ECHO Technical Note on Designing a Participatory Mapping Program ...

ECHO Technical Note on Designing a Participatory Mapping Program: Lessons Learned from Papua (Irian Jaya), Indonesia February 2001, by Laura S. Meitzner ([email protected]) Working draft – not for citation without written permission from the author Contents: • Define your purpose: Why conduct mapping in your community? (page 1) • Finding what has already been done: What maps are available for your region? (2) • Understanding borders: What do people mean when they talk about boundaries? (3) • Plan for the future use of the maps: Who knows how to use them? (3) • Mapping Natural Resources and Clan Boundaries (Draft of internal staff document) (3) • For further reading (7) • Appendix (from Momberg et al.) This technical note supplements the ECHO Development Notes article on Participatory Rural Appraisal (EDN 68:1-4, June 2000). The focus here is to give you, the community-based development worker, a set of basic questions to consider before you begin and while you are designing a regional-scale mapping program together with local partners. At the end, I include a draft outline of a project from my own involvement with natural resource use and clan boundary mapping in northwestern Papua, Indonesia. (For further examples and materials on the “logistical” aspects of conducting participatory mapping, you should consult other non-governmental organizations (NGOs) in your area. Most regions now have participatory mapping networks that can provide information in your local language, or practical training with approaches that have been used successfully in your context.) Mapping local people’s understandings of land, resources, and ideas about other issues can be a powerful tool. Maps made by local people can present a view of the world and people’s priorities which are different from maps produced by non-local people. In some cases, maps highlight differences between how local people and others (including governments and neighboring groups) view their resource use or land boundaries. Since mapping can open up a new form of communication, it is important to proceed carefully to ensure that the results are useful for the community. Define your purpose: Why conduct mapping in your community? This question is your point of departure. Mapping is used for many purposes. You will need to explain the reasons for your activities many times to a variety of interested people, and it is very important to have a clear answer or simple explanation. In the work in Papua, I worked with several staff, and it was helpful that we could all explain the purpose, steps, and progress of the project to anyone who asked. Community members need to understand the purpose and end use of their mapping activities. Local leaders may be concerned about who will have access to the information provided in community maps, and who will control the resulting maps. Government officials will want to know the reason for and results of any mapping. Researchers will be interested in how the maps were produced, and in seeing what information is presented in the maps. You should anticipate these various interests and decide how to respond to people’s questions. Clarifying your purpose also guides you toward the level of detail, scale, and technology you will use in the mapping. Do you need a basic sketch of the houses and fields of the community? Do you want to understand differences in health status or literacy among different households? A basic village sketch

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map may be sufficient for your needs. If you want to understand change over time, you may need to consider making a series of maps, or using materials that can indicate change (such as clear plastic overlays). Are you interested in displaying ecological changes (changes in forest cover, desert boundaries, routes of waterways, etc.) on a larger scale? You may need to map a much larger area, or use surveying or computerized tools (such as geographic information systems, or GIS). See the Appendix for a summary of methods for various purposes. In Papua, my staff used mapping for a variety of purposes. One goal was for new field staff to learn from the communities and to collect basic demographic information about the villages in our work area. For this goal, we used village sketch maps that included information on numbers and relationships of people in each household, sources of water, and other information that villagers wanted to include in the maps. This was relatively straightforward. Another objective was to outline the clan boundaries and to make an inventory of the natural resources used in the region. To do this, the villagers usually made a large map (on the ground, using plants, bamboo, rocks, and other materials as symbols for animals, rivers, mountains, etc.) of the geographical features. Then they filled in the natural resources found in each area, and indicated what marked the boundaries between different clans. This process involved much more time (sometimes stretching over several days, with revisions going on beyond that), discussion, and negotiation among the community members. In some cases, the boundaries were too unclear or disputed to be included on the map. Having clear objectives for the mapping helps to guide the process and achieve comparable results in different villages. The rest of this document addresses this “regional scale” of mapping, since it is more complex and there is less information written about this scale than for village-scale mapping. Before beginning any actual mapping, you should discuss the following aspects with your local partners: What will the maps be used for? What information should be included to meet your purpose? Who should participate in the mapping? Should there be separate groups of men and women? Who will control access to the maps, both within the community and with outsiders? What groups or individuals in the community could be harmed by the mapping process? Finding what has already been done: What maps are available for your region? Mapping and history go hand-in-hand. Examining old maps can tell you a lot about changes in your region as well as priority areas that were included in the maps. It is essential that you start by collecting any existing maps for your region, photocopying them (two copies: one “clean copy” for your map collection and one to make notes on) and storing them. It is good to visit as many government ministries as you can, as different departments may have different sets of maps. For example, maps from the forestry department, the land bureau, and those made during the colonial era will all provide different levels of information. Universities often have collections of maps not available from other sources. Bringing copies of aerial photographs or maps drawn from such photographs to your community can increase people’s interest in mapping, as well as providing a baseline for adding information about natural resources. Ask local leaders if participatory mapping has been done in the region, or if anyone in the community has already made sketches of the region. (For more on historical use of maps, see the book by Fairhead and Leach.) In many regions, development workers help communities make natural resource or tribal land claims maps using “historical narratives,” or stories about what resources are used in what areas, including local names for places. For communities strong in oral tradition, recording these stories can be very useful as you outline the area claimed or used by the group you are working with. Recording local history on timelines, visually with drawings, and even making a tape library might be aspects to consider in your

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mapping project. In Canada, many native groups have used this method to describe their traditional lands and lifestyle. (For more detail about this method, see the book by Brody.) Understanding borders: What do people mean when they talk about boundaries? In most regions, you will have to understand how people traditionally think about boundaries as you proceed with the mapping process. Borders are rarely as “hard” or as simple as they appear on maps, especially if you are dealing with uses of natural resources. Boundaries can be overlapping, shifting, incomplete, or dependent on some other factor (as in flooding, soil quality, or animal migrations). You should try to have people describe different ways in which boundaries can change, and make sure those ideas are represented on your maps (as dashed lines, shades of color, etc.). For example, if you are dealing with tribal land boundaries, do those change with marriage or local leadership? Are there seasonal shifts in resource use boundaries? Do they follow the edge of a forest or the course of a river? Sometimes the boundaries for use of one resource will be different from another resource; be sure to ask about specific differences in rights to fishing, hunting, using forest resources, etc. Are land rights absolute, partial, or negotiated on a case-by-case basis? Are lines more “fuzzy”/blurred, or fixed? This is a complicated but essential part of your preparation for mapping, so that you do not misrepresent local understandings by drawing overly simplified maps. You should also try to incorporate the flexibility of boundaries that change through time by allowing for revisions and updates on the maps. Many projects make the mistake of producing “final” maps as though borders are not flexible or open to change; plan ahead and expect changes to occur, and provide a means for updating the information gathered at present. In Papua, the mapping project was with forest-dwellers who obtain most of their meat by hunting. We found that clan boundaries were not the same as limits on hunting areas, and that there were may exceptions to the rules of hunting rights. In addition, rights to hunting birds, deer, pigs, and other animals did not have the same boundaries. This complexity is challenging to capture in a simple map, but it is important to include this kind of information in your work. Plan for the future use of the maps: Who knows how to use them? A concern of many people who use computerized technology in making maps is that once a map is produced, local people will not have the means to make changes without continued assistance from outside sources. From the beginning, you should consider how the maps will be used, and who will be able to make changes in years to come. This may require you to use simpler technologies (paper and pencil, in some regions), so that local people can maintain their input on the maps by themselves, where computer technologies or the skill to use mapping programs are not locally available. You should remain flexible as you discover what techniques work for your particular situation. A strong and credible local partnership is important when you consider who will control the maps, including access to the information and the ability to make changes on the map. Since maps are sometimes used by authorities to assess taxes, plan development programs, or other activities which will affect people’s lives, it is important that the map information be kept by local people who made the map, rather than disseminated to outsiders without local consent. People may be reluctant to give information about natural resources or agricultural practices if they do not know that the information will be kept private. As you consider your mapping activities, you should be aware of what uses the maps will have, and you should find ways to make the maps locally useful without misusing the information provided by the community. Mapping Natural Resources and Clan Boundaries (Draft of internal staff document) What follows is an outline my staff and I drafted to outline a mapping project of a valley approximately 50 km long in Papua, Indonesia. The project was initiated in January 1999 and continues at present (February 2001). This outline is under revision as the process continues.

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Objectives: Enable indigenous communities to articulate their understanding of land boundaries and natural resources, and to have that information in written form, so that communities may strengthen their claim on traditional lands and plan resource management for their region. Process outline: Assist communities in doing preliminary maps of their villages, natural resources, and clan/tribal boundaries using participatory methodology. Align information provided by villagers with information on existing maps of the region. Facilitate the process of clan leaders agreeing on land boundaries, and formalizing that agreement by signing borders on a map, in the transparent process of a traditional law council open to the entire clan. [still at this point in Feb 2001] Use GPS measurements to locate border markers on a map. Distribute this map to communities and use it as a basis for planning resource management and securing recognition of land rights. Our principles: • There must be support and collaboration with communities, local churches, local and regional governments before the mapping process can begin. Throughout the mapping we seek to establish and develop linkages with other NGOs (environmental, development, legal, or local organizations involved in community development). We want to help other local organizations to learn and to use this mapping process, and we are pleased to give information about our work to groups which request assistance, especially the churches of Irian Jaya. • We believe that the participatory mapping process is a powerful tool that enables villagers to analyze their own situation and to clearly communicate their needs to government officials. The maps are also useful in regional development programs, and can provide a clear and strong foundation for discussion so that such programs may fit well for a given area. • We work in an open and transparent manner, without hidden aspects or secrets. We work with the entire community (not just leaders), because we have learned that the participatory process can produce results which are more complete, more honest, more accurate, more just, and more likely to be accepted by communities and useful for communities than procedures which only involve a few people. • We are developing and carrying out a pattern for the University so that the Village Development Program and Community Service unit (Faculty of Agriculture, University of Cenderawasih) are more effective in their outreach and service activities with indigenous Papuans. We always look for opportunities to train Papuans with participatory skills useful in the process of community development, including our own field staff. • We are diligent in documenting our process and results, and we return that information to the community and present it to the relevant government offices. We seek to learn from our experiences and improve our work. We practice continual self-evaluation, and we are not afraid to analyze our mistakes to improve our methods. • Every stage of the mapping process must have its own results for the villagers. Mapping team: minimal 3 people, with characteristics as follows: patient, calm, curious, likes to ask questions, ready to listen, interested in seeking participation of marginalized people, physically strong (walking), mentally strong (isolation), not easily offended, and ability to sketch or draw is helpful. We do not look for staff with mapping expertise, since we will train in participatory skills and GPS/computer skills necessary for the task. Stages of the mapping process: 1. Support of community, church, and government • Our staff and mapping team are prepared and patient in explaining the purpose and process of mapping to anyone who asks, and is willing to answer questions which are asked about our work.

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Villagers themselves must want to explain about their situation in a written form, and they must understand the importance of this work for them. We discuss the project with traditional leaders, church workers, and the entire community on multiple occasions. Villagers must support the mapping team, even if there are conflicts as the process continues. Church leaders are responsible to maintain peace if there is an outbreak of conflict. Government officials (from village heads to the top regional official) must know about our activities and support the project as a basis for development.

2. Village, natural resource, and clan boundaries mapping • Participatory mapping activities are done by each village, so that villagers understand the process and trust that the activities are carried out in a transparent manner. Our staff and the villagers also gain mutual understanding though this activity. *Be sure that time and place are suitable for maximal villager participation: Sunday after church is the best in our location. Be sure to invite local leaders and church leaders specifically. • Maps provide information on village conditions (monograph on population, health statistics, etc.) and natural resources or forest uses near the village. This data is useful for village planning, community needs analysis, and as early documentation about the importance of natural resources for the life and culture of the communities. • Village representatives are identified who can be of special assistance in mapping, especially village elders who are authoritative on clan boundaries. • Villagers have an opportunity to discuss land rights and begin the process of settling any disputes among clans. • Villagers learn to use visual methods to express and discuss their own situation, and see the value of using written medium to communicate with outside groups. • Usually 2-3 hours are required for mapping; specific steps are below. Steps of participatory mapping: Before activities begin, divide up tasks among the mapping team: Community explanation Asking questions to produce a more detailed Prepare team materials (paper, camera, etc.) map Prepare village materials (leaves, bamboo, Listen and take notes on discussion stones, etc.) Watching participation Confirm time and place with village and church Photograph process and result leaders Draw the map with pencil Announcement to gather together Check the drawing with village leaders Snack (if needed) Explanation to the community (several times, with summaries): • Purpose and goal of mapping • Community-based mapping methodology • Process overview: today’s activities, and longer-term direction of the mapping • Time throughout for translation to local language • Explain that at the end, the team will draw the maps and check them with community leaders, and the group will be photographed • Time for questions Responsibilities of the mapping team • Ample preparation with traditional and church leaders and local translators about the purpose and methodology of the mapping • Ask and listen to all groups of people, including the marginalized

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Complete documentation of every day’s activities: date, place, time, activities, problems, discussion, participation (who attended or didn’t, and whether people left during the activity) Divide up tasks clearly among team members before mapping activities begin Prepare materials, location, etc. before the activities begin Activity evaluation with the mapping team after each village, and reporting the results of that evaluation in the report (including limitations, observations about participation, etc.) Check, and check again: Do not suppose that we understand people’s meaning accurately the first time. For information and drawings, always repeat back what you have heard and/or give people an opportunity to make corrections or improve on what we have written or drawn.

3. Traditional law council (sidang adat) for publicly agreeing upon clan boundaries • Invite local government officials and church leaders. • Representatives from each clan must be present, and the group can make a large topographic map, or use existing base maps with clear plastic overlays as foundation for the discussion. • Each clan should be given a turn to draw its boundaries on the map. Using open, public methodology can promote agreement by clan/tribal leaders. • Some boundaries may be clear, but others will be cause for discussion or dispute among clans. The map may be left for public scrutiny and comments in some visible place for a given time period, or the clan leaders may choose to formalize the map by signing on its borders at that time, making the map a legal document. 4. Formalizing community data with GPS measurements • Mapping team uses GPS to measure the border markers and other important sites indicated on the community-approved maps, and that data can be coordinated to fit with existing maps 5. Chronology and documentation • Each activity or meeting must be documented: date, time, place, names and positions of people met, decisions, difficulties, etc. • Documentation is important for results to be accepted as legitimate, and also so that other organizations and communities can learn from our experience in the region. • Documentation must be returned to the community and other parties that assisted with the project. • Complete information about the process and results are useful for communities in planning projects, local conservation programs, etc. Limitations and risks (to discuss): Some clans may not participate Corruption Local elites are the only ones who determine borders or indicate natural resources Tribal conflict or warfare Incomplete or dishonest financial reports Low community participation Community’s right to decide who is allowed to have access to their maps Logistics for a successful project (…): 1. Project must be carried out in a transparent manner 2. Documentation must be rigorous 3. Mapping team has the responsibility to confirm that every clan attends the meetings which determine boundary markers, and that the communities understand the purpose of the mapping proje ct 4. For publicity: before an activity happens, it should be announced in church for three weeks; a letter should be sent to local government officers, village leaders, and church leaders

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For further reading: Brody, H. 1982. Maps and Dreams. New York: Pantheon Books. The author describes how he used historical narratives to help native communities in northwest Canada outline their traditional land and resource claims. Fairhead, J., and M. Leach. 1996. Misreading the African landscape: society and ecology in a forestsavanna mosaic. New York: Cambridge Univ Press. This book traces how an historical comparison of aerial photographs and travel diaries from visitors to a region in West Africa presented a different picture of local people’s role in the environment. While many believed that local people were deforesting the landscape and turning forest into desert, a study of aerial photographs showed that local people were actually planting forest islands in a desert region. Momberg, F., K. Atok, and M. Sirait. 1996. Drawing on local knowledge: A community mapping training manual. Case studies from Indonesia. Jakarta: Ford Foundation. This manual provides a good introduction to participatory mapping theory and practice for a regional scale, comparing various techniques and giving many examples from large-scale participatory mapping projects. Appendix is from Momberg et al.

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