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THINKING beyond the canopy
Political Economy of Fire and HazeHerry Purnomo, David Gaveau, Rachel Carmenta, Bayuni Shantiko and
Budhy Kristanty
British Embassy, Jakarta, 26 October 2015
THINKING beyond the canopy
Political Economy Study Funded by DfID-UK (January-December
2015) – Extended to 2017 Aims to better inform decision makers with
an understanding of the on-the-ground dynamics (economic, social, and political) that are resulting in fire.
THINKING beyond the canopy
Sites and Methods Riau Province
11 sites represent clearly identifiable fire ignition points
Part of the largest fire events in 2013, 2014 and 2015
Methods• Mapping, surveys, policy
reviews, FGDs, CBA and network analysis.
No Site name District Characteristic1 Ayu Junaidi Dumai Fire occurred in community land (2014)2 Giam Siak Bengkalis Fire occurred in state land (2013, 2014)3 Pulau Rupat Bengkalis Fire occurred in village proliferation area
(2013, 2014).4 Rokan Adi Karya Rokan hulu Fire occurred in APL (area penggunaan
lain/land for other land use) and private HGU (hak guna usaha/land cultivation right) (2013)
5 Satria Perkasa Agung (SPA)
Dumai Fire in state land and far from village/settlement area (2014)
6 Sumatra Lestari (SL) Rokan Hilir Fire in community land (2013)
7 Suntara Gaja Pati (SGP)
Dumai Fire in private HGU land (2013, 2014)
8 Torganda Rokan Hilir Fire occurred in village proliferation area9 Tumpuan Bengkalis Fire in private HGU land (2010)10 Buruk Bakul Bengkalis Fire in land ex-managed by cooperative
(2014, 2015)11 Kampung Jawa Bengkalis Fire in community land (2015)
THINKING beyond the canopy
Findings The situation on the ground is really complex Caused by multiple actors
• Government, private actors, local community and non-state actors
Multiple land types• State forest area, corporation concession,
private/community lands• Peat and mineral soil
Multiple drivers• Economy, politic, social and climate/weather
Who gets what: Slash and clearing cut
Village head & officers $88 (13%)
Land claimant,$29 (4%)
Farmers group member, tree cutting $77(12%)
Farmers group member, slashing $96 (14%)
Marketing team $38 (6%)
Total BenefitSlash & cut$665/ha
Farmers group organizer $338 (51%)
Economy of Fire
Who gets what: Burning land (ready to plant)
Village head & officers $88 (10%)
Land claimant,$38 (4%)
Farmer group member, tree cutting $77 (9%)
Farmer group member, slashing $96 (11%)
Marketing team, $54 (6%)
Total Benefit$856/ha
Farmer group organizer $486 (57%)
Farmer group member, burning $15 (2%)
Farmer group member, cheap/free land $2 (0.2%)
Village head & officers $88 (3%)
Land claimant,$38 (1%)
Farmer group member, tree cutting $77 (3%)
Farmer group member, slashing $96 (3%)
Marketing team, $54 (2%)
Total Benefit$3,077/ha
Farmer group organizer$1567 (51%)
Farmer group member, burning $15 (1%)
Farmer Group member, cheap/free land $2 (0.1%)
OP development$992 (32%)
Farmer group member, OP maintenance wage
$147 (5%)
Who gets what: Three-year oil palm
THINKING beyond the canopy
Between-ness centrality: The most influential actors in brokering land transaction
Law and regulationsLaw Article About Controversy
41/1999: Forestry
50: 3d 78: 2
Prohibit to burn and sanction
39 /2014: Agricultural plantation
56 108
Prohibit to burn and sanction AND further detail on fire uses
Agricultural Minister regulation No. 47/2014
UU 32/2009: Protection and management of environment
69:1.h; 2 and explanation of 2
116
Prohibit to burn with exception for traditional uses ANDSanction
Govt. Regulation: - Central Kalimantan: No 15/2010 - Riau: No 11/2014
THINKING beyond the canopy
Land usesTimber logging
3%Oil palm in forest
area7%
Oil pam in APL13%
Planted forest20%
Overlapped2%
APL outside oil palm23%
Forest area
outside conces-
sion32%
Fire SpotsTimber logging
4%
Wood plan-tation23%
Oil palm - APL11%
Oil palm- forest area5%
Overalpped2%
Non-OP - APL34%
Non-concession - forest area
21%
Fire intensity (fire spots/million ha area)
Timbe
r logg
ing
Woo
d plan
tation
Oil palm
- APL
Oil palm
- fore
st are
a
Overal
pped
Non-O
P - APL
Non-co
ncess
ion - f
orest
area
- 50
100 150 200 250 300 350 400 450 500
2000 2001 2002 2003 2004 2005 2006 2007 2008 2009 2010 2011 2012 2013 2014 20150
5,000
10,000
15,000
20,000
25,000
30,000
35,000
0
20
40
60
80
100
120
Fire spots District election National election
Fire Spots and District election
THINKING beyond the canopy
Fire Fighting VS Fire Prevention
Many government agencies prioritize fire fighting (e.g. water bombing, rain-making) over fire prevention (e.g. canal blocking, community-based water management, conflict resolution, spatial planning)• Visible and creates many new income streams
through jobs, equipment and other payments• Budget politic
Needs to shift to fire prevention for long-term solution
THINKING beyond the canopy
Key points Many players benefit enormously from fire. The scale of these financial benefits means
livelihoods alternatives need to be significant. These players (elites or cukong) wear multiple
hats e.g. farmers, politicians, businessmen, government officers and academician.
These elites form protective patronage network that hinder the government’s capacity.
Actors who get benefit are not those who suffer from fire
THINKING beyond the canopy
Efforts to Overall Goals
Reconciling agriculture development and forest conservation
Moving to Inclusive Green Growth
THINKING beyond the canopy
Proposal for the future (1) Public investment (fiscal policies to address the
needs of rural people, such as schooling, healthcare, job creation, incentives for non-fire agriculture);
Engagement by banks and financial institutions to curb inappropriate investments (in Indonesia and abroad) by conditioning financial services;
Deeper engagement with corporations active in large-scale land use;
THINKING beyond the canopy
Proposal for the future (2) Easing bureaucracy and raising the accountability
of public institutions and government; Reforms of land-use and land tenure policies and
spatial planning to reduce commercial use of peatlands;
Targeted public awareness campaigns (education, TV, media, social networks) to promote sustainable development, alternative technologies/investments in agriculture and enforcement reforms.