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The Political Economy of Avian Influenza:
SE Asia country study workshop
Indonesia
Paul Forster [email protected]
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…
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H5N1 Highly Pathogenic Avian InfluenzaWHO: Avian influenza – situation in Indonesia – update 45 9 December 2008
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• 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
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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
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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
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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…
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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)
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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
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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
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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.”
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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…
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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…
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Decentralisation
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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.”
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The challenges
• A numinous culture - Risk construction depends on ecological, social and political contexts
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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
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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
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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
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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
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Conclusion
TrustSociety – government – business – international community – scientists
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Next Steps?
• Context and history matter – one-size-fits-all approaches may need to adapted
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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
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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.
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Acknowledgements
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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
Jeffrey Mariner, ILRIJames 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)
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
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Further reading