[ABSTRAK
Taman Nasional merupakan salah satu tipe kawasan konservasi yang telah di bangun diIndonesia dan merupakan satu-satunya kawasan yang telah dikelola secara khusus oleh unitpengelola tersendiri di bawah Kementerian Kehutanan. Pengelolaan kawasan didukung olehPemerintah Pusat baik dari segi anggaran maupun sumber daya manusia. Pemerintah daerahmemiliki kewenangan yang berbeda, antara lain sebagai mitra pengelolaan dan penerimamanfaat. Pengelolaan taman nasional secara efektif memerlukan ketersediaan dana yangcukup. Data yang ada menunjukkan adanya selisih antara ketersediaan dengan kebutuhanpendanaan untuk pengelolaan kawasan konservasi yang sampai saat ini sebagian besar masihditanggung oleh pemerintah pusat. Kekurangan ketersediaan pendanaan pemerintah tersebuttelah memicu pencarian alternatif pendanaan dari sumber-sumber lain. Penghapusan utang(DNS) merupakan salah satu alternatif yang memperoleh banyak dukungan pemerintah danberbagai organisasi sejak dimulainya program tersebut pada tahun 1981. DNS jugamerupakan salah satu alternatif pendanaan yang dianggap berhasil dan terus dikembangkanuntuk pendukung pelaksanaan kegiatan konservasi.Memperhatikan tuntutan terhadap efektivitas pengelolaan kawasan konservasi danketerbatasan sumberdaya yang dapat disediakan oleh Pemrintah, maka pengukuran efektivitaspengelolaan Taman Nasional menjadi salah satu hal yang penting untuk dilakukan. Studidilakukan dengan menggunakan metode Management Effectiveness Tracking Tool (METT)dengan analisa yang ditujukan terhadap substansi/kontek, perencanaan, input, proses,keluaran dan dampak. Analisa juga ditujukan untuk menunjukan korelasi efektivitas denganketersediaan anggaran dan sumber daya manusia sebagai input utama dalam pencapaianefektivitas pengelolan taman nasional.Penilaian menunjukkan bahwa TN Gunung Gede Pangrango memiliki rasio jumlah staffterhadap kawasan paling tinggi, yaitu 6 orang per luas 1000 ha dan telah menyediakananggaran $ 63.36/ha dengan alokasi untuk kegiatan yang bersifat intervensi sebesar 60%.Dukungan sumberdaya manusia dan anggaran di TN Gunung Gede Pangrango relatif lebihtinggi dibanding dengan taman nasional lain. Kondisi tersebut didukung dengan distribusistaf dan alokasi kegiatan yang bersifat intervensi terhadap habitat, biodiversitas habitat,pengembangan masyarakat dan pemanfaatan taman nasional telah membuat TN GunungGede Pangrango dikelola paling efektif.Di sisi lain, TN Way Kambas yang menghadapi tekanan paling tinggi akibatperambahan, perburuan, dan lain-lain telah mengalokasikan anggaran paling besar untukpengamanan kawasan. Kegiatan lain yang bersifat pemanfaatan bagi masyarakat sekitar danpelibatan pemangku kepentingan lain kurang terlalu diakomodir dalam alokasi pendanaandengan jumlah staff yang kurang memadai. Strategi tersebut telah membuat pengelolaanTN Way Kambas kurang efektif, walau pendanaan ditingkatkan. Kondisi tersebutmenunjukkan bahwa efektivitas tidak hanya didukung dengan jumlah dana, namun juga di dukung oleh kegiatan yang strategis yang dapat memberikan kontribusi manfaat langsungterhadap ekonomi masyarakat.Peningkatan penyediaan anggaran Ditjen PHKA dari Rp. 441 milyar pada tahun 2006menjadi Rp 731 milyar tahun 2009 telah membatu meningkatkan pendanaan terhadap tamannasional dari US$ 2.35 per ha menjadi US$ 3.19 di tahun 2009. Secara total, nilai tersebutjuga telah mengurangi adanya selisih antara kebutuhan dengan ketersediaan dana sebesarUS$ 81,94 juta. Analisa lebih lanjut menunjukkan bahwa skema peghapusan utang (DNS)menjadi salah satu opsi untuk mengisi selisih pendanaan tersebut. Total utang pemerintahIndonesia yang harus dibayar pada tahun 2010 adalah US$ 180,834 juta. Nilai utang tersebuttermasuk yang berasal dari program ODA yang harus dibayar melalui skema bilateralsebesar US$ 32,932 juta dan US$ 24,824 melalui skema multilateral.Bilateral merupakan cara yang paling sering digunakan dalam proses persetujuan DNS.Proses tersebut dilakukan dengan mempertimbangkan keseimbangan manfaat bagi parapihak, kepentingan debitor, aturan dan ketentuan setiap kreditor. Sebagian besar programDNS ditujukan untuk pendidikan, kesehatan dan program lingkungan hidup. Dua programDNS yang telah disepakati adalah DNS III-Green program dengan pemerintah Jerman danTFCA Sumatera dengan Pemerintah Amerika Serikat. Beberapa isu yang muncul dalampelaksanaan DNS adalah mekanisme pembayaran dan transparansi serta keterlibatanpemangkukepentingan lain. Mekanisme reimbursement untuk pelaksanaan program DNS IIIdilakukan dengan menyediakkan anggaran kegiatan dalam anggaran kementerian teknispelaksana setiap tahun. Sedangkan TFCA menggunakan mekanisme trust-fund untukpenyediaan dan pembayaran dana sehingga memungkinkan untuk melibatkan banyak pihaklain dalam pelaksanaan kegiatannya.Belajar dari berbagai program penghapusan utang yang telah dan sedang berjalan, makabeberapa isu yang disampaikan di atas perlu dipertimbangkan dalam pengembangan programDNS selanjutnya. Selain itu pengelolaan kegiatan DNS yang efektif akan membantumeningkatkan kepercayaan dan peluang untuk mengembangkan prospek programselanjutnya.
ABSTRACT
National Park is one of the many types of protected areas established in Indonesia. It isthe only protected area category which has been fully managed by national parkimplementing unit (authority) under the Ministry of Forestry. The management includedbudget and human resources was set up by central government while local government hasdifferent roles, which are as a partner and beneficaries. Effective management of protectedareas requires sufficient funding as the main input for the management. It is welldocumented, however, that there have been obvious shortage of funding for the managementof protected areas in Indonesia, which rely heavily on government budget. Due to thisshortage funding availability from the government, many organizations have been trying tofind new alternative ways of funding. Debt for nature swap (DNS) is one alternative that hasgained many supporters since the inception in 1981 either from government, non governmentorganization (NGO)s or even private sectors. It has been one of the most successful fundingopportunity created to date and many donors have used it in many ways by giving moreallocated funds to be swaped.Due to to growing concerns over the global obligation to effectively managed protectedareas and the limited resources of the government to meet the obligation, it is important toassess how the national parks in Indonesia have been financed and staffed to the endeavour toachieve the management effectiveness. This study using the existing developed criterias suchas Management Effectiveness Tracking Tool (METT) to show the differences of the analyzedsubstances or contex, planning, input, process, output and outcome. Analysis were also doneto correlate the effectiveness measurement with financial and human resources provision.These two variables were used as the most important inputs contributing to the effectivenessof the national park?s management.The assessment showed that the ratio between rangers and its forest was six per 1,000 hain Gunung Gede Pangrango is highest. The measurement on the highest allocated budgetamong those seven national parks were Gunung Gede Pangrango National Park ($63.36/ha)which more than 60% allocated for management activities of the park. It was obvious that theinputs, in term of budget and human resources for Gunung Gede Pangrango NP were muchhigher among other national park. It was also support by higher distribution staff andactivities on the intervention on habitat, biodiversity, community development and utilizationof national park become better startegic to acheived the highes effectiveness management inGunung Gede National Park.On the other side, Way Kambas National Park which had the highest threat fromencroachment, poaching and others, have been allocated most of the fund in mitigating thethreats and none in others related to the direct benefits of community surrounded the park. Inregard to the limitation of number of personnel, strategic activities to involve other resourcein dealing the threat is not well addressed. The condition lead into less effectiveness ofmanagement the national park eventhough the total budget provided is increased. Total amount of budget has strongly correlates with management effectiveness. However toimprove the effectiveness in managing national park, it should improve other strategicactivities on sharing benefit and community development instead of only focussing on thereducing/mitigating threat.Considering the increasing of budget providing by Government from Rp. 441 bilion in2006 to Rp 731 bilion in 2009, it has been contributed the increasing financing for nationalpark from US$ 2.35 per ha in 2006 became US$ 3.19 per ha in 2009. In totally, it was alsoreduced the gap of financed alocated up to US$ 81,94 milion which faced on 2006. Furtheranalysis revealed that debt swap for nature (DNS) scheme would be one of the best sources tofill the financial gap for the protected areas management. The total debt Indonesia should bepay on 2010 is US$ 180,834 milion. Under the ODA scheme, the debt amount should be payunder the bilateral scheme is US$ 32,932 milion and US$ 24,824 through the multilateralscheme.In term of negotiation, bilateral (between states) is the most common process to deal withDNS program with special attention to the balancing benefit for all stakeholder, preference ofdebitor, role and regulation of each creditor. Mostly the swap creditor prefers to work on theeducation, health and environment programs. Two programs have been agreed for nature,namely Germany-DNS III green program and US Government-TFCA (Tropical ForestConservation Action)-Sumatera. There are also issues and challenges in term ofimplementation of DNS especially on the payment and disbursement mechanism,transparancy and other stakeholder involvement. Inserted into the government budget withthe reimbursement system applied for German-DNS and trust-fund mechanism applied forTFCA. Higher stakeholder involvement is highly consider in TFCA implementation.Learning from the past and on going debt swap programs, some issues mentioned abovewill need to be taken into consideration as well as improving the trust and efectivemanagement of the DNS program to enlarge the impact on the program and prospective forother future agreement.;National Park is one of the many types of protected areas established in Indonesia. It isthe only protected area category which has been fully managed by national parkimplementing unit (authority) under the Ministry of Forestry. The management includedbudget and human resources was set up by central government while local government hasdifferent roles, which are as a partner and beneficaries. Effective management of protectedareas requires sufficient funding as the main input for the management. It is welldocumented, however, that there have been obvious shortage of funding for the managementof protected areas in Indonesia, which rely heavily on government budget. Due to thisshortage funding availability from the government, many organizations have been trying tofind new alternative ways of funding. Debt for nature swap (DNS) is one alternative that hasgained many supporters since the inception in 1981 either from government, non governmentorganization (NGO)s or even private sectors. It has been one of the most successful fundingopportunity created to date and many donors have used it in many ways by giving moreallocated funds to be swaped.Due to to growing concerns over the global obligation to effectively managed protectedareas and the limited resources of the government to meet the obligation, it is important toassess how the national parks in Indonesia have been financed and staffed to the endeavour toachieve the management effectiveness. This study using the existing developed criterias suchas Management Effectiveness Tracking Tool (METT) to show the differences of the analyzedsubstances or contex, planning, input, process, output and outcome. Analysis were also doneto correlate the effectiveness measurement with financial and human resources provision.These two variables were used as the most important inputs contributing to the effectivenessof the national park?s management.The assessment showed that the ratio between rangers and its forest was six per 1,000 hain Gunung Gede Pangrango is highest. The measurement on the highest allocated budgetamong those seven national parks were Gunung Gede Pangrango National Park ($63.36/ha)which more than 60% allocated for management activities of the park. It was obvious that theinputs, in term of budget and human resources for Gunung Gede Pangrango NP were muchhigher among other national park. It was also support by higher distribution staff andactivities on the intervention on habitat, biodiversity, community development and utilizationof national park become better startegic to acheived the highes effectiveness management inGunung Gede National Park.On the other side, Way Kambas National Park which had the highest threat fromencroachment, poaching and others, have been allocated most of the fund in mitigating thethreats and none in others related to the direct benefits of community surrounded the park. Inregard to the limitation of number of personnel, strategic activities to involve other resourcein dealing the threat is not well addressed. The condition lead into less effectiveness ofmanagement the national park eventhough the total budget provided is increased. Total amount of budget has strongly correlates with management effectiveness. However toimprove the effectiveness in managing national park, it should improve other strategicactivities on sharing benefit and community development instead of only focussing on thereducing/mitigating threat.Considering the increasing of budget providing by Government from Rp. 441 bilion in2006 to Rp 731 bilion in 2009, it has been contributed the increasing financing for nationalpark from US$ 2.35 per ha in 2006 became US$ 3.19 per ha in 2009. In totally, it was alsoreduced the gap of financed alocated up to US$ 81,94 milion which faced on 2006. Furtheranalysis revealed that debt swap for nature (DNS) scheme would be one of the best sources tofill the financial gap for the protected areas management. The total debt Indonesia should bepay on 2010 is US$ 180,834 milion. Under the ODA scheme, the debt amount should be payunder the bilateral scheme is US$ 32,932 milion and US$ 24,824 through the multilateralscheme.In term of negotiation, bilateral (between states) is the most common process to deal withDNS program with special attention to the balancing benefit for all stakeholder, preference ofdebitor, role and regulation of each creditor. Mostly the swap creditor prefers to work on theeducation, health and environment programs. Two programs have been agreed for nature,namely Germany-DNS III green program and US Government-TFCA (Tropical ForestConservation Action)-Sumatera. There are also issues and challenges in term ofimplementation of DNS especially on the payment and disbursement mechanism,transparancy and other stakeholder involvement. Inserted into the government budget withthe reimbursement system applied for German-DNS and trust-fund mechanism applied forTFCA. Higher stakeholder involvement is highly consider in TFCA implementation.Learning from the past and on going debt swap programs, some issues mentioned abovewill need to be taken into consideration as well as improving the trust and efectivemanagement of the DNS program to enlarge the impact on the program and prospective forother future agreement., National Park is one of the many types of protected areas established in Indonesia. It isthe only protected area category which has been fully managed by national parkimplementing unit (authority) under the Ministry of Forestry. The management includedbudget and human resources was set up by central government while local government hasdifferent roles, which are as a partner and beneficaries. Effective management of protectedareas requires sufficient funding as the main input for the management. It is welldocumented, however, that there have been obvious shortage of funding for the managementof protected areas in Indonesia, which rely heavily on government budget. Due to thisshortage funding availability from the government, many organizations have been trying tofind new alternative ways of funding. Debt for nature swap (DNS) is one alternative that hasgained many supporters since the inception in 1981 either from government, non governmentorganization (NGO)s or even private sectors. It has been one of the most successful fundingopportunity created to date and many donors have used it in many ways by giving moreallocated funds to be swaped.Due to to growing concerns over the global obligation to effectively managed protectedareas and the limited resources of the government to meet the obligation, it is important toassess how the national parks in Indonesia have been financed and staffed to the endeavour toachieve the management effectiveness. This study using the existing developed criterias suchas Management Effectiveness Tracking Tool (METT) to show the differences of the analyzedsubstances or contex, planning, input, process, output and outcome. Analysis were also doneto correlate the effectiveness measurement with financial and human resources provision.These two variables were used as the most important inputs contributing to the effectivenessof the national park’s management.The assessment showed that the ratio between rangers and its forest was six per 1,000 hain Gunung Gede Pangrango is highest. The measurement on the highest allocated budgetamong those seven national parks were Gunung Gede Pangrango National Park ($63.36/ha)which more than 60% allocated for management activities of the park. It was obvious that theinputs, in term of budget and human resources for Gunung Gede Pangrango NP were muchhigher among other national park. It was also support by higher distribution staff andactivities on the intervention on habitat, biodiversity, community development and utilizationof national park become better startegic to acheived the highes effectiveness management inGunung Gede National Park.On the other side, Way Kambas National Park which had the highest threat fromencroachment, poaching and others, have been allocated most of the fund in mitigating thethreats and none in others related to the direct benefits of community surrounded the park. Inregard to the limitation of number of personnel, strategic activities to involve other resourcein dealing the threat is not well addressed. The condition lead into less effectiveness ofmanagement the national park eventhough the total budget provided is increased. Total amount of budget has strongly correlates with management effectiveness. However toimprove the effectiveness in managing national park, it should improve other strategicactivities on sharing benefit and community development instead of only focussing on thereducing/mitigating threat.Considering the increasing of budget providing by Government from Rp. 441 bilion in2006 to Rp 731 bilion in 2009, it has been contributed the increasing financing for nationalpark from US$ 2.35 per ha in 2006 became US$ 3.19 per ha in 2009. In totally, it was alsoreduced the gap of financed alocated up to US$ 81,94 milion which faced on 2006. Furtheranalysis revealed that debt swap for nature (DNS) scheme would be one of the best sources tofill the financial gap for the protected areas management. The total debt Indonesia should bepay on 2010 is US$ 180,834 milion. Under the ODA scheme, the debt amount should be payunder the bilateral scheme is US$ 32,932 milion and US$ 24,824 through the multilateralscheme.In term of negotiation, bilateral (between states) is the most common process to deal withDNS program with special attention to the balancing benefit for all stakeholder, preference ofdebitor, role and regulation of each creditor. Mostly the swap creditor prefers to work on theeducation, health and environment programs. Two programs have been agreed for nature,namely Germany-DNS III green program and US Government-TFCA (Tropical ForestConservation Action)-Sumatera. There are also issues and challenges in term ofimplementation of DNS especially on the payment and disbursement mechanism,transparancy and other stakeholder involvement. Inserted into the government budget withthe reimbursement system applied for German-DNS and trust-fund mechanism applied forTFCA. Higher stakeholder involvement is highly consider in TFCA implementation.Learning from the past and on going debt swap programs, some issues mentioned abovewill need to be taken into consideration as well as improving the trust and efectivemanagement of the DNS program to enlarge the impact on the program and prospective forother future agreement.] |
