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The large and complex nation of Indonesia displays wide variability in both
indigenous agriculture and population densities, a result both of its physical
resource base and its historical and cultural evolution. Crowded Java may be
considered a ‘special case’ because of its extraordinarily high rural densities.
Parts of the Javanese uplands present an ideal laboratory for testing Boserup’s
ß Victoria University of Wellington, 2001. Published by Blackwell Publishers, 108 Cowley Road,
Oxford, OX4 1JF, UK and 350 Main Street, Malden, MA 02148, USA.
Asia Pacific Viewpoint Volume 42 No 2/3
theory over historical time, especially local adoption of new technologies and
new livelihood strategies as numbers increased (Nibbering, 1991). However,
this paper concentrates on ‘Outer Indonesia’, with lower densities and more
extensive and diverse systems. It examines the impact of centralised
government policy during the Suharto period, imposed in uniform fashion to
control land and forest resources and induce agricultural change.
From about 1970 a succession of policies opened the moist forests to logging
concessions, followed by pulpwood and later oil palm plantations, while drier
areas experienced compulsory reforestation. Rural populations found themselves
facing competition for their land or forced to occupy a smaller area. They were
pressured to move away from swidden, and sometimes had no alternative but to
comply. To combat these pressures and retain their land they adopted strategies of
intensification, planting wet rice or tree crops as markets became more accessible.
Such changes were sometimes (but not always) accompanied by population
increase. While local numbers grew, more important were the introductions of
displaced or resettled populations who competed with residents for scarcer
resources. Some ‘intensification’ was more apparent than real, some ‘cash crops’
previously despised weeds. This paper presents a series of field-based case studies
to illustrate these trends. The behaviour of these rural smallholders is far from
that of the simplified Boserupian model. Neither does it conform to one of the
salient characteristics identified by Netting (1993), as many are now completely
market-oriented, preferring to purchase food rather than secure their own
subsistence. Yet undoubtedly most now operate under what Stone (this volume)
has defined as ‘Rising ‘‘Population pressure on resources’’ (PPR) within a
constrained area’. The Boserup model may thus still be a useful starting point for
reflecting on the transformations which have occurred.
More interesting and varied are the different forms of upland agriculture,
where comparative neglect by government has allowed more scope for
individual and communal decision-making to adapt to changes in conditions.
Such systems demonstrate varying levels of success in innovation in response
to perceived pressures, and varying sustainability (Palte, 1989). One of the
most interesting is in the Gunung Kidul region of Yogyakarta, classified as the
most overpopulated in Java and Bali in relation to land capability (Whitten et
al, 1996). Nibbering’s detailed account of change in vegetation, population and
farming techniques in the Thousand Hills (Gunung Sewu), the most difficult
limestone karst section of Gunung Kidul, is a classic analysis of innovation and
intensification (Nibbering, 1991, 1997). Growing population pressure through
150 years resulted in environmental deterioration, especially replacement of
woodlands by Imperata cylindrica grass and extensive soil erosion.
People’s responses over time have included: terracing; introduction of cattle
to control the grass and provide manure; crop change from rice to cassava;
replacement of fallowing by permanent cropping; replacement of ploughs by
hoes as the ground became more stony; planting of fodder trees for then stall-
fed cattle and large scale out-migration. Most recently there has been more tree
planting, of fast-growing exotics for fuelwood and teak as a ‘bank’ for the
future (Filius, 1997). Population growth rates are now low, and although
erosion continues, it has become a minor problem.
with valuable fruits, nuts, resins and rattans became domesticated in house
gardens and planted in swidden fallows. For example in West Kalimantan, the
trees producing illipe nut (tengkawang, Shorea sp.), damar resin (other Shorea
sp.), gaharu (Aquilaria sp.) and gutta percha (Palaquium sp.), were all
domesticated by indigenous cultivators (Schuitemaker 1933a,b; Ozinga, 1940).
Exploitation of the dipterocarp timbers, which formed their richest stands in
Kalimantan and Sumatra, had barely begun before the Suharto era.5
in which HTI had failed or been abandoned. Such areas may be released to
conversion forest if it can be proved that the natural forest is already degraded.
The provincial governor must apply to the Minister of Forestry to have the land
reclassified.12 There is considerable evidence that the fires in 1997–98 resulted
partly from land clearing by oil palm and HTI companies, and partly from
intentional degrading by burning off other areas, including production forest
and peat swamps. Not even national parks were exempt (Potter and Lee,
1998b). Government forestry companies (Inhutani), which had taken over
former forest concessions to set up tree plantations on the land, now have
permission to plant 30 per cent of that land in oil palm, further relaxing the
boundaries of the production forest. Areas of traditional agriculture, especially
swidden fallows but also smallholder rubber and intensively farmed mixed
gardens, have been placed under considerable pressure by these activities.
Some oil palm companies hired outsiders to burn village gardens in areas
where they wanted control of the land (Goenner, 1998).
local springs had also been cut off. Coastal villagers protested and were able to
reduce company encroachment, but still lost territory. These villages possessed
wet rice land, so were not as badly off, they were barred from working for the
company because of their protests. They had to accommodate more resettled
people in addition to losing land. Consequently, they were working their wet
rice fields more intensively, while eliminating swiddening from their mix of
livelihood strategies (Mann, 1999). Resettled populations were intensively
working their lowland house gardens, planting fruit trees to make up for the
agroforests lost around their mountain springs. However, population densities
were highest in the upland villages, quadrupling in one village from 50 to 200/
sq km on the land remaining after the trees were planted. Those villagers have
been unable to adjust their farming systems to accommodate such a massive
loss of land and other resources, and they may be forced to leave the area.
Oil palm
Although officials have been enthusiastic about this crop and its supposed
wealth-generating opportunities for smallholders, a study in West
Kalimantan of the early state-run schemes, which were the most generous
in their provisions for locals, discovered widespread dissatisfaction with
incomes actually earned (Potter and Lee, 1998a). Yields seemed to have
declined prematurely, although theoretically at their peak with 15-year-old
trees. At the same time, costs of inputs had risen dramatically, especially
fertiliser, which farmers had to buy from the company. The payment they
received for their fruit, however, had not changed. Smallholders still had
other land to which they could direct resources: in West Kalimantan they
redirected some of their compulsory fertiliser purchase and more of their
time towards food crops; in Jambi (Sumatra) it was common to divide
labour, with women continuing to tap rubber while the men worked the oil
palm. However, if all the land scheduled to be turned over to oil palm is
actually developed, then the land market will become very tight, and rubber
smallholders will be pressurised into either selling out or intensifying their
production. Land prices escalated in Batanghari district, Jambi, from Rp1000
per hectare pre-oil palm to Rp300 000 per hectare in November 1997 (Potter
and Lee, 1998a).
The impact of the crisis and recent low prices for crude palm oil have
subsequently slowed oil palm development, with several Indonesian
conglomerates becoming technically bankrupt (Casson, 2000). Despite
attempts by smallholders to take back their land, where they claim to have
been pressured unfairly or to have received inadequate compensation, in
general the large estates have been protected by the security forces. Takeovers
of the assets of failed companies by Malaysian conglomerates have been taking
place15, and there is every sign that ‘oil palm fever’ (demam sawit),16 with all
its associated pressures, is set to resume and continue.
Cocoa in Sulawesi
Li and Mamar (1991) in their study of the Tinombo region of Central Sulawesi,
describe a district in which isolation and a lack of desired timber species
enabled indigenous people to pursue their agricultural strategies undisturbed by
either logging companies or officials. Nevertheless, information about
important innovations did reach the district. It occupies three ecological
zones: the coast, the middle hills and the inner hills. From 1987, hundreds of
thousands of cocoa trees were planted by small farmers in the middle hills.
This region, supporting an Islamic population of around 35/ sq km, was quite
heavily farmed, normally raising two corn crops per year together with hill
rice, shallots, peanuts and cassava. Soils were infertile and eroding, slopes 20–
30 degrees. Many fallows were for two to three years only, with a succession to
grass or light bush. Although population was not increasing and out-migration
had occurred from some villages, the slow decline of productivity after up to
ninety years of use induced farmers to innovate. Two innovations tried were
planting shallots as a cash crop and ‘living fences’ to protect crops from wild
pigs.17 Both required capital outlays, so not all could adopt them. Intensity of
land use was partly determined by inequality of access, so that families with
more sober attitude to the ‘miracle crop’ and cultivations are becoming more
mixed as other tree crops (but not food crops) are introduced.19
being sold on a daily basis to purchase rice. The carving of a nature reserve
from village land and the closing of other boundaries led to this intensification,
aided by ‘the increased market access that resulted from road improvements,
urbanization, population growth, and sedentarization’ (Peluso, 1996: 542). In a
rich and insightful paper, Peluso suggested that the ‘stereotypical’ Boserupian
model of the intensification of forest and land use towards greater field and
food crop production, had been replaced in these indigenous Borneo societies
by a move away from field crops towards forest and tree crops only (Peluso,
1996: 542). New plantings of durian inside the reserve boundary were made as
a statement of resistance to government restrictions on resource availability.
This village, with its high yielding rubber trees and access to the urban market
of Pontianak for its fresh durian fruit, was in a good position to resist inroads
on its land by plantation companies.
While Peluso was careful to show the ways in which the purposive, current
management practices of Dayak villagers build on traditional procedures,
another study (Smith, 1996) was located in a mainly Banjarese immigrant village
in the southern district of Ketapang. It also successfully operated a complex
agroforestry system, based on subsistence banana and durian cash cropping, with
no rice or other field crop. Householders claimed that the village and its
Banjarese population had been in the area for over a century. Government plans
for this village were to move it from the hillside it currently occupied (just inside
the Gunung Palung National Park) to a nearby mangrove area, so the inhabitants
could engage in wet rice production and become ‘civilised’. Few inhabitants had
any experience with wet rice, and the mangroves, which would be destroyed,
supported the local fishing industry. This is another example of the blindness of
officials towards complex agroforests and their failure to recognise the
legitimacy of long-term occupancy of a site.
There is thus a similarity between many of these reported intensification pro-
cesses. While population has increased in most districts, it is restrictions imposed
by either government edicts and government boundaries, or the encroachment of
plantation companies which have largely triggered changes in agricultural
systems, together with the opening of some areas to new opportunities through
improved market access. Unfortunately, despite the recent understanding by
researchers and scientists of the value of complex agroforests, in terms of
sustainability, nutrient cycling and biodiversity, their lack of recognition by
government authorities raises serious concerns about their future.20
The opportunity to participate in an ‘approved’ agroforestry system, using
leguminous trees on terraces, was turned by farmers in East Sumba to their own
advantage as they gave the impression of intensifying away from swidden. It is
described in the final case study presented here.
which is said to grow better where the tree is present and the branches are fed
to tethered cattle, which are never allowed near the Imperata (Potter, Lee and
Thorburn, 2000).
Grass is graded according to quality, with strict standards maintained in the
workshops of Jimbaran, where the highest quality thatch is made, the product
being also exported overseas. Because of the demand from these workshops,
many people in Bali prefer to grow grass in preference to other crops. They
argue that returns are always assured and there are no problems with disease.
Labour requirements, apart from weeding, are light. While such a system is not
especially ‘intensive’ in terms of inputs, it must be remembered that to tend,
weed, even fertilise Imperata, requires a different mindset from the usual
perception of the grass as a pernicious weed. It has been re-valued as a precious
crop and an expensive roofing material, in Bali more expensive than tiles.
This re-valuing of Imperata is more recent in Lombok, where the trade
started about 1995. The main areas producing grass for export to Bali are near
the port and ferry terminal in the district of Sekotong. Villagers were
expanding their areas of grass at the expense of other crops, such as soybean,
which they had previously struggled to produce. Now they were happily
growing grass for sale. There was some conflict between these villagers and the
local Forestry Department, which was not responsive to the recent
developments and advocated replacing the grass with leguminous trees. In
another village, where extensive plantings of leguminous trees had already
taken place, villagers were cutting them down and converting the land back to
grass, as the latter was more valuable (Potter, Lee and Thorburn, 2000).
CONCLUSION
The discussion on agricultural intensification in Indonesia has now come full
circle. The initial concentration on the impacts of government in forcing
intensification, as their tree crops occupied land and placed pressure on
existing systems, has been followed by the conclusion that swidden
intensification, when carried out by the people themselves, would usually
result in tree-planting in agroforests, with or without intensified food cropping.
Despite the clever manipulation of the total landscape by village interests, the
advantages of agroforests have tended to remain unrecognised, the systems still
vulnerable to destruction or takeover by plantation monocultures. That the
track to agroforests was not always followed by smallholders is exemplified by
cocoa in Central Sulawesi, where the euphoria of the new crop seemed to
displace other considerations. The sections on ‘phantom intensification’ and
the niche market re-valuing of the once-despised Imperata, are indications of
the resourcefulness of smallholders, who are not slow to seize opportunities
and over-ride entrenched attitudes.
The regimentation of the previous regime has now been replaced in
Indonesia by both a relaxation and a breakdown of rules. All forest boundaries
have been challenged, both by seekers after previously forbidden resources and
those wanting restoration of ancestral lands. Demonstrations occur almost daily
with plantation authorities, again over land issues. While some outside
pressures on smallholders have been reduced, the crisis and the impacts of
globalisation on commodity prices maintain the momentum for intensification.
As people are more exposed to outside forces, they need to earn more from the
lands that they can access. Diversification is back in favour as systems become
more mixed, but it is back from a strictly economic, rather than an ecological
or traditional, perspective. Smallholders in modern Indonesia have become
more aware and articulate, at the same time more individualistic and more
demanding. In their market orientation many may no longer be considered
strictly ‘peasants’. However, both Boserup’s original population-based theory
(1965) and Brookfield’s emphasis on innovation and smallholder decision-
making (1972; 1984) have been useful in directing our understanding of
agricultural transformations, in an environment constrained as much by an
authoritarian government and its control over land resources, as simply by
population pressure.
NOTES
1 The 1999 National Labour Force Survey, on which these figures are based, includes
forestry and fishing with agriculture.
2 Associated factors have been the rapid growth of non-agricultural alternatives, fertility
declines and out-migration.
3 President Suharto banned 57 varieties of pesticide in 1986 after brown planthopper
outbreaks showed that increasing pesticide resistance and spraying was removing the
insect’s natural predators. Integrated pest management techniques have been successful in
Bali, but have been slower to develop in Java.
4 See footnote 1.
5 The composition of the forests changes across Indonesia towards the east, with fewer
dipterocarps as dominants, while more open savanna-like formations, including indigenous
acacias and eucalypts, but also the valuable sandalwood, characterise dry islands such as
Timor.
6 By ‘permanent cultivation’ was usually meant wet rice or cash crops produced from
permanent gardens. Managed village forests could sometimes be included if they were
largely rubber smallholdings.
7 Japanese firms had begun the large-scale extraction of timber from East Kalimantan in the
1930s, as the value of the resource was recognised.
8 TGHK is an acronym for Tata Guna Hutan Kesepakatan
9 While it was possible for villages to be excised from national parks, this did not always
happen. In remote and inaccessible districts such as the huge Kayan Mentarang Nature
Reserve, traditional swidden activities have been permitted to continue.
10 The PIR model was originally designed for transmigrant communities planting rubber,
after the failure of food-crop based schemes. It consisted of an estate nucleus, around
which were smallholder plantings of the tree-crop. Farmers had to repay the cost of
establishment of their farms, but were granted credit to do this.
11 When palm oil prices are low, companies sometimes refuse to collect the fruit from
smallholders.
12 Now renamed the Minister of Forestry and Estate Crops. With the new decentralisation
system that came into force on January 1 2001, this responsibility is likely to be devolved
to the local district leader (bupati).
13 Cattle were introduced to West Timor by the Dutch in 1912, specifically to improve local
economies. However, as they were distributed to the local hierarchy, their descendants
have continued to have access to large numbers and ownership remains skewed. Poorer
people act as cattle minders but often have no animals of their own.
14 The author attended a protest meeting with a group of villagers in April 1995. While
people were very free with their criticism during the early part of the meeting, as soon as
company officials arrived, nobody was willing to say anything.
15 Malaysian firm Guthrie’s has recently taken over the plantations of the Salim Group in a
number of Indonesian localities.
16 This phrase was used at a conference in Riau by a local forestry official (Setiawan, 2001).
17 ‘Living fences’ consisted of fast-growing legumes, such as Gliricidia sepium, planted very
close together along fence lines.
18 It is not clear whether it comes under Forestry Department jurisdiction, and if so, whether it
is production or conversion forest. It is most likely to be the former.
19 In some cases the word here should be ‘reintroduced’, as farmers in the Luwu district of
South Sulawesi, for example, have often alternated between different tree crops. Cloves,
coffee and coconut are other possibilities in some of the cocoa areas.
20 One exception has been the famous damar agroforests of Krui on the west coast of
Lampung. After intense lobbying by international agencies, these have been recognised by
the Forestry Department as unique and are allowed to be managed as community forests on
State Forest Land under a special new classification (KdTI, Kawasan dengan Tujuan
Istemewa) (Fay, et al. 1998). It is to be hoped that other agroforests may eventually receive
a similar status.
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