and facilitate governance for: x x x x x

ensuring national unity of the Republic of Indonesia; perfecting effectiveness of regional government; community empowerment; developing harmony between regions and national levels, and between regions and between specific areas; and maintaining peace and public order for community, people and nationhood.

4. This strategy is translated into action through eight major and five supporting programs, namely: (i)

Eight Major Programs: (a) (b) (c) (d) (e) (f) (g) (h)

(ii)

Strengthening national integrity. Developing management for protection and peace of the people as well as general order. Facilitation and perfecting policies for decentralization and regional autonomy. Perfecting management of regional finances. Developing democratic political institutions and systems. Increasing people empowerment and reducing poverty. Guiding development of regions and specific areas. Developing and guiding population administration.

Five Supporting Programs: (a) (b) (c) (d) (e)

Developing international collaboration. Guidance and law enforcement for increasing good governance. Research and development for domestic governance and politics. Increasing human resource development for functionaries. Increasing institutional capacity for NRM and environmental conservation.

5. MoHA is headed by the Secretary General along with an Inspectorate General, Special Advisers to the Minister, and DGs for the following units: (i)

Citizen and Political Unity

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(ii) (iii) (iv) (v) (vi) (vii) D.

General Government Population Administration Citizen and Village Empowerment Guidance for Regional Finance Regional Autonomy Guidance for Regional Development.

NRM, the Environment and Spatial Planning under BANGDA

6. Given that natural resource endowments can greatly influence area development and governance in Indonesia, MoHA’s mandate includes facilitation of natural resource and environmental management as well as spatial planning (see Support Program 5). While some sectoral ministries question MoHA in decentralization of NRM and related fields, particularly since a recent decree on departmental mandates (Tupoksi or Tugas Pokok Fungsi) was issued, the key facilitation aspect of good governance in support of sustainability however, argues for a continuing role of MoHA in regional development. 7. NRM, environmental management and spatial planning tasks in MoHA comes under the authority of the Directorate General for Regional Development (Direktorat Jendral Bina Pembangunan Daerah, BANGDA). BANGDA’s overall task, as outlined in its website (www.bangda.depdagri.go.id), is to formulate and implement policies and technical standards in the field of guidance for regional development. Specifically, this consists of the following functions: (i)

Preparation of departmental policy formulations for planning and evaluation of regional development, harmonious regional development, regional enterprises, the environment and spatial planning, as well as area development potential.

(ii)

Implementation of policies in the field of planning and evaluation of regional development, regional enterprise and the environment and spatial planning as well as area development potential in line with existing laws and regulations.

(iii)

Formulate standards, norms, guidelines, criteria and procedures in the field of planning and evaluation of regional development, harmonious regional development, regional enterprises, the environment and spatial planning, and area development potential.

(iv)

Give technical and evaluation guidance.

(v)

Implement administration of the DG.

8. NRM, the environment and spatial panning come under the direct authority of BANGDA’s Directorate for Facilitating Spatial Planning and Environmental Management (Direktorat Fasilitasi Penataan Ruang dan Lingkungan Hidup). This Directorate is divided into the following subdirectorates: (i)

Capacity Development for Management of Natural Resources and the Environment (Sub-Dit Pengembangan Kapasitas Pengelolaan Sumber Daya Alam dan Lingkungan Hidup).

(ii)

Planning, Use and Oversight of Spatial Planning (Sub-Dit Perencanaan, Pemanfaatan dan Pengendalian Penataan Ruang).

(iii)

Planning, Use and Oversight of Natural Resources (Sub-Dit Perencanaan, Pemanfaatan dan Pengendalian Sumber Daya Alam).

(iv)

Planning, Use and Oversight of Human-made Resources (Sub-Dit Perencanaan, Pemanfaatan dan Pengendalian Sumber Daya Buatan).

(v)

Establishment of Special Areas (Sub-Dit Penataan Wilayah Pengembangan Khusus).

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9. are:

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Other BANGDA directorates with an interest in NRM, the environment and spatial planning

(i)

Directorate for Area Development (Direktorat Pembangunan Wilayah), in particular the Sub-Drectorate for Coastal, Sea and Small Island Areas (Sub-Dit Wilayah Pesisir, Laut dan Pulau-pulau kecil) and the Sub-Diectorate for International Border Areas (Sub-Dit Wilayah Perbatasan).

(ii)

Directorate for Regional Planning and Development (Direktorat Perencanaan dan Pengembangan Daerah), divided into five major areas across Indonesia.

(iii)

Directorate for Regional Economic Development (Direktorat Pengembangan Ekonomi Daerah), in particular the resource endowment interests of the SubDrectorate for Regional Economic Potential (Sub-Dit Potensi Ekonomi Daerah) and assumptions about revenue flows from natural resource exploitation.

(iv)

Directorate for Urban Affairs (Direktorat Perkotaan).

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Appendix 2: BANGDA Governance Principles Ten principles of good governance as a framework and work program for apeksi16 1.

Participation Encourage each citizen to exercise their right in expressing their opinion in the process of decision-making (from formulation to evaluation).

2.

Rule of Law Complete law enforcement and legal certainty that are fair for all citizens and support human rights while taking into account living values of the people.

3.

Transparency Increase mutual trust between the government and the people. Government agents must prepare adequate information for the people and must provide easy access for accurate information.

4.

Responsiveness Increase the responsiveness of government agents to complaints, problems and aspirations of the people without exception.

5.

Equity Create equitable opportunities for all citizens without exception for increasing people’s welfare.

6.

Strategic Vision Create a strategic urban vision such that urban dwellers feel a sense of ownership and responsibility towards the future and city development that supports an appropriate budgetary system.

7.

Effectiveness and Efficiency Service delivery according to people’s needs, making optimal and wise use of all types of resources.

8.

Professionalism Increase ability, skill and morality of government agents so that they have a sense of empathy to provide services that are easy, quick, appropriate and affordable.

9.

Accountability Increase accountability to the people of all decision-makers in government, private sector and people’s organizations in all fields (political, fiscal and budgetary).

10.

Control Increase control of government implementation and development activities by involving people and people’s organizations.

16

rd

Source: Journal of Regional Development/Jurnal Pembangunan Daerah, 3 edition, Year 5, MoHA, 2001.

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Appendix 3: Governance Principles The following outlines the application of five types of governance principles to NRM with emphasis on spatial planning and exploitation licensing Ten Good Governance Principles 1/

Spatial NRM Scope

Application to Major NRM Problems

Type I 1. Strategic Vision

x

NRM components of Plans and Programs such as Renstrada, RPJM and RPJP that are ineffectively prioritized and unrealistic are less likely to be translated into action on the ground.

x

NRM policies and institutions that are not in harmony nor are wellintegrated.

x

Overly-prescriptive NRM regulations that discourage innovation, efficiency and site-specific management, result in minimal compliance and invite corrupt practices that are more difficult to detect than outcome-based regulation.

x

Highly discretional and bureaucratic approval systems for NRM exploitation licensing (approval and revocation) and planning (e.g., annual, five-year and longer-term development plans) are discouraging small- and large-scale enterprises alike.

x

Despite regulations, coordination among NRM government agencies vertically and horizontally is ineffective.

x

Some licensing roles still held by the Center, e.g., license for heavy equipment in forests.

Public service spirit and capability: Increase ability and morality of government agents so that they have a sense of empathy to provide services that are easy, quick, appropriate and affordable.

x

Insufficient individual and institutional capacity to make the transition from centralized to decentralized service delivery.

x

Insufficient sustained incentives to reward good public service spirit.

Increase mutual trust between the Government and the people. Government agents must prepare adequate information for the people and must provide easy access for accurate information.

x

Low degree of sharing map and other NRM exploitation licensing data across districts and between regions and sectoral departments.

x

Obscure processes for exploitation licensing (awarding of license and periodic management plan areas) and control, not involving local communities whose livelihoods are most affected by such exploitation in

x

Create a strategic vision for decentralized NRM such that local communities feel a sense of ownership and responsibility towards the future.

x

A strategic NRM vision appropriate to meeting the most important development challenges with limited resources, including an appropriate budgetary system that ensures that funds will follow decentralized functions.

x

Emphasis on outcome-based NRM regulation encouraging innovation and efficiency.

x

Service delivery according to local people’s and company needs, making optimal and wise use of all types of resources.

x

Service delivery for spatial planning, exploitation licensing and control is timely, well-targeted and according to available resources.

Type II 2. Effectiveness and Efficiency

Type II 3. Professionalism

x

Type III 4. Transparency

x

Encourages Ø

x

First and foremost, a key catalyst for better governance and NRM, especially when change is opposed

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Ten Good Governance 1/ Principles

Application to Major NRM Problems

by entrenched vested interest.

designating exploitation areas or in the selection of management enterprises. x

Failure to communicate to local communities and LG agencies the location and nature exploitation licenses, nor indicate mechanisms f complaint.

Type III 5. Accountability

x

Increase accountability of all decision-makers and policy-makers to the people, from NRM budget preparation to natural resource exploitation licensing and control.

x

Little to no accountability of exploitation license approvers or law enforcers to the consequences of implementation.

x

Representational and efficient participation that encourages each citizen to exercise their right in expressing their opinion in the process of decision-making (from formulation to evaluation). Nurture a sense of shared responsibility in NRM, particularly in public land such as state forest areas - rumongso melu handarbeni.

x

Despite regulations and guidelines, low degree of local participation in NRM policy-making, decisionmaking and actual co-management.

x

National level license giving that excludes local communities and LGs reduce their interest in safeguarding nationally defined conservation goals.

… that is limited unless there is … Ø Type III 6. Participation … and Ø

x

Harness local knowledge on traditional NRM and social capital of local communities in support of sustainability, e.g., steep-slope agriculture and local organization to prevent illegal logging and contain land fires.

x

Increase the responsiveness of government agents to complaints, problems and aspirations of the people about NRM without exception, particularly for spatial planning and exploitation licensing.

x

Low responsiveness, so that NRM responsibility means authority only.

x

Long delays in national approval of district and provincial spatial plans and changes to land functions means that local frustration and sense of urgency leads to local actions that willfully ignore national decisions.

x

Create equitable NRM opportunities for all citizens without exception for increasing people’s welfare, especially the poor.

x

Poor denied access to state land with greater agricultural and agroforestry potential than for forestry.

x

Recognition that support for the poor can result in their actions benefiting the society, e.g., poor smallholder farmers converting denuded public land into sustainable agroforests thereby protecting water resources. Thus assets for the poor … the poor as assets.

x

Poor denied access to public land even when the agroforestry systems are more effective than government reforestation schemes at safeguarding forest functions.

x

High-cost and bureaucratic exploitation licensing, transport and trade, disproportionately hurt the poor. Relatively more restrictive regulations for larger-scale

Type III 7. Responsiveness

Type IV 8. Equity

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Spatial NRM Scope

Application to Major NRM Problems operations. x

The poor excluded from access to natural resources when their human, social and knowledge capital can be harnessed in support of sustainability.

x

Ineffective bans, e.g., on logging, steep slope agriculture, the use of fire. Marginalizing and criminalizing large numbers of poor.

x

Bans prevent extension services working with those who infringe the bans, e.g., for better-organized fire control or terracing.

x

NRM laws and regulations that have little popular support because they do not adequately reflect the way people have long arranged their lives.

Type V 9. Control

x

Workable sanctions for irresponsible NRM through alternatives to some prohibitional and overly-prescriptive approaches that have proven ineffective, e.g., in some types of land use system, better burning rather than zero burning.

x

Increase control of government implementation and development activities by involving people and people’s organizations, e.g., recognition of traditional systems to control fire.

x

Complete law enforcement and legal certainty that are fair to all citizens and support human rights while taking into account living values of the people. Such laws are more likely to be respected.

Type V 10. Rule of Law

1/

rd

Source: Journal of Regional Development / Jurnal Pembangunan Daerah, Ministry of Home Affairs (MoHA), 2001, 3 Edition, Year 5.

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Appendix 4: List of Seminars and Workshops 1.

National Working Meeting (Raker) on Spatial Planning Coordination The TA team was invited by BANGDA to participate in a National Working Meeting (Rapat Kerja) of the District Coordinating Body for Spatial Planning (BKPRD) on 4 July 2006. Presentations by BANGDA, BAPPENAS, Ministry of Environment and Ministry of Public Works provided valuable insights into prevailing government thinking about improving spatial planning. The TA provided some inputs at the breakout sessions on NRM data needs in the spatial planning processes and the importance of traditional knowledge in informing such processes, which were entered into the formal conclusions of the workshop.

2.

National Seminar on Environmental and NRM Law Held on 28 June 2006, included two ex-ministers of the environment and was particularly useful as a reminder of the increased politicization of NRM in Indonesia, particularly with respect to foreign investment, mining and forestry issues. TA attendance was made possible by the Deputy Team Leader’s position as a discussion moderator.

3.

Seminar on Forestry – Mining Issues NRMdf was invited to a seminar on the issue of forestry–mining land use conflict on 10 August 2006.

4.

Final Workshop of the ADB Fisheries Sector Strategic Study Held on 24 August 2006.

5.

National Seminar on Environmental Performance Index NRMdf was invited to a national seminar on developing an Environmental Performance Index for the regions. It became clear at this meeting that one of the major challenges facing any kind of environmental public accounting or assessment system, be it Strategic Environmental Assessment, Natural Resource Accounting or an index, is identifying priority or strategic indicators among the vast array of scientific possibilities.

6.

SENRA Workshop A draft final workshop of the ADB Fisheries Sector Strategic Study on 24 August 2006 and contacts with the ADB Marine and Coastal Resources Management Project emphasized the value of a more integrated approach to spatial planning, e.g., interactions between coastal and inland fisheries with land-based development.

7.

Meeting at BANGDA on Raja Empat District’s New Spatial Plan Held in October 2006, the meeting involved several national departments, including MoFr. The main issue revolved around the district’s difficulties to develop given more than 80% of their area is state forest area.

8.

Meeting at BANGDA on Nusa Tenggara Barat’s New Provincial Spatial Plan Held in November 2006, and involved several national departments, including MoFr.

9.

Workshop for Discussion of the Draft MoHA Ministerial Decree on NRM Held on 24 November 2006, and included participation of national ministries.

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Appendix 5: NRMDF Briefing Notes Project Statement

Keterangan Proyek

Increasing capacity of districts (Kabupaten) to improve governance of decentralized NRM for sustainability and development in Indonesia consistent with the principle of concurrency in Act 32 of 2004 is the main goal of the NRMdf project (ADB TA 4687-INO) under the Directorate General for Regional Development at the MoHA (BANGDA), in collaboration with BAPPENAS and BPPT.

Proyek NRMdf (ADB TA 4687-INO) yang berada di bawah Direktorat Jendral BANGDA Departemen Dalam Negari, bekerjasma dengan BAPPENAS dan BPPT, mempunyai tujuan utama untuk meningkatkan tata atur pemerintahan (Governance) pengelolaan sumberdaya alam (PSDA) yg baik mendukung kelestarian maupun pembangunan, dlm rangkan otonomi daerah sesuai dgn prinsip konkurensi di UU32, 2004.

A team of specialists working at BANGDA and in six selected districts is dedicated to introducing practicable NRM approaches that recognize institutional and financial realities at the local level, recommend enabling policies for better governance of NRM and disseminate information in support of the above.

Untuk itu tim konsultan proyek berkerja di BANGDA dan di 6 Kabupaten/Kota terpilih utk memperkenalkan pendekatan atau “tools” pengeloaan sumberdaya alam (PSDA) yang praktis di daerah sesuai dgn kenyataan kelembagaan dan keuangan daerah, memberikan rekomendasi-rekomendasi utk kebijakan nasional yang memberdayakan PSDA dlm rangka otonomi daerah, dan men menyebarlaskan informasi yg mendukung yg tersebut diatas.

The NRMdf offers capacity building for incorporating BANGDA’s ten principles of good governance and management to achieve more efficient, effective and equitable decentralized development of natural resources in Indonesia, encouraging immediate (and monitorable) action as well as sufficient understanding about more comprehensive approaches for adoption over the medium- and long-term, thus, “THINK BIG, start small.”

Pengembangan Kapasitas dari Projek NRMdf ini memberikan penekanan pada aspek 10 Prinsip Good Governance dari BANGDA dan aspek pengelolaan sumberdaya alam, agar lebih efektif dan serasi dalam kegiatan pengelolaan sumberdaya alam baik untuk jangka panjang maupun disampaikan pendekatan sederhana namun efektif yg dapat diterapkan langsung, yaitu, “PIKIR LUAS, bertindak awal sederhana”.

NRMdf Components

Komponen 2 PSDA-kod

Component 1: Policy Analysis and Institutional Strengthening

Komponen 1: Analisa kebijakan dan penguatan kelembagaan

Analysis and strengthening of policies and institutions for NRM and governance

Kajian dan penguatan kebikajan dan kelembagaan utk Pengelolaan SDA dan Pemerintahan SDA

(i)

Review the decentralization policy and legislative framework and its impact on sustainable NRM.

(i)

(ii)

Take into account insights and approaches from past ADB-assisted projects.

(iii)

Rights, roles, responsibilities and relationships among government agencies for NRM and environmental protection (e.g., between local dinas, badan and kantor)

(iv)

Assist MoHA in facilitating, guiding and providing oversight for decentralized NRM, including piloting, validating, and testing technical guidelines. Emphasis will be on recommendations for (a) institutional strengthening and reform at district level, and (b) improvements in the coordinated functioning of the different levels of

Kajian kebijakan dan kerangka hukum serta dampaknya utk PSDA.

(ii) Mempertimabngkan hasil dan pendekatan dari Proyek ADB lainnya. (iii) Analisa hak, peran, tanggung jawab serta hubungan antara kelembagaan pemerintah terkait dgn PSDA. (iv) Mendukung Depdagri dlm upaya memfasilitasi, dan mengawasi proses desentralisasi PSDA. Tekanan pada rekomendasi utk, (a) penguatan kelembagaan dan perkembangan kebijakan daerah, serta (b) kelancaran fungsi koordinasi diantara berbagai tingkat pemerintahan.

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NRMdf Components

Komponen 2 PSDA-kod

government. Component 2: NRM Development Planning

Komponen 2: Perencanaan Pembangunan SDA

Increasing capacity for participative, well-informed and enforceable spatial planning, including:

Peningkatan kapasitas utk proses penataan ruang dgn ciri partisipatif, diberdayakan informasi dan penegakan hukum, termasuk:

(i)

(ii)

Inclusive and practicable linkages of LG development and spatial planning and NRM exploitation licensing with village community livelihoods. Identification of lesson learned from districts with successful integration of top-down and bottom-up approaches to spatial planning issues including conflict resolution. Application of SEA, NRA and Carrying Capacity as decision-aiding tools for spatial planners.

(iii)

Environmental Performance Index (EPI) to inform would-be investors and project / budget approvers and planners.

(iv)

All of the above should take into account the institutional realities of LGs, notably, weak institutions with limited absorptive capacity, human resource development challenges, small budgets and motivations for short-term over long-term decision-making.

Component 3: Information for Decision-making Informed and accountable decision-making, including: (i)

(ii)

(iii)

Development and dissemination of tools among LG for participative planning and licensing processes, including SEA, NRA, Resource Valuation and EPI for better-informed, more effective and more accountable NRM under their control. Nurture trust among government, community and private stakeholders through natural resource and environmental management information sharing. Establishment of a website providing comprehensive information on issues relating to decentralized NRM, including key NRM databases as well as successful examples of NRM, in particular community-based NRM and established top-down and bottom-up approaches to NRM planning and implementation, and the case studies they generate. Website operated and maintained by the BPPT up to at least 2 years after TA closing.

(i)

Pendekatan partisipatif dlm hubungan antara penataan ruang, pembangunan daerah, proses perizinan dan sumber nafkah masyarkatan. Identifikasi pelajaran dari pengelaman ttg keterpaduan yg berhasil antara pendekatan dari-atas dan dari-bawah, termasuk pengelolaan konflik.

(ii)

Penerapan Kajian Lingungan Strategis (KLS), Neraca Sumber Daya Alam, Valuasi Ekonomi SDA dan Lingkungan Hidup (VESDAL) serta Daya Dukung Lahan utk memberdayakan proses penataan ruang.

(iii)

Penerapan Indeks Lingunkan Hidup sbgai sumber informasi buat investor, penilai proyek ataupun proses alokasi dana anggaran.

(iv)

Semuanya diatas mempertimbangkan kenyataan kelembagaan yg terbatas dari segi daya serap bantuan, SDM, sarana/prasarana, dana dan insentif utk pengelolaan jangka waktu panjang ataupun pendek.

Komponen 3: Informasi buat pemberdayaan proses pengambil keputusan yang bertanggung jawab: (i)

Menyebarluaskan metode “tools” dan pendekatan utk pemerintah daerah utk perencanaan dan perizinan partisipatif, termasuk KLS, NRA, VESDAL, IL utk PSDA yg lebih efektif dan terawasi.

(ii)

Dukung rasa saling percaya antara pemangku kepentingan secara bagi informasi SDA dan LH.

(iii) Perkembangan website utk informasi komprehensif ttg desentralisasi PSDA, termasuk database SDA, contoh keberhasilan PSDA, lebih2 yg partisipatif, hubung efisien antara dari-atas dan dari-bawah, serta studi kasusnya. Website dikelola selama tiga tahun.

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Appendix 6: Outputs from Terms of Reference List of primary and supplementary outputs of NRMdf and their relationship to the proposal for ADB TA 4687-INO Working Title of Primary Written Outputs and other papers as their inputs (to … )1/

Supplementary Papers

TA Reference – Approach & Method

1.02

Towards a Decentralized Framework for Sustainable NRM

All papers

Theme 1.2.1.i 1.3.C

1.03

Review of Impacts of Policies, Laws and Regulations on sustainable NRM ~ de jure and de facto insights

1.01, 1.05, 1.06, 2.16

Theme 1.2.1.iii Theme 1.2.2.ii 1.3.A 1.3.C

1.04

Reforms to effectively integrate NRM and environmental policies and regulations into spatial planning

1.05, 1.07, 1.08, 1.09, 1.12, 2.01, 2.02, 2.03, 2.04, 2.05

Theme 1.2.1.i 1.3.B 1.3.C 1.3.2. Comp 3.B

2.12

Application of NRA and related SEA to spatial planning

1.14, 2.11, 2.06

1.3.C 1.3.2. Comp 3.B.2 & 1

2.08

Application of EPI for performance monitoring of district development

2.07, 2.13

Theme 1.2.1.i 1.3.A.ii 1.3.C 1.3.2.Comp 2.C.vii 1.3.2. Comp 3.A

2.09

Rights, roles, responsibilities and relations among NRM government agencies from national to village levels (Planning, Use and Control)

2.10, 1.13

Theme 1.2.1.i Theme 1.2.1.iii Theme 1.2.1.iv 1.3.A.iv 1.3.A.vii 1.3.B 1.3.C 1.3.2.C 1.3.2.Comp 2.C.vii

1.10

Resolving conflicting authority and regulations for NRM

1.11, 1.03, 1.13

Theme 1.2.1.i Theme 1.2.1.xi 1.3.A.ix 1.3.A 1.3.C

2.14

Policy and institutional mechanisms to resolve NRM conflict

2.15

Theme 1.2.1.xi 1.3.A 1.3.C

2.16

Stakeholder analysis for NRM in districts

2.17

NRM planning awareness campaign to inform decision-makers

2.16, 1.03

Theme 1.2.2 1.3.C 1.3.2. Comp 3.A

3.02

Web-based Information system for decentralized NRM

3.01

1.3.2. Comp 3.A

3.03

Design of web-based NRMdf resource toolkit

3.01

1.3.2. Comp 3.B 1.3.2. Comp 3.B.2 & 1

1.01

Learning lessons from decentralized NRM experience (to 1.03)

Theme 1.1.2.i

1.1.3 Theme 1.2.1.vi

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Working Title of Primary Written Outputs 1/ and other papers as their inputs (to … )

Supplementary Papers

TA Reference – Approach & Method

1.05

Harmonizing national development policies for spatial planning, exploitation licensing, budgetary processes, and development planning (to 1.04)

1.3.2.Comp 2.C.vi

1.06

Understand the failure of PP69 to ensure participative spatial planning (to 1.03)

Theme 1.2.1.i 1.3.2.Comp 1.A.vii

1.07

Overcoming constraints to improve spatial planning (to 1.04)

1.3.2.Comp 1.A

1.08

Defining and classifying natural resource types and zones, distinguishing between administrative and biophysical classes (to 1.04)

1.3.2.Comp 1.A.vii

1.09

Efficient, rational and environmentallysound and enforceable processes for land conversion processes (to 1.04)

1.3.2.Comp 1.A.vii

2.01

Achieving enforcement of spatial plans (to 1.04)

1.3.2.Comp 1.A.vi

2.02

Rapid participative assessment of strategic NRM issues for each district site (to 1.03)

1.3.C

2.03

Framework for achieving top-down / bottomup linkages for spatial planning (to 1.04)

Theme 1.2.1.i 1.3.2.Comp 1.A.vii 1.3.2.Comp 2.A 1.3.2.Comp 2.C 1.3.2.Comp 2.C.vii

2.04

Framework for Integrating Carrying Capacity, Resource Valuation and SEA in Spatial Planning (to 1.04)

1.3.2. Comp 1.A.iii 1.3.2. Comp 2.A 1.3.2.Comp 2.C 1.3.2.Comp 2.C.vii

2.05

Monitoring and evaluation of the spatial planning process (to 1.04)

1.3.2. Comp 1.A.iii 1.3.2. Comp 2.A 1.3.2.Comp 2.C 1.3.2.Comp 2.C.vii

2.06

(SEA for district development planning, informed by NRA (to 2.12)

1.3.C 1.3.2. Comp 3.B.2 & 1

2.07

SEA designed for guiding spatial planning and NRM licensing processes (to 2.12)

1.3.C 1.3.2. Comp 3.B.2 & 1

2.10

Coordination of transparent and accountable NRM licensing processes (to 2.09)

Theme 1.2.1.i Theme 1.2.1.iii Theme 1.2.1.iv 1.3.A.iv 1.3.A.vii 1.3.B; 1.3.C 1.3.2.C 1.3.2.Comp 2.C.vii

2.11

Contribution of NRM to regional domestic product (to 2.12)

1.3.C 1.3.2. Comp 3.B.2 & 1

2.13

Adapting SEA and EPI to take into account NRA parameters (to 2.08)

Theme 1.2.1.i 1.3.A.ii 1.3.C 1.3.2.Comp 2.C.vii 1.3.2. Comp 3.A

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Working Title of Primary Written Outputs 1/ and other papers as their inputs (to … )

Supplementary Papers

TA Reference – Approach & Method

2.15

Mechanisms for identifying, prioritizing and handling NRM conflict (to 2.14)

Theme 1.2.1.xi 1.3.A 1.3.C

3.01

Learning from experiences of past and ongoing websites for NRM (to 3.01, 3.02)

1.3.2. Comp 3.A

Notes: 1/ Item numbers refer to those in Appendices 6 & 7 of Inception Report 2/ Inter-kabupaten issues, e.g., Kutais – Theme1.1.2.ii 3/ Kabupaten section process before Steering Committee formed and active – Theme 1.1.2.v.

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Appendix 7: Technical Papers List of NRMdf Technical Papers on Decentralized Natural Resource Management produced by the TA. Bold indicates English language papers. File Name [Project Component 1, 2 or 3] /1/

Title and Number (#)

Judul

Strategic Issues Isu Strategis si_02-IP_PSDA dan Desentralisasi_#1.doc [C 1]

#1 Integrating NRM and decentralization policies

Integrasi Kebijakan Pengelolaan Sumber Daya Alam dan Kebijakan Desentralisasi

si_02-IP_Tata Ruang_#2.doc [C 1]

#2 Spatial planning constraints

Permasalahan Penataan Ruang

si_03-IM_Tata Ruang_#3.doc [C 1]

#3 Spatial planning for decentralized NRM

Penataan Ruang dalam Pengelolaan Sumber Daya Alam Kerangka Otonomi Daerah

si_06-YS_KLS dan PembangunanKab_#4.doc [C 1]

#4 SEA for district development planning

Kajian Lingkungan Strategik Untuk Perencanaan Pembangunan Kabupaten

si_07-AD_PSDA dan TugasFungsi Pemerintah_#5.doc [C 2]

#5 Authority, responsibility, duties and relationships among government agencies with mandates connected to NRM in the regions

Wewenang dan Tanggung Jawab, Tugas dan Fungsi Instansi Pemerintah serta Hubungan antar Kelembagaan dalam Pengelolaan Sumberdaya Alam di Daerah

si_09-MM_Pengelolaan Konflik_#8.doc [C 2]

#8 Managing conflict for achievable sustainable decentralized NRM

Manajemen Konflik Untuk Pengelolaan Sumber Daya Alam Berkelanjutan Dalam Kerangka Desentralisasi

si_09-MM_Konflik dan TugasFungsi Pemerintah_#9.doc [C 2]

#9 Basic duties and functions of government agencies oriented towards collaboration and conflict resolution

Tugas Pokok dan Fungsi Dinas/Instansi Berorientasi Kolaborasi dan Resolusi Konflik

si_10-HN_Tantangan Pembangunan Web Site_#10.doc [C 3]

#10 Learning from experiences of past and ongoing websites for NRM

Belajar dari Pengelaman Dalam Pembangunan Web-Site

si_11-LH_Dampak Komunikasi CSR_#11.doc [C 3]

#11 Impact of corporate social responsibility (CSR) communications for NRM

Dampak Komunikasi CSR dalam PSDA

si_12-JD_Environmental Performance Index_#12.doc [C 3]

#12 Environmental Performance Index

Indeks Kualitas Lingkungan Hidup.

Analyses and Recommendations Analisis dan Rekomendasi a&r_02-IP_Dasar Perubahan Kebijakan Tata Ruang_#1.doc [C 1]

#1 Reforms to effectively integrate NRM and environmental policies and regulations into planning of the spatial domain

Dasar-Dasar Pemikiran Reformasi Kebijakan Tentang Penataan Ruang

a&r_02-IP_Peranserta Masyarakat NRMdf_#2.doc [C 1]

#2 Understand the failure of PP69 to ensure participative spatial planning

Peranserta Masyarakat Dalam Pengelolaan Lingkungan Hidup, Sumber Daya Alam dan Penataan Ruang

a&r_03-IM_Kendala Memperbaiki Perencanaan Ruang_#3.doc [C 1]

#3 Overcoming constraints to improve spatial planning

Cara Mengatasi Kendala untuk MemperbaikiPerencanaan Ruang

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File Name [Project Component 1, 2 or 3] /1/

Title and Number (#)

Judul

a&r_04-KG_Lintas Wilayah_#4.doc [C 1]

#4 NRM across Regional Boundaries

Pengelolaan Sumber Daya Alam Lintas Wilayah

a&r_04-KG_Paper_#5.doc [C 1]

#5 Efficient, rational and environmentally-sound and enforceable processes for land conversion processes

Proses yang Efisien, Rasional dan Berwawasan Lingkungan yang Dapat Diterapkan Dalam Proses Konversi Lahan

a&r _06-YS_Kajian KLS-#6.doc [C 1]

#6 SEA for district development planning

Kajian Lingkungan Strategik (KLS) Untuk Perencanaan Pembangunan Kabupaten

a&r_07-AD Kelembagaan_#7.doc [C 1]

# 7 Authority and responsibility as well as government duties and functions for NRM

Wewenang dan Tanggung Jawab, serta Tugas dan Fungsi Instansi Pemerintah dalam Pengelolaan Sumberdaya Alam di Daerah

a&r_08-MS_Pajak Lingkungan_#8.doc [C 1]

#8 Comments on the draft regional tax law for local taxes related to the environment

Komentar RUU Pajak Daerah dan Retribusi Daerah Berkaitan dengan Lingkungan

a&r_08-MS_Kajian Issue Conflict Forest vs Tambang_#9.doc [C 1]

#9 Resolving the forest-mining issue through resource valuation

Pemecahan Masalah Konflik Hutan-Tambang Melalui Valuasi Sumber Daya Alam

a&r_08-MS_Kajian Kontribusi Valuasi pada GRDP_#10.doc [C 1]

#10 Contribution of economic valuation for NRA and regional GDP

Kontribusi Valuasi Ekonomi dan Pengelolaan Sumberdaya Alam pada PDRB

a&r_08-MS_Neraca Sumber Daya Hutan_#11.doc [C 1]

#11 Forest resource accounting : a new paradigm for forestry resource management

Forest Resource Accounting: Neraca Sumber Daya AlamHutan: Suatu Paradigma Dalam Pengelolaan Hutan

a&r_09MM_Kajian2_Dec06_#12.doc [C 1]

#12 Policy and institutional mechanisms to resolve NRM conflict

Kebijakan dan Mekanisme Institusional Untuk Penanganan Konflik Pengelolaan Sumber Daya Alam Dalam Kerangka Desentralisasi

a&r_09MM_Kajian1_Dec06_#13.doc [C 1]

#13 Mechanisms for identifying, prioritizing and handling NRM conflict

Mekanisme Identifikasi, Prioritasi dan Penanganan Konflik Pengelolaan Sumber Daya Alam Dalam Kerangka Desentralisasi

a&r_12-JD_Environmental Performance Index_v2_28 January_#14.doc [C 3]

#14 Framework for monitoring and reporting changing environmental circumstances in a decentralized system of governance in Indonesia

Kerangka untuk Pemantauan dan Pelaporan Perubahan Kondisi Lingkungan dalam Sistem Desentralisasi Pemerintahan di Indonesia

a&r_13-LB_Community Forestry_#15.doc [C 1]

#15 Spatial forestry planning and management with special reference to community participation Part A Main features of current policies and institutional initiatives in the forest sector

Penataan Ruang Kehutanan dengan Fokus pada Peran Serta Masyarakat

a&r_13-LB_Community Forestry_#16.doc [C 1]

#16 Community involvement in NRM; justification, constraints, opportunities and benefits

Peran Serta Masyarakat dalam Pengelolaan Sumber Daya Alam: Justifikasi, Kendala, Kesempatan dan Manfaatnya

a&r_13-LB_ Community Forestry_#17.doc [C 1]

#17 Spatial forestry planning and management with special reference to community participation Part C Review of Stakeholders

Peran Serta Masyarakat dalam Pengelolaan Sumber Daya Alam: Pemanfaatan Pemangku Kepentingan

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File Name [Project Component 1, 2 or 3] /1/

Title and Number (#)

Judul

a&r_01CB_SharedLearning&CBnrm_v2 _2pages_#18.doc [C 1]

#18 lessons shared therefore learned about the success and failure of the decentralized NRM

Pembagian Pelajaran dari Pengelaman dari keberhasilan dan kegagalan Desentralisasi PSDA

Handbooks Buku Pegangan bp_11-LH_Kesadaran Perencanaan_#1.doc [C 2]

#1 Planning public awareness campaign for NRM

Merencanakan Kampanye Kesadaran

bp_07-AD_Koordinasi_#2.doc [C 2]

#2 Functional coordination for guaranteeing NRM sustainability

Koordinasi Fungsional Menjamin Pengelolaan Sumberdaya Alam Berkelanjutan

bp_07 AD_Penafsiran_#3.doc [C 2]

#3 Systematic legal interpretation on the environment and sustainability

Penafsiran Hukum Secara Sistematik yang Berwawasan Lingkungan dan Berkelanjutan

bp_06-YS_Buku Pegangan_#4 .doc [C 2]

#4 SEA for district development planning

Kajian Lingkungan Strategik (KLS) untuk Perencanaan Pembangunan Kabupaten

bp-03-IMP_Land Capability & Suitability in NRMdf A5_#5.doc [C 2]

#5 Carrying capacity and sustainability land analysis as natural resource for spatial planning

Analisis Kemampuan dan Kesesuaian Lahan dalam Kegiatan Pengelolaan Sumber Daya Alam Sebagai Masukan untuk Penataan Ruang

bp_08-MS_VESDAL_#6.doc [C 2]

# 6 NRA and economic valuation

Neraca Sumberdaya Alam dan Valuasi Ekonomi

bp_08-MS_PDRB Hijau_#7.doc [C 2]

#7 Green GDP

Produk Domestik Regional Bruto Hijau

bp_15-SH_Panduan Pelembagaan Badan Mediasi SDA di Daera1_#8.doc [C 2]

#8 Mediation institution to resolve natural resource conflict

Pelembagaan Balai Mediasi Penyelesaian Konflik Sumber Daya Alam di Daerah

bp_15-SH_panduan konflik sda2_#9.doc [C 2]

#9 Acknowledging local initiatives for conflict resolution in natural resource programs and policies

Pengakuan Inisiatif Penyelesaian Konflik Lokal ke dalam Kebijakan dan Program Pengelolaan Sumber Daya Alam

bp_10HN_admin_guide_cms_nrmdf_# 10.doc [C 2]

#10 Website administration manual

Manual Administrasi Website

bp_02-IP_sanksi Administrasi_#11.doc [C 2]

#11 Achieving enforcement of spatial plans

Bahan-bahan Penyusunan Pedoman Penegakan Hukum Administrasi

Posters Poster po1_

#1 NRMdf TA-4687-INO

NRMdf TA-4687-INO

po2_kesadaran.jpeg

#2 Planning awareness for NRM

Kesadaran Perencanaan PSDA Mendukung Pembangunan Berkelanjutan

po3_poster koordinasi fungsional revisi.jpeg

#3 Functional coordination to ensure NRM sustainability

Koordinasi Fungsional Menjamin PSDA Berkelanjutan

po4 _alur konflik.jpeg

#4 Conflict resolution towards sustainable NRM

Resolusi Konflik Menuju PSDA Lestari

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File Name [Project Component 1, 2 or 3] /1/

Judul

Title and Number (#)

po5_kls.jpeg

#5 Strategic Environmental Assessment

Kajian Lingkungan Strategik (KLS)

po6_poster_nrmdf_5_1a

#6 Spatial planning coordination

Tantangan Penataan Ruang

Notes: Papers relate to those listed in Outputs Matrix of Appendix 6 of the Inception Report. Indonesian title (file name) English Title. * = English and Indonesian versions available. a&r= Analytical Paper. bp = Handbook (Buku Pegangan). po = Poster si = Strategic Issues Paper 03-IM = Consultant Identifier (01- through 14-) /1/ C numbers refer to Project Component from Outputs Matrix, Appendix 6 of Inception Report. /2/ File names are the same as those in a CD set of all papers included Final Report.

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Appendix 8: Website The following Appendix provides the front page introduction of NRMdf TA-4686-INO Website An Information Platform for Decentralized Natural Resource Management in Indonesia

Landasan Informasi untuk Pengelolaan Sumber Daya Alam di Indonesian dalam kerangka otonomi daerah

This website is intended to gather information in support of good decentralized governance of natural resource management (NRM) in Indonesia. It seeks to inform those with an interest in improving local governance of NRM with a particular emphasis on spatial planning including resource exploitation licensing through incremental capacity building to meet three fundamental challenges:

Website ini bertujuan mengumpul informasi yang mendukung pemerintahan yang baik dari pengelolaan sumber daya alam di Indonesia dalam kernagka otonomi daerah. Website ini berupaya menginformasikan siapapun yang berminat meningkatkan pemerintahan di tingkat daerah terutama tentang aspek penataan ruang termasuk perizinan eksploitasi melewati peningkatan kapasitas bertahap agar supaya memenuhi tiga tantangan dasar, yaitu,

1.

Achieving better vertical and horizontal Interinstitutional coordination among government agencies from the central government, provincial, district to village administrations through appropriate institutional development, thereby more effectively managing disputes and resolving conflicts over NRM.

1.

Meningkatkan Koordinasi antar Lembaga Pemerintah baik vertikal maupun horizontal, dari tingkat pusat, propinsis, kabupaten sampai desa, melalui perkembangan kelembagaan yang tepat, agar supaya lebih efektif mengatasi selisi pendapat dan menyelesaikan konflik terhadap PSDA.

2. 2.

Bringing about a better understanding of the actual status and nature of NRM through landscape-wide strategic environmental assessment (SEA) that is iterative, adaptive and participative, and can be applied to subsequent evaluation.

Meningkatkan pengertian tentang status dan keadaan PSDA melalui Kajian Lingkungan Strategis (KLS) yang adaptif dan partisipatif, dan yang juga dapat diterapkan untuk aplikasi evaluasi.

3.

Memotivasikan perobahan pola pikir dan kegiatan - “mengingkatkan pengetahuan tidak cukup” -melalui insentif dan disinsentif sebagai contoh, indeks kwalitas lingkungan (IKL) untuk Kabupaten dan Propinsi yang dikaitkan dengan alokasi dana untuk daerah.

3.

Motivating changes in mindsets and action – “increased knowledge is not enough” through appropriate incentives and disincentives, e.g., an environmental performance index (EPI) for districts and provinces with budget disbursement implications. An Invitation to Contribute

Undangan Kontribusi

It is hoped that institutions involved in decentralized NRM in Indonesia will not only obtain and but also share information in the Project section about their past, ongoing and planned initiatives, including forthcoming events. The site offers other information on databases on NRM and environmental policies, NRM terminology, a capacity building resource toolkit for local government and information clearing houses (so far on, SEA and EPI) as well as welcoming opinions on meeting the challenges of decentralized NRM.

Diharapkan bahwa kelembagaan yang terlibat dalam PSDA di Indonesia akan baik memperoleh informasi dari website ini maupun mebagi informasi tentang inisiatif mereka yang lalu, berjalan ataupun direncanakan. Tersedia di website ini, informasi tentang database kebijakan PSDA dan lingukungan hidup yang terkait, terminlogi PSDA, perangkat informasi untuk meningkatkan kapasitas pemerintah daerah untuk PSDA, “warung informasi” (sampai sekarang tentang KLS dan IKL) termasuk mengundang opini tentang tantangan PSDA pada era otonomi daerah.

Contributions to the website can be made in the site’s discussion “rooms” or directly to the website team based in BANGDA (see also website contact information).

Kontribusi pada website dapat dibuat di ruangan diskusi atau secara langsung pada tim website di BANGDA (lihat bagian hubungan).

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NRMdf Project: Towards Good Decentralized Governance of NRM

Proyek PSDA-kod: Menuju Pemerintahan yang Baik dari dalam Kerangka Otonomi Daerah PSDA

The present site has been established by the Project for Natural Resource Management in a Decentralized Framework (NRMdf), a collaboration between three Indonesian government agencies with the support of a grant from the Asian Development Bank TA-4687-INO (see Project section). The present project on Natural Resource Management in a Decentralization Framework (TA 4687-INO) carries forward the conceptual and general thematic approach of a previous TA project in 2003 (TA 3523-INO) to a more hands-on level with greater emphasis on engagement with local government and post-project continuity.

Website ini dikembangkan oleh Proyek Penglelolaan Sumber Daya Alam dalam Kerangka Otonomi Daerah (PSDA-kod), sebagai kolaborasi antara tiga kelembagaan Pemerintah Indonesia dengan dukung dari suatu hibah dari Asian Development Bank TA-4687-INO. Proyek PSDA-kod menggerakkan pendekatan yang bertalian dengan konsepsi tematik umum seperti pendekatan yang digunakan Proyek TA sebelumnya dalam tahun 2003 (TA 3523-INO), namun ke arah yang lebih praktis dengan penekanan yang lebih besar pada keikutsertaan pemerintah lokal dan kontinuitas pascaproyek.

NRMdf’s executing agency, the Ministry of Home Affair’s Directorate General for Regional Development (BANGDA) in collaboration with the National Planning Agency (BAPPENAS) and the Agency for Assessment and Application of Technology (BPPT), aims to introduce new approaches for building NRM capacity at the local government level that are well-focused, realistic and timely.

Direktoral Jendral Bina Pembangunan Daerah (BANGDA) sebagai badan eksekutif dari proyek, bersama Badan Perencanaan Nasional (BAPPENAS) dan Badan Penelitian dan Penerapan Teknologi (BPPT), memperkenalkan pendekatan baru untuk meingkatkan kapasitas pemerintah daerah untuk PSDA, yang terarah, realistik dan punya sifat tepat waktu.

BANGDA’s ten principles of good governance were taken as a starting point, and applied to spatial planning and exploitation licensing under decentralized NRM, indicating relationships to major NRM problems. The original ten principles were clustered into five guiding types:

Sepuluh prinsip BANGDA mengenai pemerintahan yang baik, terestrukturisasi dan diterapkan pada perencanaan tata ruang dan pemberian lisensi eksploitasi di bawah pengelolaan SDA terdesentralisasi, mengindikasikan hubungan ke masalah-masalah utama pengelolaan SDA. Ke 10 prinsip yang asli dikelompokkan kedalam lima tipe:

1.

Strategic Vision

1.

Visi Strategik

2.

Transparency, Accountability, Participation and Responsiveness

2.

Transparansi, Akuntablitas, Partisipasi, Sikap Tanggap

3.

Efficiency, Effectiveness and Professionalism

3.

Efisiensi, Kemujaraban dan Profesionalisme

4.

Rule of Law and Other Control Mechanisms

4.

Ketaatan Berdasarkan Hukum dan Mekanisme Pengendalian Lain

5.

Poverty Reduction

5.

Pengentasan Kemiskinan

The project’s approach integrates technical information- gathering with information-sharing in ways which enhance the cornerstone of social capital mutual trust, in turn encouraging more effective coordination among local and national levels of government administration. Towards this end, various distinct but inter-related approaches were introduced to five district partner sites, namely, Cianjur (West Java Province), Lombok Barat (West Nusa Tenggara Province) and in East Kalimantan Province the three neighboring districts of Kutai Timur, Kutai Barat and Kutai Kartanegara. Feedback from partners resulted in the development of a resource toolkit consisting of approaches for planning awareness, inter-institutional coordination, conflict resolution, SEA, resource valuation for spatial planning alternatives, carrying capacity implications and EPI.

Pendekatan proyek mengintegrasikan pengumpulan data dengan pembagian informasi dengan secara yang meningkatkan kapital sosial – saling percaya, berikut merangsang koordinasi lebih efektip antara tingkat pemerintah daerah dan pusat. Menuju tujuan tersebut, berbagai pendekatan tersendiri tapi terkait diperkenalkan kepada lima Kabupaten mitra, yaitu, Cianjur (Propinsi Jawa Barat), Lombok Barat (Propinsi Nusa Tenggara) dan di Propinsi Kalimantan Timur, Kutai Timur, Kutai Barat dan Kutai Kartanegara. Masukkan umpan balik dari mitra dimanfaatkan dalam perkembangan suatu perangkat pendekatan (“toolkit”) terdiri dari kesedaran perencanaan, koordinasi antar kelembagaan, kajian lingkungan strategis (KLS), valuasi ekonomi sumber daya alam dan kingkungan (VESDAL), implikasi daya dukung lahan dan indeks kwalitas lingkungan.

ADB TA 4687-INO: Natural Resource Management in a Decentralized Framework Final Report

Recognizing the reality of local conditions and the need to sustain change beyond the NRMdf project lifetime, each introduced approach is qualified by,

107

Menyadari kenyataan keadaan daerah dan keperluan menghasilkan perobahan yang tetap berkembang sesudah proyek selasai, setiap pendekatan PSDA-kod yang dikenalkan didasarkan atas dua semboyan,

“THINK BIG, start small” “BERPIKIR LUAS, bertindak awal sederhana” so that pragmatic and small but compelling successes can create community interest in more change and provide evidence to convince planners to provide more resources in support of sustainable decentralized NRM, and “Act incrementally according to existing capacity”. In short, the road to good governance of decentralized NRM is through better governance.

sehingga keberhasilan-keberhasilan yang pragmatis dan sederhana namun patut dianut dapat menciptakan minat masyarakat untuk mendapatkan lebih banyak perobahan dan menjadi bukti bagi para perencana untuk menyediakan lebih banyak dana, sarana dan prasasarana untuk mendukung PSDA otonomi daerah yang berkelanjutan “Bergerak tahap demi tahap sesuai dengan kapasitas yang ada”. Yakni, jalan menuju pemerintahan PSDA yg paling baik melalui tahap lebih baik dulu.

109

ADB TA 4687-INO: Natural Resource Management in a Decentralized Framework Final Report

Appendix 9: Consultant Outputs Planned outputs from individual consultants Working Title /1/

NRMdf Component and Consultant linkages /3/ CoProject writers Components /2a/ /2b/

Type of Written OUTPUT Issues, Analysis+R, Handbook /3/

First Draft by /4/

National

31 Aug 15 Nov

+

Issues Analysis+R Support

07 Aug 30 Nov 30 Nov

+

Issues Analysis+R

07 Aug 30 Nov

+ +

C1

Analysis+R

31 Aug

+

C1

Analysis+R

30 Nov

+

01 Chris Bennett - Decentralized Natural Resource Management 01 CB 1. Learning lessons 02 IP s/d C1 Analysis+R from decentralized NRM 11 LH C2 Handbook experience 01 CB 2. NRM framework for the district level

02 IP s/d 11 LH

C1

02 Indra Perwira - Institutional Development 02 IP 1. Review of impacts 01 CB C1 of policies, laws and regulations on sustainable NRM 02 IP 2. Reforms to effectively integrate NRM policies and regulations into spatial planning

03 IM

02 IP 3. Harmonizing national development policies for spatial planning, exploitation licensing, budgetary processes, and development planning

Beneficiary Partner /5/

02 IP 4. Achieving enforcement of spatial plans

03 IM 06 YS

C2 C2

Analysis+R Handbook

31 Aug 15 Sep

+

02 IP 5. Understand the failure of PP69 to ensure participative spatial planning

03 IM 09 MM

C1

Analysis+R

15 Aug

+

02 IP 6. Assessment of strategic NRM issues for each district site

01 CB 06 YS

C2

Analysis+R Analysis+R Analysis+R Analysis+R

31 Aug 31 Aug 22 Sep 22 Sep

Issues Analysis+R Handbook

07 Aug 31 Aug 07 Aug

+

31 Aug

+

03 Iskandar Muda Perwaamija - Spatial Planning 03 IM 1. Overcoming 02 IP C1 constraints to improved 04 DS C2 spatial planning 09 MM 03 IM 2. Framework for achieving top-down / bottom-up linkages for spatial planning

02 IP 07 AD

C1 C2

Analysis+R

03 IM 3. Framework for integrating carrying capacity, resource valuation and SEA in spatial planning

06 YS 08 MS

C1 C2

Analysis+R

31 Aug

Province

District

+

+

+

+

+ + + +

+ + + +

+ +

+ +

+

+

+

+

+

Village

110

Working Title /1/

03 IM 3. Monitoring and evaluation of the spatial planning process

ADB TA 4687-INO: Natural Resource Management in a Decentralized Framework Final Report NRMdf Component and Consultant linkages /3/ CoProject writers Components /2a/ /2b/ 04 KG C1, C2 07 AD

Type of Written OUTPUT Issues, Analysis+R, Handbook /3/ Handbook

04 Kunkun Jaya Guryana - Natural Resource Management 01 CB C1 Issues 04KG 1. Defining and Analysis+R classifying natural resource 02 IP 03 IM types and zones, distinguishing between administrative and biophysical classes

Beneficiary Partner /5/

First Draft by /4/

National

Province

District

09 Sep

+

+

+

07 Sept 31 Sept

+ +

+

+

+

+

+

+

+

+ +

+ +

+

+

+

+

+

+

+

+

+

+

04 KG 2. Efficient, rational and environmentally-sound and enforceable processes for land conversion processes

06 YS

C1

Analysis+R

09 Oct

O4 KG 3. Gap analysis of policies and regulations for NRM

02 IP 07 AD

C2

Analysis+R

15 Oct

Issues Analysis+R Handbook

31 Aug 31 Sep 15 Nov

+ +

06 Yaya Suyana - Environmental Management 06 YS 1. SEA for district 01 CB C2 development planning, 08 MS C3 informed by NRA 06 YS 2. SEA designed for guiding spatial planning and NRM licensing processes

01 CB 03 IM 08 MS

C2 C3

Analysis+R Handbook

31 Sep 15 Nov

+

06 SA 3. Application of EPI for performance monitoring of district development

01 CB 03 IM 08 MS

C2, C3

Issues Anaysis+R Handbook

07 Oct 15 Nov 15 Nov

+

07 Aug 31 Aug 15 Sep

+ +

07 Amiruddin A. Dajaan Imami - Public Administration C1, C2 Issues 07 AD 1. Rights, roles, Analysis+R responsibilities and Handbook relations among NRM government agencies from national to village levels 07 AD 2. Organizational structure of environmental agencies, in particular Dinas vs Badan 07 AD 3. Coordination of transparent NRM licensing processes

01 CB

07 AD 4. Resolving conflicting authority and regulations for NRM

02 IP 04 KG

C1

Position

31 Aug

+

C1 C2

Analysis+R Handbook

15 Sep 15 Sep

+

C1 C2

Issues Analysis+R Handbook

15 Sep 15 Oct 15 Oct

+ +

08 Matius Suparmoko - Environmental Economics & Accounting 08 MS 1. Contribution of 04 DS C2 Handbook NRM to regional domestic 11 LH product

15 Aug

Village

+

111

ADB TA 4687-INO: Natural Resource Management in a Decentralized Framework Final Report Working Title /1/

NRMdf Component and Consultant linkages /3/ CoProject writers Components /2a/ /2b/ 03 IM C1 04 KG C2 11 LH

Type of Written OUTPUT

Beneficiary Partner /5/

Issues, Analysis+R, Handbook /3/ Issues Analysis+R Handbook

First Draft by /4/

National

07 Aug 15 Sep 15 Nov

+

Analysis+R Handbook

15 Nov 15 Nov

+

Position

15 Nov

+

09 Marcelinus Molo - Conflict Resolution and Community Development 09 MM 1. Policy and 02 IP C1 Issues 07 Aug institutional mechanisms to 04 KG C2 Analysis+R 31 Aug resolve NRM conflict

+ +

08 MS 2. Application of NRA and related SEA to spatial planning 08 MS 3. Adapting SEA and EPI to take into account NRA parameters

06 YS

08 MS 4. Resolving the forest–mining issue through resource valuation

02 IP 03 IM 04 KG

09 MM 2. Mechanisms for identifying, prioritizing and handling NRM conflict

02 IP IM 03 KG 04

C2

C1

C1 C2

Analysis+R Handbook

15 Sep 15 Sep

+

Issues

07 Aug

+

C3

Website Handbook

15 Nov

+

C2 C3

Issues Handbook

07 Aug 31 Aug

+

+

10 Heri Noviandi - Website Development 10 HN 1. Learning from C3 experiences of past and ongoing websites for NRM 10 HN 2. Web-based Information system on decentralized NRM, including easy access and download features

All team members

11 Lien Herlina - Public Awareness 11 LH 1. NRM planning All team awareness campaign to members inform decision-makers 11 LH 2. Design of NRMdf resource toolkit

All team members

C2, C3

Handbooks

30 Nov

11 LH 3. Stakeholder analysis for NRM in districts

All team members

C2

Analysis+R Analysis+R

31 Aug 22 Sep

11 LH 4. Protocols for and evaluation of NRMdf impact

All team members

C3

Analysis+R Handbook

07 Aug 14 Aug

+

Province

District

+ +

+ +

+

+

+ +

+ +

+

+

+

+

+

+

+

+

+

+

Village

+

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Appendix 10: Review of Decrees 1. The following appendix presents NRMdf comments and input to Draft Ministry of Home Affairs Decree on Natural Resource Management, Spatial Planning and Devolution of Functions. A.

Draft Ministerial Decree on NRM 1.

2.

3.

General Considerations (a)

Among several important definitions the key concept of “Pengendalian” or control is not defined.

(b)

There is no reference in the introductory section to exploitation licensing, a fundamental feature of efforts to achieve sustainable NRM.

Purpose and Objectives (a)

Article 3(1) makes no mention of achieving shared perceptions between the regions and the Center, only between Districts and Provinces. Neither is the critical need mentioned for effective coordination between all relevant institutions, including those at the Center.

(b)

Suggestion to add an article (viz 3(3)) about the principle of good governance, notably BANGDA’s ten principles which lie at the heart of the rationale for a role for MoHA in NRM. Alternatively, this could be placed in general considerations.

Scope (a)

4.

5.

Again no mention of “Utilization” a core determinant of NRM outcomes.

Local Government Obligations (a)

Article 7(b): Integration between institutions should explicitly include those which are branch offices of provincial or national departments (and often regard themselves as not accountable to district government), e.g., Water Resource Management Agency under provincial control, Agency for Forest Area Establishment under the MoFr, regional offices of environment under Ministry of Environment, National Land Agency.

(b)

Article 8(1): Not only should LG seek local people opinion but they should also undertake stakeholder analysis to better understand people’s interests in NRM outcomes.

(c)

Article 8(2): As well as being sensitive to communities under customary institutions, it is also necessary to acknowledge other kinds of local community that also have the right to be consulted.

(d)

Article 8(3): Need to add the NRM concept of “Prior Informed Consent”.

(e)

Pasal 8(3): Need to elucidate what kind of appropriate institutions can facilitate and convey the results of community dialogue.

Planning (a)

Article 13(2): Create good opportunities for good governance, part of BANGDA’s ten principles; and Article 15(1): The importance of “Prior Informed Consent”.

(b)

Similarly for control and conflict resolution.

114

ADB TA 4687-INO: Natural Resource Management in a Decentralized Framework Final Report

6.

Utilization (a)

7.

8.

B.

No section dedicated to this core determinant of NRM outcomes.

Control (a)

Article 18: Exploitation licensing might be more appropriate in the section on “Utilization”.

(b)

Article 18(4)(b): Public consultation should include prior informed consent. Necessary to provide indication of mechanisms to achieve this.

(c)

No mention of conflict resolution, a major requirement in resource-rich areas and where resource scarcity, e.g., water supply, is becoming serious.

Observation and Evaluation (a)

Article 19: Better to mention emphasis on evaluating actual impacts (outcomebased) rather than on input-based approaches that verify administrative procedures only.

(b)

Article 20(1): Principles of transparency and community participation should be highlighted. Another opportunity to emphasize BANGDA’s ten good governance principles.

Draft Ministerial Decree on Spatial Planning

2. Ch I, Article 1(j). On basic considerations, add core good governance principles to develop spatial plans that are sufficiently respected locally, namely: appropriate authority, transparency, participation, responsiveness and timeliness as well as accountability. 3. Ch I, Article 1(aa). On people’s participation in spatial planning, it is important to explicitly recognize its value not just its social obligation, particularly traditional knowledge that can add to awareness of actual land conditions and management options. 4. Ch II, Article 2. On the aim of spatial planning which is integrated and synergistic, suggest add that it conforms to principles of good governance. 5. Ch II, Article 14(2)(a). On data and information collection, specify collection from village to overall areas. 6. Ch II, Article 19(c). On what constitutes reporting for spatial planning, the design of the introductory plan should be shared with local communities, informing them how they can deliver their responses to LG, and know the reaction of LG to their input. 7. Ch II, Article 32(3). On giving NRM exploitation licenses, local communities should be informed of candidate licenseholders, the approved location and who gave the license as far as this impacts their village areas directly or indirectly. 8. Ch II, Article 39(1). On evaluation of the use of provincial and district spatial plans, important to emphasize evaluation of actual landscape-wide environmental impacts lest evaluation focus only on procedural and administrative matters. 9. Ch IV, Article 43. On coordination between Center, Provinces and Districts/Townships, important to designate an institution and process for improving coordination (resolving conflict) where bilateral or even Bupati/Governor efforts fail to achieve this. Presumably, this falls within MoHA’s mandate of regional development facilitation. 10. Ch IV, Article 51. On a planning dialogue for provincial and regional development for synchronizing planning for activities for spatial plan utilization, funding and sectoral activities, a planning dialogue as well as its funding. Need to explicitly state that (a) the dialogue institution or

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115

musyawarah should be able to make final decisions, and (b) each relevant sectoral and regional agency to be represented by individuals who are (i) aware of previous related developments that involve their institutions, and (ii) empowered to make decisions then and there on behalf of their agencies (avoiding partial agreements or interminable delays as individual institutional representatives excuse themselves as having to return to HQ to get any decision or claim to not know about previous progress because they are replacements for the previous representative). 11. Ch IV, Article 52. Reference is frequently made in some of the Draft Decree’s sections to the spatial planning roles of Central and Regional Government meaning Districts and Provinces. Villages, however, are not mentioned in such sections and yet villages are part of the elected administrative hierarchy in decentralization (unlike sub-districts that are directly under Districts). Bottom-up villagedriven accountability is an important complement to top-down oversight. Furthermore, traditional knowledge about NRM tends to reside in villages. A sense of shared ownership in the spatial planning process at the village level should enhance respect for spatial plans and co-opt some local-level support to oversee this. 12. Ch IV, Article 52(4). On reporting about control of spatial plans, explicitly state the need to include if not emphasize measurements of actual impacts of each sector lest the process focus overly on verification of administrative procedures, i.e., be input- rather than output-based. C.

Draft Government Regulation on Devolution of Functions

13. During the ongoing revision process for PP25 of 2000, some national agencies would like to draw back more authority to the Center arguing: (i) (ii) (iii) (iv)

Defense of national integrity Obligations to international commitments Acute transboundary externality problems Lack of sufficient capacity in the regions

14. Yet, the national agencies themselves do not have sufficient resources to do the kind of micromanagement this requires and especially to do so in a timely manner. 15. Accepting the need for national oversight however, there is an alternative solution, that safeguards national agency authority in a more effective and efficient manner. This can be achieved by granting national sectoral agencies with oversight authority instead of their present participation in, say, directly approving changes in land functions resulting from spatial planning processes (which involve local and national branches of forestry agencies) or approving exploitation licensing or land titling. 16. Under this so-called Ministerial/Agency Veto with Transparent Justification (VwTJ), the Minister does not have to sign his approval but is given a reasonable timeframe to object publicly in writing (to avoid opaque, discretionary decisions). In the absence of an objection, the regional approval is enacted by default. Given the transparent process and the administrative consequences of an objection, the national agency is likely to focus on the most important problems and not spread itself thin by dealing with each and every case from the regions (e.g., land function changes in over 400 districts). 17. When the national agency objects, it triggers bilateral efforts at resolution. If these fail, the case goes to arbitration locally, employing an arbitration committee and public hearings. Here is an obvious role for non-sectoral MoHA. Continued failure would lead to the final recourse through the law courts.

Cianjur (Jawa Barat)

Lombok Barat (Nusa Tenggara Barat)/1/

Kutai Timur (Kaltim)/2/

1

2

3

Districts organized by province (Province)

MCRMP

MCRMP

0

ADB Project Location River basin data from the ESP (USAID – Menko Kesra)

Data from RUPES, ADB projects, and Ford Foundation

CIFOR, TNC, WWF spatial data GTZ and USAID data

- Tourism-farming conflict - Urban demand for highland vegetable culture causing soil erosion - Population pressure - Private (villa) land use ignoring spatial plan - Land speculation disadvantaging poor farmers - Poor farmer encroachment in protected areas - Watershed degradation causing siltation of water reservoir - Illegal logging (tourist industry market) - Poor farmer encroachment in protection areas - Coral conservation for tourism and livelihoods - Eastern Indonesia issue

- Upstream-downstream issues of the Kutai Barat and Kuta Timur link (including Kutai Kartanegara for this issue) - Forest fire problem - Mangrove conversion - Marine degradation from resource extraction activities - Badan for LH

- Pioneering participative watershed management and reforestation - Active multi-stakeholder forum

- Pioneering participative reforestation (supporting Perda) - Pioneering participative coastal resource management - Pioneering payment by downstream communities for upstream water conservation services Planned BPPT site for NRA work

Availability of Data

Includes Strategic Natural Resource and Environmental Management issue

Reform-minded District, with concrete examples of action

Appendix 11: Project Site Characteristics

ADB TA 4687-INO: Natural Resource Management in a Decentralized Framework Final Report

7 hours from Balikpapan airport

Readily accessible Less than one hour to District capital from Mataram airport

Readily accessible to observers 2 hours by road from Jakarta / Bogor to District capital

Logistics: Ease of access to and within sites

117

Kutai Kartanegara /3/

Solok

5

6

0

1

0

ADB Project Location

Pioneering reforms to improve public service delivery through meritocratic civil service reform

Leading district voice for more LG responsibility for and benefits from NRM

Pioneered a Perda that opposed by MoFr

Reform-minded District, with concrete examples of action

Highland and lowland agriculture and forestry Protected area Reinstatement of traditional administrative and NRM system of the Nagari

-

-

Moderately good

CIFOR, TNC, WWF spatial data GTZ, USAID and from TA 3523

One of the most resource-rich districts in Indonesia, including oil/gas, timber, minerals, plantations Mangrove conversion Delta degradation Marine degradation from resource extraction activities Together with Kutai Barat and Kutai Timur, covering the major river basin of the Mahakam, hence important cross-district issues

-

CIFOR, TNC, WWF spatial data GTZ and USAID data

- Conflict between poor forest gatherers/farmers and private companies (mining, forestry, plantation) LG and between village communities, - Forestry-mining issue - Dinas for LH

Availability of Data

1.5 hours from airport

3 hours from Balikpapan airport

12 hours from Balikpapan airport

Logistics: Ease of access to and within sites

ADB TA 4687-INO: Natural Resource Management in a Decentralized Framework Final Report

Includes Strategic Natural Resource and Environmental Management issue

Notes: /1/ Lombok Barat: Site of BAPPENAS oversight of the Environmental Services Tax (Jasa Lingkungan). /2/ Kutai Timur: Site of BPPT project for NRA development. /3/ Kutai Kartanegara: site of UNDP–BAPPENAS Delta Mahakam Project. Site of ADB TA 3523.

Kutai Barat (Kaltim)

Districts organized by province (Province)

4

118

Phase 2: Kerja di kabupaten Work in district

Tiga Fase Three Phases Phase 1: Sebelum kerja di kabupaten Before work in district

NRMdf Planning Workshop with Local Government (LG) at which: x LG presents its development goals related to natural resource and environmental management and problems encountered in meeting those goals. x NRMdf team presents its portfolio of tools and approaches, outlining what the tool is (what?), its relevance to the District’s NRM (why?), ways in which it might be applied (how?) and suggested specific institutions that might be interested in using it (who?) x and responds to preferences expressed by LG about the appropriateness of the tools for the District

1.

Introduksi Formil dari NRMdf pada Pemda Kabupaten melalui Propinsi Formal introduction of the TA to the district by BANGDA through Provincial Government.

3. 3.

Lokakarya Perencanaan Kegiatan NRMdf (Pertemuan awal dgn Pemda) x Presentasi oleh Kabupaten ttg sasaran dan kendala PSDA x Presentasi oleh NRMdf ttg perangkat alat peningkatan kapasitas (PK), terdiri dari perkenalan alat (apa?), relevansi utk PSDA di kabupaten (mengapa?), usulan bagaimana menerapkannya di tingkat kabupaten (bagaimana?), dengan kelembagaan yg mana (siapa?) x dan menanggapi komentar ttg tepat gunannya utk kabupaten x Identifikasi mitra (orang dan kelembagaan). Konsultan terorganisir dlm sub-tim: 1. Revisi Tata Ruang 2. Koordinasi antar kelembagaan utk proses perizinan eksploitasi SDA serta resolusi konflik terkait dgn SDA. 3. Kesadaran Perencanaan.

Persiapan bahan presentasi / kerja, berdasarkan kajian serta informasi ttg Kabupaten Preparation of presentation / work materials, based upon analysis as well as specific district information

2. 2.

1.

Persiapan data dasar dari Kabupaten, sbc kunjungan website-nya Preparation of background data about the district, e.g., visit district website

1. 1.

Kegiatan Activities

Districts of Cianjur, Lombok Barat, Kutai Barat, Kutai Kartanegara, Kutai Timur1/ Kabupaten Cianjur, Lombok Barat, Kutai Barat, Kutai Kartanegara, Kutai Timur

Appendix 12: Approach for District Engagement

ADB TA 4687-INO: Natural Resource Management in a Decentralized Framework Final Report

Day 1

Hari Pertama

Seminggu sebelum kunjungan One week before field visit

Sebelum kunjungan Before field visit

Sebelum kunjungan Before field visit

Jadwal Schedule

119

120

Tiga Fase Three Phases

Bersama mitra terpilih, ke kantornya sesuai perjanjian, ikut bersama kita kalau mereka mau. x Mengkaji singkat isu2 strategis PSDA di Kabupaten x Membahas bahan PK x Identifikasi mitra tepat utk ikut pelatihan lebih lanjut di lokakarya di tingkat nasional Together with selected LG partners, according to Day 1 agreement, to their offices or in company for field visits, working on: x Brief analysis of major NRM issues for the District x Discussion to improve the capacity building materials x Identify individuals appropriate for further training at a national-level workshop Penyesuaian perangkat alat PK dgn hasil kerja sama tersebut diatas dan pertimbangan kenyataan kelembagaan pemerintahan Appropriate adjustment of tools and approaches to meet LG needs and institutional realities thus being readily understood and applied by them Lokakarya Hasil utk x Pembahasan hasil kerja sama yg menghasilkan bahan PK dan x Keputusan tindak lanjut terdiri dari, o Kegiatan yg dapat langsung dikerjakan di Kabupaten o Kegiatan Kabupaten buat jangka waktu panjang yg memerlukan dana, sarana dan prasarana tambahan x Perumusan Results Workshop x Discuss results of the collaborative work x Next steps at district level, including o Activities that can be started right away, o Activities requiring more training, facilities, funding, etc. x Summary statement of findings

2.

2.

3.

3.

4.

4.

x

Kegiatan Activities NRMdf and LG plan which consultants will work with which functionaries from LG agencies. Consultants loosely organized in three sub-teams: 1. Spatial planning revision 2. Inter-institutional coordination for exploitation licensing and conflict resolution 3. Planning awareness

Day 5

Hari Kelima

Day 4

Hari keempat

Days 2 to 4

Hari Kedua & Ketiga

Jadwal Schedule

ADB TA 4687-INO: Natural Resource Management in a Decentralized Framework Final Report

Lokakerja Nasional National Workshop

Penyampaian bahan2 kajian dan “handbook” yg sudah dimantapkan berdasarkan kunjungan yg berlanjut di daerah lain. Provide updated analyses and “handbooks” improved further following other work such as subsequent visits to other districts Evaluasi x Mengevaluasikan dampak NRMdf x Buat rekomendasi bersama ttg evaluasi pasca-proyek serta kerja sama yg berlanjut dgn BANGDA atau kelembagaan lain. Evaluation x Evaluate NRMdf impacts. x Recommendations for post-project evaluations as well as any follow-up work with BANGDA or other agency.

1. 1.

2.

2.

3.

3.

Kegiatan Activities

Two months after the first visit

Dua bulan sesudah kunjungan pertama

Two months after the first visit

Dua bulan sesudah kunjung pertama

1.5 bulan sesudah kunjungan lapangan 1.5 months after district visits

Jadwal Schedule

121

Notes: 1/ In the case of East Kalimantan, although each district was visited, joint workshops were held, the first in Samarinda, the provincial capital, the last workshop in Tenggarong, Kutai Kartanegara. This allowed consideration of inter-district relations, inevitably important as each controls a part of the Mahakam River basin.

Tiga Fase Three Phases Phase 3: Lanjutan dari Kunjangan Kabupaten Post visit follow-up

ADB TA 4687-INO: Natural Resource Management in a Decentralized Framework Final Report

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123

Appendix 13: Regional Workshops Conclusions D.

West Lombok District, West Nusa Tenggara Province NRMdf Workshop in West Lombok District Friday, 8 September 2006 BAPPEDA, Lombok Barat District Joint Findings

1.

There are several major NRM problems in West Lombok District/Lombok Barat (Lobar) that can be handled through approaches introduced to LG by the NRMdf project between 5 and 8 September 2006, among which are: x x x x x

Scarcity of water availability, in particular springs Quarrying that damages soil and water Increasing damage to coral Forest clearing and illegal logging Conflict over water resources

2.

Approaches introduced by NRMdf are useful to make more complete processes for planning, utilization and control of NRM, especially those related to spatial planning.

3.

The aforementioned approaches consist of: a. “Inter-institutional coordination” showing the importance of shared perceptions of NRM so that the quality of coordination can be raised as part of processes for spatial planning and natural resource exploitation licensing. b. “Strategic Environmental Assessment (SEA)” represents a framework for planning in districts or provinces (river basins, strategic area plans, spatial planning, annual budget planning) and sustainable development which is environmentally-friendly and involves all major stakeholders and therefore has social legitimacy. c.

“Natural Resource Accounting (NRA)” shows carrying capacity trends for regional areas. NRA can be integrated with Gross Domestic Product for Regions (GDPR) to become environmentally-adjusted or Green GDPR. Resource valuation can be used to make decisions about land conversion, e.g., changes in forest status, location of C-type quarries (sand and gravel on land and in rivers) and other kinds of mines.

d. “Integration of upstream-downstream aspects of NRM” including community reforestation where land certainty and local knowledge encourage development of forest farms which provide environmental services based upon community consensus and voluntary contributions. Integrated water resource management includes upstream-downstream aspects of social and economic functions. e. “NRM carrying capacity” (consisting of land capability and land suitability factors) that should be based upon administrative boundaries for [current new or revised] spatial planning. Preferable for carrying capacity approach to use 8 criteria. f.

“Handling and resolving conflict” requires a process of prioritization.

g. “Planning Awareness for NRM” can increase public awareness (people, private sector and government) through integrated programs to minimize ego-sectoralism in NRM which often results in natural resource damage that cannot be effectively controlled.

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4.

ADB TA 4687-INO: Natural Resource Management in a Decentralized Framework Final Report

The LG executive (Pemda) agrees to try some of the approaches according to its capacity. As already conveyed by NRMdf the following need attention: a. Necessity to ”THINK BIG, start small”, particularly on the need to specifically decide what can be implemented immediately with existing human and physical resources. b. Furthermore, it is better to begin using a specific approach by tackling a specific problem such as coral degradation than taking on all NRM problems at once. c.

Lobar needs from BANGDA an appropriate strategy to overcome NRM problems that are increasing.

d. Approaches to resolve NRM problems must neither be too general nor too theoretical. e. Request NRMdf to influence national policy-making to devolve more authority to regions especially in the forestry sector to empower community-based forestry resource management that clearly can succeed in Lobar. f.

5.

NRMdf brings knowledge not funding, therefore Lobar must make proposals to obtain the funds required to adopt the aforementioned approaches.

Among the introduced approaches that are regarded as important [for Lobar] are: a. Adoption of NRA and SEA for management of coral and C-type quarrying. b. Safeguarding water resources through integrated upstream-downstream approaches such as environmental services incentives. c.

6.

Public awareness about items a. and b.

As follow-up, NRMdf will: a. Return to Lobar to see how far the above approaches are likely to prove useful. b. Prepare capacity building materials that are refined through NRMdf work as well as results of analyses regarding policy formulation. c.

Invite BAPPEDA to a national function on increasing capacity based upon NRMdf approaches and formulation of environmental and NRM policies.

d. Return visit to Lobar for [support of]: x

Adoption of NRA and SEA for coral management and type-C quarrying.

x

Integrated upstream-downstream management of water resource protection using environmental services incentives.

Findings Formulation Team 8 September 2006

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E.

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Lokakarya Proyek PSDA-kod di Kabupaten Lombok Barat Hari Jumat, 8 September 2006 di BAPPEDA, Kabupaten Lombok Barat Rumusan

1.

Berbagai masalah utama PSDA di Lombok Barat (Lobar) dapat ditanggulangi dgn pendekatan yg diperkenalkan ke Pemda oleh Proyek Pengelolaan Sumber Daya Alam – kerangka otonomi daerah (PSDA-kod) antara tanggal 5 dan 8 September 2006, antara lain: x x x x x

Berkurangnya ketersediaan air, terutama mata air Galian C yg merusak tanah pertanian dan air Kerusakan terumbu karang yg makin bertambah Perambahan hutan dan penebangan liar Konflik ttg penggunaan air

2.

Pendekatan yg diperkenalkan oleh PSDA-kod berguna utk pemantapan proses perencanaan, pemanfaatan dan pengendalian SDA, terutama yg ada kaitan dengan tata ruang.

3.

Pendekatan tersebut terdiri dari: a. “Koordinasi antar Lembaga” menunjukkan kepentingan menyaman persepsi tentang PSDA agar supaya meningkatkan kualitas koordinasi dalam proses perencanaan tata ruang dan dalam proses perizinan dibidang pemanfaatan SDA. b. “Kajian Lingkungan Strategis (KLS)” merupakan acuan utk perencanaan wilayah kabupaten ataupun propinsi (DAS, renstra, tata ruang, APBD) dan pelaksanaan pembangunan berkelanjutan yg akrab lingkungan dan berdasarkan keterlibatan semua stakeholder utama, yaitu punya lejitimasi sosial. c.

“Neraca Sumber Daya Alam (NSDA)” menunjukkan trend daya dukung daerah. NSDA dapat diintegrasikan dalam PDRB sehingga jadi PDRB Hijau atau PDRB berwawasan lingkungan. Penilaian SDA dapat digunakan utk mengambil keputusan ttg konversi lahan, misalnya, perobahan status hutan, lokasi Galian C dan pertambangan lainnya.

d. “Keterpaduan PSDA di Hulu-Hilir” dapat berhasil dimana reboisasi oleh masyarakat ada kepastian lain dan kearifan local utk membangun kebun hutan dan jasa lingkungan berdasarkan kesepakatan masyarakat dan sumbang menyumbang yg sukarela. e. “Daya Dukung SDA” yg dari kemampuan lahan dan kesesuaian lahan) perlu dibuat berdasarkan batas administratif dalam proses pemantapan tata rang. Sebaiknya, peta kemampuan lahan memakai 8 kelas. f.

“Penanganan dan Penyelesaian Konflik” memerlukan proses identifikasi dan prioritisasi. Penerapan konsep pengelola air secara terpadu terdiri dari aspek spasial hulu hilir, waktu serta fungsi sosial dan ekonomi.

g. “Kesadaran Perencanaan dlm PSDA” dapat meningkatkan kesdaran public (masyarakat, swasta, pemerintah) melalui program terpadu seyogyanya akan meminimalir egosektoral dalam PSDA yg sering berakhir dgn kerusakan SDA yg tak dapat terkendali secara efektif. 4.

Pemda bersedia uji coba menerapkan beberapa pendekatan tersebut sesuai kemampuan. Namun, seperti sudah diutarakan pada PSDA-kod, perlu diperhatikan hal berikut: a. Perlu ”THINK BIG, start small” (berpikir luas, bertindak awal sederhana), yaitu, perlu menentukan secara spesifik apa yg dapat langsung dikerjakan dgn sarana prasarana, dana dan sumber daya manusia yg ada.

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b. Selajutnya, sebaiknya mulai menanggulangi isu spesifik seperti degradasi terumbu karang, daripada langsung coba menangani semua masalah PSDA dgn pendekatan terpilih. c.

Lobar memerlukan dari BANGDA penentuan strategi tepat utk mengatasi masalah kerusakan SDA yg makin bertambah.

d. Pendekatan solusi masalah PSDA jangan terlalu umum ataupun teoritis. e. Permohonan utk PSDA-kod agar supaya meyakinkan perumus kebijakan nasional utk lebih memberikan wewenang ke daerah ttg PSDA terutama di sektor kehutanan supaya memberdayakan pengelolaan hutan berbasis masyarakat di Lobar yg ternyata bisa berhasil. f.

5.

PSDA-kod membawa pengetahuan bukan dana, oleh karena itu Lobar mesti membuat usulan / proposal utk memperoleh dana yg diperlukan utk menerapkan pendekatan tersebut.

Antara pendekatan yg disampaikan, yg dianggap paling penting: a. Penerapan NSDA dan KLS utk pengelolalaan terumbu karang dan Galian C. b. Penyelematan sumber air melalui pendekatan keterpaduan hulu-hilir seperti insentif jasa lingkungan. c.

6.

Kesadaran publik terhadap a) dan b) tersebut.

Sebagai tidak lanjut, PSDA akan: a. Kembali ke Lobar utk melihat sejauh mana pendekatan tersebut ada manfaatnya. b. Menyediakan bahan peningkatan kapasitas yg mantap dari pendekatan-pendekatan PSDA-kod serta hasil kajian buat perumus kebijakan. c.

Mengundang BAPPEDA ke acara nasional ttg peningkatan kapasitas yg mantap dari pendekatan-pendekatan PSDA-kod dan perumusan kebijakan nasional ttg PSDA dan LH.

d. Kunjungan ulang oleh PSDA-kod utk: x

Penerapan NSDA dan KLS utk pengelolalaan terumbu karang dan Galian C.

x

Pendekatan keterpaduan hulu-hilir utk insentif jasa lingkungan buat perlindungan sumber daya air.

Tim Perumus 8 September 2006

ADB TA 4687-INO: Natural Resource Management in a Decentralized Framework Final Report

F.

127

NRMdf Workshop in West Kutai, Kutai Kartanegara dan East Kutai Districts (Kutai 3) as well as East Kalimantan Province Wednesday, 27 September 2006 BAPPEDA, Kutai Kartanegara District Joint Findings

1.

The major NRM problems in East Kutai, Kutai Kartanegara dan West Kutai Districts (Kutai 3), East Kalimantan Province, Timur, are: x x x x x x x

2.

Overlapping land uses Difficultly over reconciliation for the spatial plan Ex-mining areas not reclaimed Unauthorized (illegal) logging and mining Deforestation Forest and land fires Coastal degradation caused by development of [fish and shrimp] ponds.

NRMdf has two main purposes in the regions. For six districts and three provinces, NRMdf: a. Introduces innovative approaches or “tools” for NRM in support of both development and conservation. It is hoped these approaches will help regions to solve their NRM problems. b. Completion of analyses and recommendations for national policy-makers to empower regions in accordance with the concurrency principle of Law 32.

3.

Several NRM problems in Kutai 3 can be tackled by approaches introduced by NRMdf between 19 and 27 September 2006.

4.

Approaches introduced by NRMdf for improving the spatial planning revision process as well as utilization and control of the existing spatial plan consist of: a. “Roles and Coordination among Institutions” indicating the importance of shared perceptions about NRM to increase the quality of coordination in process for spatial planning and NRM exploitation licensing especially when facing [specific] problems: x x x

Overlapping conflicting authorities between the Center and the regions. Spatial conflict over [natural resource] use between the Center and regions. For revision of the spatial plan, center-region coordination from the outset, e.g., the Agency for Forest Area Establishment (BPKH) should be given authority to make decisions and respond directly on regional issues taking into account regional imperatives.

b. “Strategic Environmental Assessment (SEA)” that represents: x

x x

Framework for district or provincial planning (spatial plan as well as river basin management, strategic area plan, medium- and long-term development plans) (Tata Ruang serta DAS, Renstrada, RPJM, RPJP). For example, it can be used for: o Evaluating alternative spatial plans such as [MoFr] version SK79 and East Kalimantan Province’s version RTRWP 2005-2020. o Creation of a database for NRM above- and below-ground. Impact analysis of implementation of sustainable development that is environmentallyfriendly. Based on involvement of all stakeholders, it has social legitimacy.

c. “Resource Valuation” that measures direct and indirect economic values of natural resources, can be used to analyze alternative spatial plans such as SK79 and RTRW 2005-2020. Could have application to support [current] special requests of the regions for conversion of state forest areas from production forest to protection forest.

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d. “Carrying Capacity” consisting of land capability and land suitability needs to be based upon administrative boundaries for spatial planning. Three major problems are: x x x

Different approaches (BPN and BPDAS in comparison with the Planology Agency of MoFr) to evaluate carrying capacity in determining forest areas. Different units of spatial analysis between BPN, BAPPEDA and BPDAS. Base maps differ among regional agencies, thus BAPPEDA uses Bakosurtanal map, Public Works uses aerial photography and BPN uses landsat imagery.

e. “Conflict Management” requires systematic approaches consisting of classification, prioritization, analysis, strategic resolution, direct management of resolution and responses to impacts. A single institution needs to handle conflict management with clear statement of main duties and functions (tupoksi). f.

5.

“Joint NRM Stakeholder Analysis” can reduce problems of inter-institutional coordination such as ego-sectoralism, ego-centralization or ego-regionalism. Stakeholder analysis should be followed-up with lessons learned that are widely disseminated.

Among the introduced approaches, the most important application is: a. So that provincial and district spatial plans are appropriate and true as a basis for medium-term planning so that annual budgets are put together efficiently, need natural resource database of above- and below-ground natural resources developed through application of Resource Valuation and SEA.

6.

As a follow-up, NRMdf will: a. Prepare refined capacity building materials for the introduced approaches as well as results of analyses for policy-makers. b. Invite local government to a national workshop on increasing capacity further and approaches for policy formulation for natural resource and environmental management. c.

7.

Follow-up collaboration [with LG] concerning Resource Valuation and SEA for spatial planning revision.

To obtain more information about NRMdf, its website can be accessed.

Findings Formulating Team 27 September 2006

ADB TA 4687-INO: Natural Resource Management in a Decentralized Framework Final Report

G.

129

Kalimantan Timur ~ Kutai Barat, Kutai Kartanegara dan Kutai Timur Lokakarya Proyek PSDA-kod di Kutai Barat, Kutai Kartanegara dan Kutai Timur (Kutai 3) serta Propinsi Kalimantan Timur Hari Jumat, 27 September 2006 di BAPPEDA, Kabupaten Kutai Kartanegara Rumusan

1.

Masalah utama Pengelolaan Sumber Daya Alam (PSDA) di Kutai Timur, Kutai Kartanegara dan Kutai Barat (Kutai 3), Propinsi Kalimantan Timur adalah: x x x x x x x

2.

Tumpang tindih penggunaan lahan Kesulitan paduserasi revisi Tata Ruang Areal bekas pertambangan yg tidak direklamasi Pencurian kayu (illegal logging) dan pertambangan tanpa izin Deforestasi Kebakaran hutan dan lahan Degradasi pesisir oleh pertambakan.

Proyek Pengelolaan Sumber Daya Alam – kerangka otonomi daerah (PSDA-kod) punya dua tujuan di daerah. Di 6 Kabupaten dan 3 Propinsi, PSDA-kod: a. Perkenalan Pendekatan atau “Alat” inovatif dalam PSDA yg baik guna menunjang pembangunan maupun kelestarian. Diharapkan pendekatan tersebut dapat mendorong Daerah dalam menyelesaikan masalah PSDA. b. Pemantapan Kajian dan rekomendasi bagi perumus kebijakan di tingkat nasional dlm rangka memberdayakan PSDA kepada daerah sesuai prinsip konkurensi di UU32.

3.

Berbagai masalah PSDA di Kutai 3 dapat ditanggulangi dgn pendekatan yg diperkenalkan ke Pemda oleh PSDA-kod antara tanggal 19 dan 27 September 2006.

4.

Pendekatan yg diperkenalkan oleh PSDA-kod berguna utk pemantapan proses revisi tata ruang maupun pemanfaatan dan pengendalian tata ruang yang berlaku. Pendekatan-2 tersebut terdiri dari: a. “Peran dan Koordinasi antar Lembaga” yang menunjukkan pentingnya menyamakan persepsi tentang PSDA agar supaya meningkatkan kualitas koordinasi dalam proses perencanaan tata ruang dan dalam proses perizinan dibidang pemanfaatan SDA, terutama terkait dengan masalah yang dihadapi: x x x

Tumpang tindih wewenang Pusat-Daerah; Benturan kepentingan dalam pemanfaatan ruang Pusat-Daerah; dan Dalam rangka revisi rencana tata ruang koordinasi pusat-daerah harus dilakukan dari sejak awal, misalnya, Balai Pemantapan Kawasan Hutan di daerah sebagai kepanjangan tangan Dept. Kehutanan, dapat diberikan wewenang utk mengambil keputusan dan merespon langsung terhadap isu yang berkembang di daerah dengan memperhatikan kepentingan daerah.

b. “Kajian Lingkungan Strategis (KLS)” yang, merupakan: x

x x

Acuan bagi proses perencanaan wilayah kabupaten ataupun propinsi (Tata Ruang serta DAS, Renstrada, RPJM, RPJP). Mislanya, dapat digunakan: o utk mengkaji alternatif Tata Ruang seperti versi SK79 dan revisi RTRW 20052020. o Pembuatan database yg pertimbangkan ciri SDA diatas dan yg terkandung didalamnya. Analisa dampak pelaksanaan pembangunan berkelanjutan yg akrab lingkungan dan Berdasarkan keterlibatan semua stakeholder utama, yaitu punya lejitimasi sosial.

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c.

“Valuasi Ekonomi Sumber Daya Alam (VESDA)” yang menghitung nilai guna langsung dan tak langsung dari SDA, dapat digunakan utk analisa alternatif tata ruang seperti versi SK79 dan revisi RTRW 2005-2020. Kemungkinan dapat mendukung dukung permintaan khusus dari Daerah utk konversi kawasan hutan negara dari status Hutan Produksi menjadi Hutan Lindung.

d. “Daya Dukung Lahan” yang terdiri dari kemampuan lahan dan kesesuaian lahan perlu dibuat berdasarkan batas administratif dalam proses pemantapan tata ruang. Tiga masalah terutama adalah: x

x x

Pendekatan berbeda (BPN dan BPDAS dibandingkan dgn Badan Planologi Kehutanan) utk mengevaluasi kemampuan lahan yg terkait dgn penentuan kawasan hutan. Perbedaan unit analysis spasial antara BPN, BAPPEDA dan BPDAS. Peta dasar yang digunakan berbedar antar instansi daerah, misalnya BAPPEDA pakai peta Bakosurtanal, PU berbasis foto udara dan BPN berbasis citra landsat.

e. “Pengelolaan Konflik” memerlukan pendekatan sistematis, terdiri dari, klasifikasi, inventarisasi, prioritisasi, analisis konflik, strategi resolusi konflik, menangani konflik langsung dan menangani dampak konflik. Diperlukan ditangani oleh suatu institusi yang tupoksinya secara eksplisit mencantumkan penyelesaian konflik. f.

5.

“Analisis Bersama Pemangku Kepentingan ttg PSDA” yang dapat mengurangi kendala kordinasi antar kelembagaan seperti ego-sektoralisme, ego-sentralisme atau egodaerahisme. Sebaiknya, pendekatan (stakeholder analysis) dilanjutkan dgn proses pelajaran dari pengelaman (lessons learned) yang disebarluaskan.

Antara pendekatan yg disampaikan, yg dianggap paling penting adalah: a. Supaya RTRWP/D disusun secara tepat dan benar sebagai dasar penyusunan RPJM sehingga APBD dapat disusun secara efisien. Untuk itu perlu database SDA di permukaan maupun diperut bumi melalui penerapan VESDAL dan KLS.

6.

Sebagai tidak lanjut, PSDA akan: a. Menyediakan bahan peningkatan kapasitas yg mantap dari pendekatan-pendekatan PSDA-kod serta hasil kajian buat perumus kebijakan. b. Mengundang Pemda ke lokakarya nasional ttg peningkatan kapasitas yg mantap dari pendekatan-pendekatan PSDA-kod dan perumusan kebijakan nasional ttg PSDA dan LH. c.

7.

Kerja sama lanjutan ttg VESDA dan KLS utk revisi Tata Ruang.

Untuk mengakses informasi ttg PSDA-kod dapat masuk di website proyek.

Tim Perumus 27 September 2006

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Appendix 14: Outputs by Components Component

1.

Policy Analysis and Institutional Strengthening

Analysis and strengthening of policies and institutions for natural resource management and governance

Working Title of Written Output /1/

Lead Writer /2a/

Co-writers /2a/

First Draft Date /4/

Output Type Issues, Analysis+R, Handbook /3/ Analysis+R Handbook

31 Aug 15 Nov

1.01 Learning lessons from decentralized NRM experience

01 CB

All

1.02 NRM framework for the district level

01 CB

All

Issues Analysis+R Support

07 Aug 30 Nov 30 Nov

1.03 Review of impacts of policies, laws and regulations on sustainable NRM

02 IP

01 CB 05 AS

Issues Analysis+R

07 Aug 30 Nov

1.04 Reforms to effectively integrate NRM policies and regulations into spatial planning

02 IP

03 IM

Analysis+R

31 Aug

1.05 Harmonizing national development policies for spatial planning, exploitation licensing, budgetary processes, and development planning

02 IP

Analysis+R

30 Nov

1.06 Understand the failure of PP69 to ensure participative spatial planning

02 IP

03 IM 09 MM

Analysis+R

15 Aug

1.07 Overcoming constraints to improved spatial planning

03 IM

02 IP 04 KG 09 MM

Issues Analysis+R Handbook

07 Aug 31 Aug 07 Aug

1.08 Defining and classifying natural resource types and zones, distinguishing between administrative and biophysical classes

04 KG

01 CB 02 IP 03 IM

Issues Analysis+R

07 Aug 31 Aug

1.09 Efficient, rational and environmentally-sound and enforceable processes for land conversion processes

04 KG

06 YS

Analysis+R

09 Sep

1.10 Resolving conflicting authority and regulations for NRM

07 AD

02 IP

Issues Analysis+R Handbook

07 Aug 31 Aug 31 Aug

1.11 Gap analysis of policies and regulations for NRM

07 AD

02 IP

Analysis+R

31 Aug

02 IP 07 AM

Handbook

15 Nov

1.12 Framework for LG legislation program

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Component

2.

NRM Development Planning

Increasing capacity for participative, wellinformed and enforceable spatial planning

Working Title of Written Output /1/

Lead Writer /2a/

Co-writers /2a/

First Draft Date /4/

Output Type Issues, Analysis+R, Handbook /3/ Position

31 Aug

1.13 Organizational structure of environmental agencies, in particular Dinas vs Badan

07 AD

05 AS

1.14 Resolving the forestmining issue through resource valuation

08 MS

02 IP 03 IM 04 KG

Position

15 Nov

1.15 Minimum standards for community participation in spatial planning

09 MM

03 IM 07 AD

Handbook

15 Nov

2.01 Achieving enforcement of spatial plans

02 IP

03 IM 06 YS

Analysis+R Handbook

31 Aug 15 Sep

2.02 Assessment of strategic NRM issues for each district site

02 IP

All

Analysis+R Analysis+R

31 Aug 21 Sep

2.03 Framework for achieving top-down / bottom-up linkages for spatial planning

03 IM

02 IP 07 AD

Analysis+R

31 Aug

2.04 Framework for integrating carrying capacity, resource valuation and SEA in spatial planning

03 IM

06 YS 08 MS

Analysis+R

31 Aug

2.05 Monitoring and evaluation of the spatial planning process

03 IM

04 KG 07 AD

Handbook

15 Sep

2.06 SEA for district development planning, informed by NRA

06 YS

01 CB 08 MS

Issues Analysis+R Handbook

07 Aug 09 Sep 15 Nov

2.07 SEA designed for guiding spatial planning and NRM licensing processes

06 YS

01 CB 03 IM 08 MS

Analysis+R Handbook

31 Aug 15 Nov

2.08 Application of EPI for performance monitoring of district development

06 YS

01 CB 03 IM 08 MS

Issues Anaysis+R Handbook

07 Aug 15 Nov 15 Nov

2.09 Rights, roles, responsibilities and relations among NRM government agencies from national to village levels

07 AD

Issues Analysis+R Handbook

07 Aug 31 Aug 15 Sep

2.10 Coordination of transparent NRM licensing processes

07 AD

Analysis+R Handbook

15 Sep 15 Sep

2.11 Contribution of NRM to regional domestic product

08 MS

Handbook

15 Aug

04 KG 11 LH

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Component

3.

Information for Decisionmaking

Informed and accountable decisionmaking

Working Title of Written Output /1/

Lead Writer /2a/

Co-writers /2a/

First Draft Date /4/

Output Type Issues, Analysis+R, Handbook /3/ Issues Analysis+R Handbook

07 Aug 15 Sep 15 Nov

2.12 Application of NRA and related SEA to spatial planning

08 MS

03 IM 04 KG 11 LH

2.13 Adapting SEA and EPI to take into account NRA parameters\

08 MS

06 AS

Analysis+R Handbook

15 Nov 15 Nov

2.14 Policy and institutional mechanisms to resolve NRM conflict

09 MM

02 IP 04 KG

Issues Analysis+R

07 Aug 31 Aug

2.15 Mechanisms for identifying, prioritizing and handling NRM conflict

09 MM

02 IP 03 IM 04 KG

Analysis+R Handbook

15 Sep 15 Sep

2.16 Stakeholder analysis for NRM in districts

11 LH

All

Analysis+R Analysis+R

31 Aug 22 Sep

2.17 NRM planning awareness campaign to inform decision-makers

11 LH

All

Issues Handbook

07 Aug 31 Aug

3.1

Learning from experiences of past and ongoing websites for NRM

10 HN

All

Issues

07 Aug

3.2. Web-based Information system on decentralized NRM, including easy access and download features

10 HN

All

Website Handbook

15 Nov

3.3

11 LH

All

Handbooks

30 Nov

Design of NRMdf resource toolkit

Notes: /1/ Working Title for output that results in increased capacity or a recommendation for policy / institutional reform. /2a/ Team member collaboration linkages. Number and initials code for team members who are lead or co-writers for this task (01CB, 02IP, 03IM, 04KG, 06YS, 07AD, 08MS, 09MM, 10HN, or 11LH), see Appendix 1 and Appendix 6. All outputs shared with all team members for comment. Note that 10 HN and 11 LN work closely with all other team members to obtain information for appropriate dissemination, e.g., awareness campaigns or website. /2b/ Note that some tasks are relevant to more than one component and are indicated accordingly. The main component relationship is shown here. The matrix for individual consultant activities indicates such relationships where they exist. Also, C1 and C2 provide input for C3. /3/ Written Outputs. Each of the following assumes appropriate presentation materials, e.g., PowerPoint, as well as in-service training. - Issues = brief overview of strategic NRM challenges or issues covered by the consultant’s field of work - Position = demand-driven position paper or policy brief - Analysis+R = Analysis or review with recommendations. Draft 2 is completed within one month of First Draft submission. - Handbook = refers to a practical and accessible guide to or manual for action. This will start out as a general guide and be developed further after field testing. - Support Note = Argument for further assistance including rationale and type of intervention. /4/ Final version of output produced within one month of First Draft.

Aceh Besar (NAD) Solok (Sumbar) *** Kabupaten Agam (Sumatera Barat) Lampung Barat (Lampung) Garut (Jabar) Kuningan (Jawa Barat) Cirebon (Jawa Barat) Cianjur (Jawa Barat) *** Ciamis (Jabar) Cilacap (Jateng) Magelang (Jateng) Kulonprogo (Jogjakarta) Kota Malang (Jatim) Sidoarjo (Jatim) Dompu (Nusa Tenggara Barat ) Lombok Barat (NTB) *** Kendari (Sultenggara) Kutai Timur (Kaltim) *** Kutai Kartanegara *** Berau (Kaltim) Kutai Barat (Kaltim) *** Sintang (Kalbar) Sanggau (Kalbar) Kapuas Hulu (Kalbar) Murung Raya (Kalsel) Barito Utara (Kalsel) Barito Selatan (Kalsel) Katingan Timur (Kalteng)

Districts organized by province (Province) Bg 0/1 Bp 0/1 1 1 1 1 0 0 0 0 2 2 0 0 0 1 0 1 1 1 1 0 1 0 0 0 0 0 0 0

BANGDA + BAPPENAS preference

ADB Project Location: Coastal, Coral, Irrigation, Water Management; LG & Finance Reform 0/1 1 0 0 1 0 0 0 0 1 1 0 0 0 0 0 1 1 1 0 1 0 1 1 0 0 0 0 1 0,1, 2,3,4 3 3 3 4 3 3 2 4 3 3 3 3 2 3 3 4 3 4 4 4 4 4 4 4 4 4 4 4

Fit with NRMdf Goals

Reformminded District, preferably with examples 0,1, 2,3,4 3 4 3 3 2 4 2 3 2 2 3 3 3 2 2 3 2 3 3 3 4 2 2 3 2 2 2 2

Strategic NRM / Env Mgt issue /4/ 0,1, 2,3,4 4 3 3 4 4 4 3 4 4 4 3 3 3 4 3 4 3 4 4 4 4 4 4 4 4 4 4 4 0,1, 2,3,4 3 3 1 3 3 2 2 3 3 3 3 3 2 2 3 3 3 2 2 3 3 3 3 2 2 2 2 2

Team Knowledge of Site

0,1, 2,3,4 3 3 3 3 3 3 3 3 3 3 3 3 3 3 2 3 3 3 3 3 3 3 3 2 3 3 3 3

Availability of Data

Logistics: Ease of access to and within sites 0,1, 2,3,4 2 2 2 2 3 3 2 4 3 2 3 3 2 2 1 2 1 2 1 1 1 1 2 2 1 1 2 2

135

Notes: /1/ *** = The five sites proposed by the TA. Final choice was made not only on scoring but on the suite of characteristics displayed by the selected group of 5. /2/ Highest scores = favored districts for site selection. No weighting applied. Score 0/1 or 0,1,2,3,4. /3/ All ADB hits are for the Marine and Coastal Resources Management Project /4/ Strategic NRM issues include, mineral richness, upstream/downstream issues, rural/urban stresses, conflict over natural resources, illegal extraction, conservation/development strains, blatant disregard for spatial plans, significantly poor spatial plans, large/small scale extraction issues.

20 16 16 21 19 19 14 21 21 20 18 18 15 17 14 21 17 20 19 19 20 18 19 17 16 16 17 18

Total score

SELECTION CRITERIA AND SCORING OF CANDIDATE SITE DISTRICTS

Appendix 15: District Site Selection Criteria

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ADB TA 4687-INO: Natural Resource Management in a Decentralized Framework Final Report

Appendix 16: Site Visit Schedule

Project Week:

9

10

11

12

13

14

Month:

Aug

Aug/ Sept

Sept

Sept

Sept

Sept

District

1. CIANJUR Meeting, Provincial Capital - Bandung Planning Workshop - Cianjur Working with District partners Results Workshop - Cianjur

2. LOMBOK BARAT Meeting, Provincial Capital - Mataram Planning Workshop - Mataram Working with District partners Results Workshop - Mataram

3. KUTAI BARAT 4. KUTAI KARTANEGARA 5. KUTAI TIMUR Meeting, Provincial Capital - Samarinda Planning Workshop - Samarinda Working with District partners Results Workshop - Tenggarong

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Appendix 17: Work Group Findings FINDINGS17 OF THE WORKING GROUPS AT THE NATIONAL WORKSHOP Jakarta, Indonesia, 22-23 November 2006

A.

Group I: Spatial Planning

1.

Three alternative results of [formally] revising spatial planning: x x x

2.

Change No change Forced change | existing conditions [de facto change]

These three alternatives need to be subject to the following introduced tools: x x x x

Natural Resource Accounting Resource Valuation Strategic Environmental Assessment Land Capability and Land Capacity

Each of these tools is implementable, simple enough and can be selected. 3.

Criteria needed for deciding whether or not a spatial plan should be revised.

4.

Natural Resource Accounting, Resource Valuation, Strategic Environmental Assessment and Land Capacity and Land Capacity, having been analyzed and tested, require a legal umbrella [justification] as guides to NRM and spatial planning.

5.

The regions need an alternative model as a basis for revising their spatial plans with respect to protection and production areas owned by the MoFr.

6.

SEA can consider a defined region whether coastal or land or both in the case of integrated coastal management.

[”Start Small”] 7.

First steps that can be taken by a region for implementation of Strategic Environmental Assessment and Natural Resource Accounting include an inventory of its natural resources.

B.

Group II: Policies, Institutions and Conflict

1.

Institutions need to: x

Revitalize institutions and maximize the roles of those institutions that are consistently functioning well, e.g., West Java a. Coordinating Team for Regional Spatial Planning (TKPRD), consisting of all stakeholders connected to NRM; and b. Council for Environmental Awareness, consisting of members of the Bandung Regional Legislature.

17

x

Increase political will of decision-makers about NRM to assure consistent and just law enforcement.

x

Emphasize simplicity in relations between institutions horizontally and vertically.

Literal translations from Indonesian; clarification added in square brackets.

140

2.

ADB TA 4687-INO: Natural Resource Management in a Decentralized Framework Final Report

x

Set up an e-government system as a platform for establishing effective and efficient governance as well as become an information center employing a clearing house mechanism.

x

Build capacity to establish good governance through human resource development for civil servants in ways which nurture professionalism that integrates people’s, business and government needs.

x

Reform investment licensing by setting up an agency for integrated service delivery such as in Cianjur District which has set up a one-stop service to improve the One Roof Secretariat for License Delivery.

Policies: x

Urgency to issue government regulation (PP) to replace PP25 of 2000 re national and provincial authority under regional autonomy.

x

Review laws and implementation regulations that still contain contradictions, creating multi-interpretations in the regions.

x

National government, in this regard, the MoFr, must review and formulate regulations connected with guiding management of forestry areas.

C.

Group III: Planning Awareness

1.

Responses to capacity-building approaches introduced by NRMdf:

2.

x

Education and poverty vs. environmental damage ~ philosophy of public education important.

x

Felt to be very important because natural resources must be protected as a fundamental necessity.

x

Problems cannot be resolved only through regulations but must be approached as joint responsibilities, one way to achieve this being planning awareness.

Global issues demand planning awareness for NRM: x

The impact of insufficient awareness is that NRM is an expense of the people (in the wide sense of government and private sector, a specific example being Lapindo Sidoarjo18).

x

Planning awareness for NRM is under-developed because of lack of information dissemination about NRM.

x

The NRMdf website, nrm-df.bppt.go.id, is very helpful to establish a network among NRM stakeholders.

[“Start Small”] 3.

18

Policy-makers: x

Suggest the LG executive has a program to develop planning awareness for NRM.

x

Advocated planning awareness to [workshop participants’] office heads will be helped by the results of this workshop and strengthened by a letter from BANGDA.

Site of a gas exploration blow-out leading to mud inundation of nearby villages.

ADB TA 4687-INO: Natural Resource Management in a Decentralized Framework Final Report

x

4.

More intensive connection with the local legislature to establish planning awareness for NRM.

Local Communities: x

5.

LG should gather together stakeholders and potential stakeholders caring about NRM or already active in NRM under an umbrella planning awareness program. (Could include NGOs, religious schools, agencies, WWF, etc.).

Website – http://nrm-df.bppt.go.id x

The website is a very helpful means of establishing a stakeholder network for NRM.

x

Among immediate action is intensification of communication among workshop participants (mutual contribution to fill the website in connection with NRM, strategic NRM issues in specific areas, etc).

D.

Working Group I: Tata Ruang

1.

Tiga alternatif hasil revisis tata ruang: x x x

2.

141

Dirubah Tidak dirubah Terpaksa dirubah | kondisi eksisting

Tiga alternatif tersebut membutuhkan ’tools’ yang ditawarkan: x x x x

NRA VESDAL KLS LC & LS

Kesemua ’tools’ tersebut diatas bersifat implementatif, sederhana, dan merupakan suatu pilihan. 3.

Perlu kriteria untuk menentukan perlu tidaknya rencana tata ruang ditinjau kembali (perlu rumusan yang lebih detail).

4.

NRA, VESDAL, KLS, LC&LS setelah dijaki dan diuji cobakan membutuhkan payung hukum sebagai pedoman PSDA dan penatan ruang.

5.

Daerah membutuhkan suatu model alternatif sebagai dasar untuk merevisi rendana tata ruangnya terhadap kawasan lindung dan budidaya yang dimiliki Departemen Kehutanan.

6.

KLS seyogyanya juga memperhatikan/memasukkan unsur pendekatan: Kesatuan wilayah perencanaan antara wilayah daratan dan lautan (integrated coastal management).

7.

Langkah awal yang dapat dilakukan oleh daerah untuk PSDA adalah mengidentifikasi SDA yang dimiliki untuk menghasilkan Neraca Sumber Daya Alam & Kajian Lingkungan Strategis.

E.

Working Group II: Kebijakan, Kelembagaan dan Konflik

1.

Kelembagaan: x

Perlunya revitalisasi kelembagaan (poisitioning dan nomenklatur) dan memaksimalkan fungsi dari kelembagaan yang sudah berjalan dengan baik dan konsisten. (Contoh di Propinsi Jawa Barat telah terbentuk TKPRD/Tim Koordinasi Penataan Ruang Daerah yang terdiri seluruh stakeholders terkait dalam pengelolaan SDA dan Dewan Pemerhati Lingkungan yang terdiri dari anggota legislatif se wilayah cekungan Bandung).

142

2.

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x

Peningkatan political will dari pengambil keputusan maupun stakeholders dalam pengelolaan sda.

x

Penegakkan hukum secara konsisten dan berkeadilan.

x

Peningkatan KISS internal maupun external diantara lembaga baik secara vertikal maupun horizontal. Perlu dibangun E’ Gov system sebagai salah satu landasan untuk mewujudkan management pemerintahan yang efektif dan effisien serta menjadikan pusat informasi yang mengarah kepada tersedianya Clearing House Mechanism.

x

Peningkatan capacity building untuk mewujudkan Good Governance melalui pembinaan mutu sumberdaya manusia aparatur yang berkelanjutan menuju tercipatany profesionalitas sdm aparatur. Disamping itu perlu dibina keterpaduan antara kepentingan masyarakat, dunia usaha dan pemerintah.

x

Reformasi pelayanan perijinandan investasi dengan mewujudkan pelayanan prima melalui pembentukan lembaga (Badan) yang berfungsi sebagai pelayanan terpadu. Contoh di Kabupaten Cianjur akan membentuk Badan Pelayanan Satu Pintu (One Door Service) sebagai penyempurnaan Sekretariat Pelayanan Perijinan Satu Atap (SPPSA).

Kebijakan: x

Segera RPP pengganti PP no 25 Tahun 2000 tentang kewenangan pemerintah pusat dan propinsi sebagai daerah otonom, diterbitkan.

x

Perlu melakukan review regulasi untuk peraturan peraturan perundangan dan peraturan pelaksanaannya yang masih mengandung pertentangan, yang mengakibatkan multi tafsir pelaksanaannya di daerah.

x

Pemerintah pusat, dalam hal ini Departemen Kehutanan harus mengkaji dan menata peraturan perundang undangan yang berkaitan dengan pembinaan pengelolaan kawasan hutan.

F.

Working Group III: Kelompok Kesadaran Perencanaan

1.

Tanggapan Terhadap Pendekatan KP yang Ditawarkan oleh NRMdf:

2.

3.

x

Pendidikan, Kemiskinan VS Kerusakan Lingkungan -> Falsafah pentingnya kesadaran public.

x

Dirasakan sangat penting karena SDA memang perlu dilindungi karena merupakan kebutuhan mendasar.

x

Tidak bisa hanya diselesaikan dengan peraturan tapi merupakan tanggung jawab bersama salah satu toolnya melalui kesadaran perencanaan (KP).

Tanggapan Terhadap Pendekatan KP yang Ditawarkan oleh NRMdf: x

Isu global menuntut Kesadaraan Perencanaan dalam PSDA.

x

Dampak kekurang sadaran akan PSDA sudah mulai terasa merugikan masyarakat (dalam arti luas pemerintah dan swasta, contoh kasus Lapindo Sidoarjo).

x

Kesadaran Perencanaan tentang PSDA kurang terbangun karena kurangnya diseminasi informasi tentang PSDA

Yang bisa dilakukan dalam waktu dekat untuk mengimplementasi KP PSDA Tingkat Penentu Kebijakan: x

Mengusulkan ke Pemda, program yang membangun kesadaran perencanaan PSDA.

ADB TA 4687-INO: Natural Resource Management in a Decentralized Framework Final Report

4.

x

Advokasi ke pimpinan tentang program KP PSDA disuport dengan hasil lokakerja dan surat penguat dari BANGDA.

x

Membangun hubungan yang lebih intensif dengan DPRD dalam hal membangun KP PSDA.

Yang bisa dilakukan dalam waktu dekat untuk mengimplementasi KP PSDA Tingkat Masyarakat: x

5.

143

Pemda mengorganisir/merangkul stake holder/potensial stake holder dalam payung program 'kesadaran perencanaan' yang peduli atau sudah memulai kegiatan dalam PSDA. ( Bisa LSM, Pesantren, badan2, WWF dsb )

Website - http://nrm-df.bppt.go.id: x

Sangat membantu dalam membangun jejaring antar stakeholders dalam PSDA.

x

Yang bisa dilakukan dalam waktu dekat mengintensifkan komunikasi antar peserta menggunakan website (saling melengkapi isi website yg berkaitan dengan PSDA, isu-isu strategis PSDA di daerah, dsb).

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Appendix 18: Contact List NRMdf NETWORK 19 Name Ruminto Ismail Widadi Arif Edy H. A. Suhaimi Atiek Koesrijanti Edison Siagian Gunawan Sri Hardhini Muh Ardi A Siddiq Rusli CIANJUR Kasmiri Elizabeth Yuniarti A Rifai Azhari Dwi Agus Sulistyo Atjep Mahfud Endang Suparman Agus WG Ir. Prima Mayaningkas A Ackron Imami Ir. Dewi Kusmiati, MSc. Gungun Gumelar, BE Eddy Mulyadi Tjaturini Dj. S H. Padli, SH Gundam Budiarjo Aan Garnazi, S LOMBOK BARAT Ir. H. Moh. Taufik, Msi Ir. L. Suparman Silaturrahman HM Mujitahid L. Suaidi

Institution Ministry of Energy and Natural Resources MoPW, DF for Spatial Planning MoM&F, DG for KP3K-DKP HKTI MoE DG BANGDA, MoHA DG BANGDA, MoHA BANGDA, MoHA JDC JDC JDC

Town Jakarta Jakarta Jakarta Jakarta Jakarta Jakarta Jakarta Jakarta Jakarta Jakarta Jakarta

Handphone 08129015911 021-70224474 08129015223 08179139540 0811950392 021-7942660 021-7942660 08122430124 021-8190789 021-8190789 021-8190789

BAPPEDA Cianjur BAPPEDA Cianjur BAPPEDA Cianjur BAPPEDA Cianjur BAPPEDA Cianjur EIA Office, Cianjur EIA Office, Cianjur BPLHD Province East Java EIA Office, Cianjur Dinas PKT Dinas Cipta Karya, Public Works Dinas Cipta Karya, Public Works Dinas Cipta Karya, Public Works BPN Kabupaten Cianjur BPN Kabupaten Cianjur KPH Cianjur

Cianjur Cianjur Cianjur Cianjur Cianjur Cianjur Cianjur Bandung Cianjur Cianjur Cianjur Cianjur Cianjur Cianjur Cianjur Cianjur

08156060453 081320486955 08164207709 081320601354 0263-261892 ext 192 08122177812 0263-280196 08164864541 0818630139 08122379312 08156078694 0263-261618 08156008883 081320550260 08179297292 0263-261741

BAPPEDA Lombok Barat BAPPEDA Lombok Barat BAPPEDA Lombok Barat BAPPEDA Lombok Barat BAPPEDA Lombok Barat

Mataram Mataram Mataram Mataram Mataram

W.M Ardhi

BAPPEDA Lombok Barat

Mataram

Lalu Farhum N Cetiawati Budianto Budianto Muslim, ST Nurul Ainy Ir. Mahidin Nofitri Agustin, ST M.Faizal, BE Mardan Lalu Muh Subiarta H. Kamran Suratman Budhy Kurniawan Rahmat Sabani Ir. I Gusti Ayu Intan

Dinas Kelautan dan Perikanan BPMPLH Lombok Barat Sub Dinas Tata Ruang Sub Dinas Tata Ruang DKP Lombok Barat Dinas Pertambangan Dinas Kehutanan Perkebunan Dinas Pertambangan Perusahaan Daerah Air Minum BPN Lombok Barat BPN Lombok Barat BPMPLH Lombok Barat BPDAS Dodokan Moyosari BUSDA Nusa Tenggara Barat Dinas PSDA Balitbang dan Diklat Lombok Barat

Mataram Mataram Mataram Mataram Mataram Mataram Mataram Mataram Mataram Mataram Mataram Mataram Mataram Mataram Mataram Mataram

0815470177 08175780278 08123701964 08175790708 0370-6603034 081915968725 0817818956 0370-6644604 081339535334 08175716106 0370-621721 0370-621721 08175716174 081339799317 0370-631149 081339738007 0370-6642619 081915950449 0370-681671 0370-622301 0818545047 0370-627851 081339847119 08175792869

19

This network is dedicated to Mulyanto Noegroho, Ministry of Forestry, a member of the Communication Network when it was founded at the National Workshop in November 2006. Pak Mulyanto died in the Jogjakarta air crash of March 2007.

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Name Institution Humaidi Konsepsi Nusa Tenggara Barat KALIMANTAN TIMUR (Provinsi) Nur Sigit Sub Dinas Natural Resource and Environmental Gunung Djoko Sub Dinas Spatial Planning Zairin Zaini BAPPEDA Province Ir. M.Fadli Ardin, MM Dinas Perkebunan Ir. Hardi Dwiputra Dinas Perkebunan Ir. Chanan Dinas Perkebunan Ali Wafi BP DAS Mahakam Nerau Suria Darma Center for Environmental Studies, University of Mulawarman KUTAI TIMUR Ordiansyah Sub Dinas Tata Ruang Husni Hassan BAPPEDA Kutai Timur Suriansyah Sub Dinas PSDA Aup Saprudin Sub Dinas PSDA H.Baharuddin S Kaltim Prima Coal Danny K Wardhana Kaltim Prima Coal Nurul Mutia Karim Kaltim Prima Coal Khairul Tamami Dinas Pengairan Khoirul Anam Dinas Cipta Karya Elly Efendi Dinas Kelautan dan Perikanan MH. Bohari NGO Wawasan KUTAI KARTANEGARA Ir. Ahyani Fadianur D, MM Dinas Perenc. Fisik & Prasarana Wilayah Doni Ardiansyah BAPPEDA Kutai Kartanegara Edy Santoso BAPPEDA Kutai Kartanegara Sri Budiarti BAPPEDA Kutai Kartanegara H. Ibnu Majah Sub Dinas Tata Ruang Fadli Ardin Sub Dinas Perkebunan H. Sulaiman Usman Sub Dinas Pekerjaan Umum Slamet Hadiraharjo Sub Dinas Kehutanan Masriel Y Luhur Prasetyo Alhamizinor Nurul Hidayah KUTAI BARAT Drs. Aminuddin Petrus Idwantono Abimael Drs Abednego Ir.H.M.Sofyan, MA Ir. Mesakh Pali Asmuni Dr Paulus Matius Jumila Drs.Yohanes Kinam Puji Rinjani, SH F. Syamdikahman Stivanus Asyia, SE Ignatius Ledok Lawa Naam Baan, ST Imansyah Said A Wahyudinata

Town Mataram

Handphone 08123753890

Samarinda Samarinda Samarinda Sangatta Sangatta Sangatta Sangatta Samarinda

08164576737 0811586075 0811553483 0541-739174 0541-661073 0541-661073 0811558520 08125501936

Sangatta Sangatta Sangatta Sangatta Sangatta Sangatta Sangatta Sangatta Sangatta Sangatta

081346303510 081347038164 08125465985 081347251312 0811580823 08125511076 0811583842 0811556292 08134620-3625 08125881099 081347730039

Tenggarong Tenggarong Tenggarong Tenggarong Tenggarong Tenggarong Tenggarong Tenggarong

Sub Dinas Pertambangan Sub Dinas Pertambangan BAPEDALDA BAPEDALDA

Tenggarong Tenggarong Tenggarong Tenggarong

0811550993 0811550107 08125837810 08125508224 08134629378 0541-661073 0811559011 0541-201149 08125802655 08125814374 0811587573 08125547967 081347107333

BAPPEDA Kutai Barat BAPPEDA Kutai Barat BAPPEDA Kutai Barat Kepala Dinas Kependudukan Kepala Dinas Pertanian Sub Dinas Persuhaan Umum Sub Dinas Kehutanan Sub Dinas Kehuntanan Sub Dinas Kehutanan Kepala Dinas Bina Sosial Pemda Kutai Barat Pemda Kutai Barat Kepala TU Dina Tenaga Kerja Dinas Kesatuan Bangsa dan Politik Sub Dinas Persusahaan Sub Dinas Pertambangan dan Sumber Daya Alam Dinas Pertambangan

Melak Melak Melak Melak Melak Melak Melak Melak Melak Melak Melak Melak Melak Melak Melak Melak Sendawar

08125845184 08125528948 081347674611 08125518954 081346345344 081347970912 08152052086 08125474048 081347267072 0813471131906 08125882838 081346238690 081347231369 08125505358 081347060788 081346272291 081384647798

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Appendix 19: Website Structure

URL http://nrm-df.bppt.go.id Tentang Kami * About Us

Latar Belakang dan visi/misi dari kegiatan PSDA dalam Kerangka Desentralisasi Background and Vision/Mission Statement of NRMdf

Berita * News

Artikel-artikel terbaru yang berhubungan dengan desentralisasi PSDA News articles related to decentralized NRM

Publikasi

Literatur, laporan, analisa dan pendekatan yang berhubungan dengan desentralisasi PSDA Literature on decentralized NRM

Publications Glosari Glossary of Terms x Singkatan Abbreviations

Daftar kosa kata ttg PSDA List of NRM-related abbreviations

x Definisi Definitions

Daftar definisi List of NRM-related definitions

Proyek Projects x PSDA-kod / NRMdf o Tentang Kami About Us

Penjelasan singkat mengenai proyek PSDA-kod Brief explanation about the project

o Kegiatan Activities

Kegiatan-kegiatan yang dilakukan dalam proyek NRMdf Project activities

o Mitra Partners

Keterangan mengenai Kabupaten mitra dalam proyek beserta link ke websitenya Information on district partners and links to their websites

o Jejaring Komunikasi Communication Network

Jejaring komunikasi buat mitra, sbc, milis email Communication network for partners, e.g., email group

x Proyek Lainnya terkait dgn decentralisasi PSDA Other Projects related to decentralized NRM

Ruang untuk proyek-proyek lain yang berhubungan dengan PSDA Space for other projects related to decentralized NRM

Gudang Informasi Information Clearing House x Kajian Lingkungan Strategis (KLS ~ KASDAL) Strategic Environmental Assessment (SEA) o Tentang About SEA

Penjelasan singkat mengenai KLS Brief explanation of SEA

o Publikasi Publications

Literatur, laporan, analisa dan pendekatan yang berhubungan dengan KLS Literature, reports, analyses and approaches related to SEA

o Kegiatan Activities

Kegiatan-kegiatan lapangan atau proyek yang berhubungan dengan KLS Field-level activities or projects on SEA or related initiatives

o Link Link

Link ke website lain yang membahas KLS Links to other websites that discuss SEA

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o Diskusi Discussion

Fasilitas interaktif untuk publik memberikan pertanyaan, pendapat dan komentar seputar KLS/SEA

x Indeks Kualitas Lingkungan (IKL) Environmental Performance Index (EPI) o Tentang

Penjelasan singkat mengenai IKL/EPI

o Publikasi

Literatur, laporan, analisa dan pendekatan yang berhubungan dengan IKL/EPI

o Kegiatan

Kegiatan-kegiatan yang berhubungan dengan IKL/EPI

o Link

Link ke website lain yang membahas IKL/EPI

o Diskusi

Fasilitas interaktif untuk publik memberikan pertanyaan, pendapat dan komentar seputar IKL/EPI

x Neraca Sumber Daya Alam (NSDA) Natural Resource Accounting (NRA) o Tentang

Penjelasan singkat mengenai NSDA/NRA

o Publikasi

Literatur, laporan, analisa dan pendekatan yang berhubungan dengan NSDA/NRA

o Kegiatan

Kegiatan-kegiatan yang berhubungan dengan NSDA/NRA

o Link

Link ke website lain yang membahas NSDA/NRA

o Diskusi

Fasilitas interaktif untuk publik memberikan pertanyaan, pendapat dan komentar seputar NSDA/NRA

x Kesadaran Perencanaan Planning Awareness o Tentang

Penjelasan singkat mengenai Kesadaran Perencanaan / Planning Awareness

o Publikasi

Literatur, laporan, analisa dan pendekatan yang berhubungan dengan Kesadaran Perencanaan / Planning Awareness

o Kegiatan

Kegiatan-kegiatan yang berhubungan dengan Kesadaran Perencanaan / Planning Awareness

o Link

Link ke website lain yang membahas Kesadaran Perencanaan / Planning Awareness

o Diskusi

Fasilitas interaktif untuk publik memberikan pertanyaan, pendapat dan komentar seputar Kesadaran Perencanaan / Planning Awareness

x Penanganan Konflik Conflict Resolution o Tentang

Penjelasan singkat mengenai Penanganan Konflik / Conflict Resolution

o Publikasi

Literatur, laporan, analisa dan pendekatan yang berhubungan dengan Penanganan Konflik / Conflict Resolution

o Kegiatan

Kegiatan-kegiatan yang berhubungan dengan Penanganan Konflik / Conflict Resolution

o Link

Link ke website lain yang membahas Penanganan Konflik / Conflict Resolution

o Diskusi

Fasilitas interaktif untuk publik memberikan pertanyaan, pendapat dan komentar seputar Penanganan Konflik / Conflict Resolution

Peraturan dan PerundanganUndangan* Laws and Regulations

Daftar Peraturan dan Perundangan yang berhubungan dengan lingkungan List of environmental law and regulations

Buku Tamu *

Tempat pengguna website untuk menuliskan pesan dan kesan pertama saat mengakses isi website

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Guest Book

Site for posting messages to NRMdf website about its general quality and utility

Forum Diskusi *

Fasilitas interaktif untuk publik memberikan pertanyaan, dan pendapat seputar masalah desentralisasi PSDA Interactive facility for the public to submit questions and opinions about decentralized NRM

Discussion Forum Kontak Kami Contact Us Keterangan / Notes * = Bagian website yg sudah ada isi * = Section already with content

Fasilitas email untuk publik menghubungi kantor NRMdf atau pihak-pihak yang bertanggung jawab atas website Email facility for public to get in touch directly with the website administrator

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Appendix 20: Project Milestones Milestone Outputs I.

Comment /1/

PROJECT PROPOSAL MILESTONES

1.

Reviewed and analyzed revised 1999-2004 policy and legislative framework and its impacts on NRM and of roles and functions on different levels of government.

~ Major constraints are contradictory regulations and regulatory gaps and vagueness leading to overlapping roles of agencies at different administrative levels, as well as efforts of some national agencies to micro-manage regional NRM.

2.

Recommend institutional strengthening and reform LGs and synchronized functioning between all levels of Government.

~ Specific coverage of the organization of regional environmental agencies.

Reviewed and analyzed the spatial planning process at district government level and assess quality of community involvement in NRM at selected pilot areas.

~ Spatial planning process requiring more effective coordination. Potentially important role for the revived BKPRD coordinating agency for regional spatial planning.

4.

Recommend incorporating and mainstreaming NRM and environmental considerations into the district development planning process.

~ Challenge to ensure development planning takes into account spatial planning that is sufficiently sensitive to environmental factors, rather than LG expectations that spatial plans must be designed to achieve economic and social targets.

5.

Develop and disseminate information materials/tools for NRM-based decisionmaking through website and other means to LG and the public.

~ Presentation materials for a suite of tools and approaches prepared and shared with LG in five districts (Papers 40-45 inclusive).

6.

Finalize technical guidelines for economic valuation of natural resources.

~ Handbook.

7.

Define monitoring and evaluation indicators for selected districts.

~ Defined, protocols in preparation. To be sent ahead to districts and provinces, with field-visit follow-up and direct evaluation

3.

~ Importance of guiding principles of good governance developed by MoHA.

~ Very low community involvement remains the norm. Some initiatives have tried greater involvement, e.g., Berau, Lampung Barat.

~ A final set of individual tool presentations prepared as the basis for the preparation of handbooks to be given to the districts during the evaluation phase (Papers 32-39 inclusive).

II.

ADDITIONAL OUTPUTS ARISING FROM REVISED WORK PLAN

A.

Policy and Institutions

8.

On technical report, summarizing policy reforms, identifying key indicators for policy reforms at each level of government.

~ Environmental Performance Index.

9.

On the conflicting, overlapping mandates, authority and jurisdictional issues that we discovered at each level of government, propose policy reforms.

~ Recommendations for draft MoHA decrees on NRM and spatial planning and for MoHA formulation of revision of PP25 of 2000.

B.

Institutional Strengthening of MoHA and Local Governments

10. Agree on MoHA mandate on NRM and specify the appropriate roles, responsibilities and relationships with other agencies and stakeholders of MoHA.

~ Primary recommendation relates to MoHA’s greatest challenge – to develop a respected and vital role in support of decentralized NRM that positively contributes to sustaining and safeguarding growth and development in the regions. Recommendation centers on MoHA promotion of principles of BANGDA’s ten good governance that are cross-cutting across all NRM sectors and fit with general BANGDA vision of development harmonization.

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Milestone Outputs

Comment /1/

11. Develop capacity building guidance with MoHA on participative spatial planning and decision-making tools.

~ Suite of tools and approaches.

12. Prepare change management program for MoHA to support agreed mandate, including capacity development, systems strengthening and procedural reforms.

~ BANGDA categorical that not interested in recommendations for any organizational changes. Facing criticism from sectoral agencies that MoHA is interfering in sectoral NRM matters, MoHA most interested in defining and developing an acceptable and respected role in NRM. Hence, request that NRMdf show how ten non-sectoral principles of good governance can be applied to and influence decentralized NRM.

13. Review the capacity of the LG in each case study, its systems and procedures and agree on mandates, jurisdictions and authorities as well as relationships with other LGs and stakeholders.

~ Forms the basis of NRMdf recommendations to MoHA for revision of PP25 of 2000.

14. Develop operational and administrative procedural guidelines for LG in NRM.

~ A level of recommended technical intervention that is of little value until PP25 is revised. Better to influence PP25 and foster coordination among LG and central institutions where the major NRM constraints lie. ~ Nonetheless, in specific areas LG procedures defined, e.g., for conflict resolution, and regional environmental offices.

C.

Spatial Planning

15. Review/analyze spatial planning process at district governments and assess quality of community involvement in natural resource including integration of spatial planning with local level development plans and economic plans.

~ With few notable exceptions, the conventional consultantbased preparation of spatial plans remains the norm. Nonetheless, LG driven by local demand is often trying to increase capacity to produce spatial plans that are more likely to be respected than in the past.

16. Define natural resource participatory spatial planning process built on local level standards that is integrated with regional strategies for addressing cross-border issues and cumulative effects on resource systems.

~ Cross-border issues include upstream-downstream issues, inter-district, district-township and district-neighboring province.

17. Approaches to conflict resolution and lessons learned from other programs in Indonesia and decentralization programs, and prepare guidelines for LG and spatial planning process.

~ Bringing together awareness of LG partners from the five districts and innovative LG pioneers from other districts.

D.

~ Identifying lessons to be learned and how to share those lessons to ensure they are learned and remembered.

Public and Planning Awareness

18. Develop an inventory and a directory of web page links.

~ Ongoing process as part of efforts to ensure a dynamic website.

19. Develop an information management system that captures data and provides access to information for planning and NRM stakeholders and that is integrated with public reporting responsibilities and district level performance benchmarking.

~ Emphasis on a sub-set of this approach (accessible though the website), namely development of an EPI, library of NRMdf tools and appropriate references, as well as identification of existing information databases.

20. Design a TA public awareness campaign with MoHA staff and LG agencies as primary targets

~ Emphasis, as requested by BANGDA, on planning awareness, that includes a public awareness and participation component.

Natural resources still a potential source for economic development in the regions.

NRM has become a regional authority since Law 32/2004 was legalized.

Rate of natural resource depletion and environmental degradation is very high every year due to uncontrolled exploitation of natural resources for economic development.

Tools are required for considering NRA and capability aspects which support development processes (planning-implementationcontrolling).

ADB-TA 2353-INO (9 months, 2003) dealt with NRM. A project between ADB and GoI with DG for Regional Development (BANGDA) as Executing Agency.

ADB-TA 4687-INO (NRMdf), 2006-2007 (7 months) is another project between ADB and GoI with BANGDA as Executing

1)

2)

3)

4)

5)

6)

Background

To develop the capacity building of LGs in NRM and emphasize on the implementation of the ten Good Governance Principles of BANGDA and NRM aspects in order to have more effective and efficient NRM on short- and longterm activities.

To increase the capacity building of LGs in NRM in the autonomy era based on Law 32/2004 and to support sustainable development.

Purpose

2)

1)

To incorporate environmental capability aspects and NRA into spatial land and sea/ocean.

To increase regional capability in terms of potential natural resources for community welfare.

b.

c.

To manage natural resource through participatory approach in order for all parties to have a sense of belonging to the natural resource.

a.

Specific targets:

To support Local Governments in being autonomous in sustainable NRM.

Ultimate:

Target

a.

Participatory approach related to spatial planning, regional development, registration processes and community income sources. To identify lessons

To cooperate with provincial government and regency in preparing environmental service standards which are adjusted to the capacities and conditions of the regions. To promote natural resource development planning especially for enhancing capacity for spatial planning processes through participatory means, information empowerment, and law enforcement, including:

controlling the decentralized process for NRM. This emphasizes recommendations for (i) institutional strengthening and the development of regional policies, and (ii) ensuring the working of coordinative functions among governance levels.

c. Support MoHA in facilitating and

and coordination between government institutions in terms of NRM.

b. Analyze rights, roles, responsibilities

its impacts on NRM.

a. Analyze policy and law framework and

Policy analysis and institutional strengthening:

Scope

Prepared by DIRECTORATE GENERAL FOR REGIONAL DEVELOPMENT, DEPARTMENT OF HOME AFFAIRS (BANGDA, MoHA) Budget

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Loan: US$50-100 million

DRAFT PROPOSAL FOR A FUTURE PROJECT ON DECENTRALIZED GOVERNANCE OF NATURAL RESOURCE MANAGEMENT

Appendix 21: Proposed Project Concept

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Agency.

Background

Purpose

3)

To spread or disseminate information supporting items 1) and 2).

Target

All of above items above taking into consideration the existing conditions in institutions which are limited in terms of human resources, infrastructure, budget and incentives, during short or long-term activities.

c.

To further develop the website for comprehensive information on decentralization of NRM including base data on natural resources, e.g., success of NRM, participatory approach, efficient relationship between top-down and bottom-up approaches and their case studies. The website has already been built through ADB TA 4687-INO and will be continued to the regions.

To support trust among stakeholders in sharing information on natural resources and the environment.

To disseminate methods or tools to LGs for planning and participatory registration including KLS, NRA, VESDAL and IL to make NRM more effective and controlled.

Application of SEA, NRA, valuation for economic natural resource, and application of EPI as source of information for investors, project assessment and/or budget allocation purposes.

b.

from experience regarding integrated bottom-up and top-down approach including conflict management.

Scope

Budget

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Appendix 22: Evaluation Questionaire PROJECT EVALUATION QUESTIONNAIRE EVALUASI HUBUNGAN PROYEK NRMdf / PSDA-kod DENGAN PEMDA LOKASI TERPILIH Hubungan tersebut terdiri dari pertemuan, lokakarya daerah dan nasional, kunjungan kantor dan lokasi denganTim NRMdf MELINGKARI JAWABAN YG PALING TEPAT (pakai pena atau pensil) JANGAN TULIS NAMA, cuma PROPINSI dan KABUPATEN

LATAR BELAKANG 1. Nama Propinsi dan Kabupaten anda …………………. 2. Apakah tugas anda ada hubungan dgn PSDA, penataan ruang, lingkungan hidup = ya / tidak. 3. Apakah anda berjumpa dgn Tim NRMdf di daerah? Ya / tidak 4. Apakah anda berjumpa dgn Tim NRMdf di lokakarya nasional? Ya / tidak

EVALUASI HUBUNGAN DGN NRMdf 5. Sejauh mana ada masukkan dari Proyek NRMdf yang dianggap ada manfaat ttg tugas ada? 0 = tdk ada, 1 = sedikit, 2 = lumayan manfaat, 3 = sangat manfaat, 4 = paling manfaat 6. Topik NRMdf mana yg penting (bisa melingkari lebih dari satu) – lingkar satu pada nomor = penting, lingkar dua pada nomor = paling penting i. Kesadaran Perencanaan ii. Harmonisasi Kebijakan iii. Koordinasi antar Kelembagaan iv. Pengelolaan Konflik v. Kajian Lingkungan Strategis (KLS) vi. Valuasi Ekonomi Sumber Daya Alam (VESDAL) vii. Produk Domestik Bruto Hjau (PDRB Hijau) viii. Daya Dukung Lahan (DDL) ix. Lain sebutkan ... x. Lain sebutkan ... 7. Informasi topik tersebut diatas yang menarik - tdk cukup, cukup, terlalu banyak 8. Informasi topik tersebut diatas yang menarik - terlalu teknis, cukup teknis, tdk cukup teknis 9. Bahan tertulis dari NRMdf yg disediakan - terlalu banyak, cukup, tidak cukup

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10. Tingkat pengertian anda dari bahan tertulis NRMdf yg disampaikan - semua, kebanyakan, separoh, kurang dari separoh 11. Tingkat pengertian dari apa yang disajikan secara lisan - semua, kebanyakan, separoh, kurang dari separoh.

KOMUNIKASI 12. Sudah coba masuk website NRMdf? ya / belum 13. Kalau “ya”, Sangat puas, puas, kurang puas 14. Kalau ”belum”, kenapa? …………………………………………………………………………………………………………… …………………………………………………………………………………………………………… 15. Apakah nama anda sudah masuk Jaringan Komunikasi (JaKom) Proyek? Ya, tidak, tidak tahu

TINDAK LANJUT 16. Berdasarkan pengelaman dengan Proyek NRMdf apakah Anda akan ada kegiatan baru dalam jangka waktu panjang? Ya /tdk. Kalau ya, apa …………………………………………………………………………………………………………… …………………………………………………………………………………………………………… 17. Berdasarkan pengelaman dengan Proyek NRMdf apakah Anda akan ada kegiatan baru dalam jangka waktu pendek? Ya /tdk. Kalau ya, apa …………………………………………………………………………………………………………… …………………………………………………………………………………………………………… 18. Rekomendasi kegiatan tidak lanjut dari PSDA-kod pada era pasca-Proyek …………………………………………………………………………………………………………… ……………………………………………………………………………………………………………

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Appendix 23: Evaluation Questionnaire for Study Tour

EVALUASI “INTERNATIONAL TRAINING” di NEW ZEALAND MOHON JAWABAN PALING TEPAT DILINGKARI dengan pena atau pensil. JANGAN TULIS NAMA, cuma PROPINSI dan KABUPATEN di bagian nomor 1.

LATAR BELAKANG 1. Nama Propinsi dan Kabupaten anda …………………. 2. Apakah ikut sebagai peserta “international Training Tour” (ITT)

EVALUASI ITT 3. Sejauh mana ITT dianggap ada manfaat ttg tugas ada? 0 = tdk ada, 1 = sedikit, 2 = lumayan manfaat, 3 = sangat manfaat, 4 = paling manfaat 4. Topik mana dari ITT yg penting (bisa melingkari lebih dari satu) – lingkar satu = penting, lingkar 2 = paling penting i. Kesadaran Perencanaan ii. Harmonisasi Kebijakan iii. Aspek kebijakan lain iv. Koordinasi antar Kelembagaan v. Pengelolaan Konflik / Sengketa terkait dgn PSDA vi. Kajian Lingkungan Strategis (KLS) vii. Valuasi Ekonomi Sumber Daya Alam (VESDAL) viii. Produk Domestik Bruto Hjau (PDRB Hijau) ix. Daya Dukung Lahan (DDL) x. Monitoring Lingkungan Hidup xi. Lain sebutkan ... xii. Lain sebutkan ... 5. Penyajian informasi ttg topik tersebut diatas yang menarik - tdk cukup, cukup, terlalu banyak 6. Informasi topik tersebut - terlalu teknis, cukup teknis, tdk cukup teknis 7. Bahan tertulis yg diberikan - terlalu banyak, cukup, tdk cukup 8. Dapat mengerti bahan tertulis tersebut - semua, kebanyakan, separoh, kurang dari separoh 9. Dapat mengerti apa yang disajikan secara lisan - semua, kebanyakan, separoh, kurang dari separoh.

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KOMUNIKASI 10. Sudah coba masuk website dari kelembagaan yg diperkenalkan pada waktu ITT sebagai sumber informasi ttg PSDA di NZealand? ya /belum 11. Kalau “ya”, Sangat puas, puas, kurang puas 12. Kalau ”belum”, kenapa? …………………………………………………………………………………………………………… …………………………………………………………………………………………………………… 13. Apakah nama anda sudah masuk Jaringan Komunikasi (JaKom) Proyek NRMdf? Ya, tidak, tidak tahu

TINDAK LANJUT 14. Berdasarkan pengelaman ITT apakah Anda akan ada kegiatan baru dalam jangka waktu panjang? Ya /tdk. Kalau ya, apa …………………………………………………………………………………………………………… …………………………………………………………………………………………………………… 15. Berdasarkan pengelaman ITT apakah Anda akan ada kegiatan baru dalam jangka waktu pendek? Ya /tdk. Kalau ya, apa …………………………………………………………………………………………………………… …………………………………………………………………………………………………………… 16. Rekomendasi kegiatan tidak lanjut dari ITT pada era pasca-Proyek …………………………………………………………………………………………………………… ……………………………………………………………………………………………………………

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Appendix 24: Study Tour Group

INTERNATIONAL TRAINING TOUR (ITT) GROUP

A.

NATIONAL COUNTERPARTS

1.

MINISTRY OF HOME AFFAIRS 1. Mr Syamsul Arief Rivai, Director General for Regional Development, MoHA, Jakarta. o

Head of NRMdf executing agency. Interest in:  Roles and responsibilities of MoHA in facilitating better environmental management.  Ensuring project continuity.  Integrating appropriate environmental considerations in spatial planning.

2. Mr Sjofjan Bakar, Director of Directorate for Facilitating Spatial Planning and Environmental Management, Directorate General for Regional Development, MoHA, Jakarta. o

Senior Counterpart of NRMdf Executing Agency. Recently appointed to this position. Interest in:  Upstream-downstream issues of NRM.  Integrating appropriate environmental considerations in spatial planning.

3. Mrs Diah Indrajati, Head of Sub-Directorate for Capacity-building, Directorate for Facilitating Spatial Planning and Environmental Management, Directorate General for Regional Development, MoHA, Jakarta. o

2.

Daily counterpart for natural resource governance, under Mr Sjofjan (2, above), MoHA Executing Agency for NRMdf. Hands-on involvement with the NRMdf project. Interest in:  Practical application of SEA.  Coordination among government agencies involved in decentralized NRM.

NATIONAL PLANNING AGENCY (BAPPENAS) 4. Mr Medrilzam, Directorate for Environment, National Planning Agency or BAPPENAS, Jakarta. o

3.

Daily counterpart for natural resource management, Directorate for Environment, National Planning Agency or BAPPENAS. Interest inL  System dynamic modeling for SEA parameters.  EPI for districts linked to central government disbursements to districts.

AGENCY FOR ASSESSMENT AND APPLICATION OF TECHNOLOGY (BPPT) 5. Mr Awal Subandar, Agency for the Assessment and Application of Technology or BPPT, Jakarta. o

Daily counterpart for NRMdf website development. Interest in:  NRA and Green GDP.

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B.

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REGIONAL PARTNERS 6. Mr Zairin Zain, Head of Sub-Division for Natural Resource Management and Regional Facilities, Provincial Planning Agency or BAPPEDA for East Kalimantan Province, Samarinda, East Kalimantan. o

Regional partner for coordination of district governments for development of provincial spatial plan.

7. Mr Ordiansyah, Head of Sub-Directorate for Spatial Planning and Land Planning, BAPPEDA for East Kalimantan Province, Samarinda, East Kalimantan Province. o

Regional partner for resolving spatial plan alternatives. Keenly aware of the challenges of getting regional and central agencies to work together to resolve differences over alternative spatial planning proposals.

8. Mr Ahyani Fadianur, Head of Sub-Directorate for Physical Planning and Regional Planning Agency, District Planning Agency or BAPPEDA for Kutai Kartanegara District, Tenggarong, East Kalimantan Province. o

Regional partner for resolving spatial plan alternatives. Kutai Kartanegara is one of the most resource-rich districts in Indonesia (oil, gas, forest and estate crop plantations).

9. Dr Paulus Matius, Head of Forestry Service, West Kutai District, Melak, East Kalimantan Province. o

Regional partner. His agency is a key agency in developing a LG (parliamentary) regulation on community involvement in forestry resource management.

10. Mr H. Moh. Taufik, Head of District Planning Agency or BAPPEDA for West Lombok District, Mataram, Nusa Tenggara Barat Province. o

Regional partner for developing appropriate district engagement strategies. Introduced the project to the need to “THINK BIG, start small.”

11. Mr Lalu Suhaidi, Head of Sub-Directorate Forestry and Horticulture for West Lombok District, Mataram, Nusa Tenggara Barat Province. o

Regional partner for promoting community forestry to establish agroforests that protect river basins originating from Mount Rinjani. Interest in:  Community forestry managed by smallholder tree farmers. Experiences in West Lombok District.  Achieving better dialogue between regional and central forestry government agencies.

12. Mr Kasmiri, Assistant to Head of District Planning Agency or BAPPEDA for Cianjur District, West Java Province. o

Regional partner. Interest in:  Rural-urban relationships  Conflicts over NRM.