Application of The Rules-in-Use Concept in the Analysis of Regulations on Forest and Land Rehabilitation (Reforestation)

Abstract

Indonesia faces the problem of forest degradation, with Forest and Land Rehabilitation (FLR) being one of the key efforts undertaken to address it. This study analyzes the formal institutional framework governing FLR implementation in Indonesia using the Institutional Analysis and Development (IAD) Framework, focusing on Ostrom’s concept of rules-in-use. Content analysis was conducted on four main regulations: Law No. 41 of 1999, Government Regulation No. 26 of 2020, Minister of Environment and Forestry Regulation No. P.2 of 2020, and Minister of Environment and Forestry Regulation No. P.23 of 2021. The findings show that seven types of institutional rules, position, boundary, choice, aggregation, information, scope, and payoff rules, are included in these regulations, but they are not yet fully synchronized. The distribution of roles among actors remains overlapping, coordination mechanisms are weak, and incentive rules are not clearly defined. Moreover, the regulations tend to emphasize administrative and physical aspects of planting rather than ecological and social outcomes. Weaknesses in this rules-in-form structure create unstable action arenas and reduce policy effectiveness. This study highlights that the success of FLR is determined not only by technical aspects but also by the clarity and consistency of formal rules. Harmonization of regulations, strengthened cross-actor coordination, and transparency of information are needed to ensure that FLR implementation supports the sustainable restoration of the forest’s ecological and social functionsRehabilitasi hutan dan lahan (RHL) sebagai upaya menangani permasalahan deforestasi yang terjadi saat ini. RHL dilakukan pada kawasan hutan konservasi untuk pemulihan ekosistem, pembinaan habitat dan peningkatan keanekaragaman hayati, pada hutan lindung untuk memulihkan fungsi hidrologis daerah aliran sungai dan meningkatkan produksi hasil hutan bukan kayu serta jasa lingkungan dan pada hutan produksi untuk meningkatkan produktivitas kawasan hutan produksi. Pelaksanaan RHL menjadi tantangan tersendiri secara kelembagaan dalam melihat aturan dan praktik atau implementasi dari aturan tersebut, oleh karena itu penting untuk mengetahui isi aturan-aturan terkait RHL. Analisis isi (content analysis) dapat menjadi pendekatan penelitian dengan mengacu pada konsep rules-in-use oleh Ostrom. Rules-in-use merupakan unit analisis dalam IAD Framework sebagai konsep yang digunakan dalam analisis isi. Peraturan perundangan telah menjelaskan beberapa posisi secara struktur dan sistematis. Aturan keanggotaan, agregasi dan proses pengambilan keputusan tidak diatur seluruhnya. Aturan lingkup sangat jelas mengatur RHL dan sumber anggaran dari APBN, APBD dan sumber lainnya yang sah dan tidak mengikat.