M

ay and June are shaping up to show if Indonesia has achieved significant progress in promoting better land-use management, particularly in reducing deforestation and land degradation.

May 20, for instance, marks the completion of the first year of Indonesia’s two-year moratorium on new permits for primary forest and peat-land clearing. June 5 is World Environment Day, with its “Green Economy: Does it Include You?” theme — in which land-use management is considered to be one of six high-growth sectors in the green economy.

The moratorium is an integral part of REDD+ (reducing emissions from deforestation and forest degradation, conservation and enhancement of forest carbon stocks, and sustainable management of forest) policy development and is expected to improve forest and land-use governance, especially in synergizing mapping and licensing systems.

A synchronized, synergized and agreed-to map — adhered by various sectors and layers of government — of forest and land use in Indonesia is fundamental to address the challenges facing our land-use management.

The recent debate between Greenpeace and the President’s special staff on climate change on the exact figure of forest cover loss has reaffirmed the importance of having a credible, reliable, accessible and transparent mapping system of forest and land use. Without that, Indonesia cannot measure and account for greenhouse gas emissions, land-use changes and forests.

More importantly, a credible map would lay the foundations for the settlement of land conflicts.

In December 2010, the Corruption Eradication Commission (KPK) found in its study on forestry policies and systems that a synchronized map of forest areas that can be used by stakeholders did not exist. Instead, there were at least four different versions that, utilizing various scales, were incompatible with each other.

According to the KPK, the lack of a consolidated map, coupled with unclear definitions and boundaries of forest areas as well as a lack of fair procedures in designating forest areas, has weakened the legitimacy of 88.2 percent of forest areas, or more than 105.8 million hectares.

Despite the fact that it is very challenging to have an agreed map, given the variety of sectors and actors that have interests in forest and land use, it appears that this issue has been gradually addressed through the development and refinement of the moratorium-indicative map (MIM).  

The REDD+ taskforce, which is given a mandate by Indonesia’s President to develop the national REDD+ strategy, has been working with different agencies to arrive at an agreed, indicative map of the moratorium, to avoid confusion and create legal certainty.

The agencies include the National Survey and Mapping Coordinating Agency (Bakosurtanal), the Forestry and Agriculture Ministries, the National Land Agency (BPN) and the President’s Delivery Unit for Development Monitoring and Oversight (UKP4).

The MIM is required to outline the areas covered in the moratorium and is being updated every six months to integrate the latest sets of data from additional agencies and to incorporate results from site visits.

To date, a second MIM is available, albeit with some discrepancies of figures between the two maps, as reported by the taskforce.

In the first MIM, the total moratorium area was 69.1 million hectares with, primary forests and peat-land accounting for 7.2 million and 10.68 million hectares. In the second MIM, the total moratorium area was reduced to 65.5 million hectares, with primary forests and peat-land covering 8.39 million and 5.9 million hectares.

Overall, the total change in moratorium area is 3.6 million hectares, with changes in primary forests and peat-land of 1.16 million and 4.76 million hectares.

The taskforce argues that such differences occurred because the first MIM only used definitions of natural-primary forests from the Forestry Ministry and definitions of peat-land from the National Development Planning Board (Bappenas) and Wetlands International, incorporating areas with ongoing land-use activities such as for estate crops and settlements, covered only by licenses issued by the ministry without any field-survey
components.

The second MIM, according to the taskforce, has covered information provided by different agencies involved. This map, for instance, has taken into account the definitions and data of peat-land from the Agriculture Ministry, licenses issued by the BPN, and some field studies and research on peat-land nationwide.

Since there are many sectors and actors involved, it is understandable that synchronizing the map may add or reduce the relevant forest and land cover figures. Also, negotiations and trade-offs are likely to take place among these sectors and actors.

To obtain a credible map, however, such processes need transparency that allows the wider public to access the map.

The recent case of the clearing and burning of Tripa peat-swamp forests for palm oil in Aceh’s Nagan Raya district is a clear example of a “small” but serious discrepancy of forest and land cover in the MIM that needs to be urgently addressed, especially when it comes to monitoring and evaluating land-use licenses and activities in more than 400 local governments.

The involvement of civil society in protesting the license issued for this land and reporting this case to the central government has eventually pushed the REDD+ taskforce, the Environment Ministry, the National Police and the Attorney General’s Office investigate this case.

This recent case clearly provides a valuable lesson. For instance, to avoid future land conflicts at the local level, improving spatial resolution of the MIM needs to be prioritized.

Further, it is imperative not only to produce a common map not only for the sake of legal certainty but to also provide credible and transparent mapping and licensing systems — feeding back to district/provincial land-use policies and regimes — so that land-use management will bring about better social, economic and environmental outcomes.

Fitrian Ardiansyah is a doctoral candidate at the Australian National University and a recipient of an Australian Leadership Award and an Allison Sudradjat Award. Thomas Barano is conservation spatial planning specialist of WWF-Indonesia.