Reformulation of Policies to Prevent Land Conversion of Rice Fields In Achieving Indonesia's National Food Security

Obstacles in implementing space use control policies on land use conversion

Food security and development are fundamental values mutually influencing the sustainability of humankind (KILIÇ, 2021). The right to access food is a basic human right, as stated in Article 27 of the 1945 Constitution and reflected in the 1996 Rome Declaration. These considerations form the basis for the establishment of Law No. 7 of 1996 concerning Food and was later amended to Law No. 18 of 2012. The existence shows the importance of food in guaranteeing human rights and the government’s responsibility to ensure food and agricultural land stability. Stability can be achieved by protecting agricultural land and the process requires coordination between the central and regional governments (Rohr et al., 2021) in policy-making process for protecting paddy fields. Meanwhile, food issues cannot be separated from the availability of agricultural land (paddy fields) in implementing the principles of sustainable development (Erwahyuningrum et al., 2023).

The changing climate development paradigm has become a foundation for the increasing conversion of agricultural into non-agricultural land. This affects national rice production and threatens national food security (Arsini & Surata, 2021) as well as impacting the economy (Lianos & Carballa-Smichowski, 2022). The necessity should show the importance of land tenure aspects in preventing land conversion driven by individuals with land tenure rights (Njeri, 2021). Therefore, there is a need for policy formulation to address the potential land conversion to ensure provision for agriculture. This aims to prevent landowners, particularly individuals with tenure rights over protected paddy fields or sustainable agricultural land. Various efforts are made to maintain land use activities consistent with the designation as agricultural areas. Some policies for providing agricultural land are implemented without addressing the cause of low agricultural productivity, which is inequality in land ownership and management structures relying on large-scale and environmentally damaging extractive industries.

As seen in policy of providing agricultural land through Food Estate program in Gunung Mas Regency, Central Kalimantan, local farmers were not included in the formulation of policy. In this context, spatial planning including the designation of forest areas was not based on sufficient research. Moreover, the method resulted in the opening up of unproductive land, which was formerly productive forest land.

Spatial planning should include communities since the provision of agricultural land does not result in environmental, land, and social conflicts. This is evident in the significant number of lands located in forest areas, leading to conflicts and difficulties in providing labor. The designation of PSN Food Estate project in Pulang Pisau and Kapuas Regencies also underestimated the biophysical conditions of the region, which are vulnerable and highly prone to forest and land fires. The community has rejected cassava farming in Tewai Baru Village since local biophysical conditions, such as peatlands, are unsuitable for cultivation. These challenges and issues are from the lack of genuine community participation in PSN Food Estate. Meanwhile, the benefits, risks, and potential failures of the project have not been communicated to the community. The government has not reported the commitment to protecting tenure rights, which are inseparable from policies on land provision. This requires a comprehensive method, as outlined in the concept of agrarian reform in the form of asset reform.

The implementation of Food Estate program should provide opportunities to enhance welfare and empowerment. However, the Tewai Baru Village Government and the community were not given roles and participation in PSN and job opportunities. The impact on the community has prevented Food Estate program from managing the area of food provision land.

The constraints are not only limited to Food Estate program in Gunung Mas Regency, Central Kalimantan but have been observed in previous research locations, such as Karawang. The results show that 41.9% of farmers have not benefited from asset reform. In terms of regulations, asset reform is governed by Government Regulation Number 65 of 2019 concerning Agricultural Land Area Guarantee. Article 1 reports that the Central and Regional Governments are expected to provide Agricultural Land Area Guarantee on land up to two hectares for farmers practicing food crop cultivation. This guarantee is facilitated by providing ease of access to a. State Land designated for agricultural purposes, and b. Agricultural Land derived from the designation of potential abandoned land.

The central government has made breakthroughs by issuing Law Number 41 of 2009 concerning the Protection of Sustainable Food Agricultural Land and Presidential Regulation Number 59 of 2019 concerning Control of conversion of Paddy Fields (Arsini & Surata, 2021). There is an authority granted to the Minister of Agrarian Affairs and Spatial Planning/Head of national Land Agency to establish or prevent conversion of paddy fields (Petunjuk Teknis Penyelesaian Ketidaksesuaian Lahan Sawah Yang Dilindungi Dengan Rencana Tata Ruang, Kesesuaian Kegiatan Pemanfaatan Ruang, Izin, Konsesi, Dan/Atau Hak Atas Tanah, 2022).

At policy level, regulations regarding conversion of paddy fields experience several obstacles, including

Different regulations have been enacted on sustainable food agricultural land (LP2B) without addressing land conversion. However, this gap could be exploited by other sectors to carry out land conversions, including the procedures for licensing processes. The challenge of amending previous regulations becomes policy issue in implementing LSD regulations to prevent conversion (Ferisa Nurfauziyah, 2022). The challenge of policy implementation is based on changes leading to alterations within a juridical or formal framework. According to Jenkins, a good method is understanding the effects of the implementation theory on change (Jenkins & Walker, 2022). This concept and foundation of implementation are from political perspectives, including the conduction of affairs by organizations outside and within the political system.

The implementation also affects the effectiveness of Presidential Regulation Number 59 of 2019 concerning policy on Controlling conversion of Paddy Fields. In this context, protected paddy fields are identified based on satellite images, land verification, and synchronization of verification results. However, discrepancies exist between the satellite images and the synchronization of the protected data. This issue suggests that the government has not fully accommodated the LSD process (Ferisa Nurfauziyah, 2022).

Efforts to overcome obstacles in implementing the spatial planning policy for conversion of LSD

The increasing population growth indirectly amplifies human personal needs (Hasan, 2021). This analogy propels humans to continually exploit natural resources, unconsciously oriented towards excessive use. There is a need for government-established policies to serve as controls or references for paddy fields management. In this context, policies relevant to the issue are related to spatial planning and land conversion. Another significance is to control the rapid conversion of paddy fields in a region to maintain environmental balance (Linda Cristi Corolina, Choirul Saleh, 2014). The phenomenon requires special attention when productive fields are transformed into industrial or other uses (Angraini et al., 2020). There is a reference for using space and territories through government policies outlined in Law Number 26 of 2007 concerning spatial planning. The aim is to realize a safe, comfortable, productive, and sustainable national territory based on archipelagic insight and resilience. The implementation can be manifested through other related regulations in the planning of paddy fields conversion. The paradigm shift from centralization in spatial planning also changes the system and policy patterns at various levels.

This is observed in regulations regarding land conversion concerning the registration or verification of paddy fields mapping protected under Minister of ATR/KBPN Regulation Number 12 of 2020 regarding Procedures for Implementing Verification of Paddy Fields Data against Land and Spatial Data, Determination of Protected Paddy Fields Maps, and Recommendation for Land Use Change on Protected Paddy Fields. This policy impacts fields outside the data but has the potential to be designated as protected paddy fields, requiring approval and recommendations. Approval and recommendations are important even though local governments can protect potentially sustainable paddy fields through the establishment of LP2B in regional spatial planning. However, there are substantive differences in land planning methods for food between LP2B and LSD. This is because the definitions and scope of regulation differ, with LSD and LP2B protecting land functions for paddy fields and food commodities, respectively. Spatial planning methods through LSD designation eliminate land provision for food commodities other than paddy fields. The NSPK does not address the need for bottom-up mechanisms, as well as the assessment of land carrying capacity regarding the allocation of space.

Based on the results, various efforts and strategies can overcome the implementation of spatial planning policies for conversion of LSD through:

The three components are inseparable from the technical guidelines for resolving discrepancies between protected paddy fields and spatial plans, the suitability of use activities, permits, concessions, and land rights (Petunjuk Teknis Penyelesaian Ketidaksesuaian Lahan Sawah Yang Dilindungi Dengan Rencana Tata Ruang, Kesesuaian Kegiatan Pemanfaatan Ruang, Izin, Konsesi, Dan/Atau Hak Atas Tanah, 2022). These provisions are reinforced by directives from the Directorate General of Spatial Planning in interview sessions requiring integration as well as monitoring and evaluation stages.

The Indonesian government’s commitment to preventing conversion of rice land

The issue of food security is a highly sensitive case experienced by almost every country. These include the reduction of land available for production, with other issues arising from the understanding of quantity and location of rice fields (Clauss et al., 2016). In several countries, including China, Vietnam, Malaysia, Thailand, the Philippines, and Indonesia, food security issues are prioritized in official government discussions (Mudji & Ramadhani, 2020). Indonesia’s government is also facing various challenges regarding food security. The current climate change impacts the quality of paddy fields, and the western, eastern, and southern geographical regions have characteristics in agricultural implementation. Furthermore, food security issues can arise due to infrastructure development converting paddy into non-paddy fields, posing a challenge to maintaining national food security stability (Mulyani et al., 2020). Considering National Food Security Agency, the highest factor driving land conversion is infrastructure development in rural and urban areas. This is supported by data from 2014 to 2019 showing a significant increase in infrastructure budget allocations.

From Table 2, infrastructure budgets have fluctuated but have reached the highest level in 2024. This budget is allocated for the expansion of toll road sections, airports, ports, housing, apartment buildings, and several offices, requiring extensive land. Due to the development efforts, the government or developers are expected to designate land for implementing development programs by converting paddy fields or other agricultural land sectors. The increased presence of infrastructure has positive impacts on Indonesia’s development. In the process of infrastructure development, the values and principles of agrarian reform should be balanced, namely democracy, justice, and sustainability principles in terms of functions and benefits (Ida Nurlinda, 2009).

The principles should be balanced with spatial planning, which determines the structure and pattern of space according to various development activities and spatial use in land use changes (Anita et al., 2022). In this context, national food security is affected, considering the impact of infrastructure development (Mishra et al., 2023). There should also be a complementary prevention effort from the central government and local regional authorities. A series of policies are also reported in fulfilling the commitment to prevent and safeguard against conversion of rice into non-rice fields, and these include

In Article 44 Paragraph 1 of policy on the protection of sustainable agricultural land in 2009, the Indonesian government has stipulated opposition to conversion of paddy fields designated as sustainable agricultural land. However, in Paragraph 2, there is a provision that land use change may be allowed for public interest reasons, provided the reasons are accompanied by certain requirements and approvals. The granting of permits for conversion requires specific considerations through the establishment of a Technical Review Team for Land Use Change Permits (IPPT), with the task and function of reviewing the land or paddy fields.

Based on research results sourced from the reports of the One-Stop Integrated Investment and Manpower Service Office (DPMPTSP & NAKER), the requests can be formalized through a document containing a description of the land or paddy field. These requirements should meet certain criteria, including Land or paddy fields a) should be consistent with Regional Spatial Planning, b) must not be included in areas prone to natural disasters, c) requiring a permit must not be in water catchment or conservation areas. However, rejection and the refusal to issue a Building Construction Permit (IMB) occur when the requirements are not met. These tiered and rigid requirements reflect the firm stance of the Indonesian government to prevent paddy fields conversion into non-agricultural land (Anggrainy & Isharyanto, 2022). The commitment of the Indonesian government to prevent conversion is also evident from the inclusion of overlapping spatial and agrarian arrangement issues in the important agenda of the vision and mission of national long-term development plan for 2025-2045 (BAPPENAS, 2023).

Concept of reformulation of space use policy for controlling land conversion to realize indonesia’s national food security

Food is a fundamental human necessity (Wang et al., 2023) and ensuring the availability is crucial. Harmonious collaboration is required among different sectors to support the availability of high-quality food, including stakeholders from the community, and integrated rice field management policies between the central and regional governments (Radu et al., 2023). Due to the importance of security, the government has prioritized national development agenda for 2022-2024 to enhance the availability, access, and quality of food consumption. The fiscal policies adopted through the 2022 State Budget with the theme of Accelerating Economic Recovery and Structural Reform also include food security as a priority development agenda to promote economic growth (Limanseto, 2021).

The realization of food security is a vital object in sustaining life for a country. Therefore, there is a need for policy regulations governing national food security, through a sociological method to regulate and improve the quality and safety of food through protected paddy fields (Herjito & Setiawan, 2021). In this context, there are many paddy fields converted into residential or non-agricultural land (Suryadi et al., 2023).

The government establishes policies for the sustainable protection of agricultural land before the enactment of policies to protect paddy fields. This policy is expected to prevent conversion of agricultural paddy fields into non-agricultural areas. The key point is to focus on strengthening incentives, but policy is land-based. However, this has implications for the incentives given to agricultural landowners who do not convert agricultural land (Sihombing et al., 2021). In this context, the government continues to implement a series of policy breakthroughs regarding land use conversion, which includes forms of activities or initiatives to protect paddy fields (Prasada & Priyanto, 2020).

The establishment of policies and controls on conversion of protected paddy fields represents the refinement of limitations in previous policies considered inadequate in addressing the issue of conversion. However, the implementation poses challenges in handling land conversion with the introduction of policies to control conversion of paddy fields. The challenges were from an interpretation of a provision suggesting that the presence of an irrigation system might lead to the classification of protected paddy fields (Firmansyah et al., 2021).

There should be a mechanism regulated in the previous article for mapping since paddy fields under the protection criteria are not automatically designated. This lack of consistency in the strategy and pattern persists, considering many fields are not subject to the mapping process for protection. The lengthy mechanism process slows down the strategy of recording paddy fields after meeting the criteria for protection (Rostini, 2023). The issue impacts spatial planning since consistent implementation is not in line with zoning plans. This is triggered because paddy fields may be part of private property or a strategic project owned by regional governments. In the designation of protected paddy fields, only an aspect of land existence is considered, without compatibility with local neighborhood plans (Diah NikenSari, 2023).

Based on the research, there is a need for reformulation concept regarding policy of spatial planning for protected paddy fields through harmonization. Since the review process designated by the Ministry of ATR/BPN is not an easy task, an integrated mechanism should be initiated in determining paddy fields. Reformulation is a change or improvement to a system, authority, or regulations previously established by the government (Ma & Liu, 2022). This policy is essential when there is an addition or errors in policy determination. Reformulation of food security policies is based on national interests, and the multitude of institutions creates partiality in the implementation of land use conversion prevention policies.

Policy foundation in preventing land use conversion has been established through Presidential Regulation Number 59 of 2019 concerning the Control of Conversion of Paddy Fields. Concerning the initial basis for the formation, the area or the rate of conversion increases every year. This affects national rice production and threatens food security. Controlling conversion is a strategy to increase domestic production capacity and the control is a priority for national strategic programs (Presiden RI, 2019b). However, the implementation is not accompanied by coordination lines between different institutions. The multitude of institutions and previous policies governing agrarian, spatial planning, and land affairs have not achieved harmony between sectors. Each institution has different directions regarding the planning and use of paddy fields. Conversion for public interest is allowed in the framework regulating the protection of sustainable agricultural land. Moreover, the policy does not define the boundaries and classification designated as non-paddy fields. These provisions are used within society for personal interests under public interest. The presidential regulation on controlling conversion states that at least 5 (five) ministers have the authority to verify, plan, and ensure the efficiency of protected paddy fields. However, policy does not explain the follow-up actions and classification limits on institutional authority through other ministerial regulations. In this context, the ministries have respective authorities and produce different decisions, leading to partiality between sectors.

Based on the analysis and results, there is a need for harmonization concerning policies not addressing the stability of policies regarding protected paddy fields (Nhamo et al., 2020). The lack of defined boundaries of authority between ministerial institutions necessitates reformulation of policies regarding protected paddy fields by adding sub-components of systems, authority, and regulations. The cross-sectoral policy reformulation is achieved by adding clauses to regulate three main interconnected points. These components should be represented in the implementation of LSD conversion prevention and reformulation is as follows:

Source: Formulated by the author based on ALG research results, 2023-2024.

The concept of reformulating policies regarding protected paddy fields is from existing issues. The multitude of institutions with overlapping authorities leads to policy discrepancies in spatial planning and efficient use of paddy fields among different sectors. The absence of defined boundaries of authority results in partial and overlapping data among sectors. This shows the need for reformulation through harmonization (Turimubumwe et al., 2023), and the inclusion of subsystems for integration, compatibility, and efficiency in controlling protected paddy fields. Clear mechanisms and status are essential for use and protection to support national food security. Moreover, cross-sectoral integration or harmonization is required to prevent inconsistencies in authority among ministries, private entities, central government, and local governments.

The addition of the components reinforces the protection of protected paddy fields, specifically in the integration of policies for spatial planning. Meanwhile, the function of integrated spatial planning can aid in formulating a management system (Lyu et al., 2022). By considering the sub-components of consistency between sectors, policy of controlling conversion strengthens the realization of stability and national food security. Reformulation of existing policies ensures the balanced use of paddy fields, considering the importance of maintaining the balance of rice cultivation and ensuring the stability of national food security in line with the target for 2050 (Ambarwulan et al., 2023). Furthermore, paddy fields are essential for national food security as well as environmental sustainability and economic stability (Toral & Figuerola, 2010).