The Political Economy of Avian Influenza: SE Asia country study workshop Indonesia Paul Forster [email_address] 26 & 27 February 2009, Lansdowne Place Hotel, Brighton

Indonesia - basic facts 235 million people - 5,000 km, 17,500 island archipelago - 6,000 inhabited 300+ ethnic groups speaking 700+ languages and dialects $3,471 GDP per capita (PPP, 2006) but 40% live on less than $2 a day Java - population density 1,000+ per sq km - rapid, massive urbanisation Also produces more poultry on less land to feed more people than anywhere… www.steps-centre.org

235 million people - 5,000 km, 17,500 island archipelago - 6,000 inhabited

300+ ethnic groups speaking 700+ languages and dialects

$3,471 GDP per capita (PPP, 2006) but 40% live on less than $2 a day

Java - population density 1,000+ per sq km - rapid, massive urbanisation

Also produces more poultry on less land to feed more people than anywhere…

H5N1 Highly Pathogenic Avian Influenza WHO: Avian influenza – situation in Indonesia – update 45 9 December 2008 www.steps-centre.org August 2003 - Central Java. Reported January 2004 Commercial sector – breeding stock from China or Thailand 2004 - Java, Bali, Kalimantan and south Sumatra 2005 - Sulawesi, North Sumatra and Aceh. 2006 - Papua 2008 - 31 of 33 provinces had reported outbreaks

August 2003 - Central Java. Reported January 2004

Commercial sector – breeding stock from China or Thailand

2004 - Java, Bali, Kalimantan and south Sumatra

2005 - Sulawesi, North Sumatra and Aceh. 2006 - Papua

2008 - 31 of 33 provinces had reported outbreaks

Poultry & people 30 million households - 60% - keep 300 million birds Culturally important - pride, prestige, toys The poor - something to eat and trade, and savings Negative images are not understood www.steps-centre.org

30 million households - 60% - keep 300 million birds

Culturally important - pride, prestige, toys

The poor - something to eat and trade, and savings

Negative images are not understood

Food The favourite meat and consumption rising 1.2 billion chickens consumed each year Poultry population around one billion 60% of the national flock on Java No exports and negligible imports www.steps-centre.org

The favourite meat and consumption rising

1.2 billion chickens consumed each year

Poultry population around one billion

60% of the national flock on Java

No exports and negligible imports

Shopping Live birds preferred ‘ Halal’ slaughter often important Supermarkets not trusted, especially frozen meat Over 70% of production to 13,000 live poultry markets Jakarta - 80% of 1 million chickens consumed daily www.steps-centre.org

Live birds preferred

‘ Halal’ slaughter often important

Supermarkets not trusted, especially frozen meat

Over 70% of production to 13,000 live poultry markets

Jakarta - 80% of 1 million chickens consumed daily

Big business Large commercial sector - employs over one million Ten companies control all industrial production Three are responsible for 70% of the market Integrated from feed to fast-food restaurants Do not trust the government’s competence or intentions Little co-operation among business actors Sub-contracting schemes - wide movements… www.steps-centre.org

Large commercial sector - employs over one million

Ten companies control all industrial production

Three are responsible for 70% of the market

Integrated from feed to fast-food restaurants

Do not trust the government’s competence or intentions

Little co-operation among business actors

Sub-contracting schemes - wide movements…

Market chains “ If you were going to design a system to spread an infectious poultry disease, it would look something like this. Combine it with the number of backyard birds in Indonesia, and you have the virus flowing everywhere.” Market chain for layer birds on Bali (Thornton 2007) www.steps-centre.org

“ If you were going to design a system to spread an infectious poultry disease, it would look something like this. Combine it with the number of backyard birds in Indonesia, and you have the virus flowing everywhere.”

Market chain for layer birds on Bali (Thornton 2007)

Power & politics - the past 1945 - 1965 President Sukarno authoritarian, ‘charismatic’ Disastrous nationalist, quasi-socialist economic policies Deposed in complex coup 1965 - 1998 President Suharto authoritarian, corrupt, ‘paternalistic’ ‘ New Order’ - aid and investment, significant economic growth Resigned after urban riots in midst of regional economic crisis www.steps-centre.org

1945 - 1965 President Sukarno

authoritarian, ‘charismatic’

Disastrous nationalist, quasi-socialist economic policies

Deposed in complex coup

1965 - 1998 President Suharto

authoritarian, corrupt, ‘paternalistic’

‘ New Order’ - aid and investment, significant economic growth

Resigned after urban riots in midst of regional economic crisis

Power & politics - today 1998 - ‘Reformasi’ era - liberalisation, political and economic stabilisation July 2004 - Susilo Bambang Yudhoyono elected in free presidential elections Challenges of democracy and creating efficient, transparent government An ‘anarcho-democracy’ – popular protest common and met by political compromise Fragmented multi-party system; complex ‘rainbow’ cabinets Still little trust in government to be clean or competent Collusion with big business – lax regulation www.steps-centre.org

1998 - ‘Reformasi’ era - liberalisation, political and economic stabilisation

July 2004 - Susilo Bambang Yudhoyono elected in free presidential elections

Challenges of democracy and creating efficient, transparent government

An ‘anarcho-democracy’ – popular protest common and met by political compromise

Fragmented multi-party system; complex ‘rainbow’ cabinets

Still little trust in government to be clean or competent

Collusion with big business – lax regulation

Other priorities Earthquakes, landslides, floods, volcanic eruptions Aircraft crash, ferries sink, buildings burn Separatist agitation and intermittent sectarian violence Malaria, TB, HIV/AIDS, polio, dengue fever, rabies Economic uncertainty, inadequate infrastructure 26 December 2003 - the Indian Ocean tsunami “ If you look at all the other issues, avian influenza is just a little rattle deep in the Indonesian machine. It’s not really part of the national debate. No one takes it seriously.” www.steps-centre.org

Earthquakes, landslides, floods, volcanic eruptions

Aircraft crash, ferries sink, buildings burn

Separatist agitation and intermittent sectarian violence

Malaria, TB, HIV/AIDS, polio, dengue fever, rabies

Economic uncertainty, inadequate infrastructure

26 December 2003 - the Indian Ocean tsunami

“ If you look at all the other issues, avian influenza is just a little rattle deep in the Indonesian machine. It’s not really part of the national debate. No one takes it seriously.”

Legislation and the rule of law 1967 Law on Animal Husbandry and Veterinary Hygiene: Does not cover an outbreak situation Questionable legal capability to cull infected poultry 20 shortcomings to 2007 - 2008 revision: lack of clarity in to whom or to what the Law applies lack of specificity in defining which diseases are notifiable no definition of the responsibilities of the veterinary authority an inadequate definition of epidemic diseases of livestock And enforcement is tricky, complex and lax… www.steps-centre.org

1967 Law on Animal Husbandry and Veterinary Hygiene:

Does not cover an outbreak situation

Questionable legal capability to cull infected poultry

20 shortcomings to 2007 - 2008 revision:

lack of clarity in to whom or to what the Law applies

lack of specificity in defining which diseases are notifiable

no definition of the responsibilities of the veterinary authority

an inadequate definition of epidemic diseases of livestock

And enforcement is tricky, complex and lax…

A Big Bang 2001 - Radical and far-reaching decentralisation A key element in the 1998 IMF reform strategy Essential to resolve regional and ethnic tensions Also cost-cutting - veterinary services an ‘easy target’ Now 33 provinces and 456 autonomous local governments The biggest single factor challenging the response to HPAI… www.steps-centre.org

2001 - Radical and far-reaching decentralisation

A key element in the 1998 IMF reform strategy

Essential to resolve regional and ethnic tensions

Also cost-cutting - veterinary services an ‘easy target’

Now 33 provinces and 456 autonomous local governments

The biggest single factor challenging the response to HPAI…

Decentralisation www.steps-centre.org

The HPAI Response Internationally led: FAO, WHO, UNICEF, UNOCHA Interactions with regional, provincial and national government (also NGOs and civil society) KOMNAS FBPI - ministerial-level committee. Also MoA, MoH Donors: USAID, AUSAID, Dutch, Canadian, Japanese governments mainly Challenges of co-ordination, cultures, priorities and trust “ The focus of the response is very, very scientific and this does not fit the local context well. The science is important but it is not a solution on its own.” www.steps-centre.org

Internationally led: FAO, WHO, UNICEF, UNOCHA

Interactions with regional, provincial and national government (also NGOs and civil society)

KOMNAS FBPI - ministerial-level committee.

Also MoA, MoH

Donors: USAID, AUSAID, Dutch, Canadian, Japanese governments mainly

Challenges of co-ordination, cultures, priorities and trust

“ The focus of the response is very, very scientific and this does not fit the local context well. The science is important but it is not a solution on its own.”

The challenges A numinous culture - Risk construction depends on ecological, social and political contexts www.steps-centre.org

A numinous culture - Risk construction depends on ecological, social and political contexts

The challenges A numinous culture - Risk construction depends on ecological, social and political contexts An emergent democracy - Assumption that an efficient bureaucracy does, can, or should exist www.steps-centre.org

A numinous culture - Risk construction depends on ecological, social and political contexts

An emergent democracy - Assumption that an efficient bureaucracy does, can, or should exist

The challenges A numinous culture - Risk construction depends on ecological, social and political contexts An emergent democracy - Assumption that an efficient bureaucracy does, can, or should exist An emergent concept of public goods - Mismatch between the international community and the country www.steps-centre.org

A numinous culture - Risk construction depends on ecological, social and political contexts

An emergent democracy - Assumption that an efficient bureaucracy does, can, or should exist

An emergent concept of public goods - Mismatch between the international community and the country

The challenges A numinous culture - Risk construction depends on ecological, social and political contexts An emergent democracy - Assumption that an efficient bureaucracy does, can, or should exist An emergent concept of public goods - Mismatch between the international community and the country Complex politics and charged nationalism - Challenged national identity must lean on ‘otherness’ and conflict www.steps-centre.org

A numinous culture - Risk construction depends on ecological, social and political contexts

An emergent democracy - Assumption that an efficient bureaucracy does, can, or should exist

An emergent concept of public goods - Mismatch between the international community and the country

Complex politics and charged nationalism - Challenged national identity must lean on ‘otherness’ and conflict

The challenges A numinous culture - Risk construction depends on ecological, social and political contexts An emergent democracy - Assumption that an efficient bureaucracy does, can, or should exist An emergent concept of public goods - Mismatch between the international community and the country Complex politics and charged nationalism - Challenged national identity must lean on ‘otherness’ and conflict Science and society - Scientific experts cannot prescribe and expect obedience www.steps-centre.org

A numinous culture - Risk construction depends on ecological, social and political contexts

An emergent democracy - Assumption that an efficient bureaucracy does, can, or should exist

An emergent concept of public goods - Mismatch between the international community and the country

Complex politics and charged nationalism - Challenged national identity must lean on ‘otherness’ and conflict

Science and society - Scientific experts cannot prescribe and expect obedience

Conclusion Trust Society – government – business – international community – scientists www.steps-centre.org

Trust

Society – government – business – international community – scientists

Next Steps? Context and history matter – one-size-fits-all approaches may need to adapted www.steps-centre.org

Context and history matter – one-size-fits-all approaches may need to adapted

Next Steps? Context and history matter – one-size-fits-all approaches may need to adapted Social relationships underpin everything – politics, business, science – and need to be the starting point for ways forward www.steps-centre.org

Context and history matter – one-size-fits-all approaches may need to adapted

Social relationships underpin everything – politics, business, science – and need to be the starting point for ways forward

Next Steps? Context and history matter – one-size-fits-all approaches may need to adapted Social relationships underpin everything – politics, business, science – and offer a starting point for ways forward Diverse perspectives and framings must be taken seriously and engaged with – deliberation and dialogue are required. www.steps-centre.org

Context and history matter – one-size-fits-all approaches may need to adapted

Social relationships underpin everything – politics, business, science – and offer a starting point for ways forward

Diverse perspectives and framings must be taken seriously and engaged with – deliberation and dialogue are required.

Acknowledgements Serani Abeyesekera, FAO Ronello Abila, OIE Robyn Alders, FAO D.A.K. Arifin, Majalengka Warief Djajanto Basorie, LPDS Edi Basuno, ICASEPS, Ministry of Agriculture Glenn Bruce, Jakarta Piers Cazalet, British Embassy Ivo Claassen, Indonesian-Dutch HPAI Partnership Suzanna Dayne, UNICEF Lynleigh Evans, AusAID Jonathan Gilman, FAO Heru Hendratmoko, Alliance of Independent Journalists Lisa Kramer, USAID Bayu Krisnamurthi, KOMNAS FBPI Stacie Lawson, FAO Steve Leenhouts, FAO Ignacio Leon-Garcia, OCHA www.steps-centre.org Jeffrey Mariner, ILRI James McGrane, FAO François Meslin, WHO Soedjasmiran Prodjodihardjo, FAO Iqbal Rafani, ICASEPS, Ministry of Agriculture Gina Samaan, WHO Heru Setijanto, KOMNAS FBPI/Bogor Institute for Agriculture Elly Sawitri Siregar, HPAI Campaign Management Unit, Ministry of Agriculture Jeffrey Straka, CBAIC Graham Tallis, WHO Ron Thornton, FAO Elisa Wagner, US Foreign Agriculture Service Emma Watkins, FAO P. Bimo Wicaksana, USDA Iwan Willyanto, FAO Mary Young, FAO Irsyad Zamjani, CENAS (Centre for Asian Studies)

Serani Abeyesekera, FAO

Ronello Abila, OIE

Robyn Alders, FAO

D.A.K. Arifin, Majalengka

Warief Djajanto Basorie, LPDS

Edi Basuno, ICASEPS, Ministry of Agriculture

Glenn Bruce, Jakarta

Piers Cazalet, British Embassy

Ivo Claassen, Indonesian-Dutch HPAI Partnership

Suzanna Dayne, UNICEF

Lynleigh Evans, AusAID

Jonathan Gilman, FAO

Heru Hendratmoko, Alliance of Independent Journalists

Lisa Kramer, USAID

Bayu Krisnamurthi, KOMNAS FBPI

Stacie Lawson, FAO

Steve Leenhouts, FAO

Ignacio Leon-Garcia, OCHA

Anderson, B. R. O’G. (2006) Language and Power: Exploring Political Cultures in Indonesia, Jakarta: Equinox Elson, R. E. (2008) The Idea of Indonesia: A History, Cambridge: Cambridge University Press Padawati, S. and Nichter, M. (2008) ‘Community response to avian flu in Central Java, Indonesia’, Anthropology & Medicine, 15(1):31-51 Sumiarto B. and Arifin B. (2008) ‘Overview on Poultry Sector and HPAI Situation for Indonesia with Special Emphasis on the Island of Java’, Background Paper Africa/Indonesia Team Working Paper No. 3 available at http://www.research4development.info/PDF/Outputs/HPAI/wp03_IFPRI.pdf (accessed 12 December 2008) References are available in the Powerpoint notes www.steps-centre.org Further reading

Anderson, B. R. O’G. (2006) Language and Power: Exploring Political Cultures in Indonesia, Jakarta: Equinox

Elson, R. E. (2008) The Idea of Indonesia: A History, Cambridge: Cambridge University Press

Padawati, S. and Nichter, M. (2008) ‘Community response to avian flu in Central Java, Indonesia’, Anthropology & Medicine, 15(1):31-51

Sumiarto B. and Arifin B. (2008) ‘Overview on Poultry Sector and HPAI Situation for Indonesia with Special Emphasis on the Island of Java’, Background Paper Africa/Indonesia Team Working Paper No. 3 available at http://www.research4development.info/PDF/Outputs/HPAI/wp03_IFPRI.pdf (accessed 12 December 2008)

References are available in the Powerpoint notes