What Support Activities and Incentives Exist Under PERMENLHK 105/2018?
Ministry of Environment and Forestry Regulation No. 105 of 2018 on Procedures for Implementation, Support Activities, Incentive Provision, and Supervision and Control of Forest and Land Rehabilitation Activities, as amended by PERMENLHK No. P.2/MENLHK/SETJEN/KUM.1/1/2020 in 2020, establishes Indonesia's comprehensive framework for supporting forest and land rehabilitation programs. This regulation creates systematic support mechanisms spanning community preparation, technical capacity building, and institutional strengthening to maximize rehabilitation success rates.
Regulatory Foundation
PERMENLHK 105/2018 was issued as follow-up to provisions in Pasal 33, Pasal 34, Pasal 40, and Pasal 57 of Government Regulation No. 76 of 2008 on Forest Rehabilitation and Reclamation. The regulation became effective in 2018 under the Ministry of Environment and Forestry.
The regulation's legal basis includes:
- Law No. 5 of 1990 on Conservation of Natural Resources and Ecosystems
- Law No. 41 of 1999 on Forestry (as amended by Law No. 19 of 2004)
- Law No. 32 of 2009 on Environmental Protection and Management
- Law No. 23 of 2014 on Regional Government (as amended by Law No. 9 of 2015)
- Law No. 37 of 2014 on Soil and Water Conservation
- PP No. 35 of 2002 on Reforestation Fund (as amended by PP No. 58 of 2007)
- PP No. 76 of 2008 on Forest Rehabilitation and Reclamation
- PP No. 37 of 2012 on Watershed Management
Core Purpose and Objectives
Defining Forest and Land Rehabilitation
The regulation defines Rehabilitasi Hutan dan Lahan (RHL - Forest and Land Rehabilitation) as efforts to restore, maintain, and increase forest and land functions to increase carrying capacity, productivity, and their role in maintaining life support systems.
This comprehensive definition encompasses three dimensions: restoration of degraded areas, maintenance of existing functional areas, and enhancement of ecosystem services provision.
Dual Objectives (Pasal 2)
The regulation's procedures for implementation, support activities, incentive provision, supervision and control are:
Intended to: provide guidance in organizing RHL activities so that RHL activity implementation can be carried out properly
Aimed at: restoring watershed carrying capacity and improving community welfare
This dual focus recognizes that successful rehabilitation requires both technical excellence and community socio-economic development.
Six-Pillar Support Activity Framework
Support Activity Purpose (Pasal 46)
Kegiatan Pendukung RHL (RHL Support Activities) are defined as all activities related to RHL implementation with the purpose of increasing the success of RHL activities.
The regulation establishes six support activity categories (Pasal 46 Ayat 2):
- Pre-conditioning (Prakondisi)
- Seed development (Pengembangan perbenihan)
- Technology development (Pengembangan teknologi)
- Fire prevention and control (Pencegahan dan penanggulangan kebakaran)
- Plant security and protection (Pengamanan dan perlindungan tanaman)
- Institutional development (Pengembangan kelembagaan)
Pillar 1: Pre-Conditioning (Prakondisi)
Critical Pre-Implementation Phase
Pasal 47 establishes pre-conditioning as preparatory activities to ensure RHL implementation proceeds smoothly according to plan with community and stakeholder support. Critically, pre-conditioning must be conducted before drafting planting activity designs, making it the foundational support activity.
Two-Stage Implementation Process
Stage 1: Preparation (Persiapan)
The preparation stage comprises six components:
- Team formation (Pembentukan tim): Establishing multi-stakeholder pre-conditioning teams with clear roles and responsibilities
- Coordination and consolidation (Koordinasi dan konsolidasi): Aligning activities across government agencies, community groups, and other stakeholders
- Data collection (Pengambilan data): Gathering baseline information on land conditions, community demographics, land tenure, and social dynamics
- Initial socialization (Sosialisasi awal): Introducing RHL program objectives, expected activities, and community roles to target populations
- Data analysis (Analisa data): Evaluating collected information to identify challenges, opportunities, and appropriate rehabilitation approaches
- Pre-conditioning preparation report (Laporan persiapan prakondisi): Documenting findings and recommendations to inform implementation planning
Stage 2: Application (Penerapan)
The application stage targets two distinct community categories:
Category 1: Communities that support RHL activities
Pre-conditioning focuses on capacity building, clarifying roles, and establishing implementation mechanisms
Category 2: Communities that do not support RHL activities
Pre-conditioning emphasizes conflict resolution, addressing concerns, demonstrating benefits, and building trust
This differentiated approach recognizes that community support cannot be assumed and must be actively cultivated through responsive engagement strategies.
Technical Implementation Standards
Detailed technical provisions for pre-conditioning implementation are contained in Lampiran VIII (Attachment VIII), providing practitioners with step-by-step guidance.
Pillar 2: Seed Development (Pengembangan Perbenihan)
Ensuring Quality Plant Material Supply
Pasal 48 establishes seed development activities to increase availability of quality seeds and seedlings according to RHL targets. This pillar addresses a fundamental constraint in rehabilitation programs: inadequate supply of appropriate, high-quality plant material.
Six Development Components
Component 1: Tree breeding (Pemuliaan pohon)
Developing improved varieties with desirable characteristics such as fast growth, disease resistance, or superior wood quality
Component 2: Seed source development (Pengembangan Sumber Benih)
The regulation defines Sumber Benih (Seed Source) as a stand inside or outside forest area managed to produce quality seeds. Development activities establish and maintain these source populations.
Component 3: Genetic resource conservation (Konservasi sumber daya genetik)
Preserving genetic diversity within tree populations to maintain adaptive capacity and ecosystem resilience
Component 4: Seed production (Produksi benih)
The regulation defines Benih (Seed) as plant material or parts used to propagate and/or develop plants originating from generative or vegetative material. Production activities ensure adequate seed quantities.
Component 5: Seed distribution (Distribusi benih)
Logistics systems ensuring seeds reach rehabilitation sites in viable condition
Component 6: Nursery operations (Pembibitan)
The regulation defines Bibit (Seedling) as young plants resulting from vegetative or generative propagation. Nursery operations include:
- Seedling production/procurement (Pembuatan/pengadaan bibit)
- Community nurseries (Kebun bibit rakyat - KBR)
- Permanent nurseries (Persemaian permanen)
Separate Regulatory Framework
The regulation specifies that further provisions on seed development are governed by separate ministerial regulation, acknowledging the technical complexity requiring dedicated regulatory attention.
Pillar 3: Technology Development (Pengembangan Teknologi)
Three-Dimensional Technology Support
Pasal 49 establishes technology development to strengthen support for:
- Planning technology (Teknologi perencanaan)
- Implementation (Pelaksanaan)
- Monitoring and evaluation (Monitoring evaluasi)
Comprehensive Technical Scope
Technology development encompasses methods and techniques for rehabilitation activities including:
- Nursery operations (Pembibitan)
- Planting (Penanaman)
- Soil conservation structure construction (Pembuatan bangunan Konservasi Tanah)
- Maintenance (Pemeliharaan)
- Protection (Perlindungan)
- Security (Pengamanan)
Six Priority Target Areas
Technology development focuses on specific challenging conditions:
Target 1: Arid/dry areas (Wilayah arid/kering)
Developing drought-resistant species, water harvesting techniques, and moisture conservation methods
Target 2: Peatland areas (Kawasan bergambut)
The regulation defines Gambut (Peat) as organic material formed naturally from plant remains decomposed incompletely with thickness of 50 cm or more accumulated in swamps. Technology addresses unique peatland challenges including water table management and fire prevention.
Target 3: Densely populated areas (Wilayah padat penduduk)
Integrating rehabilitation with community livelihood needs and limited available space
Target 4: Vegetable center areas (Wilayah sentra sayuran)
Balancing agricultural productivity with watershed protection in intensive farming zones
Target 5: Agroforestry (Agroforestri/wanatani)
The regulation defines Agroforestri as land use optimization with combination systems of woody plants, fruit trees, or seasonal crops forming ecological and economic interactions among components.
Target 6: Aerial seeding (Penebaran benih melalui udara)
Techniques for remote or inaccessible areas where conventional planting is impractical
Collaborative Development Approach
Technology development occurs through cooperation among:
- Research institutions (Lembaga penelitian)
- Universities (Perguruan tinggi)
- Local cultural wisdom (Kearifan budaya masyarakat setempat) with technology application
This multi-source approach combines scientific innovation with traditional ecological knowledge.
Pillar 4: Fire Prevention and Control
Comprehensive Fire Management
Pasal 50 establishes fire prevention and control activities including:
- Preventing fires (Mencegah)
- Extinguishing fires (Memadamkan)
- Controlling fires (Mengendalikan)
- Evaluating fire impacts (Mengevaluasi akibat kebakaran)
- Preparing rehabilitation of burned areas (Mempersiapkan tindakan rehabilitasi areal bekas kebakaran)
Integrated Multi-Stakeholder Approach
Fire prevention and control at RHL sites must be conducted in a planned and integrated manner involving relevant parties, recognizing that fire management requires coordinated action across agencies and communities.
Five Prevention Methods
- Identifying fire-prone areas (Identifikasi daerah rawan bencana kebakaran)
Risk mapping to prioritize prevention resources - Socializing prevention and control techniques (Mensosialisasikan teknik pencegahan dan penanggulangan)
Community education on fire risks and management approaches - Avoiding land burning (Menghindari pembakaran lahan)
Promoting alternative land clearing methods - Creating firebreaks (Membuat ilaran/sekat bakar)
Physical barriers preventing fire spread - Water blocking in peatlands (Penyekatan air pada lahan gambut)
Maintaining high water tables to reduce peat flammability
The peatland-specific provision reflects Indonesia's significant peat forest areas where fire prevention is particularly critical.
Pillar 5: Plant Security and Protection
Three Protection Activities (Pasal 51)
Activity 1: Patrol (Patroli)
Regular monitoring to detect threats and unauthorized activities
Activity 2: Firebreak construction (Pembuatan sekat bakar)
Physical barriers protecting planted areas from fire
Activity 3: Extension/education (Penyuluhan)
Community awareness programs on plant protection importance and methods
This streamlined pillar focuses on core protection activities essential for rehabilitation site security.
Pillar 6: Institutional Development
Three-Component Capacity Building System
Pasal 52 establishes institutional development through:
1. Extension (Penyuluhan)
2. Training (Pelatihan)
3. Facilitation (Pendampingan)
Extension Programs (Penyuluhan)
Purpose: Change community attitudes and behavior in RHL implementation through non-formal education
Ten Implementation Methods:
1. Field visits (Kunjungan lapangan)
2. Lectures (Ceramah)
3. Exhibitions (Pameran)
4. Distribution of brochures, leaflets and magazines (Penyebaran brosur, leaflet dan majalah)
5. Campaigns (Kampanye)
6. Competitions (Lomba)
7. Demonstrations (Demonstrasi)
8. Discussions (Temu wicara)
9. Group discussions (Diskusi kelompok)
10. Study tours (Karyawisata)
This diverse methodology recognizes different learning styles and community engagement preferences.
Training Programs (Pelatihan) - Pasal 53
Purpose: Increase knowledge and skills of RHL implementers
Eligible Organizers:
- Government (Pemerintah)
- Provincial government (Pemerintah provinsi)
- District/city government (Pemerintah kabupaten/kota)
- NGOs (Lembaga Swadaya Masyarakat)
- Other related institutions (Lembaga lain yang terkait)
Target Participants:
- Planners (Perencana)
- Implementers (Pelaksana)
- Facilitators (Pendamping)
- Field supervisors (Pengawas kegiatan RHL di lapangan)
Multi-level training ensures capacity building across the implementation chain from planning through field oversight.
Facilitation Programs (Pendampingan) - Pasal 54
Purpose: Increase knowledge, skills, and capacity of RHL implementers
Minimum Facilitation Activities:
- Awareness raising (Penyadaran)
- Capacity building (Peningkatan kapasitas)
- Community empowerment (Pendayagunaan masyarakat)
Four Facilitator Categories:
1. Forestry extension officers (Penyuluh kehutanan)
2. Community forestry extension volunteers (Penyuluh Kehutanan Swadaya Masyarakat)
3. NGOs (Lembaga Swadaya Masyarakat)
4. Technical personnel recruited by Watershed Management Offices (Tenaga teknis yang direkrut oleh BPDASHL)
Three Facilitator Duties:
1. Socialize RHL activities (Melakukan sosialisasi kegiatan RHL)
2. Provide training to communities and implementers (Memberikan pelatihan kepada masyarakat dan pelaksana)
3. Provide technical guidance and facilitation (Memberikan bimbingan teknis dan pendampingan)
Facilitator Compensation:
Minimum facilities provided to facilitators include:
- Honorarium
- Field accommodation costs (Biaya pemondokan di lapangan)
- Official travel (Perjalanan dinas)
- Transportation assistance (Bantuan transport)
- Group meeting costs (Biaya pertemuan kelompok)
These provisions ensure facilitators receive adequate support for extended field presence.
Budget Source: Facilitation costs are charged to the Balai (Watershed Management Office) budget, establishing clear funding responsibility.
Implementation Framework
Watershed-Based Organization
The regulation defines DAS (Daerah Aliran Sungai - Watershed) as a land area forming a unit with rivers and tributaries, functioning to collect, store, and channel water from rainfall to lakes or seas naturally, with land boundaries being topographic dividers and sea boundaries extending to areas still affected by land activities.
This watershed-based approach recognizes that effective rehabilitation must address entire catchment systems, not isolated parcels.
Management Authorities
Menteri: Minister responsible for forestry affairs, holding ultimate regulatory authority
Direktur Jenderal: Senior official managing watershed and protected forest control
Kepala Balai: Head of Watershed and Protected Forest Management Office, holding operational authority
Balai: Watershed and Protected Forest Management Office (Balai Pengelolaan Daerah Aliran Sungai dan Hutan Lindung - BPDASHL), the primary implementation agency
Implementation Mechanisms
Swakelola (Self-management):
A method to obtain goods/services carried out by Ministries/Agencies/Regional Apparatus, other Ministries/Agencies/Regional Apparatus, community organizations, or community groups
Penyedia (Provider):
Business actors providing goods/services based on contracts
The regulation accommodates both direct government implementation and contracted service provision.
Critical Land Rehabilitation Context
Defining Critical Land
The regulation defines Lahan Kritis (Critical Land) as land inside and outside forest areas whose function has decreased as a production element and watershed water management media.
This definition establishes the rehabilitation target: restoring land function for both production and hydrological regulation.
NDVI Assessment Tool
The regulation introduces Normal Density Value Index (NDVI) as a value resulting from vegetation index processing from satellite imagery infrared and red channels showing the level of vegetation density of each pixel relatively.
NDVI provides objective, satellite-based assessment of vegetation cover, enabling systematic critical land identification and rehabilitation progress monitoring.
Forest Types Addressed
Three Primary Forest Functions
Hutan Konservasi (Conservation Forest):
Forest areas with certain characteristics, having the main function of conserving the diversity of plants and animals and their ecosystems
Hutan Lindung (Protection Forest):
Forest areas having the main function as protection of life support systems to regulate water management, prevent flooding, control erosion, prevent seawater intrusion, and maintain soil fertility
Hutan Produksi (Production Forest):
Forest areas having the main function to produce forest products
Non-Forest Land Categories
Hutan Hak (Private Forest):
Forest on land encumbered with land rights
Hutan Rakyat (Community Forest):
Forest growing on land encumbered with ownership rights or other rights outside forest areas with minimum area of 0.25 hectares with canopy cover dominated by woody plants
Hutan Kota (Urban Forest):
A stretch of land with compact and dense growing trees in urban areas either on state land or rights land, designated as Urban Forest by authorized officials
This comprehensive coverage ensures support activities apply across all rehabilitation contexts from state forests to urban areas.
Strategic Implications
Holistic Rehabilitation Approach
PERMENLHK 105/2018's six-pillar framework addresses the full spectrum of rehabilitation challenges from community readiness (pre-conditioning) through technical capacity (seed development, technology) to institutional sustainability (capacity building). This holistic approach recognizes that technical interventions alone are insufficient without community support and institutional capacity.
Pre-Implementation Investment
Mandatory pre-conditioning before planting design represents significant procedural innovation, requiring upfront investment in community engagement and baseline assessment. This investment reduces implementation failures by addressing social and technical constraints before field activities commence.
Differentiated Community Engagement
The pre-conditioning requirement to address both supporting and non-supporting communities acknowledges that community attitudes vary and require tailored engagement strategies. This realism contrasts with approaches assuming universal community support.
Technology Innovation Prioritization
Targeting six specific challenging conditions (arid areas, peatlands, dense populations, vegetable centers, agroforestry, aerial seeding) directs innovation toward contexts where conventional approaches fail, maximizing technology development impact.
Professional Facilitation
Detailed facilitator provisions including qualifications, duties, and compensation signal the regulation's recognition that sustained field presence requires adequate professional support. The multi-source facilitator approach (government extension officers, volunteers, NGOs, contracted technical staff) provides implementation flexibility.
Watershed-Scale Integration
DAS-based organization ensures rehabilitation addresses systemic hydrological processes rather than site-specific symptoms, increasing ecological effectiveness.
For government agencies, PERMENLHK 105/2018 provides comprehensive support activity frameworks ensuring systematic attention to rehabilitation success factors beyond technical planting activities.
For communities, particularly in rehabilitation target areas, the regulation creates multiple engagement pathways through extension programs, training opportunities, and facilitation support, building local capacity for sustainable land management.
For implementing agencies and contractors, the regulation establishes clear technical standards and procedural requirements for support activities, reducing implementation ambiguity.
PERMENLHK 105/2018 represents Indonesia's most comprehensive regulatory framework for forest and land rehabilitation support activities, recognizing that technical excellence in planting must be complemented by community engagement, quality plant material, appropriate technology, fire prevention, plant protection, and institutional capacity building. Implementation success depends on adequate pre-conditioning investment, sustained facilitation presence, and coordinated action across the six support pillars throughout the rehabilitation lifecycle.
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