Governance in the Cassava Food Estate Programme in Gunung Mas Regency, Central Kalimantan Province, Indonesia

Governance in the Cassava Food Estate Programme in Gunung Mas Regency, Central Kalimantan Province, Indonesia | Research Square window.SnipcartSettings = { analytics: { enabled: false } }; (function() { var accessVector = localStorage.getItem('access_vector') || ''; window.dataLayer = window.dataLayer || []; if (accessVector) { window.dataLayer.push({ user: { profile: { profileInfo: { snid: accessVector } } } }); } })(); (function(w,d,s,l,i){w[l]=w[l]||[];w[l].push({'gtm.start':new Date().getTime(),event:'gtm.js'});var f=d.getElementsByTagName(s)[0],j=d.createElement(s),dl=l!='dataLayer'?'&l='+l:'';j.async=true;j.src='https://www.googletagmanager.com/gtm.js?id='+i+dl;f.parentNode.insertBefore(j,f);})(window,document,'script','dataLayer','GTM-K279D39R'); Browse Preprints In Review Journals COVID-19 Preprints AJE Video Bytes Research Tools Research Promotion AJE Professional Editing AJE Rubriq About Preprint Platform In Review Editorial Policies Our Team Advisory Board Help Center Sign In Submit a Preprint Cite Share Download PDF Research Article Governance in the Cassava Food Estate Programme in Gunung Mas Regency, Central Kalimantan Province, Indonesia Kisno Hadi This is a preprint; it has not been peer reviewed by a journal. https://doi.org/ 10.21203/rs.3.rs-7081789/v1 This work is licensed under a CC BY 4.0 License Status: Posted Version 1 posted You are reading this latest preprint version Abstract The food crisis due to the impact of Covid 19 in early 2020 is the background to the policy thinking of food estate programmes in all regions of Indonesia. Gunung Mas Regency, Central Kalimantan Province is one of the focuses of programme implementation, especially cassava food estate. The presence of the cassava food estate program initiated by the Ministry of Defence of the Republic of Indonesia in collaboration with the Ministry of Agriculture and the Ministry of Public Works and Public Housing faces three fundamental problems, namely 1) the lack of optimal involvement of local indigenous peoples in the implementation in the field; 2) not all land is suitable for cassava plants; and 3) some land has been certified as privately owned by the local community. Using a governance approach and descriptive-analytical research methods, this research will identify local resources, both actors and land at the district level as well as at the level of the 4 food estate villages as a support for the food estate policy. Data mining uses survey data sources, document data, interviews and FGDs (focus group discussions). The results of the research during April-December 2024 found 1) in terms of governance performance, the cassava food estate programme was dominated by the role of the state (government: The community only received one-way socialisation from the government and received a ready-made program from the Ministry of Defence; 2) in terms of key actors of governance at the village level, it was found that the actors who played a dominant role were the government from the village head, babinsa, agriculture office to the top structure of the Ministry of Defence; and 3) in terms of other resources besides cassava, it turns out that on the food estate land there are many other resources besides cassava that can be planted, namely fruits, corn, or local varieties of rice, namely siung rice, as well as other food sources such as livestock and fisheries. Governance Cassava Food Estate Policy Gunung Mas Regency Ministry of Defence Figures Figure 1 Figure 2 Introduction Since 10 March 2021, Gunung Mas Regency, Central Kalimantan Province has been designated as an implementation area for the national cassava food estate programme. The land used reaches 2000 hectares. There are 4 focus villages for programme implementation, namely 1) Tampelas Village; 20 Tewai Baru Village; 3) Sepang Kota Village; and 4) Pematang Limau Village in Sepang District. The programme was initiated by the Ministry of Defence of the Republic of Indonesia and later collaborated with the Ministry of Agriculture and the Ministry of Public Works and Housing. This programme is an effort by the government to increase national food reserves, where in the context of the Universal People's Defence and Security System the role of food is vital in addition to defence equipment, medical and energy, so food is referred to as part of strategic logistics (Reformasi.com Magazine, 1/10/2022). The food estate programme originated from the Indonesian government's response to the FAO (World Food and Agriculture Organization) warning about the world food crisis due to the Covid-19 pandemic. On 24 March 2020, FAO stated that there would be a potential world food crisis due to the policies of many countries implementing regional quarantine which had an impact on disrupting the food supply chain between countries. The Indonesian government responded to the FAO warning by issuing a food estate development plan on 1 million hectares of former peatland in Central Kalimantan. This plan is included in the National Strategic Project (PSN) through Presidential Regulation No. 109 of 2020 (Pantau Gambut, 2021: 1). In Central Kalimantan, there are three (3) districts whose land has been prepared, namely Kapuas Regency and Pulang Pisau Regency for rice commodities, and Gunung Mas Regency for cassava commodities. The land used is new rice fields by clearing land and forests in a predetermined area. In the development of national strategic logistics, food security is part of the government's efforts to achieve community welfare, as a large-scale cultivation business activity using more than 25 hectares of land with an industrial system based on science and technology, capital, modern organisation and management. Starting in fiscal year 2022, the Indonesian government has made the food security programme included in the 2022–2024 National Development Agenda (APN) with the priority programme of increasing the availability, access and quality of food consumption. The food security budget for 2022 reaches 76.9 trillion which is directed at 1) increasing the affordability and adequacy of diverse, quality, nutritious and safe food; (2) increasing productivity, income of farmers and fishermen through strengthening the capacity of farmers and fishermen, strengthening access to production inputs, providing agricultural and fisheries infrastructure, and encouraging mechanisation and the use of technology; (3) food diversification and nutritional quality; (4) improving the business climate and competitiveness; and (5) strengthening sustainable food systems (food estate development) ( www.ekon.go.id , 30/11/2021). The Ministry of Defence's involvement in the food estate programme is a commitment to President Joko Widodo's assignment to build the readiness of national strategic logistics reserves to support the country's land. The basic idea is that food security is a strategic condition for the security of a country. It can be understood that the national strategic logistics reserve is the development of a strong defence with a holistic dimension through strengthening military and non-military defences. This stems from the government's awareness that the fulfilment of people's food rights is a strategic issue that affects the rise and fall of a country. This is because food can basically be used as a weapon, thousands of times more powerful than money or other defence resources (Montratama, 2021). Facts on the ground show that the cassava food estate land location is managed and guarded by the army (Tempo, 10/01/2022). So far, three problems have been encountered: 1) the communities in the four villages in the programme area have not received comprehensive socialisation; 2) some of the 2000 hectares of land have turned out to be productive land for the community's economic resources, such as chilli and aubergine plantations and certified household land (Kompas.com, 30/05/2021); and 3) not all land is suitable for planting cassava, but can be used to develop other food sources such as livestock, fisheries and local varieties of plants. This fact has raised suspicions among local indigenous communities and environmental activists that the programme will repeat the failure of the 1995 1 million hectare peatland project in Kapuas District. Another suspicion is that this programme could change the face of the forest into open land, which risks reducing the area of forest in Central Kalimantan, especially the Gunung Mas district, and the initial symptoms of the expansion of forest destruction are already visible, namely the expansion of the flood area from 8 sub-districts in 2019, to 9 sub-districts in 2020, and 12 sub-districts in 2021. Until 2021, 634 hectares of new land have been cleared and cultivated, 32 hectares of which have been planted with cassava (CNN Indonesia, 18/11/2021). Even though Indonesia has committed to reduce the impact of climate change through minimize forest clearing. In the records of the Global Circulation Model (GCM) and the Special Report on Emission Scenario (SRES), there are several signs of climate change in Indonesia that are increasingly widespread. Using 1990 as a baseline, the GCM projects the temperature rise in Indonesia to reach 0.8°-1.0° in the period 2020–2050. Indeed, to reduce this temperature increase, Indonesia needs to play an active role in the policy and implementation of reducing forest area expansion, namely through the practice of climate change mitigation and adaptation in Indonesia's development planning (Bappenas, 2009). The integration of these two policies has been done at the national level through the National Action Plan (NAP) (Bappenas, 2007) in the National Medium-Term Development Plan (RPJMN) and the Regional Action Plan (RAD) in the Regional Medium-Term Development Plan (RPJMD) at the provincial and district/city levels. The emergence of the cassava food estate programme through the Ministry of Defence really makes various central government level policies contradictory. Therefore, this research was conducted to obtain further scientific evidence of the cassava food estate programme. The questions to be answered through this research are 1) how is governance implemented in the programme? 2) Secondly, how are stakeholders at the district and village levels involved in the implementation of the programme? This research is expected to explain 1) the performance profile of district and village level governance in the implementation of the cassava food estate programme; 2) the identification of key actors in the 4 target villages of the cassava food estate programme; and 3) the identification of other resources besides cassava commodities to be adapted and developed in the food estate area. Theoretical Framework Through the analysis of the governance approach, the results of this study can support the cassava food estate policy. Because government is an institution that handles various social problems, which problems continue to change and develop from time to time, and the goal of government is the implementation of good governance, which can solve applied problems (Soewargono, 2015: 19). In this context, it is believed that the higher the level of compliance of all elements of government in the regions and villages, including political officials, bureaucracy, civil society and economic society in practising the principles of governance, the region will be able to prosper its people, especially through the food estate programme policy. Governance presupposes that all stakeholders at the local level, namely political officials, regional and village governments, civil society and economic society can be involved, starting from the identification of potential resources that can adapt to the programme and can be developed, the actors involved, the carrying capacity of the social and political environment, to what problems are being faced and become obstacles to the programme. The World Bank first introduced governance in 1989, and defined governance as "the use of political power to organise and manage the nation". Actors from business, government and civil society must be managed synergistically. The role of the state is not to perform regulative functions, but facilitative functions. Thus, governance according to the Word Bank can only be enforced by involving non-state actors as widely as possible and by limiting government intervention (Pratikno, 2007 : 7–8). Meanwhile, the United Nations Development Program (UNDP) formulates the characteristics of governance in government administration, namely including all, transparency and responsibility, effectiveness and fairness, ensuring the rule of law, ensuring that political, social and economic priorities are based on community consensus, and taking into account the interests of the poorest and weakest in the decision-making process regarding the allocation of development resources (Sumarto, 2009 : 3). Referring to the theoretical framework, this research specifically analyses the performance of governance using the scope of state institutional analysis at the district and village levels. The implementation of the cassava food estate programme can be carried out if there is a structured and systematic adaptation from the state to stakeholders, namely through institutional governance mechanisms to create shareholders between actors. Through the recommendations of this research, it is hoped that the dominance of the state (local government and the army) will break down into the role of shareholders at the village and district levels. This is because institutional roles that are shared between institutions can play a role and support the programme. Institutional capacity includes ownership of resources, authority and duties that are carried out based on applicable regulations. This means that the local community must be part of the policy programme. Methods The research method is descriptive-analytical, which seeks to describe complex social reality through simplification and classification by utilising the concept of governance, the concept can explain a social symptom analytically. This method uses narrative, content, discourse, archival and phenomic analyses, even statistical data (Denzin and Lincoln, 2009 : 4). Data analysis uses interpretative qualitative which seeks to ideographically raise various social phenomena and realities, the resulting theory gets a strong foothold in reality, is contextual and historical (Somantri, 2005 : 64). Qualitative research intends to understand the phenomena experienced by research subjects: behaviour, perceptions, motivations, and actions, holistically and by means of descriptions in the form of words and language, in a special natural context and by utilising various scientific methods (Moleong, 2005, pp. 4–6). Data collection was conducted using three methods: (1) Literature study, which involved a comprehensive reading of relevant documents and archives at the regencyand village level; (2) Observation, which involved going directly to the field to both the regency level and the four programme target villages; (3) Focus Group Discussions (FGDs) which were conducted in five places, one at the district level and four programme target villages, where FGDs were conducted to obtain direct data confirmation from informants. This research methodology is explained in the chart below: Result The food estate concept is directed towards a strong agribusiness system in rural areas based on the empowerment of indigenous peoples or local communities, where the priority commodities to be developed are rice, cassava, sweet potatoes, sago, corn, sorghum, soybeans, peanuts, sugar cane, oil palm, fruits, vegetables, and chicken or cattle. This concept provides an opportunity that cassava commodity policies in Gunung Mas Regency can coexist or adapt with other potential resources that already exist in local indigenous communities. Gunung Mas Regency has an area of 10,804 Km 2 , which is divided into 12 (twelve) sub-districts, 11 (eleven) urban villages and 128 (one hundred twenty-eight) villages with a total population based on the 2020 census of 117,457 people. In the development of the last 10 (ten) years, in terms of location, the Gunung Mas Regency area is a strategic area where it is a national crossing area that brings people and goods back and forth. It is crossed by a national road that connects Palangka Raya City with Kapuas Regency and Pulang Pisau Regency, and most recently for the last 6 years, it is a regional link between Palangka Raya City as the capital of Central Kalimantan Province with Murung Raya Regency and North Barito Regency. Sepang sub-district alone, where the four target villages of the cassava food estate programme are located, has a population of 9,014. The average population of each village is approximately 1,000–1,500 people. The people of Gunung Mas Regency and especially in the four programme target villages are indigenous Dayak people. One of the signs is that they still hold strong customary rules in their daily lives, there is a customary leader called Mantir at the village level and called Damang at the sub-district level, and traditional life cannot be separated from farming activities. In the four villages targeted by the cassava food estate programme, farming activities have been abandoned due to the government's ban on land burning. This is because the farming activities they carry out are identical to burning land to open fields. Now farming activities are diverted to gardening, animal husbandry and fisheries around the house. Some people have shifted their livelihoods to traditional gold mining activities around the Kahayan River. At the Gunung Mas Regency government level, the Agriculture Office of Gunung Mas Regency is directly involved in the technical aspects of the cassava food estate programme. Leading sector as the key actor in the implementation of the cassava food estate program is the Ministry of Defence, where at the location of the food estate is assigned a soldier with the rank of Lieutenant Colonel who is an agricultural expert as the direct leader of the program in the field. In his work, this officer leads several subordinates who are also soldiers and recruits from the local community. Externally, he is assisted by The Village Guidance Officer (Babinsa), who connects him with the local community. Another agency involved is the Central Kalimantan Agricultural Instrument Standardisation Agency (BSIP), based in Palangka Raya. In the field, there is also a socialisation team, namely the Sepang sub-district head and the village head of each village. The area of the cassava food estate is 2,000 hectares, covering 4 villages, namely Tewai Baru Village, Sepang Kota Village, Tampelas Village, and Pematang Limau Village. Of the 2,000 hectares, 200–600 hectares have been cleared into open land. There are already cassava plants growing as a pilot, which is about 1 hectare and has grown well as a pilot. Recently, in addition to cassava, hibryda corn has also been planted, which is the raw material for poultry feed production. The Gunung Mas District Agriculture Office is involved in coordinating the preparation of field data, land conditions and potential land locations. The R&D section of the Gunung Mas District Planning, Research and Innovation Agency (Bapperida) prepared the land map. Until 2023, the cassava food estate land location has obtained Forest Area Designation from the Ministry of Environment and Forestry of the Republic of Indonesia through Decree Number 210/MENLHK/SETJEN/PLA.0/3/2023 with an area of 6,466 hectares covering areas in Gunung Mas Regency and Kapuas Regency. With the land acquisition, the cassava food estate will expand to Kapuas Regency in the future. Discussion District and village level governance performance profiles From the district level data as well as the four target villages of the food estate program through interviews, FGDs and analysis of relevant documents, the implementation of governance in the cassava food estate program can be analysed as follows: 1. From the perspective of governance performance, so far the cassava food estate program has been dominated by the role of the state (government) and ignored the role of the community, the community has only received one-way socialisation from the government where in this case the actors are the Regional Government and the Ministry of Defence. The community also received a ready-made programme from the Ministry of Defence. The indicator is the entire policy process, namely: Socialisation has been one-way and so far there have been three socialisation sessions in each target village conducted by the Ministry of Defence team and the Gunung Mas Regent. The communities in the four villages have only received one-way socialisation. The planning was carried out by the Ministry of Defence, together with the Ministry of Agriculture and the Ministry of Public Works, with a system of direct appointment of the land to be used, without seeing the conditions in the field that the land targeted by the programme belongs to the village community and has certified property rights. Due to the community's objection to the claim of their plantation land, at the initiative of the Gunung Mas Regent, the location of the programme target land was shifted by about 8–10 km to the outside of the village, where initially the designated land was located on the side of the Palangka Raya-Kuala Kurun highway and close to village settlements. Implementation is carried out or coordinated by TNI8 officers from the Ministry of Defence who coordinate cassava planting activities, then assisted by several daily hired workers from the villagers. The implementation of this programme involves planting cassava seedlings directly in soil that has been processed and mixed with fertiliser. In the field, it was found that approximately 4 hectares of experimental cassava plants were growing well and ready to harvest in the next 3 months (October 2024). While the location to the west is a hybrid corn plant that has been harvested approximately 4 hectares as well. 2. From the perspective of the key actors in village-level governance, it appears that the dominant actor is the government: Ministry of Defence along with Kodim 1016/Palangka Raya and the Liaison Officer (Pabung) of Gunung Mas Regency; Babinsa in 4 villages (Tewai Baru, Pematang Limau, Sepang Kota and Tampelas; Gunung Mas Regent and his staff, namely the Agriculture Office, Public Works Office, Bapperida, and Sepang Sub-District Head. The village head and his officials along with Babinsa. Agricultural Instrument Standardisation Agency(BSIP) Central Kalimantan, which is based in Palangka Raya. 3. Perspective on other resources besides cassava, In terms of other resources, other types of crops that can and are suitable for planting on the food estate land are not only cassava, but other types of crops such as rubber, oil palm, fruits such as chempedak, pineapple, and local rice varieties called siung rice. The rice produced by this local variety of siung rice is red in colour. Some of the land can also be adapted for fisheries by opening fish ponds such as catfish, goldfish, or snakehead fish. Then in terms of animal husbandry, some land can also be used to raise cows, chickens, ducks, goats, etc. From the 6,466 hectares of land cleared by the Ministry of Forestry and Environment, it is certain that the cassava food estate programme can create new jobs for the community and can be adapted to grow other crops besides cassava. Because not all land conditions are suitable for cassava plants. There are only some lands that are suitable, namely those that include higher ground and do not experience flooding during the rainy season. Key Actors of Programme Implementers So far, from the data and information obtained in the field, especially at the level of the two existing villages, the key village-level actors in the cassava food estate programme can be identified as follows: Table 1 Key actor and capacity in the cassapa food estate programme Actor Capacity Gunung Mas Regent Socialisation Gunung Mas District Agriculture Office Agricultural Technical Team (land condition, land potential) R&D Section of Bapperida Kab. Gunung Mas Technical Team Technical Team Land Map Central Kalimantan Agricultural Instrument Standardisation Agency (BSIP) Agricultural Technical Team (land condition, land potential) Sepang Sub-district Head Socialisation Village Head Socialisation Village Guidance Officer (Babinsa) Socialisation Ministry of Defence Officer Field supervisor and land cultivator in the field Looking at these key actors and their respective roles in the cassava food estate programme, it can be concluded that the key actors are predominantly from the government (bureaucratic actors). Even at the village level, many people said that they did not know and were not involved in the process of managing the cassava food estate. Whereas in the context of governance, in addition to the role of the government, there also needs to be community involvement, both civil society and economic society (entrepreneurs). These key actors are even involved in the context of the field coordination team. Meanwhile, the policy aspects concerning land, land coordinate maps, crops planted, fertilisers, etc. come from the Ministry of Defence. The village community, as they admit, is only an object of policy, as well as a spectator to the management of this cassava food estate. If from the beginning the villagers were actively involved in determining what crops should be planted, or where to locate land with fertile soil, then the cassava food estate could be planted with adaptive food crops. Identification of other resources besides cassava The results of surveys, interviews and FGDs in the field found that other resources that can be adapted and developed on cassava food estate land are as follows: Table 2 Resources and capacity of informasion Resource Type Description 1. Cassava and hybrid corn The main crop of the Ministry of Defence's food estate programme 2. Agricultural / Plantation Crops a. Rubber b. Chempedak and Pineapple fruits c. Vegetables (chillies, eggplant, long beans, etc) d. Siung rice (local red-coloured rice variety) e. Gogo rice Plant local varieties according to community specialities and traditions. Proposed by the village community. 3. Animal Husbandry and Fisheries a. Cattle b. Goats c. Chicken d. Ducks e. Freshwater fish (cultivation of Catfish, Patin fish, Glass fish, Snakehead fish) Village community proposal. The identification is a field finding as a community proposal that has so far been practised and developed according to the traditions of the village community for generations. However, as the times and traditions began to change, these mainstay and distinctive resources began to be abandoned. This is because the community has switched to making a living as traditional gold miners. It is good that these resources can be part of the future land development of the cassava food estate programme. Because not all of the 6,466 hectares of food estate land is suitable for planting cassava and hybrid corn. Some soil structures on food estate land can be planted and developed with other resources that are able to adapt to the environment in each village. There is even land that is consideredsuitable for siung rice, which is a local red-coloured rice variety. This fact clarifies that not all food estate land is suitable for cassava. Through this research, it was found that there are many other crops and even plantations, livestock and fisheries that can be adapted to be developed on this cassava food estate land. Besides of course the main one is cassava. Conclusion Cassava food estate in Gunung Mas Regency has been running for more than 2 years since land clearing in 2022. However, until the end of 2024 and entering 2025 there has been no cassava production that can be utilised by the community as a food source. What exists is only limited to experiments, namely planting experimental cassava on 4 hectares of land and hybrid corn on 4 hectares of land. Meanwhile, some land has been cleared. This is in stark contrast to the rice food estates in Gadabung and Belanti Siam villages in Pulang Pisau Regency, where the harvests from the food estates, namely Hybrida rice and Supadi rice, have well known in the market in Central Kalimantan as a source of food consumption for the community. Instead of producing food sources for the people of Central Kalimantan at large, even for village communities around the circumference of the cassava food estate, this programme has not been beneficial. The surrounding villagers have not obtained maximum results and benefits from the cassava food estate programme, such as labour in general or in terms of economic benefits and food. From time to time, they often receive one-way socialisation only from the Regent and Ministry of Defence officials who come to their villages. From the data and information obtained in the field, it turns out that cassava plants are not suitable for planting in this land location. This is because in terms of governance, the programme is considered to be dominated by government actors and minimally involves the participation of village communities, both civil society and economic society. Civil society are villagers who are active in farming and gardening, for example in farmer group organisations or cooperative members. Meanwhile, the economic community are those who work as traders or distributors of basic necessities from and outside the village. The villagers seem to be mere spectators to the activities of the trucks carrying either fertiliser or plant seeds that enter the land. The fact that has developed to this day, when the programme has been running and is considered unsuitable for cassava plants, some of the food estate land has been planted with hybrid corn plants as raw material for poultry feed production. In fact, recently the food estate land has been projected as a food buffer land for the IKN (Capital of the Archipelago) in East Kalimantan. Near the location of the food estate, an army battalion even be built, and the Ministry of Defence from the beginning of the 2024 election until after the election has also begun to open up to this programme. The community has started to be able to access the location. This fact shows that when access is closed and only dominated by the state (government), the programme is considered less targeted. However, later with the openness of the Ministry of Defence, the parties can provide input, including planting hybrid corn. In terms of governance performance, the cassava food estate program is dominated by the role of the state (government) and ignores the role of the community, the community only receives one-way socialisation from the government and receives ready-made programs from the Ministry of Defence. In terms of key actors of governance at the village level, it also appears that the dominant actors are the government, starting from the village head, village guidance officers, agriculture office, and so on up to the top structure, namely the Regent and the Ministry of Defence. Then in terms of other resources besides cassava, it turns out that on food estate land there are many other resources besides cassava that can be planted as companion crops. Even some local varieties of crops that are typical of this area can be planted such as clove rice. Advice: a. The performance of governance can be shared with the community, as a result the villagers do not feel alienated from the food estate programme, such as the role of determining the location of land, types of crops and participating in the workforce. Thus, villagers do not just receive socialisation. b. Key governance actors can involve villagers technically in the field, such as maximising the role of cooperatives, farmer groups and other community groups technically, as villagers understand the environmental conditions in which they live. c. Food estate land covering an area of 2000 hectares and now expanded with the acquisition of 6,466 hectares of land from the Indonesian Ministry of Forestry and Environment, can be divided per plot and per hectare in addition to planting cassava and hybrid corn as the main crops, in the future it can be divided by planting other types of crops that can help community entrepreneurship such as rubber, rice, fruits, and other vegetables as well as livestock and fisheries. This is to dismiss the issue of land failure for cassava so that it can be used for the management of various other types of resources. d. An equally important factor in the success of the food estate programme is the collective support of the surrounding community, which should be taken into consideration for future food estate management, namely support for generating village entrepreneurship, as well as improving the economy of the village community. Declarations Ethics approval and consent to participate The participants were fully informed of the purpose of this study and provided their written informed consent to participate in the study. Competing interest The author declared no potential conflicts of interest wits respect to the research, authorship, and publication of this article Funding Thanks to the National Research and Innovation Agency (BRIN), which has provided research grants through the Research and Innovation for Advanced Indonesia (RIIM) scheme for the 2023–2024 fiscal year, grant number 41/IV/KS/05/2023 and 003/LPPM-UKP/P/V/2023. Author contributions Conceptualization, methodology, final analysis, writing, and editing were caried out by the author. Acknowledgements The author extends sicere gratitude to all resource persons in Gunung Mas Regency and Central Kalimantan Province who contributed to this study by sharing their valuable experiences and traditional knowledge. 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Legislation: Law No. 6 Year 2014 Law No. 23 Year 2014 Presidential Regulation No. 109 of 2020 Mass Media: Kompas.com, 30 May 2021. https://www.kompas.id/baca/nusantara/2021/05/30/sebagian-dari-2-000-hektar-lahan-food-estate-di-gunung-mas-bersertifikat Reformasi.com Magazine, 1 October 2022 Peat Monitor, 2021 https://en.pantaugambut.id/insights/peatland-monitoring-methods-in-concession-areas www.ekon.go.id, 30 November 2021 https://www.ekon.go.id/publikasi/detail/3496/strategi-menjaga-ketahanan-pangan-nasional-dalam-agenda-pembangunan-nasional CNN Indonesia, 18 November 2021 https://www.cnnindonesia.com/nasional/20211118184645-20-723161/lbh-food-estate-gunung-mas-kalteng-berpotensi-perluas-wilayah-banjir Tempo, 10 January 2021 https://www.tempo.co/politik/mahfud-md-kritik-food-estate-ini-5-lokasi-dan-kendalanya-95286 Scheme 1 Scheme 1 is available in the Supplementary Files section. Supplementary Files Scheme1.png Scheme 1. 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Researhc Methods\u003c/strong\u003e\u003c/p\u003e","description":"","filename":"Scheme1.png","url":"https://assets-eu.researchsquare.com/files/rs-7081789/v1/791c91563428ae95ed870695.png"}],"financialInterests":"","formattedTitle":"Governance in the Cassava Food Estate Programme in Gunung Mas Regency, Central Kalimantan Province, Indonesia","fulltext":[{"header":"Introduction","content":"\u003cp\u003eSince 10 March 2021, Gunung Mas Regency, Central Kalimantan Province has been designated as an implementation area for the national cassava food estate programme. The land used reaches 2000 hectares. There are 4 focus villages for programme implementation, namely 1) Tampelas Village; 20 Tewai Baru Village; 3) Sepang Kota Village; and 4) Pematang Limau Village in Sepang District. The programme was initiated by the Ministry of Defence of the Republic of Indonesia and later collaborated with the Ministry of Agriculture and the Ministry of Public Works and Housing. This programme is an effort by the government to increase national food reserves, where in the context of the Universal People's Defence and Security System the role of food is vital in addition to defence equipment, medical and energy, so food is referred to as part of strategic logistics (Reformasi.com Magazine, 1/10/2022).\u003c/p\u003e\u003cp\u003eThe food estate programme originated from the Indonesian government's response to the FAO (World Food and Agriculture Organization) warning about the world food crisis due to the Covid-19 pandemic. On 24 March 2020, FAO stated that there would be a potential world food crisis due to the policies of many countries implementing regional quarantine which had an impact on disrupting the food supply chain between countries. The Indonesian government responded to the FAO warning by issuing a food estate development plan on 1\u0026nbsp;million hectares of former peatland in Central Kalimantan. This plan is included in the National Strategic Project (PSN) through Presidential Regulation No. 109 of 2020 (Pantau Gambut, 2021: 1). In Central Kalimantan, there are three (3) districts whose land has been prepared, namely Kapuas Regency and Pulang Pisau Regency for rice commodities, and Gunung Mas Regency for cassava commodities. The land used is new rice fields by clearing land and forests in a predetermined area.\u003c/p\u003e\u003cp\u003eIn the development of national strategic logistics, food security is part of the government's efforts to achieve community welfare, as a large-scale cultivation business activity using more than 25 hectares of land with an industrial system based on science and technology, capital, modern organisation and management. Starting in fiscal year 2022, the Indonesian government has made the food security programme included in the 2022–2024 National Development Agenda (APN) with the priority programme of increasing the availability, access and quality of food consumption. The food security budget for 2022 reaches 76.9 trillion which is directed at 1) increasing the affordability and adequacy of diverse, quality, nutritious and safe food; (2) increasing productivity, income of farmers and fishermen through strengthening the capacity of farmers and fishermen, strengthening access to production inputs, providing agricultural and fisheries infrastructure, and encouraging mechanisation and the use of technology; (3) food diversification and nutritional quality; (4) improving the business climate and competitiveness; and (5) strengthening sustainable food systems (food estate development) (\u003cspan class=\"ExternalRef\"\u003e\u003cspan class=\"RefSource\"\u003e\u003ca href=\"http://www.ekon.go.id\" target=\"_blank\"\u003ewww.ekon.go.id\u003c/a\u003e\u003c/span\u003e\u003cspan address=\"http://www.ekon.go.id\" targettype=\"URL\" class=\"RefTarget\"\u003e\u003c/span\u003e\u003c/span\u003e, 30/11/2021).\u003c/p\u003e\u003cp\u003eThe Ministry of Defence's involvement in the food estate programme is a commitment to President Joko Widodo's assignment to build the readiness of national strategic logistics reserves to support the country's land. The basic idea is that food security is a strategic condition for the security of a country. It can be understood that the national strategic logistics reserve is the development of a strong defence with a holistic dimension through strengthening military and non-military defences. This stems from the government's awareness that the fulfilment of people's food rights is a strategic issue that affects the rise and fall of a country. This is because food can basically be used as a weapon, thousands of times more powerful than money or other defence resources (Montratama, 2021). Facts on the ground show that the cassava food estate land location is managed and guarded by the army (Tempo, 10/01/2022).\u003c/p\u003e\u003cp\u003eSo far, three problems have been encountered: 1) the communities in the four villages in the programme area have not received comprehensive socialisation; 2) some of the 2000 hectares of land have turned out to be productive land for the community's economic resources, such as chilli and aubergine plantations and certified household land (Kompas.com, 30/05/2021); and 3) not all land is suitable for planting cassava, but can be used to develop other food sources such as livestock, fisheries and local varieties of plants. This fact has raised suspicions among local indigenous communities and environmental activists that the programme will repeat the failure of the 1995 1\u0026nbsp;million hectare peatland project in Kapuas District. Another suspicion is that this programme could change the face of the forest into open land, which risks reducing the area of forest in Central Kalimantan, especially the Gunung Mas district, and the initial symptoms of the expansion of forest destruction are already visible, namely the expansion of the flood area from 8 sub-districts in 2019, to 9 sub-districts in 2020, and 12 sub-districts in 2021. Until 2021, 634 hectares of new land have been cleared and cultivated, 32 hectares of which have been planted with cassava (CNN Indonesia, 18/11/2021).\u003c/p\u003e\u003cp\u003eEven though Indonesia has committed to reduce the impact of climate change through minimize forest clearing. In the records of the Global Circulation Model (GCM) and the Special Report on Emission Scenario (SRES), there are several signs of climate change in Indonesia that are increasingly widespread. Using 1990 as a baseline, the GCM projects the temperature rise in Indonesia to reach 0.8°-1.0° in the period 2020–2050. Indeed, to reduce this temperature increase, Indonesia needs to play an active role in the policy and implementation of reducing forest area expansion, namely through the practice of climate change mitigation and adaptation in Indonesia's development planning (Bappenas, 2009). The integration of these two policies has been done at the national level through the National Action Plan (NAP) (Bappenas, 2007) in the National Medium-Term Development Plan (RPJMN) and the Regional Action Plan (RAD) in the Regional Medium-Term Development Plan (RPJMD) at the provincial and district/city levels. The emergence of the cassava food estate programme through the Ministry of Defence really makes various central government level policies contradictory.\u003c/p\u003e\u003cp\u003eTherefore, this research was conducted to obtain further scientific evidence of the cassava food estate programme. The questions to be answered through this research are 1) how is governance implemented in the programme? 2) Secondly, how are stakeholders at the district and village levels involved in the implementation of the programme? This research is expected to explain 1) the performance profile of district and village level governance in the implementation of the cassava food estate programme; 2) the identification of key actors in the 4 target villages of the cassava food estate programme; and 3) the identification of other resources besides cassava commodities to be adapted and developed in the food estate area.\u003c/p\u003e\u003cp\u003e\u003c/p\u003e"},{"header":"Theoretical Framework","content":"\u003cp\u003eThrough the analysis of the governance approach, the results of this study can support the cassava food estate policy. Because government is an institution that handles various social problems, which problems continue to change and develop from time to time, and the goal of government is the implementation of good governance, which can solve applied problems (Soewargono, 2015: 19). In this context, it is believed that the higher the level of compliance of all elements of government in the regions and villages, including political officials, bureaucracy, civil society and economic society in practising the principles of governance, the region will be able to prosper its people, especially through the food estate programme policy. Governance presupposes that all stakeholders at the local level, namely political officials, regional and village governments, civil society and economic society can be involved, starting from the identification of potential resources that can adapt to the programme and can be developed, the actors involved, the carrying capacity of the social and political environment, to what problems are being faced and become obstacles to the programme.\u003c/p\u003e\u003cp\u003eThe World Bank first introduced governance in 1989, and defined governance as \"the use of political power to organise and manage the nation\". Actors from business, government and civil society must be managed synergistically. The role of the state is not to perform regulative functions, but facilitative functions. Thus, governance according to the Word Bank can only be enforced by involving non-state actors as widely as possible and by limiting government intervention (Pratikno, \u003cspan citationid=\"CR7\" class=\"CitationRef\"\u003e2007\u003c/span\u003e: 7–8). Meanwhile, the United Nations Development Program (UNDP) formulates the characteristics of governance in government administration, namely including all, transparency and responsibility, effectiveness and fairness, ensuring the rule of law, ensuring that political, social and economic priorities are based on community consensus, and taking into account the interests of the poorest and weakest in the decision-making process regarding the allocation of development resources (Sumarto, \u003cspan citationid=\"CR10\" class=\"CitationRef\"\u003e2009\u003c/span\u003e: 3).\u003c/p\u003e\u003cp\u003eReferring to the theoretical framework, this research specifically analyses the performance of governance using the scope of state institutional analysis at the district and village levels. The implementation of the cassava food estate programme can be carried out if there is a structured and systematic adaptation from the state to stakeholders, namely through institutional governance mechanisms to create shareholders between actors. Through the recommendations of this research, it is hoped that the dominance of the state (local government and the army) will break down into the role of shareholders at the village and district levels. This is because institutional roles that are shared between institutions can play a role and support the programme. Institutional capacity includes ownership of resources, authority and duties that are carried out based on applicable regulations. This means that the local community must be part of the policy programme.\u003c/p\u003e"},{"header":"Methods","content":"\u003cp\u003eThe research method is descriptive-analytical, which seeks to describe complex social reality through simplification and classification by utilising the concept of governance, the concept can explain a social symptom analytically. This method uses narrative, content, discourse, archival and phenomic analyses, even statistical data (Denzin and Lincoln, \u003cspan citationid=\"CR3\" class=\"CitationRef\"\u003e2009\u003c/span\u003e: 4). Data analysis uses interpretative qualitative which seeks to ideographically raise various social phenomena and realities, the resulting theory gets a strong foothold in reality, is contextual and historical (Somantri, \u003cspan citationid=\"CR9\" class=\"CitationRef\"\u003e2005\u003c/span\u003e: 64). Qualitative research intends to understand the phenomena experienced by research subjects: behaviour, perceptions, motivations, and actions, holistically and by means of descriptions in the form of words and language, in a special natural context and by utilising various scientific methods (Moleong, 2005, pp. 4–6). Data collection was conducted using three methods: (1) Literature study, which involved a comprehensive reading of relevant documents and archives at the regencyand village level; (2) Observation, which involved going directly to the field to both the regency level and the four programme target villages; (3) Focus Group Discussions (FGDs) which were conducted in five places, one at the district level and four programme target villages, where FGDs were conducted to obtain direct data confirmation from informants. This research methodology is explained in the chart below:\u003c/p\u003e"},{"header":"Result","content":"\u003cp\u003eThe food estate concept is directed towards a strong agribusiness system in rural areas based on the empowerment of indigenous peoples or local communities, where the priority commodities to be developed are rice, cassava, sweet potatoes, sago, corn, sorghum, soybeans, peanuts, sugar cane, oil palm, fruits, vegetables, and chicken or cattle. This concept provides an opportunity that cassava commodity policies in Gunung Mas Regency can coexist or adapt with other potential resources that already exist in local indigenous communities. Gunung Mas Regency has an area of 10,804 Km\u003csup\u003e2\u003c/sup\u003e, which is divided into 12 (twelve) sub-districts, 11 (eleven) urban villages and 128 (one hundred twenty-eight) villages with a total population based on the 2020 census of 117,457 people. In the development of the last 10 (ten) years, in terms of location, the Gunung Mas Regency area is a strategic area where it is a national crossing area that brings people and goods back and forth. It is crossed by a national road that connects Palangka Raya City with Kapuas Regency and Pulang Pisau Regency, and most recently for the last 6 years, it is a regional link between Palangka Raya City as the capital of Central Kalimantan Province with Murung Raya Regency and North Barito Regency.\u003c/p\u003e\n\u003cp\u003eSepang sub-district alone, where the four target villages of the cassava food estate programme are located, has a population of 9,014. The average population of each village is approximately 1,000\u0026ndash;1,500 people. The people of Gunung Mas Regency and especially in the four programme target villages are indigenous Dayak people. One of the signs is that they still hold strong customary rules in their daily lives, there is a customary leader called Mantir at the village level and called Damang at the sub-district level, and traditional life cannot be separated from farming activities. In the four villages targeted by the cassava food estate programme, farming activities have been abandoned due to the government's ban on land burning. This is because the farming activities they carry out are identical to burning land to open fields. Now farming activities are diverted to gardening, animal husbandry and fisheries around the house. Some people have shifted their livelihoods to traditional gold mining activities around the Kahayan River.\u003c/p\u003e\n\u003cp\u003eAt the Gunung Mas Regency government level, the Agriculture Office of Gunung Mas Regency is directly involved in the technical aspects of the cassava food estate programme. Leading sector as the key actor in the implementation of the cassava food estate program is the Ministry of Defence, where at the location of the food estate is assigned a soldier with the rank of Lieutenant Colonel who is an agricultural expert as the direct leader of the program in the field. In his work, this officer leads several subordinates who are also soldiers and recruits from the local community. Externally, he is assisted by The Village Guidance Officer (Babinsa), who connects him with the local community. Another agency involved is the Central Kalimantan Agricultural Instrument Standardisation Agency (BSIP), based in Palangka Raya. In the field, there is also a socialisation team, namely the Sepang sub-district head and the village head of each village.\u003c/p\u003e\n\u003cp\u003eThe area of the cassava food estate is 2,000 hectares, covering 4 villages, namely Tewai Baru Village, Sepang Kota Village, Tampelas Village, and Pematang Limau Village. Of the 2,000 hectares, 200\u0026ndash;600 hectares have been cleared into open land. There are already cassava plants growing as a pilot, which is about 1 hectare and has grown well as a pilot. Recently, in addition to cassava, hibryda corn has also been planted, which is the raw material for poultry feed production. The Gunung Mas District Agriculture Office is involved in coordinating the preparation of field data, land conditions and potential land locations. The R\u0026amp;D section of the Gunung Mas District Planning, Research and Innovation Agency (Bapperida) prepared the land map. Until 2023, the cassava food estate land location has obtained Forest Area Designation from the Ministry of Environment and Forestry of the Republic of Indonesia through Decree Number 210/MENLHK/SETJEN/PLA.0/3/2023 with an area of 6,466 hectares covering areas in Gunung Mas Regency and Kapuas Regency. With the land acquisition, the cassava food estate will expand to Kapuas Regency in the future.\u003c/p\u003e"},{"header":"Discussion","content":"\u003cp\u003e\u003cstrong\u003eDistrict and village level governance performance profiles\u003c/strong\u003e\u003c/p\u003e\n\u003cp\u003eFrom the district level data as well as the four target villages of the food estate program through interviews, FGDs and analysis of relevant documents, the implementation of governance in the cassava food estate program can be analysed as follows:\u003c/p\u003e\n\u003cp\u003e1. From the perspective of governance performance, so far the cassava food estate program has been dominated by the role of the state (government) and ignored the role of the community, the community has only received one-way socialisation from the government where in this case the actors are the Regional Government and the Ministry of Defence. The community also received a ready-made programme from the Ministry of Defence. The indicator is the entire policy process, namely:\u003c/p\u003e\n\u003col style=\"list-style-type: lower-alpha;\"\u003e\n\u003cli\u003e\n\u003cp\u003eSocialisation has been one-way and so far there have been three socialisation sessions in each target village conducted by the Ministry of Defence team and the Gunung Mas Regent. The communities in the four villages have only received one-way socialisation.\u003c/p\u003e\n\u003c/li\u003e\n\u003cli\u003e\n\u003cp\u003eThe planning was carried out by the Ministry of Defence, together with the Ministry of Agriculture and the Ministry of Public Works, with a system of direct appointment of the land to be used, without seeing the conditions in the field that the land targeted by the programme belongs to the village community and has certified property rights. Due to the community's objection to the claim of their plantation land, at the initiative of the Gunung Mas Regent, the location of the programme target land was shifted by about 8\u0026ndash;10 km to the outside of the village, where initially the designated land was located on the side of the Palangka Raya-Kuala Kurun highway and close to village settlements.\u003c/p\u003e\n\u003c/li\u003e\n\u003cli\u003e\n\u003cp\u003eImplementation is carried out or coordinated by TNI8 officers from the Ministry of Defence who coordinate cassava planting activities, then assisted by several daily hired workers from the villagers. The implementation of this programme involves planting cassava seedlings directly in soil that has been processed and mixed with fertiliser. In the field, it was found that approximately 4 hectares of experimental cassava plants were growing well and ready to harvest in the next 3 months (October 2024). While the location to the west is a hybrid corn plant that has been harvested approximately 4 hectares as well.\u003c/p\u003e\n\u003cp\u003e\u0026nbsp;\u003c/p\u003e\n\u003c/li\u003e\n\u003c/ol\u003e\n\u003cp\u003e2. From the perspective of the key actors in village-level governance, it appears that the dominant actor is the government:\u003c/p\u003e\n\u003col style=\"list-style-type: lower-alpha;\"\u003e\n\u003cli\u003e\n\u003cp\u003eMinistry of Defence along with Kodim 1016/Palangka Raya and the Liaison Officer (Pabung) of Gunung Mas Regency;\u003c/p\u003e\n\u003c/li\u003e\n\u003cli\u003e\n\u003cp\u003eBabinsa in 4 villages (Tewai Baru, Pematang Limau, Sepang Kota and Tampelas;\u003c/p\u003e\n\u003c/li\u003e\n\u003cli\u003e\n\u003cp\u003eGunung Mas Regent and his staff, namely the Agriculture Office, Public Works Office, Bapperida, and Sepang Sub-District Head.\u003c/p\u003e\n\u003c/li\u003e\n\u003cli\u003e\n\u003cp\u003eThe village head and his officials along with Babinsa.\u003c/p\u003e\n\u003c/li\u003e\n\u003cli\u003e\n\u003cp\u003eAgricultural Instrument Standardisation Agency(BSIP) Central Kalimantan, which is based in Palangka Raya.\u003c/p\u003e\n\u003c/li\u003e\n\u003c/ol\u003e\n\u003cp\u003e3. Perspective on other resources besides cassava,\u003c/p\u003e\n\u003cp\u003eIn terms of other resources, other types of crops that can and are suitable for planting on the food estate land are not only cassava, but other types of crops such as rubber, oil palm, fruits such as chempedak, pineapple, and local rice varieties called siung rice. The rice produced by this local variety of siung rice is red in colour. Some of the land can also be adapted for fisheries by opening fish ponds such as catfish, goldfish, or snakehead fish. Then in terms of animal husbandry, some land can also be used to raise cows, chickens, ducks, goats, etc.\u003c/p\u003e\n\u003cp\u003eFrom the 6,466 hectares of land cleared by the Ministry of Forestry and Environment, it is certain that the cassava food estate programme can create new jobs for the community and can be adapted to grow other crops besides cassava. Because not all land conditions are suitable for cassava plants. There are only some lands that are suitable, namely those that include higher ground and do not experience flooding during the rainy season.\u003c/p\u003e\n\u003cp\u003e\u003cstrong\u003eKey Actors of Programme Implementers\u003c/strong\u003e\u003c/p\u003e\n\u003cp\u003eSo far, from the data and information obtained in the field, especially at the level of the two existing villages, the key village-level actors in the cassava food estate programme can be identified as follows:\u003c/p\u003e\n\u003cdiv class=\"gridtable\"\u003e\n\u003cdiv class=\"colspec\" align=\"left\"\u003e\u0026nbsp;\u003c/div\u003e\n\u003cdiv class=\"colspec\" align=\"left\"\u003e\u0026nbsp;\u003c/div\u003e\n\u003ctable id=\"Tab1\" border=\"1\"\u003e\u003ccaption\u003e\n\u003cdiv class=\"CaptionNumber\"\u003eTable 1\u003c/div\u003e\n\u003cdiv class=\"CaptionContent\"\u003e\n\u003cp\u003eKey actor and capacity in the cassapa food estate programme\u003c/p\u003e\n\u003c/div\u003e\n\u003c/caption\u003e\n\u003cthead\u003e\n\u003ctr\u003e\n\u003cth align=\"left\"\u003e\n\u003cp\u003eActor\u003c/p\u003e\n\u003c/th\u003e\n\u003cth align=\"left\"\u003e\n\u003cp\u003eCapacity\u003c/p\u003e\n\u003c/th\u003e\n\u003c/tr\u003e\n\u003c/thead\u003e\n\u003ctbody\u003e\n\u003ctr\u003e\n\u003ctd align=\"left\"\u003e\n\u003cp\u003eGunung Mas Regent\u003c/p\u003e\n\u003c/td\u003e\n\u003ctd align=\"left\"\u003e\n\u003cp\u003eSocialisation\u003c/p\u003e\n\u003c/td\u003e\n\u003c/tr\u003e\n\u003ctr\u003e\n\u003ctd align=\"left\"\u003e\n\u003cp\u003eGunung Mas District Agriculture Office\u003c/p\u003e\n\u003c/td\u003e\n\u003ctd align=\"left\"\u003e\n\u003cp\u003eAgricultural Technical Team (land condition, land potential)\u003c/p\u003e\n\u003c/td\u003e\n\u003c/tr\u003e\n\u003ctr\u003e\n\u003ctd align=\"left\"\u003e\n\u003cp\u003eR\u0026amp;D Section of Bapperida Kab. Gunung Mas\u003c/p\u003e\n\u003c/td\u003e\n\u003ctd align=\"left\"\u003e\n\u003cp\u003eTechnical Team Technical Team Land Map\u003c/p\u003e\n\u003c/td\u003e\n\u003c/tr\u003e\n\u003ctr\u003e\n\u003ctd align=\"left\"\u003e\n\u003cp\u003eCentral Kalimantan Agricultural Instrument Standardisation Agency (BSIP)\u003c/p\u003e\n\u003c/td\u003e\n\u003ctd align=\"left\"\u003e\n\u003cp\u003eAgricultural Technical Team (land condition, land potential)\u003c/p\u003e\n\u003c/td\u003e\n\u003c/tr\u003e\n\u003ctr\u003e\n\u003ctd align=\"left\"\u003e\n\u003cp\u003eSepang Sub-district Head\u003c/p\u003e\n\u003c/td\u003e\n\u003ctd align=\"left\"\u003e\n\u003cp\u003eSocialisation\u003c/p\u003e\n\u003c/td\u003e\n\u003c/tr\u003e\n\u003ctr\u003e\n\u003ctd align=\"left\"\u003e\n\u003cp\u003eVillage Head\u003c/p\u003e\n\u003c/td\u003e\n\u003ctd align=\"left\"\u003e\n\u003cp\u003eSocialisation\u003c/p\u003e\n\u003c/td\u003e\n\u003c/tr\u003e\n\u003ctr\u003e\n\u003ctd align=\"left\"\u003e\n\u003cp\u003eVillage Guidance Officer (Babinsa)\u003c/p\u003e\n\u003c/td\u003e\n\u003ctd align=\"left\"\u003e\n\u003cp\u003eSocialisation\u003c/p\u003e\n\u003c/td\u003e\n\u003c/tr\u003e\n\u003ctr\u003e\n\u003ctd align=\"left\"\u003e\n\u003cp\u003eMinistry of Defence Officer\u003c/p\u003e\n\u003c/td\u003e\n\u003ctd align=\"left\"\u003e\n\u003cp\u003eField supervisor and land cultivator in the field\u003c/p\u003e\n\u003c/td\u003e\n\u003c/tr\u003e\n\u003c/tbody\u003e\n\u003c/table\u003e\n\u003c/div\u003e\n\u003cp\u003eLooking at these key actors and their respective roles in the cassava food estate programme, it can be concluded that the key actors are predominantly from the government (bureaucratic actors). Even at the village level, many people said that they did not know and were not involved in the process of managing the cassava food estate. Whereas in the context of governance, in addition to the role of the government, there also needs to be community involvement, both civil society and economic society (entrepreneurs). These key actors are even involved in the context of the field coordination team. Meanwhile, the policy aspects concerning land, land coordinate maps, crops planted, fertilisers, etc. come from the Ministry of Defence. The village community, as they admit, is only an object of policy, as well as a spectator to the management of this cassava food estate. If from the beginning the villagers were actively involved in determining what crops should be planted, or where to locate land with fertile soil, then the cassava food estate could be planted with adaptive food crops.\u003c/p\u003e\n\u003cp\u003e\u003cstrong\u003eIdentification of other resources besides cassava\u003c/strong\u003e\u003c/p\u003e\n\u003cp\u003eThe results of surveys, interviews and FGDs in the field found that other resources that can be adapted and developed on cassava food estate land are as follows:\u003c/p\u003e\n\u003cdiv class=\"gridtable\"\u003e\n\u003cdiv class=\"colspec\" align=\"left\"\u003e\u0026nbsp;\u003c/div\u003e\n\u003ctable id=\"Tab2\" border=\"1\"\u003e\u003ccaption\u003e\n\u003cdiv class=\"CaptionNumber\"\u003eTable 2\u003c/div\u003e\n\u003cdiv class=\"CaptionContent\"\u003e\n\u003cp\u003eResources and capacity of informasion\u003c/p\u003e\n\u003c/div\u003e\n\u003c/caption\u003e\n\u003cthead\u003e\n\u003ctr\u003e\n\u003cth align=\"left\"\u003e\n\u003cp\u003eResource Type\u003c/p\u003e\n\u003c/th\u003e\n\u003cth align=\"left\"\u003e\n\u003cp\u003eDescription\u003c/p\u003e\n\u003c/th\u003e\n\u003c/tr\u003e\n\u003c/thead\u003e\n\u003ctbody\u003e\n\u003ctr\u003e\n\u003ctd align=\"left\"\u003e\n\u003cp\u003e1. Cassava and hybrid corn\u003c/p\u003e\n\u003c/td\u003e\n\u003ctd align=\"left\"\u003e\n\u003cp\u003eThe main crop of the Ministry of Defence's food estate programme\u003c/p\u003e\n\u003c/td\u003e\n\u003c/tr\u003e\n\u003ctr\u003e\n\u003ctd align=\"left\"\u003e\n\u003cp\u003e2. Agricultural / Plantation Crops\u003c/p\u003e\n\u003cp\u003ea. Rubber\u003c/p\u003e\n\u003cp\u003eb. Chempedak and Pineapple fruits\u003c/p\u003e\n\u003cp\u003ec. Vegetables (chillies, eggplant, long beans, etc)\u003c/p\u003e\n\u003cp\u003ed. \u003cem\u003eSiung\u003c/em\u003erice (local red-coloured rice variety)\u003c/p\u003e\n\u003cp\u003ee. \u003cem\u003eGogo\u003c/em\u003erice\u003c/p\u003e\n\u003c/td\u003e\n\u003ctd align=\"left\"\u003e\n\u003cp\u003ePlant local varieties according to community specialities and traditions. Proposed by the village community.\u003c/p\u003e\n\u003c/td\u003e\n\u003c/tr\u003e\n\u003ctr\u003e\n\u003ctd align=\"left\"\u003e\n\u003cp\u003e3. Animal Husbandry and Fisheries\u003c/p\u003e\n\u003cp\u003ea. Cattle\u003c/p\u003e\n\u003cp\u003eb. Goats\u003c/p\u003e\n\u003cp\u003ec. Chicken\u003c/p\u003e\n\u003cp\u003ed. Ducks\u003c/p\u003e\n\u003cp\u003ee. Freshwater fish (cultivation of Catfish, Patin fish, Glass fish, Snakehead fish)\u003c/p\u003e\n\u003c/td\u003e\n\u003ctd align=\"left\"\u003e\n\u003cp\u003eVillage community proposal.\u003c/p\u003e\n\u003c/td\u003e\n\u003c/tr\u003e\n\u003c/tbody\u003e\n\u003c/table\u003e\n\u003c/div\u003e\n\u003cp\u003eThe identification is a field finding as a community proposal that has so far been practised and developed according to the traditions of the village community for generations. However, as the times and traditions began to change, these mainstay and distinctive resources began to be abandoned. This is because the community has switched to making a living as traditional gold miners. It is good that these resources can be part of the future land development of the cassava food estate programme. Because not all of the 6,466 hectares of food estate land is suitable for planting cassava and hybrid corn. Some soil structures on food estate land can be planted and developed with other resources that are able to adapt to the environment in each village. There is even land that is consideredsuitable for \u003cem\u003esiung\u003c/em\u003e rice, which is a local red-coloured rice variety. This fact clarifies that not all food estate land is suitable for cassava. Through this research, it was found that there are many other crops and even plantations, livestock and fisheries that can be adapted to be developed on this cassava food estate land. Besides of course the main one is cassava.\u003c/p\u003e"},{"header":"Conclusion","content":"\u003cp\u003eCassava food estate in Gunung Mas Regency has been running for more than 2 years since land clearing in 2022. However, until the end of 2024 and entering 2025 there has been no cassava production that can be utilised by the community as a food source. What exists is only limited to experiments, namely planting experimental cassava on 4 hectares of land and hybrid corn on 4 hectares of land. Meanwhile, some land has been cleared. This is in stark contrast to the rice food estates in Gadabung and Belanti Siam villages in Pulang Pisau Regency, where the harvests from the food estates, namely \u003cem\u003eHybrida\u003c/em\u003e rice and \u003cem\u003eSupadi\u003c/em\u003e rice, have well known in the market in Central Kalimantan as a source of food consumption for the community. Instead of producing food sources for the people of Central Kalimantan at large, even for village communities around the circumference of the cassava food estate, this programme has not been beneficial. The surrounding villagers have not obtained maximum results and benefits from the cassava food estate programme, such as labour in general or in terms of economic benefits and food. From time to time, they often receive one-way socialisation only from the Regent and Ministry of Defence officials who come to their villages.\u003c/p\u003e\n\u003cp\u003eFrom the data and information obtained in the field, it turns out that cassava plants are not suitable for planting in this land location. This is because in terms of governance, the programme is considered to be dominated by government actors and minimally involves the participation of village communities, both civil society and economic society. Civil society are villagers who are active in farming and gardening, for example in farmer group organisations or cooperative members. Meanwhile, the economic community are those who work as traders or distributors of basic necessities from and outside the village. The villagers seem to be mere spectators to the activities of the trucks carrying either fertiliser or plant seeds that enter the land.\u003c/p\u003e\n\u003cp\u003eThe fact that has developed to this day, when the programme has been running and is considered unsuitable for cassava plants, some of the food estate land has been planted with hybrid corn plants as raw material for poultry feed production. In fact, recently the food estate land has been projected as a food buffer land for the IKN (Capital of the Archipelago) in East Kalimantan. Near the location of the food estate, an army battalion even be built, and the Ministry of Defence from the beginning of the 2024 election until after the election has also begun to open up to this programme. The community has started to be able to access the location. This fact shows that when access is closed and only dominated by the state (government), the programme is considered less targeted. However, later with the openness of the Ministry of Defence, the parties can provide input, including planting hybrid corn.\u003c/p\u003e\n\u003cp\u003eIn terms of governance performance, the cassava food estate program is dominated by the role of the state (government) and ignores the role of the community, the community only receives one-way socialisation from the government and receives ready-made programs from the Ministry of Defence. In terms of key actors of governance at the village level, it also appears that the dominant actors are the government, starting from the village head, village guidance officers, agriculture office, and so on up to the top structure, namely the Regent and the Ministry of Defence. Then in terms of other resources besides cassava, it turns out that on food estate land there are many other resources besides cassava that can be planted as companion crops. Even some local varieties of crops that are typical of this area can be planted such as clove rice.\u003c/p\u003e\n\u003cp\u003eAdvice:\u003c/p\u003e\n\u003cp\u003ea. The performance of governance can be shared with the community, as a result the villagers do not feel alienated from the food estate programme, such as the role of determining the location of land, types of crops and participating in the workforce. Thus, villagers do not just receive socialisation.\u003c/p\u003e\n\u003cp\u003eb. Key governance actors can involve villagers technically in the field, such as maximising the role of cooperatives, farmer groups and other community groups technically, as villagers understand the environmental conditions in which they live.\u003c/p\u003e\n\u003cp\u003ec. Food estate land covering an area of 2000 hectares and now expanded with the acquisition of 6,466 hectares of land from the Indonesian Ministry of Forestry and Environment, can be divided per plot and per hectare in addition to planting cassava and hybrid corn as the main crops, in the future it can be divided by planting other types of crops that can help community entrepreneurship such as rubber, rice, fruits, and other vegetables as well as livestock and fisheries. This is to dismiss the issue of land failure for cassava so that it can be used for the management of various other types of resources.\u003c/p\u003e\n\u003cp\u003ed. An equally important factor in the success of the food estate programme is the collective support of the surrounding community, which should be taken into consideration for future food estate management, namely support for generating village entrepreneurship, as well as improving the economy of the village community.\u003c/p\u003e"},{"header":"Declarations","content":"\u003cp\u003e\u003cstrong\u003eEthics approval and consent to participate\u003c/strong\u003e\u003cp\u003eThe participants were fully informed of the purpose of this study and provided their written informed consent to participate in the study.\u003c/p\u003e\u003c/p\u003e\u003cp\u003e\u003cstrong\u003eCompeting interest\u003c/strong\u003e\u003cp\u003eThe author declared no potential conflicts of interest wits respect to the research, authorship, and publication of this article\u003c/p\u003e\u003c/p\u003e\u003ch2\u003eFunding\u003c/h2\u003e\u003cp\u003eThanks to the National Research and Innovation Agency (BRIN), which has provided research grants through the Research and Innovation for Advanced Indonesia (RIIM) scheme for the 2023\u0026ndash;2024 fiscal year, grant number 41/IV/KS/05/2023 and 003/LPPM-UKP/P/V/2023.\u003c/p\u003e\u003ch2\u003eAuthor contributions\u003c/h2\u003e\u003cp\u003eConceptualization, methodology, final analysis, writing, and editing were caried out by the author.\u003c/p\u003e\u003ch2\u003eAcknowledgements\u003c/h2\u003e\u003cp\u003eThe author extends sicere gratitude to all resource persons in Gunung Mas Regency and Central Kalimantan Province who contributed to this study by sharing their valuable experiences and traditional knowledge.\u003c/p\u003e\u003ch2\u003eAvailability of data and materials\u003c/h2\u003e\u003cp\u003eThe original contributions presented in the study are included in the article. Further inquiries can be directed to the corresponding author.\u003c/p\u003e"},{"header":"References","content":"\u003col\u003e\n\u003cli\u003eNational Development Planning Agency. 2009. \"Indonesia Climate Change Sectoral Roadmap\". Bappenas: Jakarta. https://www.academia.edu/11916280/MEMPERKUAT_KETAHANAN_PANGAN_DEMI_MASA_DEPAN_INDONESIA_2015_2025_\u003c/li\u003e\n\u003cli\u003eNational Development Planning Agency. 2007. \"National Action Plan (NAP) on Climate Change Adaptation\". Bappenas: Jakarta. https://www.ekon.go.id/publikasi/detail/3496/strategi-menjaga-ketahanan-pangan-nasional-dalam-agenda-pembangunan-nasional\u003c/li\u003e\n\u003cli\u003eDenzin, Norman K, and Yvonna S. Lincoln. 2009. Handbook of Qualitative Research. Yogyakarta: Student Library. chrome-extension://efaidnbmnnnibpcajpcglclefindmkaj/https://dl1.cuni.cz/pluginfile.php/1143325/mod_resource/content/1/Norman%20K.%20Denzin%2C%20Yvonna%20S.%20Lincoln%20-%20The%20SAGE%20Handbook%20of%20Qualitative%20Research-SAGE%20Publications%2C%20Inc%20%282017%29.pdf\u003c/li\u003e\n\u003cli\u003eKairusina, Seftyana. \"Food Estate Projects in Central Kalimantan and the Threat of Prolonged Ecological Damage\", in greennetwork.id 31/01/2024. https://greennetwork.id/unggulan/proyek-food-estate-di-kalteng-dan-ancaman-kerusakan-ekologis-berkepanjangan/\u003c/li\u003e\n\u003cli\u003eMoeloeng, Lexy J. 2005. Qualitative Research Methodology. Bandung: ROSDA.\u003c/li\u003e\n\u003cli\u003eMontratama, Ian. \"Quo Vadis Food Estate\", in detikNews.com, 21/09/2021. https://news.detik.com/kolom/d-5733473/quo-vadis-food-estate-kemhan\u003c/li\u003e\n\u003cli\u003ePratikno. 2007. Governance and the Crisis of Organisation Theory. Journal of Public Policy Administration. Volume 12, No. 2: 7-8 ; 10-11.\u003c/li\u003e\n\u003cli\u003eSoewargono.\u0026nbsp; 2015. \"State of the Art of Government Science\" in Muhadam Labalo, et al (editors). Dialectics of Government Science. Bogor: Ghalia Indonesia.\u003c/li\u003e\n\u003cli\u003eSomantri, Gumilar Rusliwa. \"Understanding Qualitative Methods\", in the Journal of Social Humanities \"Makara\", Volume IX (2) December, 2005, pp. 64.\u003c/li\u003e\n\u003cli\u003eSumarto, Hetifah Sj. 2009. Innovation, Participation and Good Governance: 20 Innovative and Participatory Initiatives in Indonesia. Jakarta: Yayasan Obor Indonesia.\u003c/li\u003e\n\u003c/ol\u003e\n\u003cp\u003e\u003cstrong\u003eLegislation:\u003c/strong\u003e\u003c/p\u003e\n\u003cp\u003eLaw No. 6 Year 2014\u003c/p\u003e\n\u003cp\u003eLaw No. 23 Year 2014\u003c/p\u003e\n\u003cp\u003ePresidential Regulation No. 109 of 2020\u003c/p\u003e\n\u003cp\u003e\u003cstrong\u003eMass Media:\u003c/strong\u003e\u003c/p\u003e\n\u003cp\u003eKompas.com, 30 May 2021. https://www.kompas.id/baca/nusantara/2021/05/30/sebagian-dari-2-000-hektar-lahan-food-estate-di-gunung-mas-bersertifikat\u003c/p\u003e\n\u003cp\u003eReformasi.com Magazine, 1 October 2022\u003c/p\u003e\n\u003cp\u003ePeat Monitor, 2021 https://en.pantaugambut.id/insights/peatland-monitoring-methods-in-concession-areas\u003c/p\u003e\n\u003cp\u003ewww.ekon.go.id, 30 November 2021 https://www.ekon.go.id/publikasi/detail/3496/strategi-menjaga-ketahanan-pangan-nasional-dalam-agenda-pembangunan-nasional\u003c/p\u003e\n\u003cp\u003eCNN Indonesia, 18 November 2021 https://www.cnnindonesia.com/nasional/20211118184645-20-723161/lbh-food-estate-gunung-mas-kalteng-berpotensi-perluas-wilayah-banjir\u003c/p\u003e\n\u003cp\u003eTempo, 10 January 2021 https://www.tempo.co/politik/mahfud-md-kritik-food-estate-ini-5-lokasi-dan-kendalanya-95286\u003c/p\u003e"},{"header":"Scheme 1","content":"\u003cp\u003eScheme 1 is available in the Supplementary Files section.\u003c/p\u003e\n"}],"fulltextSource":"","fullText":"","funders":[],"hasAdminPriorityOnWorkflow":false,"hasManuscriptDocX":true,"hasOptedInToPreprint":true,"hasPassedJournalQc":"","hasAnyPriority":false,"hideJournal":true,"highlight":"","institution":"","isAcceptedByJournal":false,"isAuthorSuppliedPdf":false,"isDeskRejected":"","isHiddenFromSearch":false,"isInQc":false,"isInWorkflow":false,"isPdf":false,"isPdfUpToDate":true,"isWithdrawnOrRetracted":false,"journal":{"display":true,"email":"[email protected]","identity":"researchsquare","isNatureJournal":false,"hasQc":true,"allowDirectSubmit":true,"externalIdentity":"","sideBox":"","snPcode":"","submissionUrl":"/submission","title":"Research Square","twitterHandle":"researchsquare","acdcEnabled":true,"dfaEnabled":false,"editorialSystem":"","reportingPortfolio":"","inReviewEnabled":false,"inReviewRevisionsEnabled":true},"keywords":"Governance, Cassava Food Estate, Policy, Gunung Mas Regency, Ministry of Defence","lastPublishedDoi":"10.21203/rs.3.rs-7081789/v1","lastPublishedDoiUrl":"https://doi.org/10.21203/rs.3.rs-7081789/v1","license":{"name":"CC BY 4.0","url":"https://creativecommons.org/licenses/by/4.0/"},"manuscriptAbstract":"\u003cp\u003eThe food crisis due to the impact of Covid 19 in early 2020 is the background to the policy thinking of food estate programmes in all regions of Indonesia. Gunung Mas Regency, Central Kalimantan Province is one of the focuses of programme implementation, especially cassava food estate. The presence of the cassava food estate program initiated by the Ministry of Defence of the Republic of Indonesia in collaboration with the Ministry of Agriculture and the Ministry of Public Works and Public Housing faces three fundamental problems, namely 1) the lack of optimal involvement of local indigenous peoples in the implementation in the field; 2) not all land is suitable for cassava plants; and 3) some land has been certified as privately owned by the local community. Using a governance approach and descriptive-analytical research methods, this research will identify local resources, both actors and land at the district level as well as at the level of the 4 food estate villages as a support for the food estate policy. Data mining uses survey data sources, document data, interviews and FGDs (focus group discussions). The results of the research during April-December 2024 found 1) in terms of governance performance, the cassava food estate programme was dominated by the role of the state (government: The community only received one-way socialisation from the government and received a ready-made program from the Ministry of Defence; 2) in terms of key actors of governance at the village level, it was found that the actors who played a dominant role were the government from the village head, babinsa, agriculture office to the top structure of the Ministry of Defence; and 3) in terms of other resources besides cassava, it turns out that on the food estate land there are many other resources besides cassava that can be planted, namely fruits, corn, or local varieties of rice, namely siung rice, as well as other food sources such as livestock and fisheries.\u003c/p\u003e","manuscriptTitle":"Governance in the Cassava Food Estate Programme in Gunung Mas Regency, Central Kalimantan Province, Indonesia","msid":"","msnumber":"","nonDraftVersions":[{"code":1,"date":"2025-08-22 14:28:30","doi":"10.21203/rs.3.rs-7081789/v1","editorialEvents":[{"type":"communityComments","content":0}],"status":"published","journal":{"display":true,"email":"[email protected]","identity":"researchsquare","isNatureJournal":false,"hasQc":true,"allowDirectSubmit":true,"externalIdentity":"","sideBox":"","snPcode":"","submissionUrl":"/submission","title":"Research Square","twitterHandle":"researchsquare","acdcEnabled":true,"dfaEnabled":false,"editorialSystem":"","reportingPortfolio":"","inReviewEnabled":false,"inReviewRevisionsEnabled":true}}],"origin":"","ownerIdentity":"a1046d5c-d89f-4b68-9569-20f5ae14509d","owner":[],"postedDate":"August 22nd, 2025","published":true,"recentEditorialEvents":[],"rejectedJournal":[],"revision":"","amendment":"","status":"posted","subjectAreas":[],"tags":[],"updatedAt":"2025-12-02T00:01:56+00:00","versionOfRecord":[],"versionCreatedAt":"2025-08-22 14:28:30","video":"","vorDoi":"","vorDoiUrl":"","workflowStages":[]},"version":"v1","identity":"rs-7081789","journalConfig":"researchsquare"},"__N_SSP":true},"page":"/article/[identity]/[[...version]]","query":{"redirect":"/article/rs-7081789","identity":"rs-7081789","version":["v1"]},"buildId":"8U1c8b4HqxoKbykW_rLl7","isFallback":false,"isExperimentalCompile":false,"dynamicIds":[84888],"gssp":true,"scriptLoader":[]}