Environmental and Social Research Note March 2001 Number 2 Supporting Cultural Revitalization in Indonesia O ver the last several years,the of a "national" culture that pro- messages through their perfor- World Bank has supported vided the government with mances. cultural heritage in legitimacy as guardian and repre- Indonesia through the sentative of a common origin and Censorship, highly publicized in Small Grants Program and investment cultural tradition (Kusno, 2000, p. 1994 with the closing of the Tempo projects such as the Bali Urban Infrastruc- 76). Like political freedoms, artistic news magazine and Detik tabloid, ture Project. These activities have been expression had to be controlled to also affected cultural expression. stand alone, however, and not part of a create an image of a unified nation For example, Teater Koma, a well- larger strategy to incorporate culture into and people. As a result, cultural known drama company, was shut the Bank's programs. In an effort to learn forms were not valued as dynamic down by security forces fifteen more about the role that culture could expressions of community values times during a ten-year period, play in the Indonesia program the Public and beliefs, but instead were without clear reasons stated for Interest Research and Advocacy Center transformed into static curiosities any of these closings (PIRAC 2000a, (PIRAC)1 recently completed two studies that could be brought out for p. 9). The requirement of police- that analyzed performing arts groups, the show. Perhaps the best-known issued licenses for public gather- functions they serve in communities, and illustration of the attempt at ings allowed the state to routinely the constraints they face. The first study unifying traditions into a national restrict groups with a potentially focused on the policy environment for culture is the Taman Mini Indone- controversial message. cultural groups, while the second sia Indah outdoor museum, which consisted of case studies to identify their consists of selected buildings and These factors restricted supply of social and economic functions. This note artifacts from each province, performances, music, and litera- is designed to summarize the results of "mechanically reconstructed to ture, and probably also contributed the two studies and, based on the advertise the essence of traditions" to the accompanying decline in findings, provide a starting point for (Anderson, 1990, p. 182). watching and participating in arts discussion of the significance of culture for and culture groups and in reading the World Bank's Indonesia Country Although small community of newspapers and magazines. Program and for the ultimate goal of organizations were generally less Another factor is likely to have improving quality of life through poverty restricted than more formal groups been the increased access to alleviation. or larger performances, specific television, which rose notably from types of traditional groups were 1984 to 1994 (see Figure 1). HISTORY OF OPPRESSION tightly controlled and even co- opted for propaganda purposes. BENEFITS OF CULTURAL REVIVAL Indonesia, renowned for its cul- For instance, dalang, or shadow tural heritage, is a country com- puppeteers, were organized into a With the coming of the post- posed of a rich diversity of ethnic single association (Pepadi) that Soeharto reformasi era and opening groups with distinct languages, issued licenses and recommenda- up of the political environment, traditions, and artistic expressions. tions for performances. These however, there is an opportunity But during the early years of its restrictions controlled the stories independence and Soeharto's New and themes that dalang could Order, local cultural expression and communicate and ensured that the 1Started in 1997, PIRAC is an Indonesian identity were discouraged in favor government could convey political NGO based in Jakarta. T H E W O R L D B A N K G R O U P in Indonesia. First, acted as a neutral and mediating FIGURE 1:TV Viewing, reading & participating in arts cultural organizations party when villagers became (BPS Statistik Sosial Budaya: Hasil Susenas 1984 & 1994) can be important actors divided over the election of the in conflict resolution. The new village head. Performances 80 eruption of social were organized to bring leaders of gnitroperstnednopserfo 70 conflicts in the last two the different factions together and 60 years has seen numer- rebuild a sense of community ous examples of cultural (PIRAC, 2000b). This type of 50 groups using theater anecdotal evidence needs to be 40 and other performing followed up with more in-depth 30 arts to bring communi- research on the contexts within 20 ties together after which cultural groups can contrib- % violent incidents. These ute to easing community tensions 10 performances, such as and resolving conflicts. 0 those staged in Solo 1984 1994 after the devastating Cultural groups can also be watching TV reading papers/magazines watching/participating in arts May 1999 riots, have important sources of information and helped to bring out ideas, in particular as circulation of issues such as religious printed media is small for a for local cultural revival. Such a and ethnic differences in a non- country of Indonesia's population.2 process could provide a construc- threatening manner. Although the This is especially important for tive outlet for asserting local cultural activities themselves do isolated communities that are less identity, expression of community not necessarily provide immediate likely to have access to either print needs, and discussion of issues. solutions, pluralistic and often or broadcast media. During the inter-faith support for these efforts lead-up to the 1999 election, for Further, revitalizing local culture can set the stage for constructive instance, the Lontar Foundation can constitute an avenue for follow-up discussions (PIRAC, worked with local pembawa berita or reinforcing conflict-resolution and 2000a). news-bearers in 18 provinces to decision-making mechanisms that ensure that the message of a free are an integral part of strengthen- Other examples show cultural and fair election reached voters in ing local governance and laying groups playing an active role in remote locations. These pembawa the foundations for sustainable, mediating disputes. A case study of berita work in the local language holistic development. This is a music group in Gari village, and are able to effectively commu- particularly important in the Yogyakarta explains that the group nicate critical information to Indonesian context, where the opening of the political environ- ment has also been an occasion for Table 1: Monthly income supplements from participation in performing arts groups frequently bloody ethnic conflict, Campursari Karawitan Lenong Cagar Wayang Orang exacerbating divisions between Group name Abadi Wiji Laras Budaya Srimulat Sriwedari certain groups. Location Yogyakarta Jakarta Jakarta Surabaya Solo Finally, a cultural revival could Monthly income from perfomance/person (Rp)* foster the recognition of and low range 75,000 50,000 600,000 200,000 100,000 respect for local values that would high range 120,000 100,000 1,500,000 300,000 n.a. allow local groups to participate in development on their own terms. 2000 reg. min. wage 194,000 286,000 286,000 236,000 185,000 (Rp/mth) Particularly in the context of the homogenization that the forces of % income supplement globalization can inflict, it is critical low range 39% 17% 210% 85% 54% to support the re-exploration of high range 62% 35% 524% 127% ­ local culture in order to foster Source: Pirac, 2000b. Regional minimum wages from http://www.depnaker.go.id/. ownership of local development *Amounts shown are for lowest- & highest-paid member in each group, based on skill & experience. activities. 2 Newspapers have total daily circulation of 2 million. By 1996, an average of 5,800 titles By focusing on performing arts were published each year, which is minimal compared to the 7,000 titles annually groups as one manifestation of published in Malaysia, a country with 10% of Indonesia's population. The average fell culture, the PIRAC studies point to to 1,500 per year in 1997, however, with the declines in real incomes and increases in several types of specific benefits to price of paper. In spite of the seeming explosion in political writing, the 2000 total is supporting cultural revitalization only 2,500, less than half the pre-crisis number (IPS, 25/22/00). T H E W O R L D B A N K G R O U P minority groups who are not CONSTRAINTS TO CULTURAL freedom of expression.6 The root of reached by other sources of REVITALIZATION this worry lies in the fact that the information (J. McGlynn and regional administrations that will Jakarta Post, 3/6/99). Although the opening of the be strengthened under decentrali- political environment and the zation were often more zealous Cultural groups also provide much greater freedom of expres- than Jakarta officials in restricting economic benefits, both to individuals sion could support local cultural expression during the New Order and to communities. While the development, several institutional era (PIRAC, 2000a). case study data available from factors may jeopardize such PIRAC is not representative, these revitalization. Although there have been promis- pilot findings point to cultural ing individual laws passed, it is groups as an often significant There is little evidence pointing to also not yet clear how conducive source of side-income to the a shift in government attitude the overall policy environment will farmers, teachers, craftspeople, away from the top down, hierar- be. In the 1999-2004 State Policy traders, and civil servants who chical paradigm of previous Guidelines (GBHN), it is made clear invest time in their activities. governments toward one that that freedom of creation and Cultural activities provided income respects local traditions and values. support for cultural values should equivalent to 17-524% of monthly Nor does it appear that the be encouraged as a means of regional minimum wages, depend- reformasi movement has had much "foster[ing] the development of ing on the location and level of impact on censorship or control of more creative and innovative skill of the performers (see Table 1). cultural organizations. During national arts, so as to nurture consultations with arts and cultural national pride." Although there is In addition to channeling direct practitioners regarding changes in admittedly a long way to go income to performers, these groups the legal environment during the between the GBHN and policy also have an economic impact on last several years, concerns were enforcement, these guidelines set related up- and down-stream raised that decentralization may the tone for cultural policy for the industries. For example, the Cagar actually contribute to limits on next five years and could be used Budaya group, which stages lenong3 expression and the use of perfor- to censor community expressions performances twice a month in mance permits as a means of of identity and local values (ibid., different Jakarta neighborhoods, censorship, in spite of recent p.6). raises revenues of Rp 4 million per regulations supporting greater performance (see Table 2). Each show generates almost as much (an estimated Rp 3.28 million or 80% of Table 2: Revenues & labor generated for local business (per performance) group revenues) in revenues for local businesses, such as food stalls, Lenong Cagar Campursari Karawitan Group name Budaya Abadi Wiji Laras parking attendants, and day- laborers who build the stage. Using Location Jakarta Yogyakarta Jakarta the minimum wage for Jakarta as a rough benchmark and an assump- Revenue for group (Rp) 4,000,000 1,000,000 300,000 tion of half the revenues allocated Revenue for local business (Rp) 3,275,000 664,667 861,000 to labor4, each performance creates side-income not only for the six Returns to labor* 1,637,500 332,333 430,500 performers in the group, but also 2000 reg. min. wage (Rp/mth) 286,000 194,000 286,000 generates more than five person- months of unskilled labor. Labor created (personmonths) 5.7 1.7 1.5 Campursari Abadi and Karawitan Source: Pirac, 2000b. Regional minimum wages from http://www.depnaker.go.id/. Wiji Laras also generated signifi- *Calculations assume that 50% of revenues are returns to labor for all related business. cant revenues and labor for the Est. of labor creation are therefore only rough estimates for largely labor-intensive activities. surrounding community (see Table 25 ). Given that there were an 3Lenong is a kind of folk theater performed in Jakarta. estimated 28,870 performing arts 4These estimates assume 50% of all revenues are spent on labor and that all labor is groups in Indonesia in 1998, the local, which is not a precise estimate of actual returns to local labor. However, as the total impact on job creation from activities generated are labor-intensive, these figures give a rough sense of the eco- these groups is likely to be large nomic significance of these groups. (PIRAC, 2000a). 5Srimulat & WO Sriwedari not shown because of insufficient data. 6Act No. 9/1998 on Freedom to Express Opinion and Ideas in Public stipulates one year's imprisonment for anyone violently obstructing or threatening a citizen's right to express their opinion. T H E W O R L D B A N K G R O U P Combined with fears of continued and concerns. They highlight the Loan for cultural heritage preserva- censorship and oppression, there is need for careful consideration of tion in the Yogyakarta-Solo- also a general lack of constructive the social impacts before linking Semarang region is under develop- attention in terms of direct support culture with tourism, in spite of ment. from the public sector. Existing potential economic gains. One subsidies are not allocated in a alternative to direct subsidies is tax There are many possibilities for the transparent manner and there are exemption for arts and culture Bank to incorporate cultural complaints that funding is allo- groups. The legal groundwork for aspects into its future program in cated based on political loyalties tax exemption actually already Indonesia. This could involve a (PIRAC, 2000a). exists8 but has yet to be combination of diverse strategies, operationalized. It is therefore such as careful linking of culture Experience with direct support also important to build on this legisla- with tourism, safeguarding existing shows that wholesale provision of tion to develop fiscal incentives traditions and structures, building subsidies often hinders rather than that are clear and accessible. As on dynamic local institutions in helps highly esteemed arts groups. overall enforcement of the tax code fostering improved governance Of the five groups studied by is weak at best, entertainment and and better gender equality, and PIRAC, two receive on-going, direct income taxes that formally apply supporting artistic expression. subsidies from local government: to community culture groups are Possible activities can be grouped Srimulat in Surabaya and Wayang probably not binding in practice. into three general categories: Orang Sriwedari in Solo, well- However, with pressure on local known groups that had popular governments to raise their own STRATEGY ­ The Bank is well- followings until they received revenues rising, it seems likely that positioned to work with the government substantial support from the untapped sources such as cultural and civil society to (i) explore and develop government. Both organizations groups will be targeted. possible overall directions for the cultural now hold scheduled performances agenda and (ii) collaborate on identifying at government venues designed to THE WORLD BANK AND CULTURE a constructive mix of policies and attract both domestic and interna- IN INDONESIA programs to support it. tional tourists, performers are paid monthly salaries from the govern- The World Bank has done some POLICY ­ By engaging with the ment payroll, costumes and sets work on cultural heritage, and it is Ministry of Tourism and Culture, as well are paid for from state budgets, critical that this experience is as other agencies, the Bank could provide and tickets are free or sold at an shared and built upon for further assistance in further developing specific extremely low price. The groups efforts. Much of the direct support policies that create a conducive legal perform six nights a week for to arts and culture organizations to environment for arts and cultural meager audiences of 10-50 people, date has come from the Small organizations. Possibilities include compared to audiences of 300-600 Grants Program (SGP). Projects developing and enforcing well-targeted tax for the other three cases in the supported by the SGP include exemptions and subsidies that support study, except on those nights when conservation of physical structures investments in culture (including tax the show is cancelled for lack of and community arts in Kotagede, breaks for private sector support), as well attendance (PIRAC, 2000b, p. 20). preservation of traditional manu- as advocacy for cultural groups to scripts in Solo, and support for the safeguard freedom of expression, prevent Another group in Surabaya which local museum in Nias. received similar subsidies was recently disbanded after govern- Cultural issues have also been 7Ludruk is a Javanese folk theater where ment support was cut off ­ audi- incorporated into operations, all parts are played by men. ences were not interested in notably in urban projects such as 8In Presidential decree No 84/1999 on coming to this group's ludruk7 the Bali Urban Infrastructure Utilization of Arts and Culture, Article 7: shows unless they were free Project (BUIP) which emphasizes "Exemptions...shall be applied through (Kompas, 17/12/99). conservation of built heritage, tax reduction and services, import tariffs, development of sustainable immigration, license and other field These "total" subsidies, especially economic activities related to related to the utilization of arts and when based on the assumption cultural sites (such as the Besakih culture." The city of Jakarta has already that increased commercialization is temple), and establishment of a implemented legislation that exempts a necessary and sufficient strategy Bali Heritage Trust. There are also performances run by the informal sector for supporting culture, have plans to place greater emphasis on and traditional performances from the succeeded only in separating supporting cultural groups and entertainment tax (which can be as much performing arts groups from their projects in the follow-up to the as 35% of the ticket sale price) (PIRAC, communities and extinguishing Kecamatan Development Program, 2000a, p. 19). It is unclear how the their relevance as mirrors of values and a Learning and Innovation exemption works in practice. T H E W O R L D B A N K G R O U P censorship, and preserve both physical Before committing to additional about their work and experiences structures and cultural traditions. In work in this area, however, it is needs to be the starting point for addition, the World Bank could facilitate critical to identify the Bank's identifying the World Bank's dialogue on cultural revitalization with comparative advantage in support- strategic role in supporting cultural other ministries (such as education, ing cultural revitalization in revitalization in Indonesia. health, public works & regional develop- Indonesia. Only then can a coordi- ment, and environment) and assist in nated effort be made to work in Sources: capacity-building for designing and areas where the Bank can make an Anderson, Benedict R. O'G. Lan- implementing more demand-responsive effective contribution. To gain guage and Power: Exploring Political programs and policies. such understanding, the following Cultures in Indonesia. Ithaca: Cornell questions need to be answered: University Press, 1990. INVESTMENTS ­ Through free- BPS. Statistik Sosial Budaya: Hasil standing projects focusing on culture or What are the current Susenas 1991. Jakarta, 1992. through components of regular projects, priorities for supporting BPS. Statistik Sosial Budaya: Hasil the Bank has potential to provide direct culture in Indonesia? Susenas 1994. Jakarta, 1995. support to cultural groups. Possible What skills and knowledge Departemen Tenaga Kerja RI. http:/ mechanisms include: can the World Bank /www.depnaker.go.id/ contribute to these priori- "Folk Arts Give Villagers Political · Continuing to support sensitive ties? Education," Jakarta Post, 3 June preservation of physical heri- 1999. tage to prevent further break- What aspects of culture "Indonesia: Books Fail to Carve Out down of communities and can the World Bank Niche in Oral Society," Interna- cultural practices. support? Should the focus be on built heritage and/or tional Politics Science, 25 November · Including cultural groups as living culture? On culture 2000. eligible partners or recipients in as a public good and/or as Kusno, Abidin. Behind the Postcolonial: micro-credit schemes and the economic development Architecture, Urban Space, and Political increasing number of demand- with a direct link to Cultures in Indonesia. London: driven operations that rely on poverty alleviation? Routledge, 2000. community organizations to Laksmiwati, Retna. Arts Administra- participate in planning and Should the Bank be limited tion in Jakarta: A Critical Assessment. implementing development to policy work and/or projects. emphasize investments? M.A. Thesis, Columbia University, 1997. · Incorporating local mechanisms Should investments be "Ludruk Menghilang di THR in project design to support stand-alone or compo- Surabaya," Kompas, 17 December community structures for nents of other projects? conflict resolution, information 1999. Should additional work be sharing, and operational needs. McGlynn, John. Personal commu- ad hoc in nature or part of Building on existing structures, nication. a separate culture agenda? rather than replacing or dupli- PIRAC. Policy Review & Legal and cating their function, is an Some of this information can come Regulatory Framework for Arts and important step towards empow- from review of past work and the Culture Activities. Final Report ering communities and sup- theoretical literature on culture and submitted to the World Bank porting local governance. development. However, the critical Office Jakarta, 2000a. (including · Encouraging development of step is to engage with groups that workshop transcripts) sustainable, demand-driven already work in this area. The Ford PIRAC. Socio-economic Aspects of Arts funding mechanisms to allow Foundation, Yayasan Kelola, and Culture Groups. A Revised Case for transparent and beneficial UNESCO, and the Lontar Founda- Studies Report Submitted to the support for revitalization of arts tion are only a few of the organiza- World Bank Office Jakarta, 2000b. and culture. tions that, along with the govern- (including case study notes) · Exploring the role that tourism ment, have been working on "Theater Helps Heal Wounded could play in supporting culture and with cultural groups. Community," Jakarta Post, 10 cultural revitalization and The impressive network built up October 1999. poverty alleviation, while through the SGP is another source "Yielding to the Dreamy Tug of avoiding the pitfalls of past of ideas and information. Discus- Ancient Shadows," New York Times, commercialization efforts. sions with such organizations 17 October 2000. This note was written by Anna Wetterberg. For additional information, please contact Suhadi Hadiwinoto (Shadiwinoto@WorldBank.org), Anna Wetterberg (AWetterberg@WorldBank.org), or Scott Guggenheim (SGuggenheim@WorldBank.org). T H E W O R L D B A N K G R O U P