Paper parks no more: Is sustainable park management possible?
Paper parks no more: Is sustainable park management possible?
M. Indrawan
Jakarta
Protected parks continue to be a source of controversy in
Indonesia as much as many other country of the South.
Establishments of the parks are frequently based on biophysical
considerations, but often overlook the socio-economic interests
of the local communities. This often triggers resistance by those
local communities, and the reason why certain protected areas
have become "paper parks".
Paper parks exist only on paper despite their physical
presence, because the stewards of such parks do not involve local
communities as the main beneficiaries. Even the supposedly
altruistic conservation measures may be equated with
"commercialization", as was the case with the recently
established Merapi-Merbabu National Park in Central Java.
Horizontal and vertical conflicts in managing national parks
have emerged throughout most of Indonesia. Leuser National Park
in northern Sumatra (lying in both North Sumatra and Aceh
province), which used to be one of the most pristine and largest
national parks in Indonesia, continues to be ruined by illegal
logging, and the construction of the Ladia Galaska highway. This
highway's construction, which effectively cuts the park in two,
was also conducted without proper public consultation.
Local communities participating in illegal logging and land
clearance have become a real problem for park authorities at
Bukit Barisan Park in Lampung. The establishment of Ciremai Park
in West Java, was immediately responded to with protestations by
local NGOs and some local communities who felt they were never
involved during the decision-making process.
At Kutai National Park in East Kalimantan, the local
government released portions of protected lands to new settlers,
which turned out to be used for uncontrollable logging and
cultivation activities.
Different regional governments have staked claims over the
rich marine resources of the Tomini Gulf (Central Sulawesi), a
part of which was decreed last year by the central government as
Togian National Park. The parks in Papua are commonly fraught
with (frequently legitimate) traditional claims by indigenous
communities needing short-term income, but frequently vulnerable
to being coopted by illegal logging "investors" and then
contribute to community poverty.
To maintain a sustainable park management it needs to
facilitate communities and relevant stakeholders to make an
informed choice and effective policies, respectively. Structured
and frequent public consultation with people that live in the
area -- the bottom-up approach -- which effectively takes the
knowledge and perspectives from a variety of stakeholders may
help.
First, proper resource valuation is needed. Costs incurred by
local communities through the potential loss of income, for
instance, should be calculated as such. Intangible items should
also be calculated. For instance, what is the net value of clean
water from Mt. Merapi, if the area is managed as a protected
area? Accurate natural-resource accounting has actually been done
for several national parks in Indonesia, including Kerinci-
Seblat.
Second, the cost-benefit analysis should be disseminated so
people can make informed decisions. Communications specialists
and civil society organizations (CSOs) need to work together to
translate the economic options to enable local communities to
fully understand the mission.
Third, if all understand the public aspirations, it will be
easier to make informed decisions. Do local communities think
that the park has more costs or more benefits? Even in a heavily
degraded ecosystem in uncontrolled new settlements, the
indigenous local communities may still want the park, as was the
case in Kutai. Even if local communities near the forest do not
want a park established, at least proper dialog can lead to an
informed choice.
If local communities are keen on a new park being established,
the fourth step would be to foster negotiations between
communities and the government.
The private sector should be involved as well, including in
cases of mining in protected forests. Clear and transparent rules
and guidelines, including aims and objectives of collaborative
management should be agreed upon.
The interest of local communities should be effectively
represented to the highest level possible, by direct involvement,
and from the planning stages. The rules and guidelines should
also include pre-set arbitration mechanisms to resolve potential
conflicts.
Local incentives need to be developed, for instance:
supporting local agricultural systems, local innovations of
renewable energy, local-specific environment-friendly technology,
and perhaps even provision of scholarship to the local folks.
Third party costs should be recognized as it is. User fees should
be applied and be re-distributed to properly benefit the local
communities. Local legislature, legal experts, community
representatives and business entrepreneurs -- including small and
medium enterprises need to be participated.
Fifth, formalize the social and economic agreements into the
written rules and regulations such as regional regulations.
Participatory zoning systems should be applied as needed.
Sixth, ensure that the land use policies in adjacent regions
are synchronized to prevent conflicts of interest, especially
between different regional administrations. Some parks in
Indonesia encompassed more than one region, and cross even the
provincial borders, for instance Leuser, Kerinci-Seblat and
Dumoga-Bone. In regions with neighboring protected areas,
measures must be spent to institutionalizing coordination
mechanisms and synchronizing land use policies. The regional
policies should necessarily comply with higher order rules and
regulations, at the national level.
Seventh, participatory monitoring mechanisms should be
incorporated into the regional regulations.
An effective partnership in park governance would need to
include local government agencies and legislature, community
representations, CSOs, as well as social specialists,
communication specialists, legal specialists, local entrepreneurs
and especially committed negotiators.
There are causes for optimism. Only last year, two community-
based forums in Sulawesi (Forum Perduli Bunaken in Bunaken NP,
and Ngata Toro in Lore Lindu NP) were recognized with
international awards from the United Nations Development Program,
for integrating poverty alleviation with nature conservation.
The writer is Assistant Editor of Tropical Biodiversity -- an
international scientific journal published in Indonesia, He can
be reached at tropbiod@pacific.net.id)