NRMP provided several training inputs to GOI policy analysts, covering methods for calculating 

protection levels and the impact of protection levels on natural resources (NRMP Report No. 

55).  However, the workshops and seminars held to communicate the study findings to GOI 

counterparts appeared to have had little impact.  Only limited direct policy change resulted from 

the study itself.  Yet, the study was successful in generating further interest on the part of the  

GOI Policy Working Group (PWG).  Questions raised by the PWG included the role of protection 

levels in driving resources into and out of favored sectors, and what techniques could be used 

to reduce the levels of effective protection that are offered. 

1.4  Lessons Learned: Policy Players and Their Roles  

1.4.1  Policy Processes and Players  

The policy process has two distinct components, the players and the process itself.  The players 

within a policy process have different roles and success determinants.  If either donors or 

government actors ignore these differences, the result will be unanticipated outcomes.  Before 

exploring these roles, the nature and complexity of the policy process for natural resources must 

be considered.  A policy process is based on an issue being raised, interested parties becoming 

involved, options being determined and evaluated, a decision being made, and a policy being 

implemented.  Ideally, the process will be an open loop; once implemented, evaluation of the 

policy will identify new concerns or issues. 

However, within Indonesia s natural resources policy, the apparent simplicity of the policy 

process is not possible.  High levels of uncertainty and very diffuse impacts through time and 

space contribute to the complexity.  Moreover, the institutional setting for policy further 

complicates the process.  Natural resources are cross sectoral in nature; actions in many 

sectors will have natural resources impacts.  Resource issues are also cross spatial; actions 

may cross administrative levels, ranging from local to national.  The structure of the GOI with its 

multiple layers of administration, adds several additional dimensions to the policy process.  The 

recent trend of reduced public sector involvement and the commensurate increase in private 

sector investment in development activities requires policy to go beyond existing government 

structures.  

The Indonesian policy process is not one process but a multitude of processes where the issue 

at hand determines the particular policy processes operating at any one time.  Within any policy 

issue there are a number of roles or players who will be present.  The appropriate role for 

donors is often poorly understood and  defined. To clarify these roles, the NRMP experience 

illustrated why donors might not achieve their goals in policy development.  The nature of a 

player s interest defines his or her role in a particular policy process.  Garland (1997) identified 

four roles for players within policy processes; namely, the advocates, analysts, entrepreneurs, 

and educators, "all of whom exhibit characteristic role behaviors". 

The advocate seeks a pre specified agenda or outcome.  They have a stake in outcomes, and 

from this perspective can rightly be considered stakeholders.  Advocates have a clearly defined 

interest, often by limiting the range of options that are brought to the table. Advocates 

purposively adopt a selective behavior pattern, using information and arguments that support 

their outcome while disregarding information that does not.  A number of other strategies are 

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