suhakam's report on penan in ulu belaga: right to

SHM/PENAN_UB/39/07

SUHAKAM’S REPORT ON

PENAN IN ULU BELAGA:

RIGHT TO LANDAND

SOCIO-ECONOMIC DEVELOPMENT

LEVEL 29, MENARA TUN RAZAK, JALAN RAJA LAUT50350 KUALA LUMPUR, MALAYSIA

603-2612 5600 (T)603-2612 5620 (F)

[email protected] (E)

Cetakan Pertama / First Printing, 2007

Hak Cipta Suruhanjaya Hak Asasi Manusia (SUHAKAM), 2007Copyright Human Rights Commission of Malaysia (SUHAKAM) 2007

Diterbitkan di Malaysia oleh / Published in Malaysia by SURUHANJAYA HAK ASASI MANUSIA /

HUMAN RIGHTS COMMISSIONOF MALAYSIAE-mail: [email protected]

URL: http://www.suhakam.org.my

Dicetak di Malaysia oleh / Printed in Malaysia byA&S Cetak Sdn. Bhd. (612075-K)

[email protected]

Perpustakaan Negara Malaysia Data-Pengkatalogan-dalam-Penerbitan

National Library of Malaysia Cataloguing-in Publication-Data

Hak cipta laporan ini adalah milik SUHAKAM. Laporan ini boleh disalin dengan syarat mendapat kebenaran daripada SUHAKAM. SUHAKAM menyangkal sebarang tanggungjawab, waranti dan liability sama ada secara nyata atau tidak ke atas sebarang salinan penerbitan penerbitan. Artikel-artikel yang dicetak di sini adalah dengan penulis dan tidak boleh diulang cetak mana-mana pihak yang lain tanpa kebenaran tanpa merujuk kepada penulis itu sendiri. Pengguna-pengguna adalah dinasihatkan untuk merujuk kepada pembentang / penulis atau mana-mana sumbernya untuk memastikan ketetapan dan keterkinian maklumat yang terkandung di dalam artikel-artikel tersebut sebelum menerima pakai atau bertindak berdasarkan maklumat tersebut. Pandangan serta cadangan pembentang dan peserta di dalam penerbitan ini adalah kepunyaan mereka masing-masing dan adalah tidak semestinya mewakili dan merupakan pandangan serta cadangan SUHAKAM. Penerbitan pandangan serta cadangan pembentang dan peserta adalah sebagai sumbangan terhadap maklumat dan perbincangan umum semata-mata dan tidak boleh diambil kira sebagai pengesahan atau sokongan SUHAKAM ke atas pandangan dan cadangan tersebut.

The copyright of this report belongs to SUHAKAM. This report may be reproduced with SUHAKAM’s permission. SUHAKAM assume no responsibility, warranty and liability expressed or implied by any other reproduction of this publication. The articles by various authors have been reprinted here with permission. The contents of these articles should not be published without reference to the writers themselves. Users of the articles printed here are advised to reconcile to accuracy and currency of the information provided with the respective writers or source before acting upon or in consideration of the information. The views and recommendations expressed by the speakers and participants in this publication are entirely the respective speakers’ or participants’ own and do not necessarily represent the views and recommendations of SUHAKAM. The publication of the views and recommendations of the speakers and participants is intended to contribute to public information and discussion and is not in any way to be taken to constitute endorsement or support by SUHAKAM of those views and recommendations.

Perpustakaan Negara Malaysia Cataloguing-in-Publication-Data

SUHAKAM’s report on Penans in Ulu Belaga : right to land and socio-economic development.ISBN 983-2523-24-91. Human rights--Sarawak--Ulu Belaga--Social conditions.2. Penan (Bornean people)--Sarawak--Ulu Belaga--Social conditions. I. Title323.119923

TABLE OF CONTENTS Page

EXECUTIVE SUMMARY 1 PART 1: SUHAKAM’S REPORT

1 INTRODUCTION 82 SUHAKAM’SOBSERVATIONSANDRECOMMENDATIONS 203 CONCLUSION 36 PART 2: REPORT ON SUHAKAM’S VISITS AND DIALOGUES

4 SUHAKAM’SVISITSANDDIALOGUESINLONGSINGUANDLONGJAIK,BELAGA, SARAWAK • Introduction 38 • DialogueinLongSingu,Belaga,Sarawak 38 • DialogueinLongJaik,Belaga,Sarawak 42

5 DIALOGUESWITHSHINYANGFORESTRYSDN.BHD. • Introduction 45

• DialogueatShinYang’sOilPalmPlantation,MetanikCamp,Sg.Jaik, 45 Belaga • DialogueatShinYangForestySdn.Bhd.Headquarters,Miri,Sarawak 47

6 DIALOGUESWITHGOVERNMENTAGENCIES • Introduction 51

• DialoguewithRepresentativesOfGovernmentagenciesattheDistrictLevel 51 • DialoguewithRepresentativesfromRelevantStateGovernmentAgencies, 57 Kuching,Sarawak • DialoguewithDato’SriAbangHajiAbdulRahmanZohari,Ministerincharge 63 ofthePenanCommunity’sWelfare. 7. DIALOGUEWITHNGOs,ACADEMICIANSANDCONCERNEDINDIVIDUALSAND OTHERBRIEFINGS&SUBMISSION

• Introduction 67 • DialoguewithrepresentativesfromNGOs,Academicians,andConcerned 67 Individuals • SummaryoftheBriefingtoSUHAKAMonVariousIssuesRaisedbythePenan 73 ofSeping,PlieranandDanumRivers,andalsothe5VillagesofPenanin UpperBelagaRiverbyMr.JaylLangub,LocalResearcher,UNIMAS • SummaryoftheBriefingPapertoSUHAKAMonthePenanandtheEIAfor 74 ShinYangForestPlantationbyDr.KhooKayJin,IndependentResearcher • SummaryoftheBriefingonthePenansinUluBelagabyProf.Dr.J.Peter 76 Brosius,ProfessorofAnthropology,UniversityofGeorgia,Athens,Georgia,US

PART 3: LIST OF ANNEXURES

Annexure 1 WrittenComplaintbyChiefMatuTugangfromLongJaik,Belaga,Sarawak 82

Annexure 2 ProgrammeofSUHAKAM’sVisitsandDialogues 86 Annexure 3 BriefingtotheHumanRightsCommissionofMalsysiaonvariousissuesraisedby 88 ThePenanofSeping,PlieranandDanumRivers,andalsothe5VillagesOfPenan InUpperBelagaRiver By Mr. Jayl Langub, Researcher, Unimas

Annexure 4 BriefingPapertoSUHAKAMonThePenanandtheEIAforShinYangForest 100 Plantation By Dr. Khoo Kay Jin, Independent Researcher

Annexure 5 BriefingonthePenansinUluBelaga By Prof. Dr. J. Peter Brosius, Professor of Anthropology, University of Georgia, 114 Athens, Georgia, US

Annexure 6 PresentationPaperonNativeCustomaryLawsandNativeRightsoverLandin 176 Sarawak BySarawakAttorneyGeneral’sOffice

Annexure 7 StateGovernmentResponsesontheissuesoftheaffectedPenansinLongSingu 186 &LongJaik,Belaga • JabatanPelajaranNegeriSarawak 187 • JabatanPendaftaranNegara 207 • JabatanPerhutananSarawak 209 • JabatanPerkhidmatanPerubatandanKesihatanNegeriSarawak 219 • JabatanPertanianSarawak 223 • JabatanTanahdanSurveiSarawak 227 • KementerianPerancanganDanPengurusanSumber 233 • LembagaSumberAslidanPersekitaran(NREB) 235 • PejabatDaerahBelaga 242 • SarawakTimberAssociation(STA) 245 • UnitPerancangNegeri 247 Annexure 8 ResponsefromShinYangForestrySdn.Bhd. 264 Annexure 9 ResponsefromtheConsultantfortheEnvironmentalImpactAssessment(EIA) 268 ReportfortheProposedShinYangForestPlantationlocatedbetweenBatang BelagaandSg.Murum,Belaga,Kapit,Sarawak.

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EXECUTIVE SUMMARY

The Penans are one of the indigenous communities of Sarawak. The Penan population to date isestimated to be 15,485 persons. A majority of this community have changed their lifestyle from anomadicwayoflifetothatofasettledcommunity.ThePenansinUluBelaga,Sarawakareamongthosewhohaveestablishedpermanentsettlementsasearlyasthelate1950sand1960s.Itisestimatedthattodayonly3%ofthetotalPenanpopulationremainnomadic.

ThePenans, includingthoseresidinginUluBelaga,haveauniquesystemofestablishingownershipandstewardshipofland.Thispractiseoflandownershiphasbeenhandeddownfromonegenerationtoanotherupuntiltoday.

Despitehavingestablishedpermanentsettlementsandcultivatingriceandvegetableonsmallfarms,thePenansinUluBelagaremaindependentonjungleproduceforfoodandotherbasicnecessities,especiallywhentheirsmallfarmsyieldinsufficientfoodsupplies.

In2001,when loggingandoilpalmplantationactivitieswerecommencedby thecompany,ShinYangForestrySdn.Bhd.,inUluBelaga,thePenans,feltthattheirlivelihoodwasthreatenedandthattheirlandrightswereinfringedupon.

On 26 July 2006, the Penans raised their concerns, fears and apprehensions to the Human RightsCommission of Malaysia (SUHAKAM) via two Penan headmen, Chief Alung Ju of Long Singu, andChiefMatuTugangofLongJaik,bothfromUluBelaga,Sarawak.

SUHAKAMrespondedto thesecomplaintsbyconducting fact-findingfieldvisits toLongSinguandLongJaik,UluBelagaandhavingaseriesofdialogueswithrepresentativesfromthePenancommunityconcerned, Government agencies, the Company concerned, as well as with Non-GovernmentalOrganisations[NGOs],academiciansand individualswhowereconcernedwiththewelfareofthePenans.

Six other Penan headmen, who alleged that their villages were similarly affected, attended thedialoguesaswell.

The Penan community’s area of concern centred on the status of their claim on their ancestralland.Theyallegedthatsincethecommencementofdeforestation,loggingandoilpalmplantationactivities,theiraccesstotheirancestrallandandtoforestproducewasdenied.

TheyfurtherclaimedthattheywerenotconsultedbytheCompanypriortothecommencementoftheiractivities.Someofthemhaveevenclaimedthatthecompensationpaidtothemwasinadequate.

Their complaints also touched on inaccessibility to basic human rights like adequate housing,health care, education, clean water, employment, right to valid documents and amenities liketransportation.

Penan in Ulu Belaga: Right to Land And Socio-Economic Development

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SUHAKAM’S OBSERVATIONS AND RECOMMENDATIONS

From the visits made and the dialogues held, SUHAKAM makes the following observations andrecommendations:

Right to Land

Observation:

SUHAKAMobservedthatthePenan’suniquecustomofestablishinglandownershipandstewardshipisnotrecognisedbytheSarawakLandCode1958,despitebeinganindigenouscommunityofSarawak.Asaresult,claimsmadeonancestrallandareoftennotconsideredbytherelevantauthoritiesandthosewhocleartheforestsareasandcommenceloggingandoilpalmplantationactivities.

SUHAKAM’s Recommendations:

TheSarawak LandCode1958 hasnoprovision for theprotectionof thePenancommunity’s rightto landownership.This,despite the fact that there isdocumentationandevidence indicating thepresenceofPenancommunityinSarawakwellbeforetheSarawakLandCode1958wasenacted.

As the Penans do not seem to have legal rights to land ownership, SUHAKAM recommends thattheSarawak landCode1958beamended to take intoconsideration thePenan’suniquewayofestablishinglandownershipandstewardship.

Section5(2)dand5(2)eoftheSarawakLandCode1958specifiesthatmethodsofestablishingclaimstoNCRlandincludestheuseof landforburialgroundandofanyclassofrightofway.SUHAKAM,therefore,recommendsthatwherethereisdocumentaryevidenceoftheexistenceofPenanburialsitesandpaths,theseevidencesbetakenintoconsiderationwhenlandisalienatedforloggingandoilpalmplantationactivities.

Additionally,SUHAKAMrecommendsthatthetermsofSection5(3)oftheSarawakLandCode1958whichextinguishesnativecustomary land rightsbe reviewedaccordingly,as thecurrentprovisionincreasesthevulnerabilityoftheindigenouscommunities’righttolandownership.

Environmental Impact Assessment (EIA) Report on the Existence of Penans in the Licenced Area

Observation:

SUHAKAMobservesthatthereseemstobecontradictionsandinconsistenciesbetweenthefindingsoftheConsultantoftheEIAReportontheProposedShinYangForestPlantationandtheclaimsmadebythePenans.TheEIAreportwhichwaspreparedbeforethecommencementofloggingandoilpalmplantationactivitiesstatesthatthere isnoevidenceofanyhumansettlementwithintheproposedforestplantation.

Corroborating to the claims made by the Penans, a literature review on local and internationalresearch,aswellasdatafromtheBelagaDistrictOfficeprovidesevidenceofPenansettlementsinUluBelagaatthetimewhenEIAreportwasprepared.

EXECUTIVE SUMMARY

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Penan in Ulu Belaga: Right to Land and Socio-Economic Development

SUHAKAM’s Recommendation:

SUHAKAM recommends that the Government takes necessary measures to ensure that onlyindependentconsultantsareappointedtoassessandpreparetheEIAreport.Thisistoensuregreaterobjectivityandtransparencyandtonegateallallegationsofbiasness.ItisalsorecommendedthattheGovernmentreviewtheproceduresofthepreparationandverificationoftheEIAreport.

WithregardtotheEIAreportforShinYang’sForestPlantationintheUluBelaga,itisrecommendedthattheNaturalResourcesandEnvironmentalBoard(NREB),theagencyinchargeofapprovingtheEIAreport,verifyandascertaintheaccuracyofitsfindings.IntheeventthatitisfoundtheEIAreporthasmisledtheauthoritiesconcerned,itisrecommendedthatimmediatemeasuresbetakentorectifythesituation.

Issues on Poverty

Observation:

SUHAKAMfoundthatthePenans inLongSinguandLongJaikareamongofthepoorestgroups inthecountryandlivebelowthepovertylevel.Theyhaveinadequateaccesstonutritiousfood,healthcare,education,housingandcleanpotablewater.

SUHAKAM’s Recommendations:

In linewiththeGovernment’saspirationundertheThirdThrustoftheCountry’sNinthMalaysiaPlantoaddresspersistentsocio-economicinequalitiesconstructivelyandproductively,thereisanurgentneedfortheGovernmenttoensuretheavailabilityofbasicnecessitiesforthePenanstoensurethattheydonotcontinuetoliveinabjectpoverty.Morespecifically,SUHAKAMstronglyrecommendsthatpovertyeradicationandincomegenerationsbeimplemented;thatthenumberofServiceCentresinUluBelagabeincreased;thattheSarawakLandConsolidationandRehabilitationAuthority(SALCRA)SchemebeextendedtothePenanCommunity;thattheprogrammesoutlinedintheFirstMalaysiaPlan1966-1970(GreenBook)onruraldevelopmentberevived.

Toensuretheeffectivenessofpovertyeradicationand incomegenerationprogrammes in theUluBelaga, there is the need for the Government to ensure regular visits and monitoring by relevantGovernmentOfficials.

Issues on Documentation

Observation:

SUHAKAMobserved that themajority of the Penansmetby SUHAKAMdonot have IdentificationCards[ICs]andBirthCertificates[BCs],whileonlyahandfulhadtemporaryidentificationslipswhichvaliditywerecontinuallyextended.Amongthecausesidentifiedincludeunavailabilityofregistrationofficesinthearea;feesimposed;costandthetimetakentotraveltothenearestregistrationserviceinBintulu,Sarawak;andtherequirementfortheproductionofICsandmarriagecertificatesofPenanparents.

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SUHAKAM strongly recommends that the Government ensures that vital registration services andfacilitiesaremadeavailabletothePenans.Thiswouldenhancetheiraccessibilitytobasicrightsnamely,therighttovote;righttoeducation,healthcareservices,welfareservices,financialassistance;aswellasaccesstopovertyeradicationprogrammes.

Further it is recommended that the Government waive the late registration fees imposed on thePenansinUluBelagaconsideringthePenansareamongstthepoorestcommunityinMalaysia.ThePenanscouldalsobeexemptedfromtheconditionofrequiringparents’ICsandmarriagecertificatestobeproducedwhenprocuringbirthcertificatessincemostofthemdonothavethesedocuments.ValidationbyPenanheadmenforthispurposeshouldbesufficient.

Issues on Education

Observation:

SUHAKAMfoundthatamajorityofthePenanchildrenresidinginthelonghousesinLongSinguandLongJaikdonotattendschool.Anumberofreasonshavebeenidentified,suchasthelackofproperdocumentation;thelackofpropertransportationtoandfromschools;povertyandthelimitedfinancialassistanceneededtoensureaccesstoeducation.

IthastobeacknowledgedthatwhilsttheSarawakStateEducationDepartmentplaysamajorroleinensuringthateducationisaccessibletoall,includingthePenans,limitedresourceshaveimpededtheDepartment’seffortsinreachingouttothePenansinUluBelaga.


SUHAKAMrecommendsthatpre-schools,eitherrunbytheGovernmentorNGOs,orruncollectivelybytheGovernmentandNGOs,beestablishedinPenanvillagestomeetthebasiceducationneedsoftheyoungPenanchildren.

Itisfurtherrecommendedthatattheveryleast,primaryschoolcurriculumofuptostandardfourbemadeavailableandaccessibleinPenanvillages.

Inaddition,affirmativeactionneedstobeformulatedandimplementedtofacilitatetheenrolmentofPenanchildreninsecondaryschoolsandatthetertiarylevel.Measurestoenhanceaccessibilitytofinancialassistanceneedtobeimplementedandmadeavailableaswell.

It isalso important toconsider self relianceeducationor training for thePenans.Additionally, skill-related training - based on their current knowledge on agriculture and blacksmithing - could beprovided,especiallyforthosewhohavebeenunfortunatetomissformalschooleducationorwhohavefailedtocompleteprimaryandsecondaryeducation.

Issues on Health

Observation:

SUHAKAMobservedthataccesstohealthcareservicesislimitedforthePenansinUluBelaga.TheseincludelimitedaccesstoGovernmentclinicsandtoemergencyservices,limitedmedicalsupplyandirregularvisitsbytheFlyingDoctorService.

EXECUTIVE SUMMARY

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SUHAKAM found that as with the State Education Department, limited resources have hamperedtheSarawakStateHealthDepartment’scommitmenttoensureaccesstohealthcareforthePenancommunity.


SUHAKAMrecommendsthattheGovernmentallocationforruralhealthdevelopmentundertheNinthMalaysiaPlan2006-2010beincreasedandaportionofitbechannelledspecificallytoimproveaccesstohealthcareforthePenancommunity.SUHAKAMfurtherrecommendsthatthenumberofcommunityhealthworkersbeincreasedtomeetthehealthneedsofthePenan.ExpectantPenanmothersandchildren,inparticular,needtobegivenbasichealthcare–likepropernutrition,vitaminsandcleanwater.TherelevantDistrictOfficecanplayavitalroleineducatingandcreatingawarenessonhealthcareamongstthePenans.

ItisfurtherrecommendedthattheGovernmentensuresallcomponentsoftherighttohealthareeasilyaccessibleandavailabletothePenans.Thesecomponentsincludematernal,childandreproductivehealth;ahealthyworkplaceinanaturalenvironment;prevention,treatmentandcontrolofdiseases,includingaccesstoessentialmedicinesandaccesstosafepotablewater.

State’s Duty to Protect the Rights of the Penans

Observation:

Asprimarydutybearer,theGovernmentisobligatedtoensureitscitizensenjoyhumanrights,includingrighttoland.However,inthecaseofthePenansinUluBelaga,itappearsthatthetasktosettleNCRclaimswastransferredtotheCompanybytheGovernment.

In addition to right to land, the Penans are also deprived of their right to basic amenities. As thePenansfoundithardtogaintheGovernment’sattention,theyoftenturntotheCompanyoperatinginUluBelagatoprovidethemwiththoseamenities.


SUHAKAM recommends that in the spirit of ensuring compliance with Government’s human rightsobligations,thegrievancesandcomplaintsofthePenansbelookedintoandprotected–inparticulartheirrightstonativecustomaryland,toeducation,employment,documentationandhealthcareaswellasotherrightsasenshrinedintheUniversalDeclarationofHumanRights(UDHR).

CONCLUSION

AmajorityofthePenansremainoneofthemostdeprivedcommunitiesinMalaysia.ThemajorissueofgrievanceandconcernofthePenanspertainstothestatusoflandclaimsbasedontheirtraditionalsystemofownershipandstewardshipofland.Thisfeariscompoundedbydeforestation,loggingandoilpalmplantationactivitiescarriedoutbycertaincompanies.

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EXECUTIVE SUMMARY

Apartfromland issues,thesurvival, livelihoodanddevelopmentofthePenans is furtherstuntedasamajorityofthemliveinabjectpoverty.WhilsttheGovernmenthasformulatedandimplementedvariouspovertyeradicationprogrammesfortheruralcommunities,itappearsthatthePenanshavelimitedaccesstothoseprogrammes.Theyalsohavelimitedaccesstoothervitalfacilitiesandservicesincludingeducation,healthcare,registrationandtransportation,aswellasbasicamenitiessuchaselectricityandcleanwatersupply.

Astheprimarydutybearer,theGovernmentischieflyresponsibletoensurethePenans’righttolifeandanadequatestandardofliving.TheGovernment,therefore,hastoensurethatthePenanshaveadequateaccesstotheirbasichumanrightsasenjoyedbythemainstreamsocietyasignorancewilltakeitstollonthePenans.

PART 1SUHAKAM’S REPORT

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1. INTRODUCTION

I. SUHAKAM’S VISITS AND DIALOGUES IN ULU BELAGA, SARAWAK

On27 July2006, theHumanRightsCommissionofMalaysia (SUHAKAM) receivedcomplaints fromtwoPenanheadmen,ChiefAlungJuandChiefMatuTugangfromLong1SinguandLongJaik(Jek),Ulu Belaga, Sarawak, respectively. Their complaints pertained to logging, oil palm plantation andreforestationactivitiesbyShinYangForestrySdn.Bhd.(ShinYang)andtheirimpactontherighttolandandthelifeofthecommunityconcerned.

Asaresponsetothecomplaints,theEconomicSocialandCulturalRightsWorkingGroup(ECOSOC)togetherwithSUHAKAMSarawakOfficedecidedtoconductfieldvisitsanddialogueswithaffectedPenanmembers, representatives fromGovernmentagenciesand theCompanyaswellasNGOs,academiciansandconcernedindividuals.2

SUHAKAM’sdelegationwas ledbyDatukDr.DenisonJayasooria[theChairpersonof theECOSOCWorking Group], Dr. Chiam Heng Keng, Dr. Mohammad Hirman Ritom Abdullah and Tunku DatukNazihahTunkuMohamedRus.3

THE COMPLAINTS

The complaints made to SUHAKAM’s by Chief Alung Ju and Chief Matu Tugang on 27 July 2007,pertainedtotheeffectsoflogging,oilpalmplantationandreforestationactivitiesbyShinYangontheirrighttoland,theirlivelihoodandsurvival.

WhilstChiefAlungJumadeaverbalcomplaintattheSUHAKAMSarawakOffice,ChiefMatuTugangcameto the sameofficewithawrittencomplaint,highlightinghisdissatisfactionwith theoilpalmplantationactivitybyShinYang.HeallegedthattheCompanywasoperatingonlandthatthePenanshadinheritedfromtheirancestors.Theyhadcultivatedthesaidlandforgenerations–asearlyasthe1950s. Inhis letterofcomplaint,healsomadeanappealtoSUHAKAMtoassist inensuringthatthelandbetweentheRelohCampneartheDanumRiverandatupstreamofSungaiJaik,locatedabout1kilometrefromtheSepingriverbank,bereservedforthePenansforricecultivationandforcollectingofforestproduce.4

ISSUES ADDRESSED BY SUHAKAM

Apartfromrespondingtothecomplaintsmade,SUHAKAMalsoexaminedwhethertheissuanceoftheLicencebytheGovernmenttoShinYangforlogging,oilpalmplantationandreforestationactivitieshaveaffectedthePenans’economic,socialandculturalrights.

1 Theword‘Long’orLg. isaKayantermwithcognates inthevariousOrangUluLanguages. Itcarries thesamemeaningastheMalayword‘kuala’whichreferstotheconfluenceoftworivers,withtheconfluencenamedafterthesmallerriver.Thus,forexample,LongJaikistheconfluenceoftheJaikwiththeSeping.SeeDr.KhooKayJin’sBriefingtoSUHAKAMon‘PenanandtheEIAfortheShinYangForestPlantation’attachedasAnnexure3.

2 SUHAKAM’sprogrammeonthevisitsanddialoguesisattachedasAnnexure23 SUHAKAMCommissionerswereassistedbyfourSUHAKAMOfficersandstaffincludingRafidahYahya,SophianOsman,WanMazlanand

MohammadBinMail.4 TheletterbyChiefMatuTuggangisattachedasAnnexure1.

INTRODUCTION

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OBJECTIVES

SUHAKAM’saimsinvisitingandholdingthedialogueswere:

i) to investigate on the complaints made by affected Penan members and to further observewhethertheireconomic,socialandculturalrightsweredeniedasaresultof logging,oilpalmplantationandreforestationactivities;

ii) to obtain feedback from the relevant Government agencies and the Company itself on theallegationsmadebytheaffectedPenanmembers;

iii) toobtaintheviewsfromrepresentativesofNGOs,academiciansandconcernedindividualsontheissuesaffectingthePenans;

iv) torecommendtotheGovernmentonthepossiblelineofactiontoaddressrelevantissues.

METHODOLOGIES USED

ThefollowingmethodologieswereusedbySUHAKAM:

i) FieldvisitstoLongSinguandLongJaik,UluBelaga;ii) Dialogues with the community concerned, representatives from Government agencies, the

Company,aswellasNGOs,academiciansandindividualsconcernedwiththePenan’srights;iii) Written responses from Government agencies and the Company concerned on the issues

highlightedatthedialogues;iv) BriefingsbylocalandforeignresearcherswhoarefamiliarwithPenanissues;andv) Literaturereviewonwrittenmaterialsandsecondarydata.

SUHAKAM’S FIELD VISITS AND DIALOGUES

SUHAKAM’sfactfindingactivitywasfourfold.Theyincludethefollowing:

Site Visits and Dialogues at Affected Penan Villages

SUHAKAMfirstlyorganisedsitevisitsanddialogueswiththecommunityconcerned.Thesevisitsanddialogueswereorganisedtoobtaingreaterinsightontheconcernsoftheaffectedcommunity.

SUHAKAM’s visits to Penan villages and dialogues with their residents took place at the Alung JuandMatuTugangLonghouseson18September2006.SUHAKAM’sdialogueswiththePenanswerealsoattendedbyotherPenanheadmenwhosevillages located inLongLuar, LongTangau,LongWat,LongPelutan,LongPeran,LongTengahandDataSengelang,wereaffectedbyShinYang’sactivities.ApartfromthePenanheadmen,severalmembersoftheVillageSecurityandDevelopmentCommittee(JKKK)alsoattendedthedialogues.5

Dialogue with Representatives from Shin Yang Forestry Sdn. Bhd.

Basedon theallegationsmadeby thePenans, SUHAKAMmetwith theManagerofShinYangOilPalmPlantation,MetannikCamplocatedinSungaiJaik,UluBelagaon18September2006.Anotherdialoguewith representatives from theCompany’sheadquarters inMiri, Sarawak,washeldon12October2006.6

5 TheproceedingreportonSUHAKAM’sdialogueswiththePenanattheAlungJuLonghouseinLongSinguandMatuTugangLonghouseinLongJaik,UluBelagaisinChapter4ofthisReport.

6 TheproceedingreportonSUHAKAM’sdialogueswithrepresentativesfromShinYangForestrySdn.Bhd.isinChapter5ofthisReport.

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ThedialogueswereheldtoobtaintheCompany’sfeedbackontheclaimsmadebythePenansandtoascertaintheactivitiescarriedoutbythecompanyaspartoftheirsocialresponsibility.

Dialogues with Government Agencies

SincetheGovernment is theprimarydutybearertoprotecttherightsof thePenansandwasalsoresponsibleforthegrantingoftheforestplantationlicencetoShinYang,SUHAKAMfoundthatitwasnecessarytomeetwithrelevantGovernmentagenciestoobtaintheirfeedbackontheclaimsmade,aswellasgrievancesandconcernsraisedbythePenans.

SUHAKAM’sdialogueswithrepresentativesfromGovernmentagencieswereheldatthedistrictandstatelevelon19Septemberand13October2006respectively.SUHAKAMalsometwiththeMinisterinchargeofPenanWelfareon13October2006.7

Dialogue with NGOs, Academicians and Concerned Individuals

AdialoguewithrepresentativesfromNGOs,academiciansandconcernedindividualswasheldon14October2006.8TheDialoguewasheldtogainparticipantsperspectivesontheissuesfacedbythePenansinUluBelaga.

Apart from the dialogue with NGOs, academicians and concerned individuals, SUHAKAM wasalsobriefedby several localand foreign researcherswhohave studiedonvariousaspectsof thePenans.9

SUHAKAM’s Meeting with Dato’ Sri Abang Haji Abdul Rahman Zohari, the Minister in charge of Penan Welfare.

7 TheproceedingreportofSUHAKAM’sdialogueswithGovernmentagenciesandofficialsisinChapter6ofthisReport.8 TheproceedingreportonSUHAKAM’sdialogueswithNGOs,academiciansandconcernedindividualsisinChapter7ofthisReport.9 SUHAKAMwasbriefedbyDr.KhooKayJin,independentresearcher;Mr.JaylLangub,researcherandcurrentlyattachedwithUNIMAS;and

Dr.J.PeterBrosuis,aProfessorofAnthropologyfromUniversityofGeorgia,Athens,UnitedStates.

INTRODUCTION

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II. LOCATION OF BELAGA AND LAND LICENCED (LPF/0018) TO SHIN YANG

LOCATION OF BELAGA, SARAWAK

TheBelagaDistrictislocatedintheUpperreachesoftheRajangRiver.Belagaisneighbouredbyseveraldistricts including Marudi, Bintulu, Tatau and Kapit. Theeast of Belaga is borderedby Kalimantan,Indonesia.Map1showsthelocationofBelaga,Sarawak.

LOCATION OF LAND LICENCED TO SHIN YANG (LPF/0018)

In1999,atotalof155,930hectares(ha.)oflandbetweentheBatangBelagaandSungaiMurumintheBelagaDistrict,KapitDivision,Sarawak,waslicencedbytheGovernmenttoShinYangundertheLicenceforPlantedForest(LPF)/0018,commencingfrom19November1999to18November2059(60years).Thelandismorethan50kilometresnorthofBelagatowninBelagaDistrict,KapitDivision.TheAsapResettlementisabout30kilometrestothenorthwestofthesite,whiletheBakunHydroElectricPlant(HEP)isabout13kilometresinthesouthwesterndirection.10

ThenorthernsideofthesiteisborderedbytheoilpalmplantationsofSamlingPlantationSdn.Bhd.andPASBPlantationSdn.Bhd.ThewestsideofthesitebelowSg.PenyuanisborderedbyPusaka-KTSForestPlantation.MuchfurthertothesouthofthesiteistheareafortheproposedwildlifesanctuarynearPelagus.Thereisnootherdevelopmenteastofthesite.Map2showsthegenerallocationoftheprojectsiteundertheLPF/0018.11

MAP OF SARAWAK

MAP 1

10 Extracts from the EIA Report for the proposed Shin Yang Forest Plantation located between Batang Belaga and Sg. Murum, Belaga,Kapit.

11 Ibid.

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GENERAL LOCATION OF PROJECT SITE (LPF/0018)

Source: Environmental Impact Assessment. Report for the Proposed Shin Yang Forest Plantation located between Batang Belaga and Sg. Murum,

Belaga, Kapit.

MAP 2

The landunder this Licence is furtherdivided into fourareasunder four logging licences includingT/3180,T/3127,T/3282andT/3283.Map3showsthedivisionoffourlogginglicencesunderLPF/0018.12

12 Ibid.

INTRODUCTION

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DIVISION OF FOUR LOGGING LICENCES UNDER LPF/0018

Source: Environmental Impact Assessment. Report for the Proposed Shin Yang Forest Plantation located between Batang Belaga and Sg. Murum,

Belaga, Kapit

MAP 3

Outofthetotalsizeoflandlicenced,onlyabout60%or93,560h.aisplantable,whiletherestwouldbepreservedinsituasbufferzoneorgreenbelts.13

The project development is divided into two parts, namely for the oil palm plantation and forestplantation.

Theforestplantationwillinitiallytakeup80%ofplantablearea,whileoilpalmplantationwilloccupytheremaining20%.Theoilpalmplantationhasthreephasesofdevelopmentwhichwouldbecarriedoutinthreeyears.Attheendofthefirstcycleof25years,theareawouldbereplantedwithselectedforesttrees.

Theforestplantationwillbedevelopedin10phasesover10years.Duringthe10-yearphase,existingforesttreeswouldbeloggedinstages,whileatthesametimereplantingofcertaintreespecieswouldcommencetoreplacefelledtrees.Harvestingofplantedtreeswouldcommenceonthe10thyear,afterwhich,anewcycleofreplantingwillbecarriedoutforthenext10years.14

13 Ibid.14 Ibid.

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III. THE PENANS IN SARAWAK

The Penans are recognised as one of the indigenous communities in Sarawak as provided in theSarawakInterpretationOrdinance(Cap.11958Ed.).AccordingtothescheduleunderSection3oftheInterpretationOrdinance(Cap.11958Ed.),ethnicgroups,andtheadmixtureofthemwithoneanother, thatareconsideredtobe indigenousgroups inSarawak includeBukitan;Bisayah;Dusun;Dayak (Laut / Darat); Kedayan; Kalabit; Kayan; Kenyah (including Sabup and Sipeng); Kajang(includingSekapan,Kejaman,Lahanan,Punan,Tanjong,Kanowit);Lugat;Lisum;Melayu;Melanau;Murut;Penan;Sian;Tagal;Tabun;andUkit.

In2006,itwasestimatedthatthetotalpopulationofthePenaninSarawakwas15,48515persons.Table1showsthemainPenanpopulationdistributioninSarawakfor2006.

TABLE 1: MAIN PENAN POPULATION DISTRIBUTION, 2006

No Division District No. of Settlement No. of Population

1. MiriBaram 69 9,223

Miri(Suai-Niah) 5 1,637

3. Bintulu Bintulu 8 1,187

4. Limbang Limbang 10 397

5. Belaga Belaga 20 3,041

TOTAL 112 15,485Source:SarawakStatePlanningUnitbasedondatafromMiri,Kapit,LimbangandBintuluResidentandDistrictOffice,2006

ThemainPenanpopulationcanbefurtherdividedinto26sub-groupsbasedontheirlocation.Table2showsthedistributionofPenansub-grouping.

15 DataforwardedbytheStatePlaningUnit,SarawakonitsfeedbacktoSUHAKAMwithregardstotheissuesofthePenansinLongSinguandLongJaik,UluBelaga.ThedatawasobtainedbySPUfromSource:Miri,Kapit,LimbangandBintuluResodentandDistrictOffice.

INTRODUCTION

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TABLE 2: DISTRIBUTION OF PENAN SUB-GROUPING BASED ON CERTAIN CHARACTERISTICS

Major Group District River SystemNo. of Settlements Population

Settled Nomadic Settled Nomadic

Linau Belaga Linau 5 0 698 0

Danum Belaga Danum 2 0 286 0

Seping Belaga Seping 2 0 225 0

Pleiran Belaga Pleiran 4 0 682 0

Urun Belaga Belaga 5 0 602 0

Sg.Asap Belaga Sg.Asap 2 0 206 0

LowerTinjar Baram Tinjar 5 0 755 0

UpperTinjar Baram Tinjar 5 0 510 0

Pelutan Baram Pelutan 3 0 467 0

LowerAkah Baram Akah 2 0 419 0

Silat Baram Silat 4 0 676 0

Selaan Baram Selaan 1 1 150 234

Selungo Baram Selungo 3 0 471 0

UpperBaram Baram Baram 2 1 680 85

UpperAkah Baram Akah 2 4 205 621

LowerAkah Baram Akah 2 0 419 0

Patah Baram Patah 4 2 324 228

Apoh Baram Apoh 2 0 331 0

LowerApoh Baram Apoh 2 0 456 0

Layun Baram Layun 5 0 706 0

Mulu Baram Melinau 2 0 449 0

Magoh Baram Magoh 3 5 229 273

Kebaan Baram Kebaan 1 2 45 181

PaKelapang Baram Kelapang 1 0 81 0

Medihit Limbang Limbang 0 5 0 222

Adang Limbang Adang 0 5 0 145Source:SPUbasedondataobtainedbySPUfromtheResidentandDistrictOffice,Limbang,MiriandKapit,2002(Note:classificationbasedon

Jayl,Langub,MAIS,2002)

LOCATION OF PENAN SETTLEMENTS WITHIN LPF/0018

Itisestimatedthat19%ofthetotalPenanpopulationresideintheinteriorofBelaga(UluBelaga).TheSarawakStatePlanningUnit(SPU)hasidentified2016PenansettlementsinBelaga.NonomadicPenangroupwasidentifiedinthearea.17

16 SeewrittenresponsefromtheSarawakStatePlanningUnitinAnnexure7ofthisReport.Table1showsthePenanpopulationdistributioninSarawak.

17 SeewrittenresponsefromtheSarawakStatePlanningUnit inAnnexure7of thisReport.Map(Figure1.3)showsthe locationofPenanSettlementsinBelaga.

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Thereare8PenansettlementswhichareaffectedbyShinYang’s loggingandoilpalmplantationactivitiesunderthelicenceLPF/0018.

Map 4 shows the location of Penan longhouses in Ulu Belaga, affected by logging and oil palmplantationactivitiesinUluBelaga.18

AcomparisonbetweenMaps3and4 found that thePenan settlements in LongPeranalong theSepingRiver,andLongJaikalongtheJaikRiverfallwithintheT/3180logginglicencearea.ThePenansettlements inLongLuar,LongPelutan,LongTangau,LongSingu,LongWat,andLongMalim,arelocatedeitherwithinorattheborderoflandunderthelogginglicenceT/3127.

LOCATION OF 8 PENAN SETTLEMENTS IN THE SEPING, PLEIRAN AND DANUM AND 5 PENAN SETTLEMENTS IN THE UPPER BELAGA RIVER

Source: Mr. Jayl Langub, Researcher from UNIMAS

MAP 4

COMPOSITION OF PENAN VILLAGES AFFECTED BY SHIN YANG’S ACTIVITIES

Table3showsthenumberofapartments/doorsandpopulationsizeofeachlonghouseaffectedbyShinYang’soilpalmplantation.

18 MapsourcedfromMr.JaylLangub,Researcher,UNIMAS

INTRODUCTION

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TABLE 3: PENAN LONGHOUSES AFFECTED BY SHIN YANG’S OIL PALM PLANTATION

LOCATION OF LONGHOUSE NO. OF LONGHOUSE

NO. OF DOOR PER LONGHOUSE POPULATION

1. LongPeran 1 21 103

2. LongJaik(Jek) 1 25 122

3. LongLuar 1 56 159

4. LongTangau 1 21 97

5. LongSingu 1 46 194

6. LongPelutan 1 22 99

7. LongWat 1 48 233

8 LongMallim 1 27 153

TOTAL 8 260 1,160Source:BelagaDistrictOffice,2000

BACKGROUND ON THE PENAN LIFESTYLEThe Penan community used to be nomadic. However, a majority of them have adopted a moresettledlifestylesincethelate1950sandearly1960s.In2006,itwasestimatedthatthetotalnumberofnomadicPenanswas45819personsandtheywereunequallydividedinto9groups.ThesegroupscouldbefoundintheheadwatersofTutohandMagohriversystemoftheBaramDistrict.20SomeofthesettledPenans,likethePenancommunityinUluNiahinMiriforinstancehadadaptedthemodernwayoflife.

ThesettledPenans,includingthoseinUluBelaga,havestartedtocultivatericeandvegetablefarmingonasmallscale.LandthatisactivelyusedbythePenansforcultivationiscalledtemuda.

Inadditiontosmallscalecultivation,thePenansinUluBelagastillforageinthejungleforwildgame,fruitsandvegetables,especiallywhencultivatedfarmsyieldpoorharvest.21

For thePenans, the foragingactivitywouldestablishownershipand stewardshipof the forest. ThePenanshadcreatedthetermtanamenguripwhichlabelstheirforagingarea,includingareaswheretheyliveandsurviveon.Theseforagingareaswouldbeidentifiedthroughnaturalboundaries,whichincludewatersheds,mountainsandlandmarks.Theseboundariesarecalledsaangtana.EachgroupofPenanshastheirownforagingareawhichispasseddownfromonegenerationtoanother.22

Theyhavealsoestablishedastrategyknownasmolongwhichmeansto layclaimonaparticularresource.Therefore,whenapersonmolong,forinstanceafruittree,heisthenresponsibletoensurepropermanagementofthatfruittree.23

19 Source:SarawakStatePlanningUnitbasedondatagiventothembytheMiriResidentOffice.20 Source:SarawakStatePlanningUnit21 Source:“ProfileofFivePenanLonghouses”byJaylLangub,UNIMASlecturer,andformerlyattachedtotheMajlisAdatIstiadatunderthe

ChiefMinister’sDepartment.ThispaperwaspresentedattheWorkshoponCommunityProfilesofEthnicMinoritiesinSarawakheldon26-27May2000attheCentreofModernManagement,Kuching,Sarawak.

22 Source: “The Socio-Economic conditions of the Penan of Sarawak: A Briefing to the Poverty Sub-Committee of the Majlis PerundingEkonomiNegaraII”byMr.JaylLangub,whowasattachedwiththeMajlisAdatIstiadatundertheChiefMinister’sDepartment.ThispaperwaspresentedtotheCommitteeinPutrajaya,on17February2000.

23 Ibid.

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Apartfromdomesticuse,thePenanobtainsproductsfromthejunglefortrading.ThePenantradewiththeirKayan,KenyahandBerawanneighbours.Barterproductsincludematsandbaskets,blowpipesandtheParang,whichareproducedbyPenanmembers.

IV. ISSUES ARISING FROM THE COMMENCEMENT OF LOGGING AND OIL PALM PLANTATION ACTIVITIES UNDER LPF/0018

ThecommencementofloggingandoilpalmplantationactivitiesbyShinYangonlandthePenansclaimastheirancestrallandandwithoutthePenans’consent,wasseenwasseenasencroachmentontheirnativeland.

ForthePenans,landthathasbeencultivated,regardlessofthesize,asawllasforagingareawhichis theirmainsourceof livelihood,belongstothem.ThePenansfeel thatsincetheyhavestayedorroamedintheUluBelagaforgenerations,theirclaimtolandshouldberecognised.

However,theywereunabletoprotecttheirlandrightsastheyweretoldbytheCompanythatthelicence for forest and oil palm plantations was legally obtained by the Company from the State(Government). Therefore, thePenanswere told that theydonothave the right toclaimanythingfrom theCompany.Asa result, thePenans’claimsonancestral landdidnotgiveweight to theirdemands.

Ontheotherhand,othershaveclaimedthatthePenanswereopportunists.ItwasallegedthatthePenanswouldtakeadvantageofloggingoroilpalmactivitiesbysettingupnewsettlementswherevertheseactivitiesareinoperation.Theywouldthenclaimforcompensation.ThisallegationwasdisputedbythePenanswhostatedthattheirsettlementswereestablishedsincethe1960sandthattheyhadnevermovedoutfromthesettlementssincethen.

Whenforestandoilpalmplantationactivitiescommenced,accesstotheforestbecameincreasinglydifficultforthePenans.Consequently,accesstofoodandbasicnecessities–onceeasilyobtainedfromtheforest–becomesincreasinglylimited.

PollutionresultingfromloggingandoilpalmplantationactivitieshasaffectedtheriversfromwhichthePenansobtainfishandwaterfordrinking,washingandbathing.

Withincreasinglylimitedaccesstofoodsourcestomaintaintheirbasicsustenance,thePenansinUluBelagaaredraggedfurtherintoapovertycycle.

As an indigenous community in Malaysia, they could seek assistance from the State. However,welfareassistanceisdifficulttoobtainasamajorityofthePenansdonothavetherequiredproperdocumentationlikeICsandBCs.

Withregardtohealthcareservices,someofthePenansinUluBelagaareforcedtotraveltotheSungaiAsapMedicalCentrewhichisaboutthreehoursaway.ThisisduetothefactthathealthcareservicesinUluBelagaareinadequate.SincethePenansdonotpossessvehicles,andgiventheireconomicsituation,theycouldnotaffordtocharteravehicleasitcouldcostthemuptoRM600fromUluBelagatoSungaiAsap.Asaresult,thePenansoftenaskassistancefromtheCompanyfortransportation.Tomakemattersworse,sincemostofthemdonothaveICsorBCs,theyare,attimes,chargedtwiceasmuchformedicaltreatmentastheyaremistakenforforeigners.

INTRODUCTION

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WhileundocumentedPenanchildrenareallowedtoenrollinschools,they,however,canonlystayinschoolsuntiluptoFormThreeandarenotallowedtotakethePenilaianMenengahRendah(PMR)exam.Inadditiontothis,undocumentedPenanchildrendonothaveaccesstofinancialassistance.ApreconditionforobtainingfinancialassistanceistheproductionofICsandBCs.

While there seems to be leniency in the enrollment of undocumented Penan children, SUHAKAMfoundthatasignificantnumberofthemdonotattendschoolsimplybecauseofthedistanceoftheschoolfromtheirlonghouse.Forinstance,allthechildrenlivingintheMatuTugangLonghousedonotgotoschoolasthenearestschoolislocatedinLongUrun,whichisatwo–hourwalkingdistancefromtheMatuTugangLonghouse.

Due to their socio-economic situation, thePenans inUluBelaga,with theirownmeans,couldnotaffordtotraveltothenearestGovernmentOfficeinSungaiAsaptoaskforassistance.AsvisitsfromGovernmentofficialstotheirvillageswerealsoveryseldom,thePenanshadtoturntothenextviablealternativeavailabletothem,whichistoseekassistancefromthecommercialgiant,ShinYang.

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2. SUHAKAM’S OBSERVATIONS AND RECOMMENDATIONS

I. INTRODUCTION

SUHAKAM’s observations are gathered from the visits and dialogues with affected members ofthePenancommunity, representatives from the relevantcompany,governmentagencies,NGOs,academiciansandconcernedindividuals.Thefollowingrecommendationsaremadebasedontheobservations:

RIGHT TO LAND

Duringthedialogueshad,SUHAKAMfoundthatparticipantsrecognisedtheexistenceofthePenans.However,itwasfurtherhighlightedthatmostofthemsettledonlyafter1958anddidnotdemonstratetohaveclearedlandpriorto1958.ThePenansonlyengageinsmallscalecultivationandstilldependontheforestforfoodandotherdailynecessities.

TheSarawakLandCode1958providesthatpriorto1958,nativesmustdemonstratetohavecarriedoutcertainmethodsofactivitiestoestablishnativecustomaryright(NCR).Inparticular,section5(2);PartIIoftheSarawakLandCode1958onNativeCustomaryRightsstatesthefollowing:

The methods by which native customary rights may be acquired are:-

(a) thefellingofvirginjungleandtheoccupationofthelandtherebycleared;(b) theplantingoflandwithfruittrees;(c) theoccupationorcultivationofland;(d) theuseoflandforaburialgroundorshrine;(e) theuseoflandofanyclassforrightsofway.

Basedontheabove,thefollowingobservationsaremadeonthelegaldefinitionofcustomarylandrightsandthemethodsofestablishingnativecustomarylandtitles.

Definition of Customary Land Rights

TheSarawakAttorneyGeneral’sChambers,initspresentationpapertoSUHAKAMon‘NativeCustomaryLawsandNativeRightsOverLandinSarawak’24statedthefollowing:

“The natives of Sarawak may have and in fact do have many customs but these customs to have effect as “customary laws” they must have the sanction of the law.” ….. “Thus, in relation to land, the practice of native custom does not necessarily give rise to rights over land. It is only of those customs which are part of the customary law of Sarawak, which can create rights to land and thisisevidentbytheprovisionsSection5(1)oftheLandCode…..”

However,theOxfordDictionaryofLaw,2002,defines‘customaryrights’as‘apracticethathasbeenfollowedinaparticularlocalityinsuchcircumstancesthat it is to be accepted as part of the law of that locality.Inordertoberecognisedascustomarylawitmustbereasonableinnatureanditmusthave been followed continuously and as if it were a right,sincethebeginningoflegalmemory’.

24 Thepresentationpaperwaspresentedon13December2001attheMajlisDialogbersamaSUHAKAM.ThepresentationpaperisattachedasAnnexure6.


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ItshouldthenbenotedthatthePenan’soccupationintheUsunApauPlateau25andtheirwayoflifecanbetracedbackto1951.Variousnationalandinternationalresearches,journalsandpublications26havedocumentedthePenansandtheirpracticeoflandownershipovertheyearswhichhasbeenaccepted by that community as a way of establishing land rights. This custom, which has existedbeforetheSarawakLandCode1958,shouldbeconsideredasabasisofStatelaws.

Methods of Establishing Native Customary Land Title

Section5(2)oftheSarawakLandCode1958outlinesthemethodsbywhichnativecustomaryrightsmaybeacquired.Someofthemethodshowever,donotreflectthetraditionalmethodofownershipandstewardshipoflandwhichwaspracticedbythePenanssincebeforethesaidLandCode.Asaresult,theyarenotrecognisedashavinganylegalclaimtoland.

Withregardtoestablishingclaimonnativecustomarylandtitlesbywayoflandcultivationandclearingaswellastheuseoflandforburialsitesandrightofway,thefollowingobservationsaremade:

Clearing of Land

IthasbeenestablishedthatalthoughthePenanshaveengagedinsmallscalecultivation,theystilldependontheforestforfoodandotherdailynecessities,especiallywhentheirfarmsyieldspoorharvest.

ThePenansknowledgeonfarmingremainsthesamesincethirtyyearsago.Asaresult,harvestcanrangefromabundanttoverypoor.Therefore,thePenanswouldmakefrequenttripstotheforesttolookforsago.27

Consequently,thePenansfoundnoreasontoclearlandasthisactionmightaffecttheirfoodsupplyespeciallyduringpoorharvest.28

Right of Way and Burial Sites

Guy Arnold in his publication on ‘Longhouse and Jungle: An expedition to Sarawak’ haddocumentedtheexistenceofPenan’spathsandburialgroundsintheinteriorofBelagaDistrict.29ThedocumentationofthosepathsandburialgroundwasmadebasedonhisexpeditiontotheUsunApauin1955.UluBelagaformspartoftheUsunApau.

Map4showstheroutetakenbyGuyArnoldduringhisexpeditionin1955.TheMapalsoshowstheexistenceofPenanpathsandburialsiteswithintheUsunApau.30

25 TheUsunApauisanoldvolcanicplateauatthehead-watersoftheRajang,Sarawak’slargestriver.TheUsunApauplateauincludesUluBelaga.SeedefinitionbyGuyArnoldathttp://links.jstor.org/sici?sici=0016-7398(195706)123%3A2%3C167%3ATUAP%3E2.0.CO%3B2-O

26 AmongthejournalsandpublicationsonthePenanincludeNomadicPenanintheUpperRejangbyGuyArnold;“SomeKenyah/PenanRelationsihps”inT.Harrisson(ed)ThePeoplesofSarawakKuching;AdaptationtoasettledlifebytheP[e]nanofBelagaSubdistrict”byJaylLangubintheSarawakMuseumJournal22(43):295-301.

27 ProfileofFivePenanLonghousesbyJaylLangub.28 Additionally,GuyArnoldinhispublicationentitled“LonghouseandJungle:AnExpeditiontoSarawak”(1959;p.49)whichwasbasedon

hisexpeditiontotheUsunApauin1955orbetterknownas‘TheOxfordExpedition’statedthefollowing: “…..LianactedasinterpreterandafterexchanginggreetingsandtellingthemwhyIhadcomeIaskedwhethertheywouldbe

preparedtoworkfortheexpedition.Theywerewillingtomakehutsforus,buttheywerenotpreparedtohelptocuttheclearing fortheairdrop.Theywereemphaticaboutthis,sayingthatworkingunderthesun’sraysmadethemill.AllthePenansavoidedthe sunwhentheycould.”

29 GuyArnoldinhispublicationentitled“LonghouseandJungle.AndExpeditiontoSarawak”(1959,p.99)said, “Ihadlongtalkswithhim(ChiefTamaTingang,theHeadmanoftheLuarPenansettlement)aboutthePenanpathsandhetoldmethe

routeshethoughtIshouldtakeonthevariousjourneysthatlayaheadofus.HehadworkedforShellgeologists’expeditionin1954;hesaidtheyhadusedacompassandgonethroughroundandroundincirclesandhecouldnotthinkwhytheydidnotusethePenanpaths.”

30 GuyArnold’smapalsoshowsthePenanmigrationroutes.ItshouldbenotedthatalthoughthePenansmovedfromoneriversystermtoanother,theyhavenevermovedoutfromtheUsunApau.SeeAnnexure4on“BriefingtoSUHAKAMonVariousIssuesraisedbythePenanofSeping,PleiranandDanumRivers,andalsothe5villagesofPenansinUpperBelagaRiver”ByJaylLangub,p.42

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Thispathsandsitesareinlinewithprovisionsundersection5(2)dand5(2)eoftheSarawakLandCode1958.Despitethoseevidence,thereisnoindicationthattheseareaswereexcludedfromloggingandoilpalmplantationactivities.

THE PLEIRAN RIVER: LONGHOUSE SITES FOUND DURING THE OXFORD EXPEDITION 1955

Source:‘LonghouseandJungle.AnExpeditiontoSarawak’(1959),byGuyArnold,page122

MAP 4

Legal Provisions that Increase Vulnerability of the Penans and other Indigenous Communities

Besides having their customs and traditional practices ignored, the vulnerability of indigenouscommunities isheightenedasNCRtitlescanbeeasilyextinguishedbysection5(3)oftheSarawakLandCode1958.Thissectionstatesthat‘anynativecustomaryrightmaybeextinguishedbydirectionissuedbytheMinisterandthelandundersuchrightsshallreverttotheGovernment’.

Although it isprovided thatcompensation shallbepaid to thoseaffected fromextinguishmentofNCRLand–withtheconditionthattheclaimforcompensationismadewithin60daysoftheorder–communitiessuchasthePenansmaynothavetheadequatefacilitiesandresourcestomakeclaimswithinthestipulatedtime.

SUHAKAM’sRecommendation

SUHAKAMrecommendsthattheSarawakLandCode1958,inparticular,section5(2)regardingNative Customary Rights, be amended to take into consideration the unique custom of thePenansinownershipandstewardshipofland.


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Inaddition,SUHAKAMrecommendsthattheGovernmentlookintothelandclaimsbythePenansasthereisdocumentationofburialsitesandPenanpathswhichfallundersection5(2d&e)oftheSarawakLandCode1958.

It is also recommended that the Government review the provisions under section 5(3) of theLand Code 1958 that allows the extinguishment of NCR land which increases the indigenouscommunity’svulnerability,inparticular,ontheirrighttoland.

ENVIRONMENTAL IMPACT ASSESSMENT (EIA) REPORT ON THE EXISTENCE OF PENANS IN LICENCED AREA LPF/0018

Section 11A(1) of the Natural Resources and Environment Ordinance stipulates the statutoryrequirementforEnvironmentalImpactAssessment(EIA)fordevelopmentactivitieshavingimpactsontheenvironment.ThoseactivitiessubjectedtoEIArequirementarenamedas‘PrescribedActivities’.31

ShinYang’splantationactivityinUluBelagacomesundertheprescribedactivity7oftheFirstScheduleoftheEIAunder“Developmentofagriculturalestateorplantationsofanareaexceeding500hectaresfromlandundersecondaryorprimaryforest”.ShinYangwasrequiredtoprepareanEIAReporttoassessthepossibleimpactoftheiractivitiesonthepeopleandenvironmentinthearea.32The‘EIAReport for theProposedShinYangForestPlantationLocatedbetweenBatangBelagaandSungaiMurum,Belaga,Kapit’waspreparedbyaconsultant33approvedbytheGovernment.

Paragraphtwoofitem2.2inChapter2oftheEIAReportstatesthefollowing:

Evidence of previous shifting cultivation could be seen along the logging roads giving rise to patches of ‘temuda’. These ‘temuda’ believed to be left by logging workers during their logging operation within the licenced area. Some remnants of a small Punan settlement are seen near lower Sg. Jaik, but this nomadic Punan are long gone. There is a recent illegal Kenyah longhouse (about15doors)downstramofSgBelepehwhichwasprobablybuilttakingadvantageofthelogging activities and the logging roads. However this longhouse is at present abandoned and the people are believed to have moved to the Asap Resettlement.

No permanent local settlements are found within the site. There is no legal claim of NCR land within the land.

Similarly,paragraph21oftheExecutiveSummaryofthesameEIAReportstatesthat:

In termsof local settlementwithin thesite, therewasan illegal15-doorKenyahLonghouseatlower Sg. Belepeh which had already been abandoned. It was built earlier probably taking advantage of the logging activities then. At lower Sg. Jaik, there were some remnants of a small former Punan settlement. The Punan people had already migrated to other place long ago. Therewerenovillagesoflonghouseswithinorneartheprojectsite.ThenearestcommunitywastheAsapResettlementabout30kmnorthwestfromthesite.

31 SeeNREBwebsiteathttp://www.nreb.gov.my/cgi-bin/cdsp.cgi?f=187 .Seealsopara1.6 if theEIAReport for theProposedShinYangForestPlantationLocatedBetweenBatangBelagaandSg.MuruminBelaga,Kapit,p.1-5

32 According to H.K. Bong, the Manager of JB Agriculture Management Service, the EIA consultant, in his letter to SUHAKAM dated 9November2006,saidthatthemethodsusedforthesurveyincludefieldvisitsandinterviewswithlocalcommunities.TheyhadfoundnoevidenceofhumaninhabitationinthearealicencedunderLPF/0018,exceptforremnantsofoldlonghousesandbananaandbamboobusheswhichindicatedpreviousshorttermoccupation.Theloggingpeoplewhowerethereatthattimeconfirmedthattherewasnotexistinghumaninhabitation.

33 TheEIAreportwaspreparedbyJBAgricultureManagementServicesfromBintulu,inassociationwiththeGT&AssociateConsultancyfromMiri,Sarawak

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Contradiction between EIA Findings and Penans Claims

ThestatementoftheEIAwasdisputedbyaffectedPenans,andanumberofsourcesseemtosupportthePenan’sclaimsthattheirsettlementswerealreadyattheircurrentlocationsduringtheperiodofsurveyconductedbytherelevantEIAconsultantsinlate1999.LiteratureevidencesalsosuggestthattheyhadnevermovedawayfromthemainriversystemintheUluBelaga.

Forinstance,dataobtainedfromtheBelagaDistrictOfficebelowshowsthedocumentationofdateofappointmentof7Penanheadmenandthelocationoftheirlonghouses.Table4showsthename,dateofappointmentandjurisdictionofsomePenanheadmenwhosevillagesareaffectedbytheCompany,ShinYang’sactivities.

During its fact findingactivity, SUHAKAM found thatasof18September2006,all 7headmenandlonghouseswereatthesamelocationsasdocumentedbythesaidDistrictOffice.Itcould,therefore,beimpliedthatduringthesurveybytheconsultants,thevillageswerealreadyattheircurrentlocations.

TABLE 4: DATE OF APPOINTMENT AND JURISDICTION OF SOME PENAN HEADMEN

NAME DATE OF APPOINTMENT

JURISDICTION

1. AbokJalong 01.12.2004 UmaPenan,LongTangau,Belaga

2. AlungJu 06.05.1998 UmaPenan,LongSingu,Belaga

3. AsanJalong 29.07.1999 UmaPenan,LongMalim,Sg.Murum,Belaga

4. LuhatAyup 01.01.1986 UmaPenan,LongLuar,Sg.Belaga

5. MadaiSalo(Salok) 01.10.1985 UmaPenan,LongLuar,Sg.Pleiran

6. PinangBo 06.05.1998 UmaPenan,LongWat,Sg.Murum

7. TugangSugunn 01.01.1986 UmaPenan,LongJaik,Sg.Seping

Note The late Tugang Sugun was the previous headman of the current Matu Tugang Longhouse. Chief Matu Tugang is the son of the late Tugang Sugun

Source:ExtractsofBelagaDistrictOfficewebsiteathttp://www.belagado.sarawak.gov.my/Ketua_Masyarakat.html

Additionally,GuyArnoldinhispublicationentitled‘LonghouseandJungle:AnExpeditiontoSarawak’34documentedPenansettlementswithintheUsunApau,whichincludestheareainquestion.

Map5 indicates thePenan settlementasdocumentedbyGuyArnoldbasedonhisexpedition in1955.

Further,Mr.JaylLangub,aresearcherwhohasbeeninvolvedwiththePenanissue,emphasisedthatalthoughthePenanswerepreviouslynomadic,theirmovementwaslimitedfromoneriversystemtoanotherwithintheUsunApauarea.

34 ThispublicationisbasedonGuyArnold’sexpeditioninSarawak,betterknownastheOxfordExpedition,conductedin1955


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MAP 5: PENAN SETTLEMENTS FOUND DURING THE OXFORD EXPEDITION 1955


Uncertainty in the EIA Findings

Theassessmentmadebytheconsultants in theEIAReportontheexistenceofhumansettlementscontainswordssuchas‘probably’and‘believed’whichcouldindicateuncertaintyfromthepartoftheConsultants.Moreover,thefindingsoftheEIAarenotsupportedbyconcreteevidence.

Ithastobeemphasisedthattheextentof theadverse impactof loggingandoilpalmplantationonhumanbeingsissufficientreasonforthegovernment/consultants/companytoensurethatdatacollectedispreciseandsupportedbyevidencethatcanbeverifiedbyothers.

TheclaimsofthePenans,whenweighedagainstthefindingsintheEIAReportsubmittedtoSUHAKAM,seemtobemoreconsistentwiththefindingsoflocalandinternationalresearchers.ThisprovesthatthePenansoccupiedUluBelaga longbefore the relevantEIA.Additionally,otherdocumentation–whichareconsistentwiththePenans’claims-provedthatatleast7concernedlonghousesexistedwithinthelicencedareaduringthesurveybytheConsultants.


ItisrecommendedthattheGovernmentensuresthatonlyindependentconsultants,withexpertiseinthespecifiedarea,areappointedinordertoensuregreaterobjectivityandtransparencyoftheEIAreport.

It is also recommended that the Government ensures prompt action to verify informationpresentedinEIAreports.Thiswould,atthesametime,ensuresurveysdonebyconsultantsarebasedonfactsratherthanassumptions.

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AsregardstheEIAReporton“ProposedShinYangForestPlantationlocatedbetweenBatangBelagaandSungaiMurum,Belaga,Kapit”,itissuggestedthattheNREBfurtherverifytheaccuracyof the findings and to takemeasures tomakegood if the report is found to havemisled ormisinformedtheauthorityconcerned.

IfitisfoundthatthePenanswereindeedintheLicencedareaatthetimeofthesurveybytheConsultantsofthesaidEIAReport,theGovernmentshouldtakenecessarymeasurestoensurethattheaffectedPenansareadequatelyprotectedandcompensated.

ISSUES ON POVERTY

SUHAKAMfoundthatthethePenansintheareasvisitedwerelivingindeplorableconditions;theyhadinadequateaccess tobasicneeds likenutritious food,healthcare,education,housing,cleanandsafedrinkingwater.

Itshouldbenotedthattherighttoastandardofliving35isguaranteedbytheUniversalDeclarationofHumanRights(UDHR).

WhilstsomemaysaythattheUDHRdoesnotbindacountry,thepreambleoftheUDHRstatesthattheUDHRhasbeenproclaimedbytheGeneralAssemblyasacommonstandardofachievementforallpeoplesinallnations.Therefore,allStatesofallcountriesintheworld–evenwithoutratification–areobligatedtoensuretheprogressoftherights–asprovidedintheUDHR–ofallpeopleswithintheirrespectivejurisdiction.

SUHAKAM’s Dialogue with the Penans at the Matu Tugang Long House in Long Jaik, Ulu Belaga; There was noelectricity supply, so the Community used handmade lanterns for light.

35 Article25(1)oftheUDHRstatesthefollowing: Everyonehastherighttoastandardoflivingadequateforthehealthandwell-beingofhimselfandofhisfamily,includingfood,

clothing,housingandmedicalcareandnecessarysocialservices,andtherighttosecurityintheeventofunemployment,sickness, disability,widowhood,oldageorotherlackoflivelihoodincircumstancesbeyondhiscontrol.


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SUHAKAMrecommends that thesegroupsofPenans–whoareamong thehardcorepoor inMalaysia–begivenadequateassistance toenable themtohavea reasonablestandardoflivingasstatedinthe9thMalaysiaPlan.

Morespecifically,SUHAKAMrecommends: Poverty Eradication Programmes for the Penans

Given that the Penans are socially and economically disadvantaged, poverty eradicationprogrammesarecrucialfortheiradvancement.

Insteadof lookinguponthePenansasa factor thatcoulddelay theGovernment’s target toeradicate hardcore poverty by 2010, poverty alleviation programmes need to be taken upexpeditiouslyand specialmeasuresoraffirmativeactionbe implemented toensure that thePenanshaveaccesstoservicesthatareavailabletothemainstreamsociety.

SUHAKAM’s visit to the Penan Longhouse in Long Singu found that the Community was living in deplorable condition.

Implementation of the Food Basket Programme

Apart from poverty eradication programmes, SUHAKAM recommends the implementation ofprogrammesthatenhanceaccesstonutritiousfoodforthePenansinUluBelaga,suchasthefoodbasketprogramme.

Increase the Number of Service Centres

Currently,therearetwoservicecentresinUluBelaga,locatedinLongJekitanandLusongLaku.It is recommendedthatthenumberofsuchservicecentresbe increasedtoensureallPenanmembershaveaccesstonecessaryservicessuchasregistration,informationandhealthcare.

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Establish SALCRA Scheme for the Penans

TheSarawakLandConsolidationandRehabilitationAuthority(SALCRA)36schemeisequivalenttotheFederalLandDevelopmentAuthority(FELDA37)SchemewhichhasbeenwidelyestablishedinPeninsularMalaysia.TheFELDAinparticularhasproventobeeffectiveinassistingtheeconomicadvancement of the rural community. The same opportunities ought to be extended to thePenans.

Therefore,SUHAKAMstronglyrecommendsthattheSALCRASchemebeextendedandrunbymembersofthePenancommunitytoassistthemtoescapethepovertytrap.

RevivalofProgrammesundertheFirstMalaysiaPlan1966-1970

SUHAKAMrecommendstherevivaloftheprogrammesonruraldevelopmentonceheldundertheFirstMalaysiaPlan1966-1970.ThePlan’sobjectivesweretopromotethewelfareofallcitizens,andimprovethelivingconditionsinruralareas,particularlyamonglow-incomegroups.

ISSUES ON DOCUMENTATION

SUHAKAMfoundthatamajorityoftheresidentsoftheAlungJuandMatuTugangLonghousesdonot have identification cards (ICs) and birth certificates (BCs), while others only had temporaryidentification slips,whichvaliditywascontinuouslyextendedby the relevantauthorities. SUHAKAMwasabletoidentifythecausesofnon-documentationofthePenanswhichincludelackofaccesstoregistrationservices;thePenan’sinabilitytopayforfeesimposed;unavailabilityofmarriagecertificatesandparentsICswhicharerequiredtoapplyfortheirchildren’sBCs;andPenanmembersmistakentobeforeignersbytheauthorities.38

SUHAKAMdrawsattentiontoSection3oftheSarawakInterpretationOrdinance(Cap.11958Ed.)39,whereby thePenancommunity is identifiedasoneof the indigenouspeoplesof Sarawak. It isanundeniablefactthattheyarecitizensofMalaysiaaswell.

Article32oftheDraftUnitedNationsDeclarationontheIndigenousPeoplesstatesthattheIndigenouspeopleshavethecollectiverighttodeterminetheirowncitizenshipinaccordancewiththeircustomsand traditions. Indigenous citizenship does not impair the right of indigenous individuals to obtaincitizenshipoftheStatesinwhichtheylive.

Itisimperativetohighlighttwomajorimplicationsofnon-documentation.Theyare:

36 TheideatosetupSALCRAcameduringtheMid-TermReviewoftheSecondMalaysiaPlan(1971-1975),whentheGovernmentofSarawakdecidedtoformanotherstatutorybodywiththeobjectiveofdevelopingandmanagingNCRland.ItwasthoughtthatdevelopmentofNCRlandisanappropriatestrategytobringaboutsocio-economicdevelopmenttotheruralareas,hence,enablingtheparticipationofruralcommunitiesintothemainstreamofSarawak’sdevelopment.SALCRAwasofficiallyestablishedon1stMay1976,aftertheDewanUndanganNegeriSarawakpassedtheSALCRAOrdinance,1976inMarchofthesameyear.TheformationofSALCRAwastoenableandassisttheStateGovernment inachievingtheobjectivesoftheNewEconomicPolicy(NEP),particularlyconcerningtheeradicationofpoverty.SeeSALCRAwebsiteathttp://www.salcra.gov.my/salcra%20web/intro_back.html

37 FELDAwasestablishedwiththepurposetohelpthegovernmentcarriedoutrurallanddevelopmentschemesandtouplifttheeconomicstatusaswellas livingstandardof the ruralcommunity. Todate,FELDAhasdevelopedapproximately480newareas totalling853,313hectareswhichbecameplantationandsettlementareas.Atotalof104,946peoplewerechosenassettlersfromamongtheruralpoorandlandlesscommunity.Togetherwiththeirfamilies,theywereresettledinthenewsettlement.Landdevelopmentandsettlementintheruralareashasnowbroughteconomicandsocialdevelopmentaswellaspoliticalstabilitytothecountry.SeeFELDAwebsiteathttp://www.felda.net.my/felda/english/fel_latarbelakang.asp

38 SUHAKAMwastoldbythePenanrepresentativesthatPenanheadmenwereauthorizedbytheGovernmenttocertifywhetheramemberof their respective longhouse is a Penan or otherwise for the purposes of registration. However, this endorsement is most of the timerejectedbytheNRDOffice.ThePenansclaimedthattheNRDconsideredapplicantsasforeignersandcertificationbyheadmencarriednoweight.SeeissuesraisedbyPenansinChapter4ontheproceedingreportonSUHAKAM’svisitsanddialoguesinLongSinguandLongJaik,Belaga,Sarawak.

39 According to the schedule under Section 3 of the Interpretation Ordinance (Cap. 1 1958 Ed.), the following ethnic groups, and theadmixtureofthemwithoneanotherareconsideredindigenousgroupsinSarawak:Bukitan,Bisayah,Dusun,Dayak(Laut/Darat),Kedayan,Kalabit,Kayan,Kenyah,(includingSabupandSipeng),Kajang(includingSekapan,Kejaman,Lahanan,Punan,Tanjong,Kanowit),Lugat,Lisum,Melayu,Melanau,Murut,Penan,Sian,Tagal,TabunandUkit.


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• Non-documentationdoesnotallowPenanmemberstoasserttheirpoliticalright-namelytheirrighttovote;

• Non-documentationoftenresults inPenanmembersbeingexcludedfromthedatawhichtheGovernmentreliesontodeterminestatistics,includingthetargetgroupsforpovertyeradicationprogrammes;

From the dialogues, it was also found that non-documentation has led to inadequate access toeducation,financialassistanceandhealthcareservicesamongstthePenanmembers.

However,thediscussionwiththerepresentativesfromtheNRDattheDialoguewithStateGovernmentagencieson13October2006broughtaboutpositiveoutcomeswhenrepresentativesfromtheNRDagreedthatadelegationbedeployedtoinvestigateonthisissue.TheDeputySarawakStateSecretarysupportedthismove.TheagencieshowevermaintainedthatifthePenansmadeapplicationsforICsandBCs,therelevantfeeswillbeimposedasrequiredbytheiradministrativesystem.


SUHAKAMurgestheGovernmenttoensureaccesstovitalregistrationservicesforthePenaninUluBelaga.Giventheirsocio-economicstatus,itisimperativefortheGovernmenttomakethisservicereadilyavailableinPenanvillages.

Itisfurtherrecommendedthatvisitsbyregistrationofficerstoruralvillagesbemademoreregularand effective. This would ensure that Penan members have adequate access to education,healthcareservices,financialassistanceandpovertyeradicationprogrammes.

ItisalsorecommendedthattheGovernmentwaivethecurrentfeesimposedonPenanmemberswhen making applications for ICs and BCs taking into consideration their inability to pay thefees.

AnotherrecommendationisthatthePenansinUluBelagabeexemptedfromhavingtoprovidetheir parent’s ICs and marriage certificates when procuring the children’s birth certificates.Endorsementorcertificationbytheirrespectiveheadmenshouldbesufficient.

ISSUES ON EDUCATION

DespiteeffortsbytheSarawakStateEducationDepartmenttoensureeducation isavailabletoallchildren,includingthePenansinUluBelaga,thelimitedresourcesmadeavailabletotheDepartmenthavehamperedtheirendeavor.

SUHAKAMfoundthatasaresultofthis,amajorityofthechildrenresidingintheAlungJuLonghouseinLongSinguandalmostallthechildrenresidingintheMatuTugangLonghouseinLongJaik,donotattendschool.Someofthemhaddroppedout.Amongthereasonsincludedistancetoschools,non-documentation,inabilitytopaythefeesimposed,unavailabilityoffinancialassistanceandthelackoftransportationtoandfromschools.

Transportation Problems

Factorswhichcontributetotransportationproblemsincludeerranttransportationcontractorswhohadfailedtoshow-upforpickup.AnothercontributingfactoristhefailureofPenanchildrenthemselvestoturnupatpick-uppoints.

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Inaccessible Financial Assistance due to Non-Documentation

Financialassistanceisofteninaccessibleduetonon-possessionoftherelevantdocumentsbythosewhoapplyforassistance.

Lack of Commitment amongst Teachers

SomeparticipantsatSUHAKAM’sdialoguesquestionedthecommitmentofteacherspostedtotheinterior schools inBelaga.Thenon-commitmentof these teachersaffects thequalityofeducationprovidedto thePenanchildren.40 Theseteachers shouldbetrainedtohandle thePenanchildren,takingintoconsiderationtheircustomsandtraditions.

When these issueswerehighlighted to theGovernment representativesatSUHAKAM’sdialogue inKuching,Sarawakon13October2006,SUHAKAMwasinformedthatprovisionsfortransportationandfinancialassistancewereavailable,but,insomecases,theseassistancedonotreachthetargetedgroups.

Recognising the limitations, theGovernmenthasmadeefforts toencourageparents to send theirchildrentoboardingschools.However,Penanparentsarereluctanttopartwiththeirchildrengiventheirchildren’syoungage.

In Malaysia, education is given great emphasis by the Government. The Education Act 1996 wasamendedin2002tomakeprimaryeducationcompulsory,therebyputtinganobligationonparentstoensurethattheirchildrenreceiveprimaryeducationstartingfromage6+.Parentsaretoensurethatthechildrenremaininprimaryschoolforthedurationofthecompulsoryeducationfor6years.This6yearrequirementmaybecompletedwithinfiveyears.Section29A(4)oftheEducationAct1996furtherprovidesforthepunishmentofparentswhofailtodoso.41

SUHAKAMfullysupportstheamendmenttotheEducationAct1996.However,puttinganobligationon parents to ensure their children attend school must be matched with the Government’s dutyin ensuring that schools and other education - related facilities are physically and economicallyaccessibleandavailabletoallsectorsofsociety.

TheGeneralCommentonarticle13 the InternationalCovenantonEconomic,SocialandCulturalRights(ICESCR)42outlinedthecorefeaturesofprovidingeducationforallwhichincludes:

Availability

Statesaretoensurefunctioningeducationalinstitutions,insufficientquantitytoaccommodatetheneeds of the society. In addition, facilities such as sanitation, safe drinking water, trained teacher

who receive domestically competitive salaries, teaching materials, library, computer facilities andinformationtechnologyshouldbeprovided.

40 SomePenanclaimedthattheteacherspostedintheirvillageswerenotcommitted.Forinstance,onePenanwhoiscurrentlyworkingfortheGovernmentsaidthatduringhisvisittohisvillageinLongLamai,Baram,Sarawakhesawteachersplayingtabletennis(pingpong)outsideofaclassroom.ThePenanchildrenwereinsidetheclassroomunattended.

41 Itshouldbenotedthatarticle28(a)oftheConventionontheRightsoftheChild(CRC)saysthatStatePartiestotheConvention,suchasMalaysia,mustrecogniseeverychildren’srighttoeducationandmustensurethatthisrightisrealizedprogressivelyandequally.However,SUHAKAMnotesthatMalaysiahasmadereservationtoArticle28(a)oftheCRC.

42 SUHAKAMnotesthatMalaysiaisnotaStatePartytotheICESCR.However,SUHAKAMagreesthattoensureaccesstoeducationforall,thefeaturessetforthbytheICESCRarevital.


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Accessibility

Stateshavetoensureeducationisaccessibletoall.Threecoincidingdimensionswhichareimportanttoensureaccessibilityinclude:

• Non-discrimination – whereby education must be accessible to all with special attention tovulnerablegroups;

• Physical Accessibility – to ensure that physical educational institutions, including schools, arewithin safephysical reach.Thiscaneitherbegeographicallyconvenient locationsor throughmoderntechnology,forinstance,distancelearning;

• Economic Accessibility–educationshouldbeaffordabletoall.

Acceptability

Statestoensurethateducationandthemannerthatit isprovidedshouldconformtothesociety’sneeds.Thisincludesrelevant,culturallyappropriateandofgoodquality.

Adaptability

Educationhastobeflexibletoensureitadaptstothedynamicneedsofthesociety.Itshouldalsobeadaptabletothediversesocialandculturalsettingthatmayexistinthesociety.


Translocation of children too young of age to boarding schools may pose a problem asPenanparents, likemostparents,maybe reluctant topartwith theirchildren. It is, therefore,recommendedthatpre-schoolsbeestablishedinPenanvillagestomeetthebasiceducationrequirementofyoungchildren.Thesepre-schoolscouldberunbytheGovernmentorNGOsordoneinpartnership.

ItisalsorecommendedthattheGovernmenttakeimmediateactiontoplanforaprimaryschoolsystem that ensures early education is readily available to the children in the Penanvillages.Theseschoolscouldprovideeducationforchildrenuptoprimaryfour,afterwhich,thesechildrenwouldbeoldenoughtobeenrolledinboardingschoolstocompletetheirprimaryeducation.

AffirmativeactionneedstobeformulatedandimplementedtofacilitatetheenrolmentofPenanchildreninsecondaryschoolsandattertiaryeducationlevels.

Given the socio-economic background of the Penans, it is further recommended that theGovernmentimplementaffirmativeactiontoensureenhancedaccesstofinancialassistancebythePenans.

SUHAKAMfurtherrecommendsthattheGovernmentstrengthenitsmonitoringsystemtoensure

teacherspostedto interiorareas suchasUluBelaga,give their fullcommitment ineducatingthechildren.Other facilities that supportaneffective learningenvironment suchas teachingmaterialsmustbereadilymadeavailable.43

Consequently,thereistheneedtoensureteacherspostedinsuchareasareprovidedwiththenecessaryfacilities,suchasadequatehousing,electricityandcleanwatersupply.

43 Apartfromensuringfacilitiesforthestudents,thewelfareofteacherspostedinruralareasshouldbetakenintoaccount.Theyhavetobeprovidedwithadequatenecessitiesandamenitiesduringtheirposting.ThesameissuewashighlightedinSUHAKAM’sReportonTheHumanRightsApproachtotheMillenniumDevelopmentGoals.Goal2:AchieveUniversalPrimaryEducation,pg.21.

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Besidesacademicfacilities,skillrelatedtraining,whichisbuiltonthePenan’scurrentknowledgeinagricultureandblacksmithing,couldalsobeprovidedespecially to thosewhohavebeenunfortunatetomissorfailtocompleteprimaryandsecondaryeducation.

EducationandtrainingonselfrelianceisalsoanimportantaspecttoconsiderwhendevelopingacurriculumforthePenans.

ISSUES ON HEALTH

AlthoughSUHAKAMacknowledges that theSarawakStateHealthDepartment isoneof themorecommitted agencies, limited resources allocated to the Department have resulted in insufficientaccesstohealthcareservicesinUluBelaga.

GovernmentclinicsarenotavailablewithinthearearesidedbytheaffectedPenanmembers,whileMedical Assistants posted to the villages cannot do much as medical supplies are inadequate.AlthoughthereistheFlyingDoctorService(FDS),thefrequencyofvisits,duetoseveralreasons,areirregular.Theseareasalsolackemergencyservices.

Asaresult,thePenansareforcedtorequestfortransportationassistancefromloggingcompaniestotakethemtotheGovernmentmedicalcentrelocatedinSungaiAsap,Belagawhichisaboutathree-hourdriveaway.This,atthesametime,posesaproblemwhentherearehealthrelatedemergenciesamongstthePenansinUluBelaga.

In addition, while Penan members, without valid documentation, are allowed to obtain medicaltreatmentinGovernmentclinicsandhospitals,theyarechargedfeesasthatimposedonforeigners.Itisthenimperativetonotethatthe‘righttohealth’isenshrinedinvariousinternationalhumanrightsinstruments,includingtheConventionontheEliminationofallformsofDiscriminationAgainstWomen(CEDAW)andtheConventionontheRightsoftheChild(CRC),whichMalaysiaisaStatePartyto.

TheUNCommitteeonEconomic,SocialandCulturalRights(CESCR), inparticular,statesthat‘righttohealth’asenshrinedinarticle12oftheInternationalCovenantonEconomic,SocialandCulturalRights(ICESCR)44meanstherighttoobtainhealthcareandtheunderlyingdeterminantsofhealth,whichincludemedicalfacilities,goods,serviceaswellasconditionspertinentinobtainingthehighestattainablestandardofhealth.

TheSpecialRapporteuron‘Therightofeveryonetotheenjoymentofthehighestattainablestandardofphysicalandmentalhealth’statesthattherighttohealthhasbothfreedomandentitlement:

Freedom–meanseveryone’srighttobefreefromdiscriminationandtonon-consensualmedicaltreatment;

Entitlement–meanseveryone’srighttoahealthprotectionandcare,whichalsoincludestheunderlyingdeterminantsofhealth.

The Special Rapporteur further explained that right to health contain several importantcomponentswhichinclude:

44 TheCommitteeonEconomic,SocialandCulturalRightsinitsGeneralCommentonarticle12oftheICESCR.SUHAKAMhowevernotesthatMalaysiaisnotastatepartytotheICESCR.SeealsoPara.17&18oftheReportoftheSpecialRapporteur,PaulHunton‘Therightsofeveryonetotheenjoymentofthehighestattainablestandardofphysicalandmentalhealth’(E/CN.4/2004/49/Add.1).


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• Maternal,childandreproductivehealth; • Healthyworkplaceandnaturalenvironments’; • Theprevention,treatmentandcontrolofdiseases,includingaccesstoessentialmedicines; • Accesstosafeandpotablewater.

Similartothesalientfeaturestoensuretheprogressoftherighttoeducation,thedeterminantsofrighttohealthincludeavailability,accessibility,acceptabilityandquality.

FromthevisitstoLongSinguandLongJaik,SUHAKAMobservesthatthereexistotherfactorswhichcouldnegativelyaffectthehealthofthePenans.Theyinclude:

Poor access to clean water source.

SUHAKAMfoundthat the residents in theAlungJuLonghouse inLongSingu,dependedona riverwhichwasclearlypolluted.DuringSUHAKAM’svisit,wasaPenanladywasdoingherwashing;whileheryoungchildwasbathinginthepollutedriver.

No Proper Clothing

SUHAKAM’svisittobothareasalsofoundthatmostoftheyoungchildrendidnothaveanyclothesonthem.Thisisacauseforconcernastheymightbeexposedtodiseasesandinfections.

SUHAKAM’s visit to the Penan Longhouse in Long Singu, Ulu Belaga, foundthat a significant number of Penan Children were without proper clothing.

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Malnutrition

Some of the Penans in the visited Longhouses, in particular children, were thin, but with swollenabdomen.Thiscouldbeanindicationofmalnutrition.45

AshighlightedbyaparticipantduringSUHAKAM’sdialoguewithNGOs,academiciansandconcernedindividuals, the recent measles epidemic which killed 13 Penan children and an adult indicatesmalnutrition amongst Penan children as undernourishment increases the risk of fatality amongstmeaslespatients.

Inaddition,theclearingofforestsandsettingupofbarricadeslimitingthePenans’accesstojungleproducehasresultedinreducedfoodsuppliesforthecommunity.Thishastheeffectof increasingincidenceofmalnutrition.

SUHAKAM’sRecommendation From the dialogue with representatives from Shin Yang, SUHAKAM found that the Company

wasinthemidstofsettingupaclinicinUluBelaga.TheCompanyinformedSUHAKAMthattheservicesoftheclinicwouldbemadeavailabletothePenans.SUHAKAMfeelsthattheGovernmentastheprimarydutybearercouldprovidethesame.

Inaddition,thenumberofcommunityhealthworkersneedtobeincreasedtomeetthehealthneedsofthePenan.

ThereisalsotheneedfortheGovernmenttoensurethattheCommunityaffectedhasadequateaccess tonutritious food.Awarenessprogrammeson the importanceofnutritious foodcouldalsobeimplemented.

It is further recommended that the Government ensures that all components of the right tohealtharemadeeasilyaccessibletothePenans.Thecomponentsincludematernal,childandreproductive health; healthy workplace and natural environment; prevention, treatment andcontrolofdiseases,includingaccesstoessentialmedicinesandaccesstosafedrinkingwater.

STATE’S DUTY TO PROTECT THE RIGHTS OF THE PENAN

ThehumanrightslawisbasedontheprinciplethattheState,astheprimarydutybearer,isresponsibletoensure the respect,protectionand fulfillmentof the rightsof itscitizens. TheState is required toensurelaws,policiesandprogrammesareformulatedandimplementedinwaysthatguaranteeandprotecttherightsof itspeople. It isalsoobligedtoprovideresources, includingfinancialones, forthesepurposes.

Oneoftheprimaryconcernsoftheindigenouscommunitiespertainsistotheirrighttonativeland.TheGovernmentischieflyresponsibletoensuretherighttopropertyisprotected.However,thisobligationoftheStateappearstohavebeentransferredtotheCompanylicencedtocarryoutforestclearing,loggingandoilpalmplantationactivities.

Section8(2)estatesthatifanypartofthesaidlandisheldunderandsubjecttonativecustomaryrights, thewrittenconsentof theclaimantof such rightshas tobeobtainedorwrittenevidence is

45 On17May2007, theMalaysianNationalNewsAgency (BERNAMA) reported that themeaslesoutbreak in2005 resulted in18deathswhichincluded17children.Themeasleswasprevalentamongtheveryyoungandmalnourishedchildren.SeeBERNAMAarticledated17May2007onMeaslesOutbreakMainlyFromPenanSettlements,AssemblyToldathttp://www.bernama.com/bernama/v3/news_lite.php?id=262461


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furnishedtotheDirectortoshowthatsuchrightshavebeenextinguishedunderanywrittenlaw.Thisprovision has placed the responsibility for the determination of NCR in the area on the Licencee,andnoton thegovernmentalauthorities. This raisesaquestiononwhether such transferofduty isappropriatedischargeofthefiduciarydutyoftheGovernmentasraisedinthejudgmentoftheCourtofAppealintheCaseofKerajaanNegeriSelangor&3Orsv.SagongBinTasi&6Ors(2005).46

Inadditiontolandissues,thePenanslivingintheareaaffectedbyShinYang’sloggingandplantationactivitiesseemedtohaveinadequateornoaccesstobasicamenitiesincludinghealthcareservices,cleanwatersupplyandelectricity.Instead,theCompanyclaimedtobeprovidingsuchamenities,whichisactuallytheresponsibilityoftheGovernment.

Inadditiontoinadequateaccesstobasicamenities,itwasfoundthatthereislimitedactiveoutreachprogrammesbytheGovernmentforthecommunityconcerned.


TheGovernmentisobligedtoensuretherightoftheindigenouscommunitiestowardsnativelandisprotected.Hence, thetaskof resolvingNCRclaimsshouldbehandledby theGovernmentratherthantheCompany.

Inaddition,inlinewiththedutiesoftheState,asenshrinedinvariousinternationalhumanrightsinstruments, the Government has to spearhead efforts to ensure availability of basic humanneeds,suchasnutritiousfood,education,healthcare,cleanandsafedrinkingwater,electricityandothereconomic,socialandculturalrelatedrights.

46 SeeAnnexure4ofthisreportonBriefingonPenanandtheEIAfortheShinYangForestPlantationbyKhooKhayJin

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3. CONCLUSION

Despite being one of the indigenous communities of Malaysia and their predicament beingrepeatedlyhighlightednationallyandinternationally,thePenansremainoneofthemostdeprivedandmarginalizedcommunitiesinMalaysia.

Themain issue that seems to surface frequently ison their status tonativecustomary landclaims,wherebytheSarawakLandCode1958doesnotrecognisethetraditionalcustomsandmethodsoflandownershipbythePenans.ThishashadanegativeimpactonthePenancommunityinthepastandpresentandwillcontinuetohaveanegativeimpactifthesituationisnotputrightassoonasispossible.

In addition to land issues, it seems that a majority of the Penans in the area are living in extremepoverty.Inadequatephysicalandeconomicaccesstoservices,facilitiesandprogramstoassisttheirsocio-economicprogresshasfurtherimpededdevelopmentofthiscommunity.WhileSUHAKAMrecognisesthatloggingandoilpalmplantationactivitiescontributetothecountry’sdevelopment,itappearsthatthePenansdonotbenefitfromthis.Rather,logging,oilpalmplantationand forestryactivitieshaveaddedconstraintson thedevelopmentof thePenansandhas furtherdisplacedthiscommunitygiventheirdistincteconomic,socialandculturallife.

AlthoughseveralStateGovernmentagencieshavemadevariouseffortstoaddressthedilemmaofthePenans,thefactthatthePenansliveinveryremoteareashasledtotheineffectivenessoftheseprogrammes.BasedondocumentationsuchastheSarawakgazette,itseemsthateffortstoreachthePenansweremoreintensiveinthe1960sand1970scomparedtorecentyears,despitethefactthatMalaysiawasalesswealthycountrybackthen.

Hence,astheprimarydutybearertoensuretheprogressoftherightsofitscitizens,theGovernmentneeds tostepup itsefforts to reflect theGovernment’spromiseofdevelopment forall.Ultimately,there is theneed for the formulationand implementationofaffirmativeaction toensure that thePenansareabletosecureadequatesocio-economicandhumanrightsadvancement.

CONCLUSION

PART 2REPORT ON SUHAKAM’S VISITS AND DIALOGUES

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4. SUHAKAM’S VISITS AND DIALOGUES IN LONG SINGU AND LONG JAIK, BELAGA, SARAWAK

I. INTRODUCTION

SUHAKAM’svisitsanddialoguesinLongSinguandLongJaikwereheldon18September2006followingcomplaintsmadebytwoheadmen,ChiefAlungJuandChiefMatuTunggang.Thecomplaintsarosefromtheestablishmentoflogging,oilpalmplantationandreforestationactivitiesbyShinYangandtheirimpactontheeconomic,socialandculturalrightsoftheaffectedPenancommunity.

During thevisits, SUHAKAMwasassistedbyDr.KhooKayJin,an independent researcherwhohasworkedwiththelocalPenans.

OBJECTIVES

Theobjectivesofthevisitsanddialoguesinclude:

• toobtaingreaterinsightonthecomplaintsmadebybothheadsoflonghouses;• toobservetheprogressof thePenansresiding inboth longhouses intermsoftheireconomic,

socialandculturalrights.

II. DIALOGUE IN LONG SINGU, BELAGA, SARAWAK

SUHAKAM’sdialogueinLongSinguonthemorningof18September2006washeldattheAlungJuLonghouse.

ApartfromtheresidentsoftheAlungJuLonghouse,fourotherheadsoflonghousesincludingChiefMadaiSalok fromLongLuar;ChiefAbokJalong fromLongTangau;ChiefPinangAbok fromLongWat;andChiefLionBuifromLongPelutan,werealsopresentattheDialogue.Theirvillageswerealsoaffectedbythelogging,oilpalmplantationandreforestationbyShinYang.The Dialogue began with a welcoming note by Chief Alung Ju. He then informed SUHAKAM’sdelegation, inbrief,onthe issuesfacedbytheresidentsofhisLonghouse.ThiswasfollowedbyanintroductionbyDatukDr.DenisonJayasooria,whobriefedparticipantsontheobjectiveofthevisittoLongSingu.Anopendialoguesessionfollowedthereafter.

Variousissueswerehighlightedbyparticipantswhichtouchednotonlyonthenegativeimpactsoflogging,oilpalmplantationandreforestationactivitiescarriedoutbyShinYang,butalsoonotherissuespertainingtotheireconomic,social,culturalaswellaspoliticalrights.

ISSUES RAISED BY PENAN LEADERS WITH REGARD TO LOGGING, OIL PALM PLANTATION AND REFORESTATION ACTIVITIES

Loss of Claim on Land

ItwashighlightedbyChiefAlungJuthatsincethecommencementofactivitiesbyShinYang,membersofthecommunityhavelosttheirancestralland.RepresentativesofShinYanghadtoldhimthattheCompanyhasavalidlicencefromtheStateGovernmenttocarryouttheiractivitiesintheareaandthus,thePenansdidnothaveanylegalclaimontheaffectedland.Assuchtheyarenotentitledto

DIALOGUES WITH AFFECTED PENANS

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demandanythingfromtheCompany.HiscontentionwassupportedbytheotherPenanheadmenwhoattendedthedialogue.

No Prior Consultation

ChiefAlungJuexpressedhisdissatisfactionthatShinYangdidnotconsulttheheadsoflonghouses,specificallybeforecommencementoftheCompany’soilpalmplantationactivities.

HefurtherexplainedthatpreviousconsultationbytheCompanywasspecificallyforloggingactivitiesandnotforoilpalmplantation.

Inadequate Amount / No Compensation

ThePenanheadmenwhoattendedthedialoguefeltthatthePenanvillagersaffectedweregiveninadequatecompensation.Someallegedthattheyhadnotreceivedanycompensationatall.

ChiefMadaiSalokfromLongLuarsaidthatwhenloggingactivitiescommenced,hereceivedonlyRM100(givenonlyonce)fromShinYang,whilefamiliesresidinginhislonghousewerenotcompensated.

SUHAKAM was further informed that when a sawmill was built in the area, only residents of thelonghouseinLongLuarreceivedRM4,000fromtheCompany,whileotherlonghousesaffectedbytheestablishmentwerenotcompensatedatall.

Withregardstooilpalmplantationactivities,nocompensationwasreceivedeitherbytheheadmenortheresidentsofallaffectedlonghouses.No Access to Surrounding Forest Areas

SUHAKAM was informed by Chief Alung Ju that the land licensed to the Company for plantationactivities had been fenced and gated and security personnel had been placed. As a result, thePenanvillagerswererefusedaccesstotheseareas.HeexpressedhisdissatisfactionontheCompany’sactionsincemembersofthePenancommunitystillrelyonthejungleforfood.

SUHAKAMwas informed by those present that evenGovernment officers were, at times, deniedaccesstocertainareas.

Limited Chances of Employment with the Company

SUHAKAMwasinformedthatthePenanvillagersaffectedhavelimitedchancesofemploymentwithShinYang.TherewereclaimsthatShinYangpreferredforeignlaboursinceitismuchcheaper.1Theyfeltthatdevelopment,therefore,didnotbenefitthelocalcommunity.

1 SUHAKAMwasinformedbyamemberofthePenancommunitythattheusualwageaskedbythePenanswasRM20adaywhileforeignlabourswouldsettleforRM10–RM15aday.

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ISSUES RAISED BY PENAN LEADERS WITH REGARD TO THEIR SOCIO-ECONOMIC STATUS


Undocumented Members of the Penan Community

SUHAKAMwasinformedthatamajorityofthePenansresidinginLongSingu,LongLuar,LongTangau,LongWatandLongPelutandidnotpossess identificationdocuments.For instance,only3personsfromLongLuarandanother3personsfromLongTangauhaveIdentificationCards(ICs).Somehavetemporaryidentificationslips,whosevalidityiscontinuallyextendedbytherelevantlocalauthority.

Lack of Accessibility to Registration Services

SUHAKAMwasinformedthatthereisnonationalregistrationofficeinthearea.ThenearestofficeislocatedinBintulu,whichisaboutthreetofourhoursdriveaway.SincenoneofthemhavevehiclesandsincetravelingcosttoBintuluisaboutRM700pertrip,itisdifficultforthePenanstoregister.

Asa result, thePenansdependedonvisitsmadeby registrationofficers.However, SUHAKAMwasinformedbyChiefAbokJalongfromLongTangauthatsincetheyfirstsettledinthe1970s,registrationofficershaveonlyvisitedtwice.

Affected Member Mistaken as Foreigners

ThePenanheadmenwhowerepresent informedSUHAKAMthat theyweregiventheauthoritybytheGovernmenttocertifywhetheramemberoftheirrespectivelonghouseisaPenanorotherwiseforpurposesofregistration.ChiefAlungJupresentedSUHAKAMwithhiscertificatereceivedfromtheGovernmentwhichcertifiedhimastheheadmanofAlungJuLonghouse.However,theyexplainedthatwhensomemembersoftheirrespectivelonghousesappliedforICswithanendorsementfromtheheadmen,theirapplicationswereoftenrejectedbytheRegistrationDepartment.TheyclaimedthatOfficers fromtheRegistrationDepartmentconsideredtheseapplicantsas foreignersandthattheircertificateofauthorizationcarriednoweight.

RegulationsImposedtoObtainBirthCertificates

Concerns were also raised by participants on the regulations imposed on members of the PenanCommunityinordertoobtainbirthcertificatesfornewbornbabies.

AsrequiredbytheRegistrationDepartment,applicationforbirthcertificatesnecessitatesdocumentssuchasparents’ICsandmarriagecertificates.SincemostPenanfamiliesdonothaveICsandmarriagesaresolemnisedbytheheadofthatlonghouse–withoutanycertificateofmarriage–applicationsforbirthcertificatesweredifficult.

ApplicationforBirthCertificatesDependantonVisitsbytheFlyingDoctorService

SUHAKAMwas informedthatthecommunitydependsontheFlyingDoctorService(FDS)toobtainformstoapplyforbirthcertificates.2However,sincethefrequencyofflyingdoctorvisitswasreducedfollowingpreviousaircrashes,theintervalofeachvisit,attimes,isuptothreemonths.

2 DuringSUHAKAM’sdialoguewith localgovernmentagenciesattheSungaiAsapDistrictOfficeon19September2006,SUHAKAMwasinformedbyDr.ChinZinHingfromtheMOHthattheyassiststheregistrationDepartmenttodistributebirthcertificatesapplicationformstotheindigenouscommunitiesresidinginisolatedareas.


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SUHAKAMwasalsoinformedthat,inlinewiththeDepartment’sregulation,unregisteredbabieswhohavereachedtheageofthreemonthsarenotpermittedtoregisteruntillateregistrationchargesarepaid.Giventheireconomicstatusandthedistanceofregistrationofficefromtheirvillages,thePenanvillagersdependedon theFDS service for registration forms.Nonetheless,parentsofchildrenwhowerebornbetweenthevisitsandhavereachedtheageofthreebythenextFDSvisitareimposedchargesoflateregistrationwhichtheycannotaffordtopay.

Issues on Education

Inadequate Access to Education

Participants of the Dialogue said that one of the factors that limit access to education is non-documentation.TheyexplainedthatalthoughtheirchildrenwereabletoenrollinprimaryschoolandwereallowedtositfortheUjianPenilaianSekolahRendah(UPSR)examinations,theirchildrencouldonlycontinuesecondaryschooluptoformthreeandwerenotallowedtositforthePenilaianMenengahRendah(PMR)examinations.

Distance of Schools

ItwassaidthatthedistanceofschoolsfromthePenansettlementswastoofar.ThishadcontributedtoabsenteeismamongstPenanstudents.

Costs Involved in Sending Penan Children to School

Whilst inprinciple,primaryeducationinMalaysiaisfree,theancillarycostsassociatedwithsendingchildrentoschoolisnot.Thecommunitydoesnothavethemeanstopayforthesecosts.

Lack of Financial Assistance

PenanchildrenwhodonothavebirthcertificatesespeciallythoseinsecondaryschoolsareunabletoobtainfinancialassistancefromtheGovernment.

Poor Access to Healthcare Services

SUHAKAMwasinformedthataccesstohealthcareserviceswaspoor.Currently,thePenancommunityreliesontheFDSwhichvisitsonlycertainareasonceinafewmonths.ApartfromtheFDS,theWakil Kesihatan Kampung(WKK)orvillagemedicalassistantshelptoproviderudimentarycare.However,thenumberoftheseassistantsisinadequate.

SUHAKAM was further informed by a WKK who was present at the dialogue, that medical supplywasverylimited.Hence,mostillPenanmemberswereoftentoldtovisitthehospitalinSungaiAsap,Belaga,whichtakes3hourstotravelbyvehicleatacostofuptoRM600pertrip.

Lack of Welfare Support for Persons with Disabilities

Aparticipantofthedialogueappealedforwelfaresupport formemberswithdisabilities.AlthoughtheyareawarethatthisserviceisprovidedbytheGovernment,heallegedthatthisdoesnotreachthePenaninUluBelaga.

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III. DIALOGUE IN LONG JAIK, BELAGA, SARAWAK

SUHAKAM’sdialogueinLongJaikwasalsoheldon18September2006atMatuTugangLonghouse.

BesidesChiefMatuTungangandhisfamily,threeotherPenanheadmenincludingChiefBalanUtungfromLongPra;ChiefLabangubet fromLongTengah;andChiefPaikAwanfromDataSengelangwerealsopresent.

ThedialoguebeganwithawelcomingnotebyChiefMatuTugangfollowedbyabriefintroductionby SUHAKAM Commissioner Tunku Datuk Nazihah Tunku Mohamed Rus. An open dialogue sessionfollowedthereafter.

TheissuesraisedbythosepresentatthedialogueinLongJaik,Belaga,weresimilartothosehighlightedduringthedialogueatAlungJuLonghouseinLongSingu,Belaga.Themainissuesrelatetotheeffectof logging,oilpalmplantationandreforestationactivitiesbyShinYangontheirclaimtoancestralland,livelihoodandsurvival.Theyalsohighlightedissuesaffectingtheireconomic,socialandculturalrights.

ISSUES RAISED BY PENAN LEADERS WITH REGARD TO LOGGING AND OIL PALM PLANTATION ACTIVITIES

Loss of Claim to Land

SUHAKAM was informed by Chief Matu Tugang that he had confronted representatives from ShinYangtoclaimcompensationonancestrallandencroachedbyShinYang’soilpalmplantation.ChiefMatuTugangwastoldbytheCompanythatthePenanshaventolegalclaimtolandhencearenotentitledtodemandanythingfromShinYang.

No Prior Consultation

ParticipantsofthedialoguesaidthattheywerenotconsultedwhenShinYang’soilpalmplantationactivitiescommenced.SimilartothecontentionmadebyChiefAlungJufromLongSingu,theysaidthataverbalagreementwithrepresentativesoftheCompanywasmade,butthisagreementwassolelyforloggingactivities.

Theyfeltthatthiswasunfairsincetheyhavestayedthereforgenerationsandclaimedthatseveralplotsoflandaffectedwereinheritedbythemfromtheirforefathers.

They added that before Shin Yang, another logging company operated in the area. However,theysaidthattheydidnotencountersuchproblemspreviously.TheysaidthatthepreviousloggingcompanywhichoperatedintheareawasveryhelpfulandsensitivetothePenans’needs.

No Access to Surrounding Area

AllheadsoflonghouseswhoattendedthedialogueclaimedthattheywerenotgrantedaccesstoarealicencedtoShinYang.Thishasaffectedtheirsourceoffood.

Development Activities do not Benefit the Penans AparticipantatthedialoguefeltthatdevelopmentactivitiescarriedoutwerenotbeneficialtothePenancommunity.Headdedthatatthebeginningoftheoilpalmplantationactivities,thePenans


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wereinformedofthebenefits,includingemploymentopportunities.However,thiswaslimitedwiththeexcusethattheylackedthenecessaryskillsandexperience.

Issues on Compensation

AparticipantinformedSUHAKAMthatnotallheadsoflonghousesweregivencompensation,asonlyheadsoflonghousescertifiedbytheGovernmentwerecompensated.Heclaimedthatthispayment,whichwasbasedonaverbalagreementwiththecompany,wascompensationforloggingactivitiesonlyandnotforoilpalmplantation.

Promise of Alternative Plots AparticipantfurtheraddedthattheCompanyhadpromisedtogiveaffectedPenanfamiliesplotsoflandaspartofthecompensation.However,theyhavenotbeennotifiedofthelocationandthesizeoflandallottedtothem.

ISSUES RAISED WITH REGARDS TO THEIR SOCIO-ECONOMIC STATUSUndocumented Members of the Penan Community

AlargenumberofthePenansresidinginLongJaik,LongPra,LongTengahandDataSengelangwereundocumented.Forinstance,outofthe122personsstayinginLongJaik,only8haveICs.

Thecontributingfactorsofnon-documentationincludelackofregistrationservices;relianceonFDSfor registration; members deemed to be foreigners by authorities and the regulations imposed onaffectedmembersgiventheirsocio-economicstatusandwayoflife.

Issues on Livelihood

SUHAKAMwasinformedbyparticipantsofthedialoguethatsomePenanswereinvolvedinthesellingofhandicraftandotherjungleproducts.Althoughthisisagoodsourceofincome,theyfeltthattheyareoftencheatedastheylackeconomicknowledge.

Whilesomewereinvolvedinsellingofhandicraft,othersoptedforemploymentwithShinYang.SomeparticipantsofthedialogueclaimedthatthecompanypaidthemRM12adaywhichtheyfeltwasinsufficient.

Issue on Adequate Housing

AparticipantofthedialogueclarifiedthatalthoughtheCompanyhadpromised7acresoflandforhousing,theywerenotprovidedbuildingmaterialsforthelonghouse.Hence,itwasimpossibleforthecommunitytomoveoutfromtheircurrentsettlement.

Issues on Education

SUHAKAM was informed that none of the children residing at Matu Tugang Longhouse attendedschool.ThenearestboardingschoolislocatedinLongUrun,whichistwohoursawayfromLongJaik.Thismadeitdifficultforparentstosendtheirchildrentoschool.

Inaddition,thelackoftransportationandthecostinvolvedaggravatedthisproblem.

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SUHAKAMwasfurtherinformedbyaparticipantfromLongUrunthatsomePenanfamiliescouldonlysendtheirchildrentoschoolwhentheywereolder.However,therelevantschoolshadenrolledthesestudentsattheprimarylevelsbasedontheirage.Forinstance,achildof10yearsofagewhohadneverbeentoschoolwasautomaticallyenrolledtoprimaryfour.Asaresult,somePenanchildrenwereunabletocopeandquitschool.

Other Issues

ApartfromShinYang,anotherCompany’sactivitieswerealsohighlighted.TherepresentativefromLongUrunhighlightedseveralissuesfacedbytheresidentsofhislonghouseinLongUrunfollowingtheestablishmentofanoilpalmplantationbyAmanahSahamSarawak(ASSAR).About 100,000 hectares of land was converted to oil palm plantation by ASSAR. Part of the landwaslegallyownedbysomemembersofthePenan.However,asaresultoftheconversion,Penanmemberswereleftwithinadequatelandforhillricecultivation.

PARTICIPANTS OF THE DIALOGUE WITH THE PENAN REPRESENTATIVES

Dialogue with Penans in Long Singu, Ulu Belaga Sarawak, 18 September 2006

• ChiefAlungJufromLongSingu• ChiefMadaiSalokfromLongLuar• ChiefAbokJalongfromLongTangau• ChiefPinangAbokfromLongWat• ChiefLionBuifromLongPelutan• ResidentsoftheAlungJuLonghouse• Dr.KhooKayJin,IndependentResearcher

Dialogue with Penans in Long Jaik, Ulu Belaga, Sarawak, 18 September 2006

• ChiefMatuTugangfromLongJaik• ChiefBalanUtungfromLongPra,• ChiefLabangubetfromLongTengahand• ChiefPaikAwanfromDataSengelang• ResidentsoftheMatuTungangLonghouse• Dr.KhooKayJin,IndependentResearcher


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5. DIALOGUE WITH SHIN YANG FORESTRY SDN. BHD.

I. INTRODUCTION

Aspartofitsfactfindingactivities,SUHAKAMorganisedtwomeetingswithrepresentativesfromtheShinYangForestrySdn.Bhd.Thefirstmeetingwasheldon18September2006,withthegeneralmanagerofShinYang’soilpalmplantation,MetannikCamp,locatedinSungaiJaik.Thesecondmeetingwasheldon12October2006withseveraloftheCompany’srepresentativesattheCompany’sHeadquartersinMiriSarawakwasheldon12October2006.

OBJECTIVES

TheobjectivesofthemeetingswithrepresentativesfromShinYangwereasfollows:

• toobtainfeedbackfromrepresentativesoftheCompanyontheissuesraisedbymembersofthePenancommunity;

• toascertaintheeffortstakenbytheCompanytoassistmembersofthePenancommunity.

II. DIALOGUE AT SHIN YANG’S OIL PALM PLANTATION, METANNIK CAMP, SG. JAIK, BELAGA

AttheMeeting,ShinYangwasrepresentedbyMr.TingKhaiSik,theGeneralManagerofShinYang’soilpalmplantation,MetannikCamp,locatedinSungaiJaik,Belaga,Sarawak.

Mr.TingKhaiSikinformedSUHAKAMthatasthemanageroftheoilpalmplantation,MettanikCamp,hisknowledgeislimitedtoactivitiescarriedoutbytheCamp.Nonetheless,duringthedialogue,heoccasionallyreferredtogeneralinitiativesdonebyShinYangformembersofthePenancommunity.

ISSUES DISCUSSED

TheissuesdiscussedwithMr.TingKhaiSikaresummarisedasfollows:

Compensation

Mr.Tingfirstlyclarifiedthatcompensation,commissionandassistancegiventomembersofthePenancommunityisattheCompany’sowninitiative.

WithregardtoShinYang’sloggingactivities,compensationandcommissionweregiventotheheadsoflonghousesandthemembersoftheVillageSecurityandDevelopmentCommitteeorJawatankuasa Keselamatan dan Kemajuan Kampung, (JKKK). The quantum of compensation is based on theagreements signed between the parties involved. He added that compensation was only givenonce,thatis,attheinitialstagesofShinYang’sloggingactivities.NoadditionalcompensationwasgivenwhenShinYang’soilpalmplantationstartedsincebothactivitieswerecarriedoutbythesameconcessionaire.

Inadditiontocompensationandcommission,therelevantheadsoflonghousesandJKKKwerealsogivenmonthlyallowances.Thesetoowereinaccordancewithagreementssigned.

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Further, compensation for temuda (native customary land) and pemali (payment for a ritualpropitiation)werealsopaidtoaffectedPenanvilalges.3Withregardtothepemali,hesaidthattheamountwasdiscussedandagreeduponbetweenShinYang,theSarawakPlanningAuthority(SPA)andrelevantvillageleadersaswellasrepresentativesfromtheOrangUluAssociation.AllpaymentsweredoneattheSungaiAsapDistrictOffice,witnessedbyaSarawakAdministrativeOfficer(SAO).

Inadditiontomonetarycompensation,Mr.TinginformedSUHAKAMthattheCompanyalsoreservedlandformembersofthePenancommunitywhowereaffectedbytheestablishmentoftheoilpalmplantation.Thesizeofthelandreservedforthispurposewasnotdisclosed.However,Mr.TingclarifiedthatthesizeoflandgivenwasbiggerthanthosegiventotheindigenouscommunitiesaffectedbytheBakunDam.

Mr.TingthenpointedouttheproblemsfacedbytheCompanywithregardstoclaimsofcompensationmadebymembersofthePenancommunity.Theyinclude:

Claims of compensation to land - Some members of the Penan community made claims ofcompensationtolandthatwasfarawayfromwheretheyresided.Forinstance,Penan’sresidinginLongLuarandLongTangauclaimedthatthelandcurrentlytakenupbyShinYang’sMetannikCampwasoncetheirforagingareaandtherefore,claimedcompensationontheland.Mr.TingaddedthataffectedmembersofthePenancommunityinvolvedhadagreedandconsentedtotheestablishmentofanoilpalmplantation,currentlyknownastheMetannikCampandtheareautilisedforoilpalmplantation.

Excessive requests – The requests made by some members of the Penan community weresometimesexcessive.Forinstance,lastyear,ChiefMatuTugang,wholivesinLongJaikaskedforatotalof1,000hectaresoflandasreserveforhisvillage.TheissuewasbroughttoandresolvedattheDistrictOfficeinthepresenceofrepresentativesfromShinYangandChiefMatuTugang.Despitehavingagreedtothesolution reachedat theDistrictOffice,ChiefMatuTuganghadchangedhisminduponreturningtohisvillage.

Employment Opportunities for the Penan Community

SUHAKAMwasinformedbyMr.TingthattheCompanyprovidedemploymentopportunitiesformembersofthePenancommunity,forinstancejunglefelling,polybagfillingandpestextermination.

Heclarifiedthatwageswereeitherpaidonadailyoroncontractbasis.However,employmentwasusuallyonacontract4basis,whichcouldamountuptoRM800amonth,comparedtoRM15perdayonadailybasis.

Inaddition,theTravelandTraveling(TNT)allowancewasalsoprovidedforthosewhoworkinLongJaikandLongUrun,Belaga.

He further explained that previously, the Company employed a total of 30 Penan members. Herecalledthat5werejunglefellingcontractorswithagoodsalary.

Headdedthattrainingwasalsoprovidedtoemployees,includingPenanmembers.HestressedthatmembersofthePenanswhowereemployeddidnothavethenecessaryknowledgeandskills.Thiswasovercomewithasix-monthon-the-jobtraining,whichhefeltbenefitedthePenanmembers.

3 Mr.TinglaterdisclosedthattheamountofcompensationfortemudawasRM300foreveryhectareandRM1,880forthepemali.Headded

thattheamountforpemaliwaspaidonce.4 Mr.Tingexplainedthatfornurserybagfillingforinstance,wageswillbepaidaccordingtothenumberofbagsfilled.

DIALOGUES WITH SHIN YANG FORESTRY SDN. BHD.

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However,hehighlightedtheproblemsfacedbytheCompanywhenemployingmembersofthePenancommunitywhichincludehighabsenteeismamongstthePenanemployees;Penanemployeescouldnotbeartheheatofthesun;andPenanemployeestendedtobringallthefamilymemberswhentheywork,whichnegativelyeffectedproductivityofthePenansemployed.

Social Responsibility

Withregardtosocialresponsibility,SUHAKAMwasinformedbyMr.TingthatallassistanceprovidedtothePenansbytheCompanywasongoodwill.

Mr. Ting clarified that since Shin Yang’s oil palm plantation started only recently, they have notestablishedmuchthatcouldbenefitthelocalcommunity.However,heassuredSUHAKAMthatinthefuture,moreamenitieswouldbeprovidedbytheCompany.

Nonetheless,hementionedsomecontributionsmadeby theCompanyasawhole, in theBelagaarea.Heexplainedthataprivateclinicisunderconstructionandwillbeaccessibleanyonelivinginthearea,includingmembersofthePenancommunity.

Inaddition,theCompanyassistedthePenansbysettingupcatchmentsandwaterpipelinesaswellaslevelingofsoilforlonghouseconstructionandconstructionoflonghouses.TheseareallprovidedforfreebytheCompany.

Transportation isalsoextendedtomembersof thePenancommunitywhentheyneedtotravel toSungaiAsap,Belaga.Heexplainedthatpriortotheestablishmentoftheclinic,thecompanyhelpedmembersof thePenancommunitybyprovidingtransportationtosendsick familymembers totheclinicinSungaiAsap,Belagafortreatment.

Inaddition,PenanmemberswhohadtogotoSungaiAsaptoapply for IdentificationCards (ICs)wereusuallygivenassistance.However, thecompanymustbenotified inadvanceas lastminutenotificationcouldnotbeentertained.

HeaddedthatcompanyvehiclespassingfromonepointtoanotherpermittedPenanhitchhikerstogetaride.However,theydonotpermitthiswithtimberlorriesasthiscouldbedangeroustobothlorrydriverandhitchhiker.

III. DIALOGUE AT SHIN YANG FORESTRY SDN. BHD. HEADQUARTERS, MIRI

SUHAKAMhadscheduledameetingwithY.BhgDatukLongChiongHo, theGeneralManagerofShinYangForestrySdn.Bhd.on12October2006atShinYang’sHeadquartersinMiri.HoweverY.Bhg.Datuk Long Chiong Ho was unable to attend the Meeting and was represented by several of hisemployeesincludingtheCompany’sForestManager,LegalManager,CapPublicRelationsOfficerandSurveyor.5

Bywayofintroduction,theCompany’srepresentativeswerebriefedonthepurposeoftheMeetingandontherelevantissuesarisingfromSUHAKAM’svisitsanddialoguesinBelaga,Sarawak.ThiswasfollowedbyabriefingbyMs.LorettaLau,ontheCompany’sactivitiesbasedonLicenceforPlantedForest(LPF/0018).Anopendialoguesessionfollowedthereafter.

5 ThelistofShinYang’srepresentativesatthisMeetingisattachedasAnnexure3

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ISSUES DISCUSSED

ThediscussionbetweenSUHAKAMandrepresentativesfromShinYangissummarisedasfollows:

Status of Shin Yang’s Development Activities in Belaga

SUHAKAMwasinformedthatworkhasbeendoneononly20%ofthetotallandawardedunderthesaid license.TheclearingoftheareawasdoneaccordingtotheSarawakForestOrdinance1958,whichamongstotherthings,requiredtheCompanytoexcludedevelopmentonprohibitedlandsuchaswatercatchments.6Inaddition,theCompanyalsofollowedthestandardssetbytheGovernmentforthedevelopmentofplantationandloggingactivities.

Recognition of the Penan Community and their Claim to Land

AccordingtoMs.LorettaLau,theCompanyisawareoftheexistenceofthePenanCommunityandtemudawithinthelicensedland.However,sheclarifiedthatonlytwosettlements,LongJaikandLongLiamwereidentifiedasstatedintherelevantEIAreport.7SheaddedthattheexistenceofotherPenansettlementswithinthelicensedareamaybearesultofsplitupsofthecommunitiesfromtwosettlementsidentified.ShebelievedthatsomePenanshavemovedfromthetwoidentifiedsettlementsandestablishednewsettlementswithinthelicencedarea.VillagersofthenewsettlementsthenmakeclaimsfromtheCompany.

Compensation on Land

On the issue of compensation, representatives from Shin Yang explained that the Company hadspentapproximatelyRM1millionbywayofcompensation,commissionandallowancestoaffectedmembersofthePenancommunity.

TheysaidthattheCompanyhadpaidcompensationto6villagesthatwereaffectedbytheCompany’sactivities,outofwhichonly2villagesexpressedtheirdissatisfactionontheamountofcompensation.

In addition, theCompany had also paid RM 300 per hectare toaffected members of thePenancommunity,whoclaimedthatthoseplotsoflandweretemuda.

Further,SUHAKAMwasinformedthattheCompanyhadalsopaidmonthlyallowancesofRM300foreachheadoflonghousesfrom8villages,andpaidbetweenRM80-RM100foreachmemberoftheJKK.Theyhavepaid6to8membersofJKKtodate.

However,theysaidthatoutsidershadtakenadvantagebyestablishingnewsettlementswithinthelicensedareasothattheycanmakeclaimsofcompensationfromtheCompany.

Housing for the Penans in the Area

Mr.AnthonyAdes informedSUHAKAMthatasdirectedbytheGeneralManageroftheCompany,ameetingwouldbeheldbetweenrepresentativesoftheCompanyandrelevantheadsofPenanlonghouseson21October2006todiscussonthedevelopmentofnewhousingforaffectedvillages,whichincludesmovingaffectedmemberstothenewarea.Headdedthatthecompanyisproposingacentralisedsettlementfortheaffectedvillages.

6 TheexclusionofdevelopmentonwatercatchmentsisprovidedundertheSecondScheduleoftheSarawakForestOrdinance1958.7 However,afterscrutinizingthesaidEIAreport,SUHAKAMfoundthatparagraph21oftheExecutiveSummaryandChapter2,paragraph

2.2oftheEIAreportstatedthattherewereonlyremnantsofPunanSettlements inalongtheJaikRiver,andanillegal15doorKenyahlonghousewhichhasbeenabandoned.TheEIAfurtherreportedthatnopermanentlocalsettlementswerefoundwithinthesite.


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Mr.AnthonyAdesemphasisedthatthiseffortissolelytakenbytheCompany,despitethefactthatitistheresponsibilityoftheGovernmenttoensurethewell-beingofmembersofthePenancommunityascitizensofMalaysia.

Assistance accorded to Members of the Penan Community

Ms.LorettaLauexplainedthattheCompany’spolicyensuresthatrespectisgiventomembersofthePenancommunitybynotinvadingandprotectingtheirvillages.

Apart from protecting these villages, the Company also provided other assistance for the Penansincludingtheconstructionofroads,providingwatersupply,materialsforconstructionofhousesaswellasassistancefor funeralarrangements includingtransportation,financialassistanceforcoffinsandothercostassociatedwiththefuneral.

Additionally, the Company had no objections to giving lifts to Penan hitchhikers as long as thedestinationwasnottoofar.However,timberlorrieswerenotallowedtotakepassengersduetosafetyreasons.

TheCompanyhadalsogivenhonorarium(wang saguhati)toPenanmembersduringfestiveseasons.For instance, on Christmas, besides honorarium, the Company allowed Penan members to takewhateverbasicnecessitiestheyneededfromtheCompany’scanteenforfree.

Althoughtheseeffortsweredoneonanadhocbasis,itcouldbeusedastheCompany’slong-termguidelineandasthecompany’spolicy.

Employment Opportunities for Members of the Penan Community

Ms.LorettaLauclarifiedthatabout90%oftheemployeesattheCompany’soilpalmplantationweremembersofthePenancommunity.Amongothers,theirtasksincludedjunglefellingandpoly-bagfilling.

ItwasfurtherclarifiedbytheCompany’srepresentativesthatalthoughtheyhadtakenvariouseffortsto offer employment opportunities to members of the Penan community, some had declined thisoffer.

Access to Forest Area for the Penan Community

With regard to thePenan’sclaimofbeingdeniedaccess to forestareas, itwasclarified that theCompanyhadtakenthatsteptoavoidtheftandsocialproblemswithinthelicensedarea.However,thecompanyiswillingtograntaccesstothelicensedareaaslongasearlynotificationisgiven.

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PARTICIPANTS OF THE DIALOGUES WITH REPRESENTATIVES FROM SHIN YANG FORESTRY SDN. BHD.

Dialogue with Representative from Shin Yang Forestry Sdn. Bhd. Oil Palm Plantation, Metannik Camp, Sg Jaik, 18 September 2006

• Mr.TingKhaiSik,GeneralManager,ShinYangForestrySdn.Bhd.OilPalmPlantation,MetannikCamp.

Dialogue with Representatives from Shin Yang Forestry Sdn. Bhd., Headquarters, Miri, Sarawak, 12 October 2006

• Mr.WongThoAng–ForestManager;• Mr.WongKingHing–Surveyor;• Mr.AnthonyAdes–CampPublicRelationsOfficer;and• Ms.LorettaLau–LegalManager.


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6. DIALOGUES WITH GOVERNMENT AGENCIES

I. INTRODUCTION

SUHAKAMheldaseriesofmeetingswithrepresentativesfromrelevantgovernmentagencies.Thefirstmeetingon19September2006washeldattheSungaiAsapDistrictOffice.ThisMeetingwasattendedbyrepresentativesfromdistrictlevelagencies.

Afterobtaining theviewsandconcerns from representatives from thedistrictagencies, SUHAKAMheldaMeetingwithrelevantStateGovernmentagencieson13October2006inKuching,Sarawak,togetfurtherclarification.

Information gathered by SUHAKAM through the dialogues with the community concerned andrepresentativesfromrelevantGovernmentagencieswerebroughttotheattentionoftheMinisterinchargeofthePenanCommunity’sWelfare,Dato’SriAbangHajiAbdulRahmanZohari,atameetingon13October2006.

OBJECTIVES Theobjectivesofthemeetingsinclude:

• toobtainfeedbackfromgovernmentagenciesonissueshighlightedbymembersofthePenancommunityduringSUHAKAM’sdialoguesinLongSinguandLongJaikon18September2006;

• toascertaintheGovernment’seffortstoprotecttherightsofthePenans;• tocomeupwithalternativesolutionstoaddressthedilemmaoftheaffectedmembersofthe

Penancommunity

II. DIALOGUE WITH REPRESENTATIVES OF GOVERNMENT AGENCIES AT THE DISTRICT LEVEL

ThemeetingwithrepresentativesfromrelevantlocalGovernmentagenciesatthedistrictlevelwasheldattheSungaiAsapDistrictOfficeon19September2006.

Theparticipantsofthemeetingincludeamongothers,representativesfromtheBelagaDistrictOffice,DistrictEducationOffice,theNationalResourceandEnvironmentBoard(NREB)andtheDistrictHealthOffice.8

Inadditiontogovernmentagencies,representativesfromShinYangalsoattendedtheMeeting.

TheMeetingattheSungaiAsapDistrictOfficebeganwithanIntroductionbySUHAKAMCommissioner,DatukDr.DenisonJayasooria, followedbyabriefingbySUHAKAMCommissionerDr.HirmanRitomAbdullahontheissuesaffectingthePenancommunitiesinLongSinguandLongJaik,Belaga.

Mr.TomHemMijod,BelagaDistrictOfficerlaterjoinedtheMeetinganddeliveredabriefwelcomingnotetoSUHAKAMandparticipantsoftheMeeting.

TheMeetingcontinuedwithanopendiscussionwithrepresentativesfromgovernmentagenciesgivingfeedbackontheissuesraisedbySUHAKAMCommissioners.Thediscussionissummarisedasfollows:

8 ThelistofparticipantsoftheMeetinginSungaiAsapDistrictOfficeisattachedasAnnexure3

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DISCUSSION ON THE PENANS CLAIM TO LAND WIHTIN THE LICENCED AREA

Determining Land Status of the Penans

A representative from the Forestry Department clarified that the land licensed to Shin Yang wasgazettedasaprotectedforestandcanbelicensedforharvesting.

He explained that the Forestry Department had no jurisdiction to matters involving land claims.However,tohisknowledge,thatthetaskofascertainingwhetherthelandissubjecttoanyclaim,inthecaseofLPF/0018lieswithShinYang.InformationonlandclaimscouldbeobtainedfromtheLandandSurveyDepartment.

He clarified that before a forest plantation licence is awarded to a company, the company isrequiredtosubmitaplantingplan.Thisplanwouldreflectanyplotsoflandwhichwouldbeexcludedfrom development, including reserved and protected forest and Native Customary Land (NCR).This informationwillthenbeincludedintheEnvironmental ImpactAssessment(EIA)ReportwhichispreparedbyaconsultantapprovedbytheGovernment.ThisconsultantwillalsoberesponsibletoconductsurveyontheproposedareaforthepurposeoftheEIAreport.

Establishing the Existence of Penan Settlements in the Licensed Area

ArepresentativefromtheNaturalResourcesandEnvironmentBoard(NREB)saidthatbasedontherelevantEIAreport,therewasnolegalclaimtoNCRlandoverthearealicencedtotheCompany.ShefurtheraddedthattheNREBhadnotseenPenansettlementsinthelicensedarea.

Nevertheless, settlements would usually be established by the locals within bumper zones. Sheexplainedthatbumperzonesofnearriversareusuallyexcludedfromdevelopmentheclarifiedthatareasusuallyexcludedfromdevelopment.

Procedures to Claim for NCR Land

The representative from the Forestry Department clarified that when forest land is proposed forconversiontoagriculture,communitieslivingwithintheaffectedareaarenotifiedandaregiventhreemonthstosubmit,totherelevantauthority,onanyclaimtoNCRland.ThenotificationisusuallydonethroughtheDistrictOfficeandthroughinquirieswithlocalcommunitiesbeforeanyfinalgazettingisdone.AccordingtotheDepartment’sprocedure,failingtosubmittheirclaimswouldmeanthattheyhaveforfeitedtheirclaimtoNCRland.

Access to Foraging Area

ArepresentativefromtheForestryDepartmentsaidthatlocalcommunities,suchasthePenans,whomightnothaveclaimtoNCRland,stillhave‘usufructuary9Aright’whichallowsindigenouscommunitiessuchasthePenan,toenterprotectedforestareastocollectjungleproducespecificallyfordomesticuse.9ThiswasaffirmedbyaparticipantfromtheLandandSurveyDepartment.

It was further explained that in certain areas, members of the Penan community are allowed toenterwithoutpermission,whilesomeotherareascanonlybeenteredwithpermissionfromtheForestDepartment.

9 Section65oftheForestOrdinance1958statesthefollowing: Subjecttosection57,andtoanyrulesmadeundersection95,andtoanyordermadeundersection96,anyinhabitantofSarawak

may,withoutlicenceorpermit,cutandremovefromStatelandwhichisnotaforestreserveanytimberorotherforestproduce requiredbyhimexclusivelyforhisowndomesticuseandnotforsale,barterorprofit.

9A Therighttouseproperty-orincomefromproperty-thatisownedbyanother.

DIALOGUES WITH GOVERNMENT AGENCIES

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WithrespecttotheareaunderLPF/0018,arepresentativefromShinYangexplainedthattheCompany’sdecisiontorestrictaccesstoforestwithinthelicensedareawasforsecurityreasons.Thiswasdonetoavoidillegalactivitiessuchassellingofdrugs.

Compensation Claimed by the Penans

ArepresentativefromShinYangForestrySdn.Bhd.explainedthatwhenevertheCompanyclearedland,membersofthePenancommunitywillseekforcompensationfromtheCompany.Althoughhewasnotfamiliarwiththelegalitiesofcustomarylandmatters,hesaidthatclaimsmadebymembersofthePenancommunitywereusuallyresolvedbypayingcompensationtoPenanmembers.

HesaidthatthecommonapproachtakenbytheCompanybeginswithdiscussionswithaffectedmembers.However,moreseriousmatterswouldberesolvedthroughthedistrictofficeinthepresenceoftheheadofthelonghousemakingtheclaims.

HeaddedthattheCompanyhadtried,asfarpossible,tomeetthePenan’sdemands.However,theCompanyfaceddifficultieswhenclaimsmadebythePenansweretooexcessive.

Monitoring of Company’s Activities

ArepresentativefromtheNREBinformedSUHAKAMthatthereisacommitteechairedbyNREBwhichisresponsibleformonitoringthecompany’sactivities,inthiscase,ShinYang,vis-à-vistheLicenceandEIArequirements.ThelastCommitteeMeetingtoreviewthecompany’sactivitieswasheldinAugust2006.

FEEDBACK ON SOCIO-ECONOMIC ISSUES


Non-Documentation of Penans

A representative from the BelagaDistrictOfficeagreedwith SUHAKAM’s finding thata significantnumberofPenanmemberswereundocumented.Non-registrationofnewbornbabies,inparticular,wasduetovariousfactorsincludingthelackofregistrationservicesintheseareas,inabilitytopaythefeesimposed,costoftransportationandrequirementformarriagecertificatesandparents’ICs.

A representative fromtheStatePlanningUnit (SPU) said thatSPUhadengaged inameetingwiththeNationalRegistrationDepartment (NRD)with theaimof requesting theNRD towaiveany feerequirements given the socio-economic condition of the Penan community. However, SPU wasinformedbyNRDthatasrequiredbyNRD’sprocedure,thosefeescouldnotbewaived.Additionally,marriagecertificatesandparents’ ICswill have tobeproducedby the Penans toapply for theirchildren’sbirthcertificates.

AssistanceofFDSinRegistrationofBirthCertificates

A representative from theMiriHealthOfficefirstlyaffirmed thataccess to registration serviceswaslimitedinthesaidarea.Forthisreason,theHealthDepartmenthadagreedtoassisttheNRDinthedistribution of registration forms for the application of birth certificates tomembers of the PenancommunityduringtheirFDSvisitsinUluBelaga.

Nevertheless,arepresentativefromtheDistrictOfficeemphasisedthatthetaskofregisteringmembersofthePenancommunitywastheresponsibilityofNRD.AlthoughtheNRDcouldseekassistancefrom

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theFDStodistributeregistrationforms,NRDshouldnotrelyonFDSvisitssince,theFDSvisitswerenotregular.

Issues on Education Education for Undocumented Penan Children

Amongtheproblemsarisingfromnon-documentationwastheinabilityforPenanchildrentoobtainadequate access to education and financial assistance. Without proper documentation, PenanchildrenwerenotallowedtositforthePMRexamandwereunabletosecurewelfareassistanceandscholarships.

However,arepresentativefromSekolahKebangsaan(S.K.)LongGang,UluBelaga,explainedthatundocumented Penan children were usually asked to sit for a special exam at form three as analternativetoPenilaian Menengah Rendah(PMR).

Absenteeism amongst Penan Students

TherepresentativefromS.K.LongGang,UluBelaga,informedSUHAKAMthatoneofthecontributingfactorstoabsenteeismamongstPenanstudentswasthatPenanstudentsrefusetoattendschooliftheirparentswerenotaround.

Toaddressthisproblem,acommitteewasestablishedinS.K.LongGangtolookintotheissue.

Anotherstepthathasbeentakenwasthroughtheprovisionofguardiansatschools.HeexplainedthatthisguardianisusuallyapersonwhomthePenanchildrenarefamiliarwith.HebelievedthatthisstepcouldbeeffectiveinreducingabsenteeismamongstPenanstudents.

Provision of Transportation

ArepresentativefromtheSPUthatallocationfortransportationisprovidedandgiventotherelevantdistrictofficeforimplementation.

However, a representative from theDistrict EducationOffice said thatalthough there is provision,the actual implementationwas fraughtwith difficulties especially after the increase of fuel price.Additionally,transportationcostinBelagaisquiteexpensive.

Sheaddedthattherewerecompaniesemployedtoprovidetransportationbut,attimes,hadfailedtohonourtheircontracts.

Ontheotherhand,someparticipantssaidthatPenanchildrenoftenfail toturnupatthepick-uppoints.

Culture Based Education

ArepresentativefromtheDistrictEducationOfficesaidthattherewereplanstoimplementaformofculturebasededucationwhichwouldtakeintoaccounttheuniqueneedsofthePenanCommunity.However,sheemphasisedthatthiswasstillattheplanningstage.


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Issues on Health

Access to Health Care Services

ArepresentativefromtheMiriHealthOfficesaidthattheFDSvisitedseveralareasintheBelagaDistrictincludingLongUrun,LongTangai,LongSingu,LongMalim,LongJaikandLongRidem.However,thesevisitsweredoneirregularlysincetheywereshortstaffed.Inaddition,inadequatenumberofaircraftshadalsoaddedtotheproblem.

HefurtherexplainedthattheSungaiAsapHealthCentreonlyhadfourmedicalassistants(MA),onestaffnurseandsixcommunitynursestocoveravastareainBelaga.AlthoughtherewasanadditionalpositionforanMA,thispositionhadyettobefilled.HealsosaidthattheHealthCentredoesnothavearadiographerandlabtechniciantoperformx-raysandlabtests.Therefore,thosewhorequiretheseserviceshavetotraveltotheBintuluHospital.

He furtherexplained thatcommunitynurseswere required toassistonlypatients residingwithin12kilometresofthemainoffice.Therefore,Penanslivinginareasoutsideofthe12kilometresradiuswouldnothaveaccesstotheservice.

Nonetheless, they have established a programme known as the Village Health Representative orWakil Kesihatan Kampung(WKK)whocoverssomeoftheareasinhabitedbymembersofthePenancommunity.About100PenanmembershavebeentrainedasWKKtoservethePenancommunityinBelaga.However,only46%wereactivewhiletheresthadeitherresignedormovedaway.

Access to Health Care Services for Undocumented Members

TherepresentativefromtheMiriHealthOfficenexplainedthatPenanmemberswhoareundocumentedcouldvisitgovernmentclinicsandhospitals.However,feeswouldbecharged.Exemptioncouldbegivenuponthepatientsdeclaringthemselvesasdestitute.

Immunisation Programme

Withregardtoimmunisation,therepresentativefromtheMiriHealthOfficeexplainedthattherewasnospecificimmunisationprogrammeforthePenanCommunity.HeexplainedthatwhenthePenanmakesavisittoGovernmentclinicsandhospitals,thehospitalswouldtakethisopportunitytoimmunisethem.

Emergency Services

Another representative from theMiriHealthOffice said thatemergency serviceswerealso limitedwithonlyoneambulancedrivertocoveralargeareainBelaga.Currently,anyemergencycasesinBelagawillbereferredtotheBintuluHospital,whichisapproximatelythreehoursaway.Asaresult,whentherearetwoemergencycalls,onlyonecanbeattendedto.

Theother representativefromtheMiriHealthOfficeaddedthatundertheNinthMalaysiaPlan,noprovisionforadditionalemergencyservicefortheBelagadistrictwasmade.However,thiscouldbeproposedtotherelevantauthority.

Environmental Issues

A representative from the Forest Department opined that in any sort of development, pollution isinevitable.However,tocontrolthisproblem,thecompany,inthiscaseShinYang,wasaskedtosubmit

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amanagementplan.Thisplanwouldanticipatetheenvironmentalimpactofforestplantationandwouldexploresolutionssuchas ‘low impact logging’or ‘reduced impact logging’ tominimisethenegativeimpactofdevelopmenttowardstheenvironment.

Water Supply Project

The representative from theMiriHealthOfficeadded thatcurrently, sourcesofwatercatchmentswerenotprotectedandthiswouldcreateproblemsinthefuture.

He informed SUHAKAM that despite having submitted proposals to relevant authorities, the StateHealthDepartmenthasnotreceivedanyallocationforwatersupplyprojectswhichtheyhadreceivedpreviously.However,heclarifiedthatanewproposalforallocationundertheNinthMalaysiaPlanwillbesubmittedandhopedthatitwouldbeconsideredbyrelevantauthorities.

Development Programmes for the Penan Community

Permanent Settlement for the Penan

The representative from the SPU explained that development activities channeled to the Penancommunitybeganinthe1980s.However,thesedevelopmentactivitiesatthattimewereclassifiedaswelfare.

TheSPUhadengagedvolunteersdrawnfromamongstPenanyouths.Thesevolunteerswouldassistthe Government in helping the Penan community to establish permanent settlements, which wasimportanttofacilitatethedeliveryofothersupportservicessuchaselectricityandwatersupply.

TherepresentativefromShinYangsaidthataspartofitscommitmenttohelpthePenancommunity,the Company had made plans to establish permanent settlements for the affected communitymembers.ThisincludesgivingplotsoflandandbuildinglonghousesforthePenans.

Poverty Eradication Programmes

TherepresentativefromSPUinformedSUHAKAMthatSPUhadalsoproposedtotheEPUforspecialprovision specifically for the Penans under the provision for poverty eradication programme.However, as informedby EPU, thecurrent provisionwas specific for economicdevelopment thatfocusesonincomegenerationactivitieswhichwouldbeaccordedbasedontheSkim Pembangunan KesejahteraanRakyat(SPKR).

EPUhadrequestedSPUtosubmitanotherproposalforspecialprovisionstoaddresspovertyamongstthePenancommunity.

Other Assistance and Programmes for the Penans

TherepresentativefromShinYangexplainedthattheCompanyhadbeenprovidingassistancetothePenancommunity.However,thesewerealldoneonanadhocbasis.Amongtheassistancegivenincludestransportation,employmentopportunitiesandhonorarium(saguhati)especiallyduringfestiveseasons.HealsosaidthattheCompany,attimes,wouldsendmembersofthePenancommunitytotheregistrationofficeinSungaiAsaptoapplyorcollecttheirICs.

Inadditiontothis,theCompanyhasalsosetupacompanyclinicwhichcanbeutilisedbythelocalcommunity,includingthePenans.


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III. DIALOGUE WITH REPRESENTATIVES FROM RELEVANT STATE GOVERNMENT AGENCIES, KUCHING, SARAWAK

ThedialoguewithrelevantStateGovernmentagencieswasheldinKuching,Sarawakon13October2006.

TheMeetingwasattendedby,amongothers,representativesfromtheStatePlaningUnit(SPU),StateEducationDepartment,NationalRegistrationDepartment(NRD),LandandSurveyDepartment(LSD),NaturalResourceandEnvironmentBoard(NREB)andForestDepartment,Sarawak.10

SUHAKAMwasencouragedwiththepresenceofDatuWilsonBayaDandot,theDeputyStateSecretary,Sarawak,andDatukJ.C.Fong,theSarawakStateAttorney-Generalatthedialogue.

TheMeetingbeganwithawelcomingnotebyDatukDr.DenisonJayasooria,followedbyabriefingbyDr.MohammadHirmanRitomAbdullahonthefindingsofSUHAKAM’svisitsanddialoguesinLongSinguandLongJaik,Belagaon18September2006.

TheissuesdiscussedbetweenSUHAKAMandtheSarawakStateGovernmentrepresentativeswereasfollows:

DETERMINING THE EXISTENCE OF PENAN SETTLEMENTS IN THE AFFECTED AREA

ArepresentativefromtheForestDepartmentsaidthatthearealicencedtoShinYangisundertheLicenceforPlantedForestLPF/0018.Clause22(1)oftheLicenceprovides:

Nothing in this Licence shall be deemed to affect rights which any native has, prior to the issue of this Licence, lawfully acquired over the said land under the Sarawak Land Code. Such rights shall be referred to in this Licence as “native customary land”

HefurtheraddedthatbasedontherelevantgazettenotificationfortheLicencedarea,therewasnoindicationthatanypartofthelandwassubjecttoNCRclaimsasprovidedintheSarawakLandCode1958.11

Nevertheless, he clarified the Penans who had resided in the area had their ‘usufructuary right’,whereby they are allowed to fish, hunt and collect jungle produce without the need to obtainpermission.However,this is limitedtodomesticconsumption.Ontheotherhand,timberextractionrequirespermissionfromtheForestryDepartment.A representative from NREB added that before the said Licence was approved, the Company,through a consultant, was required to prepare an Environmental Impact Assessment (EIA) Reportwhich,amongothers,mustdeterminewhethertherewerehumansettlementsoractivitiesinthesaidarea. Iftherewereclaimsduringtheassessment,therelevantagenciesaretoundertakeeffortstoinvestigatetheclaims.However,basedontheEIA report,nohumansettlementsoractivitieswerefound.HeaddedthattheReportwasavailabletothepublic.TheSarawakAttorney-GeneralsaidthattheGovernmentrecognisestheexistenceofthenomadicPenans. As explained by the representative from the Forest Department, it was clear that the

10 ThelistofparticipantsofthedialoguebetweenSUHAKAMandrepresentativesfromrelevantStateGovernmentagenciesisattachedasAnnexure3.

11 SUHAKAMwasinformedduringtheMeetingwithGovernmentagenciesattheDistrictLevelon19September2006thatwhenanyforestareaisproposedfordevelopment,communitieslivingwithintheaffectedareaarenotifiedandaregiventhreemonthstosubmittotherelevantauthorityonanyclaimtoNCRlandbeforeanyNCRtitleisissued.FailingtosubmittheirclaimsmeansthattheyhaveforfeitedtheirclaimtoNCRland.

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GovernmentrespectedtherightsofthePenans,inparticular,toroamtheforestarea.Hethenreferredto Gunung Mulu National Park which was maintained as a permanent forest and the indigenouscommunitieswereallowedtoroaminthePark.

HeremindedallthosepresentthatbeforethesaidLicencewasapproved,athoroughinvestigationhadbeencarriedouttoestablishwhetherthereweresettlementsandclaimstoNCRinthesaidarea.Basedonthefindingsoftheappointedconsultant,therewasnoevidencethatactivesettlementsexistedorclaimstoNCRatthatmaterialtime.

Nevertheless,hesaidthatbasedonSUHAKAM’spresentation,therewerePenanswhohadsettled,whowere,however,withoutNCRland.HeagreedthatactionmustbetakentoinvestigatewhetherthePenanshadsettledbeforeorafter1958.Fromthisinvestigation,otherassistancecouldbeaccordedtotheaffectedPenans.

HeaddedthatadecisionmustalsobetakenonwhethertoallowthePenanfamiliestoremainintheircurrentlocationorrelocatethemelsewhereinpropersettlementswhereassistanceandopportunitiescouldbeeasilyprovidedtothem.

TheDeputyStateSecretaryconcurredandsaidthattherewastheneedtocomeupwithsolutionstoaddressthisproblem.He,however,emphasisedthatrelevantGovernmentagencieswouldneedtoverifyontheclaimsmadebythePenans.Immediatesolutionscouldnotbepromisedastheprocesswouldtaketime.He then thankedSUHAKAMfor raising this issueandassured that theStatewaswilling to look intothe matter. However, he pointed out that the success of programmes required the Penans to bereceptiveandreadyforchange.FEEDBACK ON SOCIO-ECONOMIC ISSUES

Issues on Documentation ArepresentativefromtheNRDstatedthatgiventhesocio-economicstatusandlocationofthePenanfamilies,thenormalrequirementtoproduceparents’ICsandmarriagecertificatesforapplicationofbirthcertificatesarenot imposed.12However,Penanfamilieswererequiredtoprovidecertificationfromtheheadsoftheirlonghouses.

TheNRDhasmobileunitstovisitPenansettlementsforregistrationwiththerecentvisitheldfrom17until20September2006toLongTanyitalongtheLinauRiver,Baram,Sarawak.

With regard to the communities in Long Singu and Long Jaik, he said that these areas could beproposedaslocationsfortheirnextvisit.However,theNRDwouldneedthelistofresidentsresidinginbothLonghouses.

ThisproposalwaswelcomedbySUHAKAMandwasagreedbytheDeputyStateSecretary.However,hesaidthattheNRDwouldneedtoascertainwhetherpersonsresidinginbothareaswereactuallyPenansassomeforeignersmaybelivingamongstthem.

ArepresentativefromtheStateHealthDepartmentthenhighlightedtheneedtoensurethatthenamesofmembersofthePenancommunitybespelledsuitablytoensureitreflectsthetruepronunciationof

12 However,basedonSUHAKAM’sdialogueswiththeaffectedPenanmembers,thattheirapplicationforICsandBCs,wereoftendeniedastheyhadnomarriagecertificatesandtheirparentsdonothave ICstosupportapplicationof ICsandBCs. Inaddition,giventheireconomicstatus,theycouldnotaffordtopaythefeesimposed.


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theirnames.Hethenreferredhisexperiencewherebyhisfather’snamewasspelledinfourdifferentwayswhenhisthreesiblingsandheappliedforregistration.

Issues on Education

TherepresentativefromtheStateEducationDepartmentexpressedhisconcernonthePenanchildrenwhodidnotattendschoolashighlightedbySUHAKAM.HethenexplainedthatgiventhePenan’ssocio-economicbackground,documents suchascertification from theheadsof longhousesandcliniccardsweresufficienttoenrolltheirchildreninschools.

Nevertheless,basedonhisexperience,asignificantnumberofPenanchildrenwhowereenrolledinschoolsdroppedout.Hethenexemplifiedsome:

• In2006,therewereatotalof126PenanchildrenwhoenrolledinSekolahKebangsaan(SK)LongGang,ofwhich106droppedout.Amongthefactorsidentifiedwerelackofsupportfromparentsandlackoftransportationtoschool;

• During the same year, 195 Penan children were enrolled in SK Lusong Laku, out of which 24droppedout.Amongthefactorsidentifiedincludepovertyandnointerestineducationamongstthechildren;

• Therewere160PenanchildrenenrolledinS.K.LongUrunin2006and26ofthemdroppedout.Themaincausewaspoverty.

Inaddition,in2006,somePenanchildrenwhowerewithoutdocumentationwereallowedtoenrollinschool,18childreninSKLongGang,20childreninSKLongUrunand34childreninS.K.LusongLaku.

HefurthersaidthattheyhadproposedtotheMinistryofEducationforaspecialcurriculumfortheindigenouschildrenwhichwouldallowthemtostayinprimaryschoolformorethantheusual6years,giventheireducationalneeds.Thiswouldalsoincludeperguruan khas,wherebyteachersamongstlocalsareemployed,andtheprogram waris,wherebyacommunityhousewouldbeestablishedtoallowparentstostaywhilewaitingfortheirchildreninschool.OtherprogrammesincludetextbookschemesandKumpulanAmanahPelajarMiskin(KUAM).Thelasttwoprogrammesmentionedwouldonlybeavailable forchildrenwithproperdocumentation.However, theDepartmenthadalreadymadeaproposalforspecialconsiderationforthePenanchildren.Ontheissueofover-agedPenanchildrenenrolledinprimarylevelsbasedontheirrespectiveage,heclarifiedthatthosechildrenwouldbeprovidedwithmulti-gradeeducationwherebychildrenwillalsobetaughtonsubjectsthattheyhavemissedouton.13

TheDeputyStateSecretaryaddedthat forPenanswhohadmissedschool, theycouldbetrainedonotherskills,forinstance,trainingonblacksmithingandagriculturewhichrequireslittleacademicknowledge.

Issues on Health

The representative from the Sarawak State Health Department firstly agreed with the findings ofSUHAKAMinrelationtohealthcareservicesintheconcernedarea.Heexpressedhisfrustrationonthefactthatthereislimitedaccesstohealthcareservicesamongstthiscommunity.

13 DuringtheDialogueattheMatuTugangLonghouseinLongJaikon18September2006SUHAKAMwasinformedbyaPenanmemberfromLongUrunthatsomePenanchildreninhisvillage,couldonlybeenrolledtoprimaryschoolatalaterage.However,therelevantschoolshadenrolledthesestudentstoprimarylevelsbasedontheirage.Forinstance,achild,whohadneverbeentoschool,hadbeenenrolledtoprimaryschoolattheageof10yearsold.Theschoolwouldthenplacethatchildtoprimaryfour,regardlessofthefactthatthatchildhadnoknowledgeofeducationusuallytaughtinpre-schoolandfromprimaryonetothree.Asaresult,somePenanchildrenfoundithardtocope,hence,droppedoutfromschool.

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Nonetheless,heemphasisedthatlimitedaccesstohealthcareamongstthePenanswascausedbytheirisolatedlocationandnotbecauseofanyformofdeliberatediscriminationtowardsthePenans.

He then informed participants on some of the programmes implemented by the State HeathDepartmentinitsefforttoenhanceaccesstohealthcarefortheindigenous,includingthePenans.Theyinclude:

Static Clinics – this is the most ideal way to ensure health care services are available to the

community. The prerequisite to the setting up of this clinic would be to have a minimum ofbetween1,000to1,500peopleinthearea;

TravelingDispensary–whenthepopulationsizestatedaboveisunmet,thetravelingdispensarywouldbethenextoption.Thiscouldbedonethroughvarioustravelingmodesincludingtravelbyboat;

FlyingDoctorService(FDS)–IftheTravelingDispensarycouldnotbeimplemented,theFDSwouldthenbethenestoption;

Village Health Promoter – health promoters are placed in the villages to assist in providinghealthcareservices.

TheFDS,inparticular,ismoreexpensivecomparedtotheothermodes.Thisserviceisdeployedonceineverytwomonths.However,thistoodependsonvariousfactorssuchastheweatherandhaze,whichmayforcetheFDStoskipthecycle.However,therepresentativefromtheStateHealthDepartmentsaidthatgiventhedifficulties,theFDShadmanagedtoprovidegoodcoverage.

Asforemergencyservices,therepresentativeaffirmedtothisneed.HoweveritwouldbedifficulttoensureaccessibilityofthisserviceamongstthePenans,giventheirscatteredandremotelocations.Forinstance,theMedicalEvacuation(MEDEVAC)ServiceisavailableforthePenans.However,theproblemliesonthecallingforthisservicebythePenansgiventhelackofcommunicationfacilitiesintheirvillages.Inaddition,emergencyservicesthroughtheFDSmaynotbeimplementedeffectivelyasPenanvillagesarelocatedinthedeepjungleandhelicopterlandingareasmightnotbeavailable.

Similarly,thenumberofambulanceavailableisverylimitedinnumber.ThereisonlyoneambulancewhichisbasedinSungaiAsap,Belaga.ThisambulanceisfrequentlysenttoBintuluforemergencycasesandtakesabout6hourstravelingtime.IfasecondemergencycallfromtheinteriorofBelagaisreceivedduringthefirsttrip,theambulanceisunabletoservethesecondemergencycallontime.

Finally,hehighlightedthathealthisrelatedtocleanlinessandthePenansneedtobeselfreliantonthis.HehighlightedapreviousexperiencewherebytheDepartmenthadgonetoaPenanvillageandhadplannedforagotong royongwhichwouldinvolvethePenans.However,thePenanshadrespondedbysayingthatsincetheGovernmenthadpaidthecivilservants,theywerethenresponsibletocleanthePenanlonghouse.

Issues on Security ArepresentativefromtheRoyalMalaysianPolice(PDRM)affirmedthattheywereoperatingwithlimitedmanpowerinBelaga.Theproblemisaccentuatedbypoorlogisticswithonly3vehiclesavailable–alandcruiser,alandroverandaPajero.ThesevehiclesarebeingusedbybothpolicepostsinBakunandSungaiAsap.HesaidthattheywereassistedbytheGeneralOrderForce.ThecaseshandledbythePDRMintheareaweremostlyloggingandlanddisputes.


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Poverty Eradication Programmes for the Penans

Allocation for Poverty Eradication Programmes for the Penans

TherepresentativefromtheSarawakStatePlanningUnit(SPU)clarifiedthatshewasonlymadeawareoftheexistenceofAlungJuLonghouseinLongSinguandMatuTugangLonghouseinLongJaik,atthedialoguewithSUHAKAMon13October2006.Therefore,shewasnotabletomakeanyspecificcommentonthetwolonghouses.

SheclarifiedthatthePenanshadbeenidentifiedashardcorepoor.ShethenbriefedSUHAKAMonsomeoftheeffortsbySPUtoaddressissueofpovertyamongstthePenansasawhole.SheexplainedthatundertheNinthMalaysiaPlan,theEconomicPlanningUnit(EPU)wasprovidedwithspecialfundingforpovertyeradicationprogrammes.TheSPUhadproposedtotheEPUatameetingon14September2006,thatsuchprogrammesbemadeavailabletothePenans.However,EPUhadinformedthemthatthefundinggiventoEPUwasstrictlyforeconomicorincomegeneratingprogrammeswiththeaimoferadicatinghardcorepovertybytheyear2010.SheexplainedthatifthePenanswereincludedunderthecurrentfunding,thetargetwouldnotbemetasEPUhadanticipatedthateradicationofhardcorepovertyamongstthePenansmighttakemorethanfiveyears.

SPUwas told toprepareaspecialpaper for special funding toaddress issuesofpovertyamongstthePenans.TheSPUiscurrentlyworkingonthispaper,assistedbytheMinistryofRuralandTerritoryDevelopmentandtheStateDevelopmentOffice.

Ingeneral, therewerethreeprogrammes implementedbytheStatefor thePenanswhich includeeducationrelatedassistance,grantsandaidsandPenanvolunteerstointroducechange.

Agricultural Related Programmes for the Penans

TherepresentativefromtheSarawakStateAgriculturalDepartment(SAD)agreedthatitwaseveryperson’ssocio-economicrighttohavethemeanstoearnhis/herlivelihood.

TheSADhaddealtwiththePenansresidingintheBelagaareainthepast,namely,thoselivingalongtheBelagaRiver,MurumRiverandLinauRiver.Hesaidthattherewasatotalof19settlementsrecordedinthesaidarea.

TheSADhadgivenminorassistancetothePenansintheformofseedsandfertilizersforplantingaswellastechnicaldevices.EachPenanlonghousewouldbegivenbetweenRM2,000toRM5,000worthofassistance.ThiswasprovidedforundertheEighthMalaysiaPlan.

Intermsofemployment,hestatedthattheSADisamongsttheagenciesabletoprovideagriculturalrelatedemploymentopportunitiesforthePenans.However,giventhatthePenansare intransitionfromshiftingtopermanentagriculture,thisprocesswouldbeslow.

ThePenanshavereliedonthejungletosustainthem.However,accesstojungleproduceisbecominglessavailabletothem.HebelievesthatplantationswouldbeidealforthePenans.ItcouldbepossibletoestablishplantationssuchasFELDAandSELCRAforthePenans.However,thiswouldneedabigarea.

ThePenanscouldoptforsmallholdingagricultureforfarmingthatrequiressmallerareascomparedtoplantation.However,thiswouldbedifficulttosucceedinremoteareas.

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AgriculturalrelatedpackagescouldbeintroducedtothePenans,however,thiswouldtaketimetodevelop.HeaddedthatthereshouldalsobeasystemofagriculturethatcouldaddressthePenansminimumbasicfoodsecuritywhichutilizesthenaturalenvironmentsurroundingthemwithouthavingtoimportfertilizersandpesticides.

Withregardtohillpaddycultivation,hesaidthatthisisnotsustainableasthisisdonebythePenanonsmallplotsoflandanddonewithininsufficientfallowtime.Heexplainedthatlandusedforhillpaddyfarmingwouldneedsufficientperiodoftimebeforethefollowinghillpaddyfarmingisdoneonthesameplotof land.This is toensureadequatefertility for farmingonthat land.At themoment, theGovernmentallowedthePenansstyleofhillpaddyfarming,sinceitwasnotedthatthecommunitydependsonthisforfood.

Role of the Sarawak Timber Association (STA)

TherepresentativefromtheSarawakTimberAssociation(STA)statedthathewasawareoftheissuesofthePenanshighlightedbySUHAKAM,namelyontheNCRissue.Atthetimeofthedialogue,hewasnotabletogivefeedbackonthespecificissueshighlighted.However,heassuredthatthiswouldbegiventoSUHAKAMinwritinglater.

HetheninformedrepresentativesofthedialogueonthegeneraleffortsbytheSTAwhichincludesthefollowing:

CodeofPractice–theSTA’sruleofthumbisthatwhentheycarryoutloggingactivitiesinanarea,theywouldemploythelocalsofthatarea.However,oneproblemonthisisthatasinformedbythelocals,theywerenotfamiliarwiththedisciplineofeconomicventuressuchasbeingpaidfortheirwork;

SocialCorporateResponsibility–budgetsofGLCcorporatesocialresponsibilityweresetasidetoprovidesocialandwelfareassistancetothelocals.

AmongtheproblemsconfrontedbytheSTAwhendealingwithissuespertainingtothelocalsincludethefollowing:

• Loggingmemberswouldnothavetheskillandknowledgeonhowtocommunicate,negotiateanddealwiththelocalcommunity.ThisissuewasrecognisedbytheSTAandwasthushighlightedtotheirexpertadvisorygroup.TherepresentativefromtheSTAwelcomedanyassistancefromthosepresentattheSUHAKAMdialogue;

• Since logging members do not have such skills, companies like Shin Yang ended up spoilingthelocalsbygivingmoneyandotherhandoutsinsteadofassistinginselfrelianceprojectsandprogrammes;

• Theprovisionofbudgetsforsocialcorporateresponsibilitywasdone‘undertheradar’toavoidlocals from relying on handouts without having the sense of self reliance. He then said thatself-relianceprogrammeswouldbemost ideal.However, loggingmembersdidnothave thenecessaryknowledgetoimplementthis.

Conclusion of Dialogue with Representatives of State Government Agencies

The Meeting with representatives of State Government agencies concluded with representativesagreeingtogivetheirfeedbackonthespecificissueshighlightedbySUHAKAMbasedontheclaimsmadebytheaffectedPenans.14

14 TheStateGovernmentResponsesontheissuesoftheaffectedPenansisattachedasAnnexure7.


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TherepresentativesfromtheNationalRegistrationDepartmentalsoagreedandwerefurthersupportedbytheDeputyStateSecretarythatadelegationbesenttoLongJaiktoinvestigateontheissueofnon-documentationamongstaffectedPenanmembers.Thetentativedateforthisison17-18November2006.

IV. DIALOGUE WITH DATO’ SRI ABANG HAJI ABDUL RAHMAN ZOHARI, MINISTER IN CHARGE OF THE PENAN COMMUNITY’S WELFARE

TheMeetingwithDato’ SriAbangHajiAbdulRahmanZohari, theMinister inchargeof thePenanCommunity’swelfare,whowasalsotheMinisterofHousing,Sarawak,wasattheMinistersOfficeinKuching,Sarawak.TheMeetingwiththeMinisterwasaimedatascertainingtheGovernment’sroleinprotectingtherightsofthePenanCommunityinSarawak.

Tuan Haji Fatihi and Puan Mareia Hassan from the State Planning Unit were also present at theMeeting.

TheDialoguebeganwitha short introductionby the TeamLeaderof SUHAKAM’sdelegationandabriefingon the issues raisedbymembersof thePenancommunityduring SUHAKAM’s visits anddialoguesinLongSinguandLongJaik,Belaga,Sarawak.Adiscussionsessionfollowedthereafter.

DISUCSSION SESSION

ThediscussionwiththeMinisterissummarisedasfollows:

Penan’s Right to Development

The Minister recognised that the Penan community, like other communities, had the right todevelopment.ThedevelopmentofthePenanCommunitywasbeingmonitoredbytheSarawakStatePlanningUnitandtheStateSecretary’sOfficeatthestatelevelandbytheresidentordistrictofficeattheDivisionlevel.

WithregardtoactivitiescarriedoutbytherelevantCompany,whichraisedseveralissues,particularlyonitseffecttowardsthePenancommunity,heexplainedthatitwastheresponsibilityoftherelevantStateandLocalGovernmentagenciestomonitortheimplementationofactivitiesbytheCompany.

HeaddedthattheGovernmenthadnointentionoftakingallthelandandwassensitiveabouttheproblemsfacedbythePenanbutthattheGovernmenthadtocarryoutdevelopmentactivities.

However,heacknowledged that thePenanmightconsider the landwhere theywere residingastheirsandsaidthatthePenansviewoflandownershipwasnotsimilartothatoftheGovernment’s.

Programmes to Encourage Change

AmajorityofprogrammesplannedandimplementedbytheGovernmentwereaimedtoencouragechangeamongstmembersofthePenancommunity,specificallyintermsoftheirwayoflife.Amongthe programmes is the establishment of ‘communities’ in charge of the well-being of the Penancommunityandservicecentres.

Theestablishmentofthe‘communities’andservicecentres inanumberofareas inSarawakwereaimedtoencouragemembersofthePenancommunitytoreside inapermanentandcentralisedsettlement.Hence,servicescanbeeasilydeliveredtomembersofthePenancommunity.Inaddition,

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thesecommunitiesandservicecentresarealsoresponsibleforinstillingthemodernwayoflifeamongstmembersofthePenancommunity.

However,someoftheseeffortshadencounteredproblems,specificallywhentheeffortsconflictedwith the Penan culture. For instance, the Government had established a service centre in LusongLaku,Belaga.AmongthetasksofthecentrewastoteachmembersofthePenancommunitytorearchicken fordomesticconsumption.However,becauseof thePenan’sviewtowardschicken, theyrefusedtoeatpoultry.15Thiseffortwenttowastewhenallthechickendied.

Provision of Basic Facilities and Amenities

The Minister believed that with the provision of adequate facilities and basic amenities, membersof the Penan community would be able to accept changes to their way of life. Hence, theGovernment had also resorted to making agreements with the Penan community to encouragepermanentsettlements.Forinstance,membersofthePenancommunityinSuai,Sarawak,agreedtotheGovernment’sproposalthattheylivedinapermanentandcentralisedsettlement.Inreturn,theGovernmentprovidedthemwithlandandotherbasicamenitiesandfacilities–suchaselectricityandwatersupplyandconstructionofroads–thatcouldencouragetheirdevelopment.

WithregardtothelandlicensedtoShinYangForestrySdn.Bhd.,theMinisterexplainedthatsincethedevelopmentoftheareawasrecent,facilitiesandamenitieshadyettobeperfected.However,hebelievedthatmoredevelopmenteffortswouldbebroughttothisareainthefuture.

Nonetheless,theMinisterremindedthatmembersofthePenancommunitytoo,havetheresponsibilitytomaintainfacilitiesandamenitiesprovidedforthem.HereferredtoanincidentinMulu,whenthelateTunGhafarBabawasscheduledtoofficiateaprogrammethere.Organisersoftheprogrammeadvisedtheresidentsofalonghousetocleanthelonghouse.TheyrespondedbysayingthatsincethelonghousewasprovidedbytheGovernment,itisthentheGovernment’sresponsibilitytoensurethatthelonghouseisclean.TheMinisteremphasisedthattherewasaneedforawarenessprogrammestoeducatemembersofthePenancommunityontheirsocialresponsibilities.

Awareness Programmes

TheMinisteracknowledgedthatchangewouldtaketime.Therefore,thebesttargetgrouptoeducatethebenefitsofchangewouldbetheyoungergeneration.AwarenessprogrammesamongstyoungergenerationswasanotherefforttakenbytheGovernmenttoencouragechangeamongstmembersofthePenancommunity.

Provision of Schools

The Government acknowledges that the Penan community had close family relationship, whichsometimesresultedintheirrefusaltosendtheirchildrentoschool.Therefore,houseswerebuiltnearschoolareassothatparentcouldbeclosewiththeirchildren.ThiswasdoneforaschoolinLusongLaku.

Inaddition,assistance,suchastransportationforPenanchildrenwasalsoaccordedtoencouragethemtoattendschool.However,Penanchildrenoftendidnotshowupwhenthepick-uptransportarrived.

15 SUHAKAMwasinformedthatthePenanshavecloserelationshipandtreatedchickensaspartoftheirfamily.


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Inaddition,earlymarriagesalsocontributedtodropoutamongstPenanchildren. ItwassaidthatPenanchildrenwouldbemarriedbetweentheagesof9–13years.

Despite this, the Minister highlighted that there were members of the Penan community who hadreached and completed secondary and tertiary education. This indicated progress made by thecommunity.

Documentation of Members of the Penan Community

DocumentingmembersofthePenancommunityhaditsobstacles.TheMinisterexplainedthattheRegistration Department had organised late registration programmes. However, members of thePenancommunityoftendidnotshowup.

Inaddition, ICs readytobecollectedwereneverclaimedbymembersof thePenancommunity.However,theMinisterrecognisesthefinancialburdenoffeesandtransportationcosts.

Another problem faced by the National Registration Department was to ensure that those whohad registered were indeed Malaysian citizens and not indigenous communities from Kalimantan,Indonesia.

PARTICIPANTS OF THE DIALOGUE WITH REPRESENTATIVES FROM RELEVANT GOVERNMENT AGENCIES

Dialogue with Representatives from Government Agencies, District Level, Belaga District Office, 19 September 2006

• TomHemMijod,BelagaDistrictOfficer • HawingYah–S.K.LongGang,Belaga

• NasirBinSalam–JabatanPelajaranNegeriSarawak

• Ismawi Hj. Bujang – Pejabat PelajaranGabunganBahagianBintulu

• Shirini Masture Mohd. Zulkifli – PejabatPelajaranDaerahKecilBelaga

• Wendy Martin – Natural Resources andEnvironmentalBoard,Bintulu

• Abu Hanifah B. Ismail – Natural ResourcesandEnvironmentalBoard,Bintulu

• Danel Empun – Natural Resources andEnvironmentalBoard,Bintulu

• Maties Matios – Natural Resources andEnvironmentalBoard,Bintulu

• Kain Ding – Pejabat Pelajaran GabunganKapit

• JanongBegelia–SK.LusongLaku,Belaga • DawitIbang–penghulu,UmaBakali,SungaiAsap,Belaga

• DavidYong–ShinYangForestrySdn.Bhd. • AndyWong–ShinYangForestrySdn.Bhd.

• Wong King Hing – Shin Yang Forestry Sdn.Bhd.

• Wong Tho Ang – Shin Yang Forestry Sdn.Bhd.

• TingKhaiSik–ShinYangForestrySdn.Bhd. • Anthony Edes – Shin Yang Forestry Sdn.Bhd.

• Joseph Wong – Shin Yang Forestry Sdn.Bhd.

• BobbyWu–ShinYangForestrySdn.Bhd.

• LangitBir–GuruBesar,SK.BatuKeling

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Dialogue with Representatives from Government Agencies, State Level, Kuching, Sarawak, 13 October 2006

• Dato Wilson Baya Dandot, Deputy StateSecretary

• Datuk J.C. Fong, Sarawak State Attorney-General(SAG)

• Mr.TomHemMijod,BelagaDistrictOfficer • SACIIKhairiJaafar,RoyalMalaysianPolice

• ASPJulaihiTahir,RoyalMalaysianPolice • TuanHajiAliYusop,SarawakStateForestryDepartment

• Mr. Danny Chua, Sarawak State ForestryDepartment

• Dr. Yao Sik King, Sarawak State ForestryDepartment

• Mr.JustineJokJau,NaturalResourcesandEnvironmentBoard,Sarawak

• Mr. Barney Chan, Sarawak TimberAssociation

• Ms.RuthBully,SarawakTimberAssociation • Ms. Celina Yong, Sarawak TimberAssociation

• Mr. Hardi B. Fadillah Hamzah, Land andSurveyDepartment,Sarawak

• Mr. Mohd Omar , Land and SurveyDepartment,Sarawak

• Dr. Andrew Kiyu, Sarawak State HealthDepartment

• Mr.HassanYusof,MinistryofPlanningandResourceManagement,Sarawak

• Mr. Christopher R. Unting, Chief Minister’sDepartment

• Mr. Paul Vincent Ritom, Sarawak StateAgriculturalDepartment

• En. Sopian Tarmizi, Sarawak SAGsChamber

• Ms.DewiRahmazMajidi,SAG’sChamber

• Ms.MareiaHasan,SarawakStatePlanningUnit

• Mr.FredrickJohna/lGeorge,SarawakStatePlanningUnit

• Ms. Rodziah Haji Mushidi, Sarawak StatePlanningUnit

• Dr. Haji Julaihi Haji Buang, NationalRegistrationDepartment,Sarawak

• Ms. Shirini Mastura Mohd. Zulkifli, NationalRegistrationDepartment,Sarawak

• Ms. Sakeran Osman, National RegistrationDepartment,Sarawak

• Ms. Haminah Lek, National RegistrationDepartment,Sarawak

• Ms. Ruth Sigar, National RegistrationDepartment,Sarawak

• Mr. Abu Bakar, National RegistrationDepartment,Sarawak

• Mr.YahyaBinHassan,NationalRegistrationDepartment,Sarawak

Dialogue with the Minister in charge Of Penan Affairs, Minister’s Office, 13 October 2006

• Dato’SriAbangHajiAbdulRahmanZohari,MinisterinchargeofPenanAffairs• TuanHajiFatihi,SarawakStatePlanningUnit• PuanMareiaHassan,SarawakStatePlanningUnit


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7. DIALOGUE WITH NGOS, ACADEMICIANS AND CONCERNED INDIVIDUALS AND OTHER BRIEFINGS AND SUBMISSION

I. INTRODUCTION

TheDialoguewithrepresentativesofNGOs,academiciansandconcernedindividualswasorganisedon14October2006inKuching,Sarawak.TheaimoftheDialoguewastoobtainviewsontheplightofthePenans.

Besides the Dialogue with NGOs, academicians and concerned individuals, SUHAKAM was alsobriefedbyresearcherswhowerefamiliarwiththebackgroundandplightofthePenan,namelyDr.KhooKayJin,Mr.JaylLangub,andDr.PeterBrosius.

II. DIALOGUE WITH REPRESENTATIVES FROM NGOs, ACADEMICIANS AND CONCERNED INDIVIDUALS

The Dialogue on 14 October 2006 was attended by representatives from the Orang Ulu NationalAssociation(OUNA),AngkatanZamanMansang(AZAM),UniversityMalaysiaSarawak(UNIMAS)andotherconcernedindividuals,includingtheAssemblymanofN57BelagaY.B.En.LiwanLagang.16

The Dialogue began with a welcoming note by Datuk Dr. Denison Jayasooria, followed by apresentationonthefindingsofSUHAKAM’svisitsanddialoguesinLongSinguandLongJaik,Belagaon18September2006byDr.MohammadHirmanRitomAbdullah.Anopendialoguesessionfollowedthereafter.

Atthe,Mr.JaylLangub,aresearcherfromUNIMAS,briefedparticipantsonthehistoricalbackgroundofthePenanswhichhighlightedtheirexistencewithintheUsunApauPlateauaswellasontheissuesraisedbythePenanofSepingandDanumRiversandthe5villagesofthePenaninupperBelagaRiver.

VIEWS ON PENAN’S CLAIM TO LAND

Traditional Claim on Land

ArepresentativefromUNIMASsaidthatbasedonthePenanculture,ownershipoflandisestablishedbywayofmanagingandharvestingforestproduceinsteadofclearinglandforcultivationasprovidedintheSarawakLandCode1958.

Therefore,thecurrentmethodusedbytheGovernmenttodefinetheeligibilityofNCRlandclaimsis inadequate as it fails to recognise the traditional culture of ownership and stewardship of landamongstthePenancommunity.Asaresult,membersofthePenancommunityhadlosttheirclaimtoancestralland.

Therefore,itisimperativeforlawsdeterminingNCRlandtotakeintoaccountthedifferentculturesofdifferentethnicgroupsoflandownership.

16 ThelistofparticipantsbetweenSUHAKAM’sdialoguewithNGOs,academiciansandconcernedindividualsisattachedasAnnexure3

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Additionally, a mere aerial view of land to determine whether land has been cultivated may beinsufficientsincethismethodmayfail toseeactivitiesdonebymembersof thePenancommunityundertreesintheforest.

AconcernedPenanmemberagreed to this andexemplifiedwith thecommunity in his village inLong Lamai, Baram. He explained that the Penan community in Long Lamai, were amongst thefirstcommunities thatsettled.However, thesettlementwasonlyestablishedafter1958.Small scalecultivations such as rice farming only began in the 1960s. Therefore, based on the Sarawak LandCode1958,thevillagershavenoclaimontheirancestrallandundertheNCR,despitebeingoneofMalaysia’soriginalinhabitants.

Identification of NCR in the EIA Report

ParticipantsoftheDialogueagreedthattheresponsibilitytoascertainlandclaimsinthearealicencedtoShinYang isof theGovernment’s. TheGovernment shouldnothave transferred this task to theCompanyastheGovernmentisobligatedtoprotecttherightsofitscitizens.

WithregardtotheEIAReportonLPF/0018,participantsfeltthatitwasnecessaryfortheGovernmenttoscrutiniseandverifytheinformationgivenbytheConsultantappointed.

Inaddition,participantsagreedthatanyEIAreportshouldbeopenforpublicscrutiny.Notonlydoesthisenableparticipationofaffectedmembersandthepublicasawhole,itwouldalsoensuretransparencyof theGovernmentandtheprivatecompanies involved.AnotherparticipanthighlightedtheHighCourtofSabah&Sarawak,KuchingcaseofNorAnakNyawai&Ors.v.BorneoPulpPlantationSdn.Bhd.&Ors.wherebyJusticeIanHCChinraiseddoubtsonthequalityofprovisionallicenceswhentheresponsibilitytosortoutNCRissueswaslefttotheCompanyandnottheGovernment.

The participant felt that provisional licence should be reviewed since allowing private companiesto sort out NCR issue might prejudice members of the indigenous community since these privatecompaniesareprofitorientedandtherightsofthecommunitymightnotbeprioritised.

Land Claims by the Penans from Shin Yang

TheAssemblymanofN57BelagasaidthathewasawareoftheissuebetweenShinYangandmembersofthePenanCommunityinBelagaandhadhighlightedthisduringthelastStateAssemblyseating.However, no feedback was given at that time. The issue would be brought up again at the nextseating.

HehadalsoarrangedameetingwithrepresentativesfromShinYanginMiritodiscusstheissuesoflandclaimsbyaffectedPenans.Inaddition,themeetingwouldalsoattempttoaskforallocationoflandfortheaffectedPenans.

VIEWS ON OTHER SOCIO-ECONOMIC ISSUES

Issues on DocumentationUndocumented Penan Members

AconcernedPenanparticipantpointedoutthatabout40%ofthePenansinhisvillageinLongLamaiwereundocumented.HealsobelievedthatthereweremoreintheinteriorpartsofSarawakthatfacethesameproblem.Theparticipantsaidthatacontributingfactorwhichledtonon-documentationwas the unavailability of registration office near Penan villages. They depended on visit from the

DIALOGUES WITH NGOs, ACADEMICIANS AND CONCERNED INDIVIDUALS

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NationalRegistrationDepartmentOfficertothevillages.However,hepointedoutthatthe lastvisitfromtheRegistrationDepartmenttoLongLamai,Baram,wasin2001.

Unaffordable Travel Costs

Since there is no registration office near Penan village and visits fromOfficers of the RegistrationDepartmentisseldom,somePenanvillagersinhisvillagehadtotraveltoMiritoapplyforICsandBCs.However,mostofthePenancouldnotaffordthecostassociatedwithtravellingtoMiriwhichwouldtakeuptoninehoursdriveatacostofuptoRM800.

ApplicationforBirthCertificates(BCs)

APenanrepresentativesaidthatPenanfamiliesalsofacedproblemswhenapplyingfortheirchildren’sBCs. For application of BCs, the Registration Department requires pares to produce their ICs andmarriagecertificates.However,heemphasisedthatmostofPenanparents’themselvesdonothaveICsduetovariousreasons.Additionally,mariagesamongstPenanmembersaremerelysolemnisedbyrespectiveheadsoflonghouseswithnomarriagecertificatesgiven.

Impact of Non-Documentation to Data on Poverty

ArepresentativefromUNIMASpointedoutthatthemajorimplicationofnothavingvalidICsandBCsisthattheymightbeexcludedfromtheCountry’sdataonpovertywhichisimportanttoensurepovertyeradicationprogrammesreachdisadvantagedgroups.

Documentation assists Government and Company

The UNIMAS representative then highlighted the importance of ICs and how this could assist theGovernmentandCompanyinidentifyingandtrackthepenansandtheirlocationofsettlements.ThiswouldthenverifytheclaimsthatsomePenanswouldmoveandsetupnewsettlementsinloggingareasandclaimthenforcompensation.

Documentation of the Orang Asli in Peninsular

TherepresentativefromUNIMASpointedouttheattentionandeffortsbytheGovernmenttoensuremembersoftheOrangAsliCommunityinPeninsularMalaysiaaredocumented.HefeltthatthesameshouldbeaccordedtothePenansaswellasotherindigenouscommunitiesinSarawak.

Issues on Education

School Fees

According to the Penan representative, during his time in primary and secondary school, Penanchildrenhadeasieraccesstoeducationsincetheywereabletoattendschoolevenwhentheywereunabletopayforschoolfees.However,duringhislastvisittohisvillageinLongLamai,manyPenanparentscomplainedthattheyreceivedlettersfromtheschooladministrationaskingthemtopayfeeswhichtheycouldnotafford.Cost of Transportation

Inadditiontoschoolfees,thePenanrepresentativealsohighlightedthatparentsfromPenanvillagescouldnotaffordthecostoftransportationtosendtheirchildrentoschool.Althoughsomechildrenwouldstayinboardingschools,theywouldneedtransportationbacktotheirvillagesduringholidays.

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Sincethiswasnotavailable,Penanchildren,asyoungas10yearsold,wereforcedtowalkthroughtheforestbythemselvestoreturnhome.

Financial Assistance for Penan Students

The Penan representative also said that financial assistance should be easily accessed by thedisadvantagedPenanchildren.Hehopedthat the relevantGovernmentagencyensures that thisfacilityreachesthePenanchildren.

TheAssemblymanof N57 Belaga respondedby assuring that financial assistance could be easilyobtainedforPenanchildrenattheprimaryandsecondaryschool,aslongastherespectiveschoolheadmastersapply for this facility.Heexplained thatduringhis timeasa teacher in LongTangai,Belaga,allchildren,includingPenanchildrenwereprovidedwithscholarships.Theproblemwasthatafterreceivingthescholarship,somePenanchildrenleftschool.

Reluctance of Penan Parents to Leave Their Children in School

TheAssemblymanofN57Belagahighlightedthatduringhisserviceasateacher,Penanparentswerereluctant to part with their children. He would often see Penan parents taking their children fromschoolbeforeschooltimewasover.Theywoulddothisbecausetheirchildrencriedandrefusedtostayinschools.Attimes,hewouldarguewithparentsjusttoensurethatchildrenarenottakenawayduringschoolperiod.

APenanrepresentativeagreedtothis.HoweverhebelievedthatthisattitudehasgraduallyshiftedaswasthecaseinhisvillageinLongLamai.HefeltthatPenanparentsweremorewillingtopartwiththeirchildrenthesedays.

Stigma amongst Penan Children

AnotherPenanrepresentativesaidthatotherfactorsthatledtothereluctanceofPenanstoattendschoolwereasfollows:

• Stigmaamongstpenanchildrenwhoare treateddiscriminatelybychildren fromotherethnicgroups.Penanchildrenwereshamedandcalledbyrudenames;

• Penanchildrenwereoftenvictimsofthreatsandbullies.

ThePenanrepresentative,nowastudentinUNIMAS,saidthathewasgratefulthatheknewtheKayandialectandusedthisdialectduringprimaryandsecondaryschool.HisschoolmatesassumedthathewasKayan.

Commitment of Teachers

ThePenanrepresentativequestionedthecommitmentofteacherspostedinschoolslocatedintheinteriorofSarawak.Hesaidthatduringhis recentvisit inLongLamai,Baram,manyPenanparentscomplained and said that their children did not learn anything from school. Parents were furtherinformedbytheirchildrenthatsometeacherswouldinstructstudentstostayinclassanddotheirownworkwhiletheteacherswentbacktotheiroffice.

Healsoclaimedthatduringhisrecentvisittohisvillage,hesawteachersplayingtabletennisoutsideaclassroomwhilechildrenwereinsidetheclassroomunattended.


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The Assemblyman of N57 Belaga agreed that commitment amongst educators is important forthedevelopmentofPenanstudents.He illustrated thisby referring tohispreviousexperienceasaheadmasteratS.K.LusongLaku,Belaga.HesaidthattheteacherswerecommittedinhelpingthePenanchildrenbyprovidingextrateachinglessonsforthem,especiallyforstudentswhowereenrolledatprimarylevelsaccordingtotheirage.Forinstance,aPenanchildaged9yearsold,andwasenrolledtoprimarythreewithouthavingknowledgeonthelessonslearntinprimaryoneandtwo,wouldbegivenextraschoolsessionstoensurethathe/shecouldcatchupwithotherchildrenofhisage.

Misconception on Employment after School

ThePenanrepresentativesaidthatsomePenanparentshadthewrongperceptionthattheirchildrenwereguaranteedemploymentuponcompletionoftheirstudies.

Survival of the Penan Community

Limited Access to Forest Area

ThePenan representative said that theknowledgeofcultivationamongstmembersof thePenancommunitywaslimitedtosmallscalefarming.Penanfamiliesstillreliedonjungleproduceespeciallywhenharvestyieldispoor.

ParticipantsofthedialoguethenagreedthatdeniedaccesstoforestareabyShinYangmaybringnegativeimpacttowardsthesurvivalandlivelihoodofthePenancommunity,sincetheydependedheavilyonjungleproducefortheirfoodsupply.

TherepresentativefromUNIMASaddedthatlimitedfoodsourceresultsinmalnutrition.Hereferredtotherecentmeaslesepidemicthatkilled13Penanchildrenandanadult.Heemphasisedthatmeaslescouldonlycausefatalitywhenapersonismalnourished.

TheAssemblymanofN57BelagasaidthatapartfrommembersofthePenancommunity,Governmentofficialswerealsonotpermittedtoenterthearea.Herelatedhisfirsthandexperienceonthis.

Rearing of Livestock

TotheclaimthatPenansdonoteatpoultry,thePenanrepresentativesaidthatthishaschangedandpoultryhasbecomepartofthePenan’sdiet.

Penan Volunteer Corp (PVC)

ArepresentativefromUNIMASexplainedthatthePVCprogrammewasimplementedin1987andwasactivewiththesupportofcommittedstaffwhomaderegularvisitstoPenanvillagesandwascloselymonitoredbytherelevantauthority.However,heopinedthattheprogrammehadlostitseffectivenesswhenmonitoringbecameinconsistentandvolunteerswereleftwithoutthenecessaryassistance.Forinstance,previously,thePVCmembersweregivenTNTallowancesfortravelingpurposes.However,theprovisionofthisallowancewasstopped.Withoutthisallowance,thePVCmemberswereeitherunableorunwillingtotravelsincethecostoftravelingtotheinteriorpartsofareassuchasBaramandBelagaisveryexpensive.

AnotherrepresentativefromUNIMASaddedthattheGovernmentshouldnotusescarceresourcesasareasonfortheineffectivenessofthePVC.Heremindedparticipantsthatinpreviousyears,whenbothfinancialandhumanresourcewasmuchlesser,effortstoensureassistanceandservicesreach

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theindigenouscommunitiesinSarawakweresuccessful.Therefore,morecouldbedonewithabiggerpopulationandrichereconomythanbefore.

TheAssemblymanofN57Belagaagreedtothis.However,hebelievedthattherewereothercausesforthePVC’s ineffectivenesssuchasthePenan’s resistancetochange.HeexplainedthathehadjoinedseveralmeetingsessionsofthesaidPVC.Forthefirsttwoyears,membersseemedenthusiasticoftheprogrammestheyhadcarriedout.However,afterthesecondyear,itseemedthatmembersofthePVChadgivenupastheyfeltthattheywereunabletoinstillchangeamongstthePenans,despitevariousassistanceandencouragementgiventothecommunity.

RECOMMENDATIONS BY PARTICIPANTS

Access to Information

ThePenanrepresentativesaidthatmostPenanstudentswhohadcompletedsecondaryschoolwerenotawareofafterschooloptionsandtheproceduresinvolvedinapplyingtheseoptions.

He,therefore,recommendedthattherelevantDistrictOfficeorganiseaprogrammeforinformationdisseminationonoptionsaftersecondaryschool,includingtertiaryeducationandemployment.Thisshouldincludeinformationonwheretoobtainapplicationforms.

Technical Training for Penans

ThePenanrepresentativefeltthatPenanyouthsshouldbegivenaccesstoskillandtechnicaltrainingsinceonlyahandfulweresuccessfulintheirstudies.

Revival of the PVC

The Penan representative highlighted that the PVC introduced by the Government was a goodprogramme which encouraged change in the Community. However, this programme was not asactiveasbefore.Herecommendedthatthisprogrammeberevived.

Government and Company to Provide Amenities

The Penan representative recommended that the Government, with the help of the Company,ensurestheavailabilityofschools,roadsandtransportationfacilities.

Need for Effective Communication

ArepresentativefromUNIMASsaidthattoensureeffortscarriedoutaresuccessful, it is thecrucialtoensuretwo-waycommunication. Information,viewsandconcernsfrombothsidesofthepartiesmustbeheardanddeliberated.Thereistheneedformoredialoguesbetweenauthoritiesandthecommunitiesinvolved.

Role of the Media

TheroleofthemediaiscrucialtoensureissuesofmarginalizedanddisadvantagedgroupssuchasthePenansarehighlightedparticularlytotherelevantauthoritiestoenablethemtoaddresstheissues.


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Need for a Balanced Development Approach

ThecurrentmodelofdevelopmentinMalaysiaisurban-biasedwhichfocusesonurbaninfrastructureandotherdevelopmentwhichhad,unfortunately,lostsightoftheruralneeds.

There is, therefore, a need for the Government to ensure that there is balanced development asthequalityoftheCountry’scivilizationwillbejudgedbasedontheimprovementofdisadvantagedcommunities/groupsandnotmerelyonwhattheCountryhasachievedeconomically.

III. BRIEFINGS AND SUBMISSIONS TO SUHAKAM

SUMMARY OF THE BRIEFING TO SUHAKAM ON VARIOUS ISSUES RAISED BY THE PENAN OF SEPING, PLEIRAN AND DANUM RIVERS, AND ALSO THE 5 VILLAGES OF PENAN IN UPPER BELAGA RIVER BY MR. JAYL LANGUB, LOCAL RESEARCHER, UNIMAS.17

Mr.JaylLangubbeganbyhighlightinghispriorconversationswithPenanmemberswhowereaffectedwiththeconversionofalargeareaoflandintheSepingandPleiranRiversintooilpalmplantation,namely itseffectsontheir livelihood, land,andsecurity.ThePenansalsohighlighted issuesontheircitizenship,education,andhealthascitizensofthiscountry.

Heexplainedthatatotalof8longhouseswith1,160Penanmemberswereaffectedbytheconversionof land.Hecontinuedbyhighlighting thenameof the8 longhouses,doorof longhousesand thepopulationofeachlonghouses.

HethennarratedthehistoricalbackgroundoftheaffectedareawhichwasalsoknownastheUsunApau18andthepreviouscommunities,includingtheKenyahsubgroupsandKenyahrelatedpeoples.HeexplainedthattheOxfordExpeditionin1995hadidentified6oldlonghousesitesintheUsunApauarea, including LongJaik. Theseoccupants,however,movedaway in the late19thandearly 20thcenturytoescapeIbanraids.

AfterthefleeingoftheKenyahcommunityfromthemainriversystem,thePenansmoveddownriverandoccupiedtheplaces leftbytheKenyah.Hesaidthatthe8settlementsofPenans intheareahadnevermovedawayfromtheUsunApau.However,asnomads,theywouldmovefromoneriversystemtoanotherasfarasDapoi intheTinjar,buthadalwaysreturnedtotheSeping,PleiranandDanumarea.HethenreferredtotheOxfordExpeditionin1955,wheremembersoftheexpeditionmetwith5groupsofPenanswithintheUsunApau.Hefurtherexplainedthedivisionoftheinitial4groupsofPenanswhoaretodaydistributedamongexisting8settlements,whilethefifthgroupmovedtotheSilatinBaramDistrict.

Mr.JaylLangubthenpresentedagenealogicalchartthatamongothers,showedtheancestorsofChiefMatuTuganguptoeightgenerations.

He moved on to explain the human activities in the area which was first cultivated by shiftingcultivators, and how it was left to the nomadic Penans to manage and nurture. The Penans hadexercised stewardship rightsover theareaand theyhadharvestedandpreserved resources. Thestewardshiprightswerepasseddownthroughgenerations.AlthoughmostofthePenansaresettlednow,theystillrelyonjungleproducefordomesticuseandtrade.ThejunglealsoprovidesthePenanswithmedicine.

17 ThefullversiononthebriefingbyMr.JaylLangubisattachedasAnnexure4.18 TheUsunApau isanoldvolcanicplateauat thehead-watersof theRajang,Sarawak’s largest river. SeedefinitionbyGuyArnoldat

http://links.jstor.org/sici?sici=0016-7398(195706)123%3A2%3C167%3ATUAP%3E2.0.CO%3B2-O

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AsthePenansonlysettledafter,anddidnotclearlandpriorto1985,theywerenotentitledtoNativeCustomaryLandRightsasprovidedbytheSarawakLandCode1985.Nonetheless,thePenanshaveestablishedconcepts,suchasmolong, pemakai menuaandtana’ menguripsimilartothoseoftheIbans, which in view of the case of Nor Nyawai & Ors vs. Borneo Pulp Plantation Sdn. Bhd. & Ors(2001)isconsideredcustomarylandrights.Further,theSarawakLandCode(Cap.81)section5(2)(f)stipulatesthatcustomarylandrightscanbeestablishedby“anyotherlawfulmethod”.TheconceptsandpracticeofthePenanscouldbeconsideredas“anyotherlawfulmethod”.

Mr.JaylLangubmovedontohighlightotherissuesfacedbythePenans.Theyincludethefollowing:

Citizenship

AlthoughthePenanshavebeenlivingintheSeping,PleiranandDanumforgenerations,onlyahandfulhaveidentificationcards(ICs),despitethefactthatduringtheBrooke’sregimeandthecolonialtimes,thePenanspaidheadtax.Itisbelievedthattheypaidwithrattanmatsandbaskets.

Inaddition,thePenans,duringearlyelectionsforParliamentandStateLegislativeAssembly,exercisedtheirrightstocastvotesdespitenothavingICs.

ManyofthosewhoappliedforICswererejectedforlackofsupportingdocuments.Consequently,Penan babies born could not be registered since their parents did not have ICs and marriagecertificates.

Education, Agriculture and HealthMr.JaylLangubexplainedthatduringhistenurewiththeStatePlanningUnit,hehadproposedforaservicecentreinLongLuar–includingaprimaryschool,ruralclinicandagriculturalstation–toserve8Penansettlements.Yearslater,hewasaskedtofindalternativesitesfortheservicecentresinceLongLuarwasconsideredremote.Althoughhehaddonethisinthe1990s,therehasbeennodevelopmentsince.

SUMMARY OF THE BRIEFING PAPER ON THE PENAN AND THE EIA FOR THE SHIN YANG FOREST PLANTATION BY DR. KHOO KAY JIN, INDEPENDENT RESEARCHER.19

Dr. Khoo Khay Jin’s briefing focusedon the social component of the EIA report for the ProposedShinYangForestPlantationlocatedbetweenBatangBelagaandSg.Murum,Belaga,KapitandtheprovisionsoftheLicenceforPlantedForest(LPF/0018).

Theaimofhisbriefingwas to show that theLicenceeand/orhisappointees failed toconductacomprehensiveEIA,specificallyonthesocialcomponent.Thisledtotheirfailuretoobservethenativecustomaryrightsofthepeople,specificallythePenansinthatarea,andhadeffectivelydispossessedthePenansoftheirbasicrights–inparticulartheirsocialandeconomicrights.ThebriefingbeganwithabriefdescriptionofthelocationandtenureoftheplantationunderthesaidLicence.

Dr. Khoo moved on to highlight several conditions of the Licence, of which condition 8(2)(e) oftheLicenceprovidesthattheCompanytakesonthetaskofobtainingwrittenevidenceofNativeCustomary Rights from the claimant to be furnished to the relevant authority. In other words, theLicencehadplacedtheonusofresponsibilitytodetermineNativeCustomaryRightsontheLicencee

19 ThefullbriefingbyDr.KhooKayJinisattachedasAnnexure5


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rather than identifying this as the responsibility of the Government. He then referred to the CourtofAppeal’s judgment in thecaseofKerajaanNegeri Selangor&3Orsv. SagongBin Tasi&6Ors(2005)whichraisedthequestionofwhethersuchtransferofresponsibilityrepresentsanappropriatedischargeofthefiduciarydutyoftheGovernment.

HecontinuedbyreferringtothecontentsoftherelevantEIAreportandhighlightedthepossibilitythattheEIAreportmayhavebeenapprovedassubmittedsincethereisnorevisedversionorsubsequentsubmission.Furthertherewasnoindicationofdateofapprovalandinformationonthecompositionoftheevaluatingpanelnorwasthereanyindicationoftheconditionsimposed.

HethenassertedthattherelevantEIAreporthadmajorflawsasitsfindingsonthesocialcomponentcontradictswithfactsonthegroundthatatthetimeoftheEIAandforatleastfiftyyearspriortothat.This,hesaid,hasledtothenon-considerationoftheimpactonthecommunityinthearea.20

He then proceeded to highlight several observations he made on the relevant EIA report whichincludesthefollowing:

• By1999/2000,thereisnoexcuseforconfusingthetermPenanandPunan;• Thatthestatement‘therewerenovillagesorlonghouseswithinorneartheprojectboundary’

wasfalseas7longhousesalreadyexistedwithintheareaprevioustotheEIA;21

• TheEIAreportconsideredtheAsapSettlementtofallwithintheirpurviewofassessment.However,theyhadomittednativevillagesincludingthevillagesoftheSeping,theBemalipeopleatLongKoyanandLongBala,andthevillagesoftheKenyahUmaSambopontheBelagaRiverandKenyahBakingsettlementoppositeLongKoyan.Thesevillages/longhouseswerelocatedclosertotheprojectboundarycomparedtotheAsapSettlement;

• The information on ‘illegal 15-door Kenyah longhouse at lower Sungai Belepeh’ is false. ThislonghousewasaKayanlonghousebuiltbythepeoplefromUmaBawanginordertobeclosetotheirfarms.TheywereresettledattheAsapResettlementin1997.

Hethenhighlightedthatinformationontheexistenceofsettlements,villagesandlonghousesintheareacouldhaveeasilybeenvalidatedbyasimplequeryattheBelagaDistrictOfficeassomePenanheadmenwereofficiallyappointedasPenghulubytheDistrictOffice.Therefore,itisquestionablethattheconsultantwasnotabletoidentifyhumansettlementsintheareadespitelistingtheBelagaDistrictOfficeasoneoftheauthoritiesconsulted.

It is alsoquestionablethat thecompanyhadnotdetectedthePenansettlementwithin theareadespitethefactthattheCompany,eitherinitsownnameorthroughsubsidiaries,hadoperatedandcitedpaymentofallowanceandotherclaimstoheadmenintheareapriortoLPF/0018.

TheexistenceofPenansettlementsintheareacouldbeeasilyvalidatedbythefollowingmeans:

Oraltestimony–OtherindigenouscommunitygroupsincludingtheKayan,Kenyah,Kajang,whohadeither tradedwith thePenansorneighboured thePenan settlementscouldvalidate theexistenceofthePenansinthearea.Inaddition,formerandexistingcommunityleadersincluding,amongothers,TalikLisut,theformerTemenggongofBelaga;currentTemenggong,DatukNyipaBatok;StateAssemblymanandStateMinister,DatukTajangLaing;StateAsseblymanY.B.EncikLiwanLagang,couldhavevalidatedtheexistenceofthePenans;

20 Dr.KhooKayJinreferredtoseveralsectionsoftherelevantEIAreport,namelyparagraph21oftheExecutiveSummaryandSections2.2and4.5ofthemainreportoftheEIAReport,allofwhichstatedthatnohumaninhabitantsexistedwithinthelicencedareaduringthesurveycarriedoutbytheconsultant.

21 ThelonghousesreferredtobyDr.KhooKhayJinhereincludeLongJaikandLongPeranontheSepingRiver;LongLuar.LongTangau,LongSinguandLongPelutanonthePleiranRiveranditstributaries;andLongWatontheDanumRiver.

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Documentaryevidence–AmongthedocumentaryevidencethatvalidatestheexistenceofthePenansintheareaincludetheSarawakGazettepublishedin1951,theOxfordExpedition1955,LonghouseandJungle1959,BorneoResearchBulletinandtheSarawakMuseumJournal.

Withregardstonativecustomarylandrights,itisnotedthatfollowingtheSarawakLandCode1958,thePenansdonothaveclaimtoland.However,therearevariouscourtcasesthathaveprogressivelyviewedtheissueofcustomarylandrightsoftheindigenouscommunityinabroaderperspective.22

Bywayofconclusion,Dr.KhooKhayJinreiteratedthatasaresultofaflawedEIAreport,workhadbeencommencedwithoutgivingregardtothePenansinthearea.Additionally,thereisnoprovisionto protect the rights of this community. As the situation of the Penans in the area worsened, theGovernment had made no intervention to protect them. In this light, Dr. Khoo Kay Jin made thefollowingrecommendationstoSUHAKAM:

• TourgetheGovernmenttosuspendanyfurtherforestclearingandplantationuntiltheissueofthePenansisresolved;23

• ThatSUHAKAMconsiderthepossibilityofassistingthePenanstoseekclarificationoftheirrightsincourt,orotherwise,holdapublicinquirytolookintothematter.

SUMMARY OF THE BRIEFING ON THE PENANS IN ULU BELAGA, SARAWAK BY PROF. DR. J. PETER BROSIUS, PROFESSOR OF ANTHROPOLOGY, UNIVERSITY OF GEORGIA, ATHENS, US.

On23March2007,SUHAKAMhad invitedProf.Dr.J.PeterBrosius to theSUHAKAMOffice inKualaLumpur,togiveabriefingonthePenansinUluBelaga,Sarawak.

Prof.Dr.J.PeterBrosius,isaProfessorofAnthropology,UniversityofGeorgia,Athens,USandisalsoavisitingProfessortoUniversityMalayaandUniversityMalaysiaSarawakUNIMAS.24

TheProfessor’sbriefingfocusedonhisfieldresearchonethnographicofthePenansoftheBelagaDistrict,SarawakfromOctober1984andOctober1987.Healsobriefedonevidenceofprioroccupation,thenatureofPenanhistoricalknowledge,documentaryevidenceonPenanoccupationwithintheUsunApauandthehistoryofPenansettlements.

During thecourseof his field research, hehad stayedwith thePenans in Long Jaik.At that time,thePenan settlement in LongJaikwasheadedbyChief TugangSugun, the fatherof thepresentheadman,ChiefMatuTugang.

InhisresearchonthePenanshefoundthattherewere1,561PenanmembersresidingintheBelagaDistrictatthetimeofhisresearch.Thisgroupisthethirdlargestethicgroupinthedistrict.

Dr.J.PeterBrosiushighlightedthatthePenansinhabitedtheSeping,PleiranandDanumRiverssincethe1900orevenearlier,filingthevacuumthatwasleftbyotherlonghousepeoples.

22 Thecases thatDr.KhooKhayJin referredtohere includeAdongKuwau(1996;upheldonappeal),NorNyawaiCase(2001;principleupheldonappeal,2005),MadeliSalleh(CourtofAppeal,2005)andSagongTasi(2002;enlargedonappeal,2005andcurrentlybeingconsideredforappealtoFederalCourt).

23 Dr.KhooKhayJinhighlightedtwopossiblesolutionstotheproblem.They include(i) reservationofasufficientareaof forestand landforthePenansasexperienceshowsthatavastmajoritycouldnotsurviveonorholdemploymentandwage-rateareusuallybelowthePovertyLineIncomeforSarawak;and(ii)adequatecompensationforsuchoftheirrightsasareextinguished,theirresourcebasethatisdestroyedordamagedandtheirlandthatistakenforplantation.Thisisespeciallyimportantassubstantialareashavealreadybeencleared.Compensationshouldbeprimarilybeintheformoflandratherthancashascashcouldnotservetheirmediumandlongtermneedsandinterest.

24 Dr. J. Peter Brosius was on his visit to University Malaysia in March 2007. SUHAKAM took this opportunity to invite the professor for thebriefing.


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HedocumenteddifferentPenansettlements,populationofsettlements,numberofhouseholdandaveragehouseholdsize intheBelagaDistrict.Amongthegroups identified includethosethathadattendedSUHAKAM’sdialogueattheAlungJuandMatuTugangLonghouses.

TABLE 2 : PENAN POPULATION, NUMBER OF HOUSEHOLD AND AVERAGE HOUSEHOLD SIZE, BETWEEN OCTOBER 1984 – OCTOBER 1987

NO. COMMUNITY POPULATION NO. OF HOUSEHOLD

AVERAGE HOUSEHOLD SIZE

1. Lg.Kupang 250 17 14.7

2. Lg.Urun 73 9 8.1

3. Lg.Panan 55 5 11.0

4. Lg.Jek 84 9 9.3

5. Lg.Peran 66 7 9.4

6. Lg.Tangau 160 15 10.6

7. Lg.Luar 184 13 14.2

8. Lg.Wat 167 21 8.0

9. Lg.Malim 76 12 6.3

10. LusongLaku 218 27 8.1

11. Lg.Kajang 63 11 5.7

12. Lg.Tanyit 86 10 8.6

13. Lg.Belangan 79 11 7.2

Total 1,561 167 (Average) 9.3Source: Extracts from Dr. J. Peter Brosius’ Research on The Penan of the Belaga District: Considerations for Development

LoggingactivitiesintheBelagaDistricthadalreadyaffectedthePenansinBelagaatthetimeofhisresearch, sincemostof themreliedon jungle for food.Duringhisvisits tootherPenansettlements,they had constantly asked him to convey their feeling about logging to the Government. Theyunderstoodthat loggingwouldmeandestructionof forestandconsequently results inhungerandimpoverishment.AsrequestedbythePenans,Dr.J.PeterBrosiushadhighlightedthistotheGovernmentforconsideration.

Heunderstoodthat the lawsofMalaysiadonot recognise thePenan’smethodofownershipandstewardship to land. Hence, their claims were without legal basis. Nevertheless, he emphasisedthatthePenanshadpresentedadistinctivepatternoflandusewhichsetsthemappartfromotherlonghouse communities. Hence, there should be an alternate set of principles which explicitlyrecognisethePenansmethodofownershipandstewardshipof land.HealsoemphasisedthatthePenanswereconscientiousresourcemanagers,fullyawareofsustained-yieldprinciples.Theyexploittheirenvironmentinwaysthatpreserveitslong-termecologicalintegrity.

Inaddition,recognitionofancestralburialsites,whichisoneofthebasisforthecreationofcustomaryrightsasprovidedintheSarawakLandCode1958,existsintheLicencedarea.SomeofthePenansmaintainedknowledgeofburialsiteswhichgoesbacktogenerations.Dr.Brosiusconcludedbysayingthattherewastheneedfortherelevantauthoritytoensureparticipationof thePenans indevelopmentasdevelopmentshouldnotbesomethingthat is imposedfromthe

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outside, rather, it is something they bring to pass. It is important to recognise that the Penans arecapableofdecidingtheirownfutureandothershouldstopassumingthattheyknowbetter.

PARTICIPANTS OF THE DIALOGUES WITH REPRESENTATIVES FROM NGOs, ACADEMICIANS AND CONCERNED INDIVIDUALS KUCHING, SARAWAK, 14 OCTOBER 2006

• Y.B.Mr.LiwanLagang,WakilRakyat,.57,Belaga• Mr.JaylLangub,UNIMAS;• Dr.AndrewAeria,FacultyofSocialScience,UNIMAS• Ms.AnnAppleton,IEAS,UNIMAS• Mr.DingSeling,Member,OrangUluNationalAssociation(OUNA)• Ms.DoraJok,AngkatanZamanMansang(AZAM)• Mr.AwiAbang,Penanmember,UNIMASStudent• Mr.EzraUdaPenanMember,longLamai,UluBaram• Mr.EdwinTawi,AZAM


PART 3ANNEXURES

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ANNEXURE 1

Written Complaint by Chief Matu Tugangfrom Long Jaik, Ulu Belaga, Sarawak


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ANNEXURE1

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ANNEXURE 2

PROGRAMME OF SUHAKAM’S VISIT & DIALOGUES


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PROGRAMME

Date Time Programme

18September2006 0930 FieldVisitandDialogueattheAlungJuLonghouseinLongSingu,Belaga.

1400 MeetingwithMr.TingKhaiSik,theGeneralManagerof Shin Yang Company’s oil palm plantation,MetannikCamp,LongJaik,UluBelaga,Sarawak

1700 FieldVisitandDialogue inLongJaik,UluBelaga,Sarawak

19September2006 1030 Dialogue with Government Agencies in SungaiAsap,Belaga

12October2006 1115 DiscussionwithShinYangSdn.Bhd.,Headquarters,Miri,Sarawak

13October2006 0830 Dialogue with Relevant State GovernmentAgencies,Kuching,Sarawak

1515 Meeting Dato’ Sri Abang Haji Abdul RahmanZohari, Minister in charge of Penan Welfare,Kuching,Sarawak.

14October2006 0900 Dialogue with Representatives from NGOs andAcademicians,Kuching,Sarawak.

23March2007 1500 Briefing by Dr. J. Peter Brosuis, Professor ofAnthropology, University of Georgia, Athens, US,atSUHAKAMOffice,KualaLumpur

ANNEXURE2

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ANNEXURE 3

Briefing to Human Rights Commission of Malaysiaon Various Issues Raised by the Penan of

Seping, Plieran and Danum Rivers, and also the5 villages of Penan in Upper Belaga River

By Jayl Langub, Researcher, UNIMAS

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Briefing to Human Rights Commission of Malaysia on Various Issues Raised by the Penan of Seping, Plieran and Danum Rivers, and also the 5 Villages of Penan in Upper Belaga RiverBy JaylLangub,Researcher,UNIMAS

Introduction

TheparagraphsthatfollowcomprisemyoralpresentationtotheHumanRightsCommissionofMalaysiaonvariousissuesraisedbythePenanofSeping,PlieranandDanumRivers,andalsothe5VillagesofPenaninUpperBelagaRiveratHiltonHotel,KuchingonSaturday,October14,2006.

TwoPenanheadmen–AlongJooofLongSinguandMatuTugangofLongJek(orJaik)–broughttoSuhakam’sattentionthataTimberCompany,ShinYanghadconvertedalargeareaoflandintheSepingandPlieranriversintooilpalmplantation.ConversationoftheareaintooilpalmhasaffectedthelivelihoodofthePenaninthearea.SpecificriversystemsalreadyconvertedtooilpalmincludetheSeping,Jek,Menapun,Menavan(orMenawan)andLuar.FrommyconversationswiththepeopleofLgSinguandLgJek, thefollowingare issuestheywanttoconveytoSuhakam: livelihood, land,citizenship,education,securityofhealth,andopportunitiesopentoallcitizensofthiscountry.

[KhooKayJin(KKJ):theirareahasbeenlicensedforforestplantationfor60years,withoilpalmonpartofitasafirstcyclecrop.Itwaspreviouslysubjecttologging.]

Thenumberoflonghousesaffectedbytheoilpalmplantationisasfollow:

Longhouse Door / Apartment Population

LgPeran 21 103

LgJek 25 122

LgLuar 56 159

LgTangau 21 97

LgSingu 46 194

LgPelutan 22 99

LgWat 48 233

LgMalim 27 153

8 Longhouses 260 1,160Source:DistrictOffice,Belaga2000

Locationsoftheselonghousesareasinmap1.

Historical background of the area

TheSeping,Jek,Menapun,MenavanandLuarformpartalargeareabetweenBelagaandBaramdistrictknownasUsunApau.UsunApauisthehistoricalhomelandofvariousKenyahsubgroups,LepoTau,LepoAga,Badengetc,andKenyahrelatedpeoplessuchastheSebop,LirongBerawanetc(seeArnold1958,1959;Brosius1992;GauJau1957;Metcalf1982).

ANNEXURE 3

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LOCATION OF LONGHOUSES AFFECTED BY OIL PALM PLANTATION

Source: Mr. Jayl Langub, Researcher from UNIMAS

MAP 1

TheOxfordExpeditiontoUsunApauin1955identified13oldlonghousesitesintheUsunApau:oneintheSeping,oneintheJek,twointhemiddleofMenapun,fourontheconfluencesofthePlieran,LuarandMenapun,oneinthemiddleoftheLuar,oneintheMenavan(Menawan),andthreeintheupperPlieran,([Map2],Arnold’smapinArnold,1959:22).OccupantsoftheselonghousesiteshadmovedoutoftheareaintotheBaramandTinjarriversinthelate19thcenturyandearly20thcenturytoescapeIbanraids.TheseKenyahandrelatedpeopleswereshiftingcultivatorsandleftlargetractoftemudaland(nativecustomarylandorNCRland).Thistemudaforest(orsecondaryforest)isnowabout100yearsold.A50-yearoldsecondaryforestisdifficulttodistinguishfromprimaryforest.Itisnotsurprisingthattheyarepeoplewhothinkthatthereisnosecondaryforestortemudalandinthearea.

ThePenanhavealsobeen living in theUsunApauarea (Needham,1972).While theKenyahandrelatedpeoplesoccupiedthemainriversystems,thePenanroamedaroundthesesettlementsandintheheadwatersoftheSeping,Menapun,MenavanLuaretc.WhentheKenyahnadrelatedpeopleslefttheUsunApaufortheBaram,TinjarandBalui,thePenanmoveddownrivertooccupythevacuum.SomeofthePenanalsomovedoutoftheareatheTinjar,Jelalong,andSuai-Niah.Infact,DatukAsanSui, the most successful Penan who now lives in Jambatan Suai, traces his ancestry to the upperSepingwheretheriveratthispoint iscalledKeruan.ThisgroupofPenanstill identifythemselvesasPenanKeruan.

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THE PLEIRAN RIVER: LONGHOUSE SITES DURING THE OXFORD EXPEDITION 1955


MAP 2

The8settlementsofPenanintheareahavenevermovedout.They,asnomads,however,movedlocationsfromoneriversystemtoanotherasfarastheDapoi, intheTinjar,butcamebacktotheSeping,PlieranandDanumarea.Whenmembersofthe1955OxfordExpeditionwerecarryingoutgeologicalsurvey,excavatingold,desertedlonghousesites,andcollectingfolkstories,theymetfivegroupsofthePenaninthefollowinglocations:onegroupintheSaoh,tributaryoftheMurumwhichtheyidentifiedas“SaohPenan”;onegroupintheLuar,“LuarPenan”;oneingroupintheMenavan,“MenawanPenan”;onegroupintheSeping,“SepingPenan”;andonegrouponthePlieran,“SilatPenan”(seeArnold1958:40-82).AcensusofthePenanwasmade,andsomeofthepeoplenamedinthecensuscanbefoundinthe8settlements.Locationsoftheirnomadiccampsatthetimeofthesurveyare indicated inmap3 (Arnold’smap inArnold1959:96).Membersaswellasdescendantsofthefirstfourgroupsaretodaydistributedamongexisting8settlementsintheSeping,PlieranandDanumrivers.ThefifthgrouphadmovedtotheSilatinBaramdistrict.

[KKJ:Rethe1955CensusbytheOxfordExpedition,thePenanintheareacouldidentifymostofthenameslistedwhenIshowedittothemin1994.manyofthoselistedasmen/womenhaddied,butmanyofthoselistedasboys/girlswerestillliving.]

ANNEXURE 3

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PENAN SETTLEMENTS FOUND DURING THE OXFORD EXPEDITION 1955


MAP 3

Genealogicalaccountssuggestthattheyhavebeeninthearea,nolessthanseventoninegenerations(seegenealogyonthenextpage).TheirapicalancestorPovenwasbornintheApat,tributaryoftheJek.HewasburiedintheApat.IfwetakeMatu,theheadmanofLongJaik,hecantracehisgenealogyuptoeightgenerationsindepth,fromTegulitoPoven,toDang,toSenaveng,toUwing,toSugun,toTugangdowntoMatu.

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PENAN GANG GENEALOGY

Penan and their surroundings

AsmentionedearliertheSeping,Jek,Menapun,Menavan,LuarandPlieranareaisnotanuntouchedforest.Thewholeareais,forlackofbetterterm,a“heritagelandscape”,aforestlandscapeshapedbyhumanactivities.Theareawasfirstcultivatedbyshiftingcultivatorforfarmingactivities.Whentheymigrated,theareawaslefttonomadicgroupsofPenantomanageandnurture.

The Penan have since exercised stewardship rights over area. Their mode of resource harvestingstrategyisknownasmolong,aharvestingstrategybasedontheconceptofsustainability,longbeforethe word “sustainable” became fashionable in development literature. The word molong can beroughlyexplainedaspreservationofforestresourcesforharvestwildsagoforfood,theycutoneortwomaturetrunksandleavetheyoungplantstomatureforfutureharvest.Similarly,whentheyharvestrattan,theycutthematurerattanandleavetheyoungonestogrowforfutureharvest.Molongisaformofresourcetenure.Anindividualwhofirstlaysclaimtoaparticularresourceestablishestenurerightstoit.Suchrightsarepasseddownthegenerationsoftheindividualwhoestablishedtenureontheresource.Aresourcehasitsowngenealogy.Itresidesintheindividualwhofirstclaimeditandpasseditdownthelineofsucceedinggenerations,formfathertosontochildrenandchildren’schildren.

ANNEXURE 3

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TheforesthasprovidedthePenantheirstaplefoods:thestarchypithofatypeofwildsago(Eugeissonautilis),uvud(youngsagoplants),lekak(anediblepalm-bud),meatofbeardedpig(Susbarbitus)andotheranimals,avarietyoffruitsandmanyotherfruitsplants.Theforesthas,forcenturies,providedthemwithnecessarytradeitemssuchascamphor,jelutong(awildrubber),dammar(aresin),gaharu(incensewood),andrattanformakingmatsandbasketsthatareinpopulardemand.Fromtheforesttheygetwoodforconstructionofhuts,boatsandblowpipes,animportanthuntingweaponforthePenan.TheforestalsoprovidescertainspeciesofplantsusedbythePenanasmedicines.

The forest has provided the Penans with necessary trade items such as the rattan to make mats and baskets

Although the Penan have settled down in longhouse and cultivate hill rice, the forest remains animportantsourceoffood(sago,wildvegetables,fruitsandgame)andtradeitems,especiallyrattan.ForthePenanofLgJek,theSeping,Jek,andtheirtributariesareanimportantsourceoffood,tradeitems,andrawmaterialsnecessaryforculturalexpression.Alargepartoftheareawheretheyexercisedstewardshiprightshasbeenbulldozedtooilpalmplantation.[andforforestplantation-KKJ]

A large part of the area where they exercised stewardship rights has been bulldozed to oil palm and forest plantation

AsthePenansettledonlyinthelate1960sandearly1970s,theydidnotcuttheforestpriorto1958asrequiredintheLandCodetoestablishcustomaryrightstoland.However,thePenanhaveaconcept

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oftana’penguripsimilartotheIbanconseptofpemakaimenuawhichunderacourtdecisioninacaseofNorNyalai&OrsVsBorneoPulpPlantationSdnBhd&Ors(2001)isconsideredacustomaryrightsland.Moreover,theLandCode(Cap.81)section5(2)(f)stipulatesthatcustomaryrightstolandcanbeestablishedby“anyotherlawfulmethod”;therefore,wecanarguethatthePenanconceptofmolongisinfact“anyotherlawfulmethod”.

[KKJ – further, by the court decision, in line with other court decisions, customary rights pre-date statute andarenotcreatedbystatute.Statute/legislationcanonlyextinguishcustomaryrights,butinthatevent,theremustbeadequatecompensation.ThishasbeenthepositionaffirmedbytheMalaysiancourt]

Citizenship

ThePenanhavebeenlivingintheSeping,PlieranandDanumfornineormoregenerations,yetonlyahandfulofthemhavethenationalidentitycard(IC),asamarkofcitizenship.DuringtheBrookeandcolonialperiods, thePenan, likeanyothergroups inSarawakpaidtheir tax.OralnarrativesacrossethnicboundariesinBelagasuggestthatthePenanpaidtheirtaxinkind,inrattanmatsandbaskets.Theseitemswerecollectedbyanagent,usuallyaneighboringKayanorKenyahwhothensettledthePenanheadtaxatFortBrookewhichhousedtheDistrictOfficeinBelagaTown.

IntheearlyelectionsforParliamentandStateLegislativeAssembly,thePenanexercisedtheirrightstocasttheirvotes,althoughtheydidnotIdentityCards.Inthosedays,citizenslivinginveryremoteareaswhodidnothaveIdentityCardwereallowedtovote.ThePenanwereamongsomeofthesegroupswhoweregiventheprivilegetovotewithoutIdentityCard.Inthe1974generalelections,IpersonallywitnessedthePenaninSeping,PlieranandDanumriverscasttheirvotes(seePhotos#1and#2).

The Penan in Seping River being issued with ballot papers in 1974 Parliamentary and State Assembly elections

ANNEXURE 3

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The Penan in Seping River marking his ballot papers

ManyPenanappliedforIdentityCard,butthemajorityoftheapplicationswererejectedforlackofsupportingdocuments.

Similarly,whenanewbaby isborn, theirparentswouldapply forbirthcertificates. Inmostcases,applications were not entertained as parents did not have the marriage certificate and/ birthcertificates.

Education, Agriculture and Health

Wearenowinthe21stcentury,andalmost50yearsasanindependentcountry,yetwehavegroupsof Penan who do not have access to education. In 1988 when I was in the State Planning Unit, IproposedaServiceCentretoservethe8Penansettlements.TheCentrewastocompriseaPrimarySchool,aRuralClinicandanAgriculturalStation.ThelocationproposedwasLgLuar.SomeyearslaterIwasapproachedto lookforanalternative location,asLongLuarwasconsideredremote. In theearly1990sImadetwovisitstotheSeping,PlieranandDanumtoidentifyanalternativelocation.AlocationbetweenBaPeranandLgJekwasidentified.AplanwassubmittedtoSPU.Sincethen,therehasbeennonews.

Environmental Impact Assessment (EIA)

GiventhatIhadnoaccesstotheEIAontheoilpalmplantationintheSeping,Jek,Menapun,MenavanandLuararea,Idonotwishtosayanythingonthistopic,exceptthatIamsurprisedthePenanwerenotconsultedontheirviewsastohowtheplantationmightaffectthem,andthekindofconsultedontheirviewsastohowtheplantationmightaffectthem,andthekindofalternativesthatmighthaveplannedfortheirlivelihood.

[KKJ–TheEIAreportedthattherearenohumansettlementsintherelevantarea,thenearesthumansettlement being the Sg Asap Resettlement. This is of course false. As a consequence, there wasneitherconsultationwithnorconsiderationofsocialandeconomicimpactsuponthePenan.Indeed,theEIAstatesthatthereusedtobeaPenansettlement,butthePenanhadmovedawaylongago!]

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Summation

ThePenanstatethattheir livelihoodhasdeterioratedwhenlandinthesurroundingareawasclearfelled for oil palm plantation. Farming and foraging area for collection of food items and rattannecessaryformakingmatsandbasketshasbeenclearedforoilpalmplantation.

[KKJ– It isnotsimply that their livelihoodhasdeteriorated,but their rightsand interestshavebeendenied.Theyhavebeentoldthattheyhavenorightstotheareaasthegovernmenthasgrantedaleasetothewholeareatothecompany.Inatleastthecaseofonecommunity,theirattempttoretainsomelandfortheirownuseandcultivationhasbeenmetwithveiledthreats.]

The area covering the Seping, Jek, Menapun, Menavan and Luar is not entirely primary forest; alargepartofitistemudalandleftbyKenyahshiftingcultivatorsandrelatedpeoplesahundredyearsago.Sincethenthepenanhasexercisedstewardshipoverthearea.Utilizationandmanagementofresourcesintheareasuggestscreationofrightstotheland.Penan haveoccupied theareaas far backas 9 ormore generations.Government officials andresearcherswhovisited theareaprior to1958confirmedthat thePenanhavealwaysbeen in thearea.

ThereisanurgentneedtoprovidethePenanwithidentitycard,animportantproofofcitizenship.

ThePenanneedreadilyavailableaccesstoeducational,healthandagriculturalfacilitiesprovidedbygovernmentdepartments.

Penan in Upper Belaga facing hard times

OnSeptember15,aPenanheadmen,BalanUtung,of LgPera,Belagacameover to Lg jekwiththe intentionofmeetingSuhakam.Hecamewitha few fellowvillagers. TheyheardofSuhakam’svisitandtookthetroubletocomeallthewayfromtheupperBelagatoLgJektotellSuhakamtheirdifficulties.

TherearefivevillagesinupperBelagaRiver:

Longhouse Door / Apartment PopulationLgApok 13 116

LgSivau 25 116

LgKetuet 22 72

LgPera 50 206

LgTengah 40 117

5 Longhouses 150 617Source:DistrictOffice,Belaga

ImetBalanUtungatLgJekonSeptember15.TheissuesheraisedaresimilartothosesubmittedtoSuhakambythePenanintheSeping,PlieranandDanumrivers.

The five Penan villages are surroundedby oil palmplantation, thus depriving the Penanof forestareainwhichtolookforfoodandothernecessitiessuchasrattanformakingmatsandbaskets(seemap4).RattanmatsandbasketshavebeenoneofthemainsourcesofincomeforthePenanintheBelagaRiver.

ANNEXURE 3

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[KKJ – The plantation development – on about 10,000 hectares – was carried out by a differentcompany,AmanahSahamSarawak(ASSAR),aunittrustagencyestablishedbythestategovernment.Theyhavebeenleftwithinadequatelandforswiddencultivationofhillrice;thiswillresultinveryrapiddegradationofsoilqualityandyields.Theyhavebeenpromiseda30percentshareofthatpartoftheplantationarearecognizedasbelongingtothem;thePenanarenotclearaboutthesizeofthatarea,butreportafigureofabout1,000hectares.Ifthisisso,thena30percentsharewouldrepresentthenetyieldof300hectares.Aninadequatelevelofincomegiventhenumberoffamiliesinthearea.ThePenan in this area are seeking to retain part of the remaining forest and land which has been licensed toShinYangforforestplantation.Itispartoftheirancestralarea.]

FIVE PENAN SETTLEMENTS IN THE UPPER BELAGA RIVER SURROUNDED BY OIL PALM PLANTAION

MAP 4

Beginningofthisyear,13havediedwithinshortintervalbetweeneachdeath.Nosuchtragedyhaseverhappenedtothecommunitywithinlivingmemory.ThePenanoftheupperBelagaRiverwanttoknowfromtheMedicalDepartmentthecauseofthemanydeathswithinashortperiodoftime.

[KKJ–ThemeaslesepidemicoccurredinDec2004/Jan2005,notthisyear(2006).]

Sincetheintroductionofoilpalmplantationintheirarea,thePenanhavenotfoundaviablealternativeto their formeractivitiesofcollecting rattan tomakematsandbaskets,huntingandgathering. InBalan’s own words “when the company people came to tell us about the oil palm project, theysaidtherewillbewordforus.Butitisnotthekindofwordweareusedto;besidesthepayisverylowRM15.00aday.Ourqualityoflifehasgonedown:weareintheprocessoflosingtraditionalskills,suchasweavingoffinematsandbasketsandotherhandicrafts.thereisaneedforthegovernmenttositdownwithusandchartaviablealternative.”

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[KKJ–RM15adayisonthehighendofthewageratesforplantationlabour.]

References cited

Arnold, Guy (1958) “Nomadic Penan of the upper Rejang (Plieran)”, Sarawak, Journal of the Malayan/MalaysianBranchRoyanAsiaticSociety31/I:40-82.

Arnold, Guy (1959) Longhouse and Jungle : An Expedition to Sarawak. London : Chatto andWindus.

Brosius, J.P. (1992) The Axiological Presence of Death : Penan Geng Death-Names. Ph. D.dissertataion,DepartmentofAnthropology,UniversityofMichigan.

GauJau(1957)“TherelationsofKenyahandKayan(andnotesonKenyahmarriage)”,Sarawak Museum Journal,8:108-112.

Metcalf, Peter (1982) A Borneo Journey into Death : Berawan Eschatology from its Rituals.Philadelphia,Pennsylvania:UniversityofPennsylvaniaPress.

ANNEXURE 3

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ANNEXURE 4

Briefing on the Penan and the EIA for the Shin Yang Forest Plantation

by KhooKhayJin,IndependentResearcher

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The Penan and the EIA for the Shin Yang Forest Plantationby Khoo Khay Jin, Independent Researcher

Introduction

ShinYangSdnBhdwasgrantedaLicenceforPlantedForestLPF/0018foraperiodof60yearsfrom19November1999foranarea(hereafter,theLicencearea)ofalmost156,000hectaresstretchingfromtheSgBelagainthenorthtotheSgMuruminthesouth(see,Map1).

Oneoftheconditionsofthelicencewas:

5.TheLicenseeshall,assoonasreasonablypracticableaftertheissueofthisLicence,submittotheNaturalResourcesandEnvironmentBoard,Sarawak,anEnvironmentalImpactAssessment(“EIA”)ReportinaccordancewiththeNaturalResourcesandEnvironmentOrdinance,inrelationtotheestablishmentoftheplantedforestunderthisLicence(LicenceforPlantedForest(LPF/0018),hereafter,“theLicence”;asfoundinAppendixBoftheEIA).

Work on the establishment of the planted forests was to commence within three months of theapprovaloftheLicencee’sEIAReport,orwithinanyextendedperiodasmaybeagreedtoinwritingbytheDirectorofForests(s.6(1)oftheLicence).

Thus,approvaloftheEIA,togetherwithanyconditionsimposedduringapproval,wasapre-conditionofthecommencementofworkincludingremovaloftimber.StandardEIApracticeincludesasocialandeconomiccomponent.

ANNEXURE4

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THE LICENCE AREA

MAP 1

Further,theLicencerequired:

8(2)(e) ifanypartofthesaid landisheldunderandsubjecttonativecustomaryrights,thewrittenconsentoftheclaimantofsuchrightshastobeobtainedorwrittenevidenceisfurnishedtotheDirectortoshowthatsuchrightshavebeenextinguishedunderanywrittenlaw.

Inotherwords,theLicenceplacedtheonusofresponsibilityforthedeterminationofNativeCustomaryRightsintheareaontheLicencee,notonthegovernmentalauthorities.InviewofthejudgmentoftheCourtofAppealintheSagongTasicase(KerajaanNegeriSelangor&3OrsvSagongBinTasi&6Ors(2005)1),aquestionmayberaisedwhethersuchatransferofresponsibilityrepresentsanappropriatedischargeofthefiduciarydutyofthegovernment.

Nevertheless,theLicencedidspecify:

22(1) Nothing in thisLicenceshallbedeemedtoaffect rightswhichanynativehas,priorto the issueof thisLicence, lawfullyacquiredover thesaid landunder theLandCodeor theOrdinance.SuchrightsshallbereferredtointhisLicenceas“nativecustomaryrights”

1 ThefulljudgmentiscarriedontheofficialwebsiteoftheMalaysianBarCouncil;http://www.malaysianbar.org.my/content/view/1835/27/

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22(2) ItshallbethedutyoftheLicensee,athisowncostsandexpense,tocomplywiththeprovisionsoftheRulesrelatingtotheestablishmentofplantedforestsoverlandssubjecttonativecustomaryrightsclaim.

ThisbriefingnoteshowsthattheLicenceeand/orhisappointees:

1. failedtoconductacompetentEIA,specificallyonthesocialcomponent,hence

2. failedtoobservethenativecustomaryrightsofthepeople,specificallythePenan,inthe area,and

3. effectivelydispossessedthePenanoftheirbasichuman,socialandeconomicrights

Further,consideringthatthePenanareamongstthemostdisadvantagedcommunitiesinthecountry,thequestionariseswhetherthegovernmentfailedinitsfiduciarydutywhenittransferredtheonusofresponsibilityforthedeterminationofthenativecustomaryrightsintheareatotheLicencee.

The EIA Report: allegations of fact in the social component

TheEIAReportwassubmittedtotheNaturalResourcesandEnvironmentBoard(NREB)on5January2000, that is, less than two months after the issuance of the Licence. JB Agriculture ManagementServices inassociationwithGT&AssociateConsultancy,twoSarawak-basedfirms,conductedtheEIA;thenamesoftherelevantconsultantsareincludedintheEIAreport.

Asofthiswriting,neitherthedateofapprovaloftheEIAReport,northecompositionofthepanelthatevaluatedtheEIAReport,northeconditions, ifany,thatwere imposed, isknown.However, itmaybeconcludedthattheEIAReportwasapprovedassubmittedasthereisnorevisedversionorsubsequentsubmission.

Forthepurposesofthisbrief,thefocusisthesocialcomponentoftheEIA.NoconsiderationisgiventoanyinadequacieswiththestrictlyenvironmentalcomponentsoftheEIA.SufficetomentionthatthereisinsufficientconsiderationofthepotentiallynegativeimpactoftheprojectontheRM9billionBakunHydroelectricProjectwhosedamsiteisashortdistancefromwheretheMurumjoinsthemainBaluiriver.OneoftheprincipalcatchmentsaffectedbythisprojectisthatoftheMurumriver,amajortributaryoftheBalui,andthefirstabovethedamsite.ThesocialcomponentoftheEIAReportcontainedamajorandfatalflaw.ItmadeassertionsthatarecontrarytothefactsonthegroundatthetimeoftheEIAandforatleastfiftyyearspriortoit.Thus,its conclusions pertaining to the social component are invalid, leading to a total absence of anyconsiderationoftheimpactuponthecommunitieswithinandinthevicinityoftheLicencearea.

The EIA Report contains the following false allegations of fact:

1. Oneofthetwoparagraphsnumbered21intheExecutiveSummaryreads:“Intermsoflocalsettlementwithinthesite,therewasanillegal15-doorKenyahlonghouseatlowerSgBelepehwhichhadalreadybeenabandoned.Itwasbuiltearlierprobablytakingadvantageoftheloggingactivitiesthen.AtlowerSgJaik,thereweresomeremnantsofasmallformerPunan(sic!)settlement.ThePunan(sic!)peoplehadalreadymigratedtootherplacelongago.Therewerenovillagesorlonghouseswithinorneartheprojectsite.ThenearestcommunitywastheAsapResettlementabout30kmnorthwestfromthesite”

ANNEXURE4

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2. Section2.2ofthemainreport,coveringtheProjectDescription,statesinteralia:“Evidenceofpreviousshiftingcultivationcouldbeseenalongtheloggingroadsgivingrisetopatchesof‘temuda’.These‘temuda’arebelievedtobeleftbyloggingworkersduringtheirloggingoperationwithinthelicensedarea.SomeremnantsofasmallPunan(sic!)settlementareseen near lower Sg Jaik, but this nomadic Punan (sic!) are long gone. There is a recentillegalKenyahlonghouse(about15doors)downstreamofSgBelepehwhichwasprobablybuilt taking advantage of the logging activities and the logging roads. However thislonghouseisatpresentabandonedandthepeoplearebelievedtohavemovedtotheAsapResettlement.Nopermanentlocalsettlementsarefoundwithinthesite.Thereis(sic!)nolegalclaimsofNCRwithintheland.”

3. Section 4.5 of the main report is specifically entitled “Socio-Economic and PopulationCharacteristic (sic!)”. Section 4.5.1 entitled “Local Settlement and Population” reads: “Intermsoflocalsettlementwithinthesite,therewasanillegal15-doorKenyahlonghouseatlowerSgBelepeh(neartowatersamplingpoingF5)whichhadalreadybeenabandoned.Itwasbuiltearlierprobably takingadvantageof the loggingactivities then. Thepeoplewerebelieve(sic!)tohavemovedtoSgAsap.AtlowerSgJaik,thereweresomeremnantsofa small formerPunan(sic!) settlement. ThePunan(sic!)peoplehadalreadymigratedtootherplace longago.Therewerenovillagesor longhouseswithinorneartheprojectboundary.OtherthanthenearbydevelopingSamlingplantationinthenorth,thenearesthumansettlementwouldbetheAsapResettlementwhichisabout30kmfromthenorthwestpointoftheprojectsite.TheAsapResettlementislocatedbetweenlowerSgKoyanandSgAsap.”Section4.5.2thenproceedstoprovideabriefoutlineoftheAsapResettlement.

Major Errors in the Social Component of the EIA Report Identified

Leavingasidemattersof languageandexpression, someofwhichsuggestsuncertainty,e.g.,“it isbelieved”,“probably”,etc.,themajorpointsofnotearethefollowing:

1. By1999/2000therewasabsolutelynoexcuseforgettingthenameofthePenancommunitywrong. It istruethat localKayandousethetermPunantoapplytoPenan,but it iswell-establishedthatthepropernameforthecommunityisPenan.

2. Thestatement“therewerenovillagesorlonghouseswithinorneartheprojectboundary”isjustplainfalse.AtthetimeoftheEIA,previoustotheEIAandsincetheEIA,thereareseven(7)villages/longhouseswithintheprojectboundary.TheseareallPenanvillages.Theyare:

a. Lg2JaikandLgPeranontheSepingriver

b. LgLuar,LgTangau,LgSinguandLgPelutanonthePlieranriveranditstributaries

c. LgWatontheDanumriver.

3. Thesamestatement isalso falsewith regards tovillagesor longhouses“near theprojectboundary”. There are the Penan villages of Lg Sibau, Lg Apok, Lg Tengah, Lg Pera andLgKetuet,andtheiroff-shoots,atandaroundLgUrun,a tributaryof theBelagariver,atthenorthernendoftheLicencearea.Additionally,therearetheKenyahUmaPawaandKenyahBadenglonghouses,alsoatLgUrun.ThesevillagesarebarelybeyondtheprojectboundaryandthePenanofthesevillages,someofwhomareverycloselyrelatedtothe

2 Lg=Long.ThisisaKayantermwithcognatesinthevariousOrangUlulanguages.ItcarriesthesamemeaningthesameastheMalayword,kuala,i.e.,theconfluenceoftworivers,withtheconfluencenamedafterthesmallerriver.Thus,forexample,LgJaikistheconfluenceoftheJaikwiththeSeping.

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PenanofLgJaik,havetraditionallyusedterritorywithintheprojectboundary.Totheeastoftheboundary,intheupperDanum,isthePenanvillageofLgMalim.

4. Secondarily, if the EIA considered the Asap Resettlement to fall within their purview ofassessment, it isnotclearwhyothernativevillageswhichareasclose,orevencloser,totheprojectboundarywereomitted.Thus,therearethevillagesoftheSepingandBemalipeopleatLgKoyanandatLgBala,andthevillageoftheKenyahUmaSambopontheBelagariverdownstreamoftheconfluencewiththePenyuanriver.Additionally,thereisalsotheKenyahBakongsettlementoppositeLgKoyan.

5. Parenthetically, it should be pointed out that the identification of the so-called “illegallonghouseat lowerSgBelepeh”asKenyah iswrong. ItwasaKayan longhouse,builtbypeoplefromUmaBawangwhentheywerestillatLgMurum,fortheiruseinordertobeclosetotheirfarms.Itwasnotillegalasthisareaispartoftheirnativecustomaryrightsarea.TheSgBelepehjoinstheMurumriveratapointjustoppositetotheirformerlonghouseatLgMurum,andthelanduptheBelepehwasoneoftheirfarmingareas.ThepeopleofUmaBawangwereresettledattheAsapResettlementin1997.

Evenwithoutconsideringnativecustomaryrightsclaims,allofthesematterspertainingtosettlements,villagesandlonghousescouldhavebeenvalidatedwithlittleeffortbyasimplequeryattheBelagaDistrictOfficeinBelagaortheBelagaSub-DistrictOfficeinAsapResettlement.TheofficiallyappointedPenghuluforthePenanisfromLgWat,alltheheadmenofthePenanvillagesnamedin(2)above,withtheexceptionofLgPelutan,arelativelyrecentoff-shootofLgLuar,havecertificatesofappointmentfromthegovernment.TheheadmenofthePenanvillageslistedin(3)areeitherofficiallyrecognisedbytheBelagaDistrictOfficeorhavecertificatesofappointment,thedifferencebeingafunctionofpossessionornon-possessionofIdentityCards.ThosewithoutICsareofficiallyrecognisedbytheDistrictOfficesinceeveryoneknowstheirprovenanceandhistorybuttheycannotbeissuedwithcertificatesofappointmentforproceduralreasons.ItisthusacompletemysterythatalthoughtheDistrictOfficeBelagaislistedasoneoftheauthoritiesconsultedfortheEIA,theEIAcouldstillconcludethat“therewerenovillagesorlonghouseswithinorneartheprojectboundary”.

EvenmoreastoundingisthefactthattheEIAwasconductedonbehalfoftheprojectproponentandLicencee,ShinYang,acompanywhichhasoperated in theareacarryingout loggingoperationseither in itsownnameor throughoneoranotherof its subsidiaryorassociatecompanies. Thus,aconsultationwithShinYangshouldhaverevealedtheexistenceofallthesevillagesandsettlementsas,onotheroccasions,ShinYanghascitedpaymentofallowancestoheadmen,orpaymentofaritual propitiation (pemali) at the beginning of logging operations, or assistance with constructionof longhouses or supply of building materials as evidence of its recognition of the rights of thesecommunities! Indeed, suchpaymentsare tantamount toevidenceofnotonly recognitionof theirexistencebutoftheirrightfulclaimstotheterritory.

The Facts relating to the Licence Area

Thissectionprovidessomeoftheevidencebaseforthemajorerrorsidentifiedabove,specificallywithreferencetothePenan.Thesameevidencebasealsosupportstheirnativecustomaryrights intheareanotonlyasrecognisedbytherelevantstatelaws,butasextendedbycourtdecisionsrelatingtonativecustomaryrights.Themostimportantofthesedecisionsstatesthatnativecustomaryrightsarenotcreatedbystatute,indeedpre-datestatute,andwhilethegovernmentcanextinguishnativecustomaryrights, itcanonlydosoafteradequatecompensation,adequatetosafeguardingtheirrighttolivelihood.

ANNEXURE4

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Asnoted,the licenceareacoversalmost156,000hectaresstretchingfromtheBelagaRivertotheMurumRiver(see,Map1).

ThisareaencompassesthetraditionalterritoryofthePenanoftheBelaga,Seping,PlieranandDanumrivers.

The existence of the Penan villages in the Licence area and that the Licence area is part of thetraditionalterritoryofthePenaninquestionisnotindoubt.Itisnotonlytheirclaim,butcanbevalidatedbythefollowingmeans:

1. Oral testimonyofothers,asampleofwhichcouldincludethetestimonyofthefollowing:

a. theKayan,KajangandKenyahcommunitiesofBelagawholivedownstreamofthePenan,andengageorhaveengagedintradeinjungleproduceandhandicraftswiththePenan.Forexample,acheckwiththeKayanofUmaBawangwhousedtobeatthemouthoftheMurumriver,themainriverintowhichtheSeping,PlieranandDanumriversflow,willprovethispoint;thesameistrueoftheKayanofUmaNyavingwhousedtobeatthemouthoftheLinauriver

b. the Kenyah Uma Sambop and Kenyah Lg Bangan on the Belaga river, which willvalidatethelongexistenceofthePenancommunitiesintheupperBelagariver

c. theformerTemenggongofBelaga,TalikLisut,oftheKayanlonghouseofUmaDupah,nowre-settledintheAsapResettlement,andofthecurrentTemenggong,DatukNyipaBatok,aformerStateAssemblymanandStateMinisteraswellastheownerofapieceoflandonthewesternedgeoftheLicenceArea.AsStateAssemblyman,DatukNyipausedtovisitthePenanvillagesintheLicenceArea

d. former State Assemblyman and State Minister, Datuk Tajang Laing, former StateAssemblymanStanleyAjangBatok,aswellasthecurrentStateAssemblyman,LiwanLagang,andthecurrentMemberofParliamentforthearea,BillyAbitJoo

e. formerSarawakAdministrativeOfficerforBelagainthelate1960s,PeterSibburat,aswellasformerSarawakAdministrativeOfficerforBelagaintheearly1970s,JaylLangub,whowasalsountilhisretirementtheSecretaryoftheMajlisAdatIstiadatSarawak

2. Documentary evidence:Whilesuchdocumentaryevidencestretchesbackoveracentury,forthepurposesofthisbriefitisonlynecessarytociteasampleofsuchevidencefromtheearly1950s,including

a. former Sarawak Museum Curator Tom Harrisson’s accounts of his expedition to theareain1951,publishedintheSarawakGazetteandintheSarawakMuseumJournal.ThisaccountestablishesthepresenceofthePenaninwhatisnowtheLicencearea,specificallyintheSepingandPlieran

b. theaccountsoftheOxfordExpeditiontotheareain1955,ledbyGuyArnold,publishedinvariousplaces including theJournalof theMalaysianBranchof theRoyalAsiaticSocietywithacensus,withnames,ofthePenan,aswellasabook,LonghouseandJungle,publishedin1959.Thecensuswithnamesisinvaluableasmanyofthenamedboysandgirlsfrom1955arenowintheir50sand60s,still livinginthesamearea.Forexample,thecensus includedthecurrentPenghuluofthePenan,PauTului, listedintheboyscolumnasTubit Tuloi; thecurrentheadmanofLgLuar,MadaiSalok, listed

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intheboyscolumnasMedaiSaloh;therecentlydeceasedheadmanofLgTangau,BeranTinggang–anduncleofthecurrentheadman,AbokJalong–listedthenalsoasBeranTinggang,andthecurrentheadmanofLgSingu,AlongJu,listedthenintheboyscolumnasAlongJau.

c. theaccountsofRodneyNeedhaminthemid-1950sinnumerouspublicationsresultingfromhisfieldresearchforhisDPhildissertation.ItwasNeedham’sworkwhich,amongstothermoreimportantmatters,established(a)thepeoplecallthemselvesPenan,notPunan,and(b)thedistinctionbetweenthe“Eastern”(broadlytheBarambasin)Penanandthe“Western”(broadlytheRejangandBelagabasin)Penan

d. thereportsofJaylLangubofhisworkwiththePenanwhileStateAdministrativeOfficerinBelagaintheearly1970sandsubsequently,publishedintheSarawakGazette,theSarawakMuseumJournal,theBorneoResearchBulletinandelsewhere.Map2showshisidentificationofPenanandPunanvillagesinBelagaintheearly1970s.

e. theaccountsofJeromeRousseaufromtheearlytomid-1970swhenhewasdoinghisdissertationfieldworkattheKayanlonghouseofUmaBawangatLgMurum.Hismapof thevarious settlements fromanarticle in theSarawakMuseumJournalof1974 isattachedhereasMap3.ItclearlyshowsthePenansettlements,markedPinhismap.

f. thenumerouspublicationsofPeterBrosiussincethemid-1980s.BrosiusspentthreeyearswiththePenanofLgJaikdoinghisdissertationfieldworkandtravelledextensivelytoallthePenancommunitiesinBelaga.Amongstthemostimportant,fromthepointofviewoftheterritoryofthePenan,ishiscarefuldocumentationofthesettlementhistoryofthePenanofLgJaik,coveringtheperiod1921-1981describedinChapter2ofhisPhDdissertation.3

3 Hehasrecentlyreturnedtothisand,usingtechnologynotavailablewhenhedidhisfieldworkanddissertation,hasbegunmappingthatsettlementhistoryusingGISsoftware.This isthesourceofMap3,whichismuchclearerthanthedetailedaccountinChapter2ofthedissertation.

ANNEXURE4

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Penan and Punan Settlements in Belaga, c. 1974

JaylLangub,1975“DistributionofPenanandPunaninBelagaDistrict”,BorneoResearchBulletinVol.7,No.2,September1975.

MAP 2

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Penan settlements in Belaga, 1974

JeromeRousseau,1974“TheBaluyArea”,SarawakMuseumJournalVol.XXIINo.43.

MAP 3

WhentheLicenceareaisoverlaidonhismapoftheirsettlementhistory,itisveryclearthatmuchoftheLicenceareaisindeedtheirtraditionalterritory.ThisisshowninMap4.Inaddition,Brosiusalsosubmitteda1986reportonPenandevelopmenttotheSarawakElectricitySupplyCorporation(SESCo)andthestategovernment,andpublishedanimportantarticleonPenanideasandemotionsrelatingtoterritoryandlandscapeintheSarawakMuseumJournalin1986.

g. anEIAReport from1994 for theproposedMurumHEP, submitted toSESCoand thestategovernment,documentingthePenanvillagesinthePlieranandDanum.

ANNEXURE4

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ItshouldbenotedthatmuchoftheitemsmentionedaboveareavailablelocallyinSarawak,notinexoticforeignjournals.NotoneofthemwascitedintheReferenceslistoftheEIAReport.

With regards tonativecustomary rights to land, it isoftenalleged thatPenanhavenosuch rightssincestatelawonlyrecognisesrightstolandclearedforcultivationbefore1January1958whereasamajorityofPenanwerestilllargelynomadicanddidlittleornocultivationpriortothatdate.

However, Malaysian courts have since the 1990s taken a progressively more expansive view ofcustomary rights,as seen inanumberofcases, specifically theAdongKuwaucase(1996;upheldonappeal),theNorNyawaicase(2001;principlesupheldonappeal,2005),theMadeliSallehcase(CourtofAppeals,2005)andtheSagongTasicase(2002;enlargedonappeal,2005;currentlybeingconsideredforappealtoFederalCourt).

While none of these cases are a direct analogue of the Penan situation, the Adong Kuwau casemakes itclearthat,aswiththeOrangAsli,Penandohavecustomaryrights intheforest,arighttolivelihood,and,bytheNorNyawaiandSagongTasicases, theMalaysiancourtmaywell rulethatPenancustomaryrightsextendtothelanditselfwhensuchacaseisbroughtbeforeit.

Settlement history of Penan Lg Jaik, 1921-81, with overlay of the Licence Area

MAP 4

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TheNorNyawaicaseisespeciallypertinent,inparticularitsrecognitionoftherighttopemakaimenoa(theterritorialdomainofalonghouse)inclusiveofriversandforest.4PemakaimenoaisanIbanterm;thePenanhaveananalogousterm,tanapengurip.

AsforlandsclearedbyPenanafter1958,itshouldbenotedthatinmanyinstances,Penantooktocultivationatthebehestofgovernment,andsincecultivationwouldbeimpossiblewithoutclearingland, the implication is that such land clearing was with the implicit, if not explicit, permission ofgovernment,thussatisfyingtheconditionsofthe1958LandCode.

Conclusion and Recommendations

ConsequentialuponthefatalflawintheEIA,workhasproceededasiftherewerenocommunitieswithrightfulclaimsinthearea.Noprovisionhasbeenmadetosafeguardtherightsandinterestsofthecommunities. Indeed, theobversehasbeen thecase,namely, theLicenceehasdeclared tothesecommunitiesthattheyhavenorightfulclaimsandinterests,eveniftheLicenceeispreparedtodispensewhatitconsiderstobelargesse.Neitherhasthegovernmentintervenedonbehalfofthesecommunities,ensuringtothemadequatecompensationfordestroyedanddamagedresources,lossoflivelihoodandlossoflandsandproperty,noteventoreservetothemanadequatesizeofterritorytoensuretothemanadequatelivelihood.

Inviewof this, it is strongly recommendedthatSUHAKAMurgethesuspensionofany further forestclearingandplantationdevelopmentuntilthisissueisresolvedinajustandequitablemannerinlinewiththeNewNationalAgendaandinaccordancewiththebumiputerarightsofthePenan.Whileapparentlydrastic,thisrecommendationisadvancedforthreesimplereasons:(i)ofallthebumiputeraofSarawak,thePenanarethemostforest-dependentandmarginalised,(ii) forestclearance isanirreversibleact,and(iii)substantialareasaffectingthePenanhavealreadybeencleared, leavingonlyarelativelysmallunclearedarea.Thisisthereforeanurgentsituation.

Asmattersnowstand,thebulkoftheforestandterritoryofthePenanofLgJaikandLgPerahavealreadybeenclearedandplantedtooilpalm,whilesomeoftheforestandterritoryofLgWathasalsobeenclearedandplantedtoacacia;clearanceworkintheforestandterritoryofthePlieranPenanisalreadybeginning.

Thebasicparametersofajustandequitablesolutionshouldincludethefollowing:

1. reservationofasufficientareaofforestandlandforthePenanasexperienceshowsthatthevastmajoritywillnotbeabletosurviveonorholdemploymentineitherthetreeplantationoroilpalmplantation;thewage-ratesaresuchthatevenwithtwoemployeesperhousehold,totalearningswouldlikelyfallbelowthecurrentPovertyLineIncomeforSarawakreportedinthe9thMalaysiaPlan.

2. adequate compensation for such of their rights as are extinguished, their resource basethatisdestroyedordamagedandtheirlandthatistakenforplantationdevelopment.Thisisespeciallyimportantassubstantialareashavealreadybeencleared.Further,inlightofexperience, such compensation should primarily be in land, as cash compensation willnotservetheirmediumand long-termneedsand interests. Thiscouldtakethe formofa

4 InhisHighCourtjudgment,JusticeIanChinquoteda1994paperbythelateheadoftheMajlisAdatIstiadatSarawak,TanSriGerunsinLembat:“Pemakaimenoaisanareaoflandheldbyadistinctlonghouseorvillagecommunity,andincludesfarms,gardens,fruitgroves,cemetery, water and forest within a defined boundary (garis menoa). The purpose of creating a pemakai menoa involves the ritualceremonyofpunggulmenoa.Aftertheceremonyhasbeenperformed,thefirstcuttingofvirginjungleforsettlementandfarmingcancommence.Fromthenonward,thecommunitycanestablishitsrightstothefelledarea,boundaries(garismenoa)aredrawnbetweenvillages.Theseboundariesnormallyfollowstreams,watersheds,ridgesandpermanent landmarks.Pemakaimenoaincludescultivatedland(tanahumai),oldlonghousesite(tembawai),cemetery(pendam)andforestarea(pulau)”

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percentage of the developed land with a medium- to long-term view of engaging thePenan in self-management of such resources, an important means towards achievingtheofficiallystatedobjectiveofbringingthePenanintothemainstreamofdevelopment.Currentmodesofdevelopmentfurthermarginaliseratherthanincorporatethem.

Finally,ifitshouldbewithinthepurviewofSUHAKAM,itisurgedthatSUHAKAMseriouslyconsiderthepossibilityofassistingthePenantoseekaclarificationoftheirrightsincourt.

ShouldtheprevioussuggestionbeoutsidethepurviewofSUHAKAM,itisrecommendedthatSUHAKAMholdapublicinquiryintothecasebeforeSUHAKAMoftherightsofthePenanofBelagainthefaceofplantationdevelopment,ofthereasonsfortheapprovalofsuchadefectiveEIAReport,andoftheproperdivisionofdutiesandfunctionsbetweenLicenceeandgovernment.Itisasadcommentaryonthestateofaffairsthatthemostdisadvantagedandmarginalisedshouldthinkoftheirpastasbetterthanthepresentandnowdreadthefuture.

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ANNEXURE 5

Briefing on the Penans in Ulu Belaga by Dr. J. Peter Brosius,Professor of Anthropology, University of Georgia, Athens, Georgia, US


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SUHAKAM’s Briefing on the Penans in Ulu BelagaDr.J.PeterBrosius,ProfessorofAnthropologyUniversityofGeorgia,Athens,US

INTRODUCTION

BeforeIstartmypresentation,IwouldfirstlyliketobriefyouonthebackgroundofmyresearchontheWesternPenanswhichIconductedinthe1980s.Irecognisetheimportanceofcredibilityofinformationpresentedtoday,hence,itisalsonecessaryformetohighlightthemethodsIusedformyresearch.Later,IwillspeakonsomegeneralaspectsofthePenansandtheirnature,aswellastheirhistoryandconnectiontotheplacesintheinteriorofSarawak.ThePenanswere,ofcourse,previouslynomadic,inasensethattheymovedaroundagreatdeal.Nevertheless,theyhavestrongconnectiontoplacesandhaveverylonghistoryinthoseplaces.

Mypresentationisacombinationofseveralthings.Firstly,Ifeelthatitwouldbeusefultogiveparticipantsasortofvisualsenseofthearea.IknowsomeofyouhavevisitedthePenansinLongJaik.Nevertheless,Iwanttogiveyouavisualsenseofhowtheplacewasduringmystaythereinthe1980s.

AlthoughIamnotveryfamiliarwiththeLawsofMalaysia,IknowthattheSarawakLandCode1958specifies that a person has to have demonstrated to clear land prior to 1958 to establish nativecustomary landclaim.MostofthePenans,however,onlysettledaround1960and1970.However,becauseoftheirwayoflife,mostPenanslack‘temuda’.Thus,hereisawholeclassofSarawakians,orMalaysians,who,essentially,havenobasis forestablishingclaim to land. Theyaredispossessedbecauseoftheirtraditionalwayoflife.

Inaddition,oneof theflawsof theEnvironmental ImpactAssessment(EIA)ReportontheLPF/0018isthatitfailedtoidentifyhumaninhabitantsinthearea.SowhatIhavedoneisIhaveputtogetherphotographsofpeoplewhoresidedinthesaidareabackinthe1980sandsomeotherphotoswhichItookduringmyrecentvisittoLongJaikin2006.

Mypresentationwillpresentinformationon,amongothers,evidenceofprioroccupation,thenatureofPenanhistoricalknowledge,documentaryevidenceonPenanoccupationwithintheUsunApauandthehistoryofPenansettlements.

Background on Research

IlivedwiththecommunityofLongJaik,locatedalongtheSepingRiverinUluBelaga,whichistheareathatwearemainlytalkingabouttoday.IlivedthereforthreeyearfromOctober1984untilOctober1987,whileconductingmydissertationresearchinanthropologyfortheUniversityofMichigan,US.IhaveworkedinSarawak,onandoff,sincethattime.ApartfrommystayinSarawakfrom1984–1987,IreturnedtoSarawakforbriefvisitsin1992,1993and2006.

As an anthropologist, my stay with the Penan community in the 1980s was for my ethnographicresearch.Forapersontobeacceptedandrecognisedasananthropologist,heorshemustconductaresearchwhichrequiresher/himtoliveinaplaceforaminimumofoneyear.Duringthetimeofstay,he/shemust learnthe languageandparticipate in thewayof lifeof thecommunity residingthere.Itisnecessarytolivewithacoupleofdifferentfamiliesduringthattime.DuringmystaywiththecommunityofLongJaik,Iparticipatedintheireverydaylife.Ilearnedtomakesago,Iwenthuntingandfishingandcollectedrattanswiththem.

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Althoughmydissertationfocuswasnotonhunting,IfollowedthemasthePenanshunteveryday.Theplaceswheretheyhuntalsomarkthenamesofrivers.Iwenttoseveralhundredhuntsoverthethreeyears.Additionally,whenthePenansreturntofromtheirhunting,Iwouldweighwhattheycaughtandtooknoteofit.

Ialsoworkedextensivelywiththeeldersongenealogy.ThewesternPenansareveryproudoftheirknowledgeonhistoryandgenealogy.Itcouldbesaidthatsomespecializeinit.Oneofthemeventraveledthroughouthis lifetodifferentcommunitiestolearnthegenealogyofhisowncommunity.HisgenealogicalknowledgeisnotlimitedtothePenansbutalsoonaristocratsoftheneighbouringOrangUlu.

InmyreporttotheStatePlanningUnitentitled“ThePenanoftheBelagaDistrict:ConsiderationsforDevelopment”isadocumentationofmyresearchonthePenans.ThisreportfullydescribesmystaywiththePenansandontheirwayoflifefordevelopmentconsiderationbytheStategovernment.IgivemyconsenttoSUHAKAMtoquoteanyinformationinthereport.

Currently,IaminvolvedinseveralresearchesandprojectsinSarawak.Alltheseresearchesaredonewith theapprovalof theSarawakStateGovernment.Currently, Iamworkingonsome researcheswhichsponsoredby,amongothers,theSarawakMuseumandUniversityMalaysiaSarawak(UNIMAS).IamalsoinvolvedinaprojectwiththeSarawakForestDepartmentandtheSarawakMuseum.

Background on the Penans

The Eastern and Western Penan

IhavevisitedeveryWesternPenancommunityinSarawakwiththeexceptionofLg.BoPurauintheSilat.

BeforeIcontinue,IshouldmentionthattherearetwoprimarypenanpopulationsinSarawak.TheyarecalledtheEasternPenanandWesternPenans.However,theyareactuallyatthenorthandsouthofeachother,withthoseresidinginthenorthintheBaramDistrictaretheEasternPenans,andthoseinthesouth,intheBelagaDistrict,whichwearediscussingtoday,arethewesternPenans.

TheWesternPenansliveacrossabroadswathoftheinteriorofBelagaDistrict,spillingoverintotheBaramDistrictonthenorth.Mostofthenorthandeastofthebigcurveis intheBaluiwhereBakunDamisbeingbuilt.Theyhavemovedacrossthisareaoverttimeduetoseveralreasonsincludingfood.However,theirmigrationwasoftentheirreactiontohistoricaleventssuchastheIbanraids.

Thereareanumberofdifferencesbetweenthetwogroups.TheprimarydifferenceisthattheWesternPenanshaveaveryclearsenseofcommunity,whiletheEasternpenansaremoremobileandtypicalhuntergatherers.Thelaterhaveveryfragmentarygroups.Theybreakupandlaterjoinbackagain.TheWesternPenans,ontheotherhand,haveaverystrongsenseofcommunitythatcantracebackitshistory.Therearesplitsandfusions.TheWesternPenancommunity isvery insolent.Hence, itwasmucheasiertocollectdataaboutthem.Therearealotofpeopletotalkto.1

The composition of historical groups is also documented. For instance in the Sarawak Gazettementioned the followinggroups thePenanApat (including thePenanApatPaong);PenanGeng

1 AttheBriefingDr.BrosuissaidthatthenamesofPenangroupsareabitdifficulttogetahandleonasaPenanmightsaythatheisaPenanGengandPenanApatandPenanBenalui.Whathe isactuallytryingtoshowisahistorical relationship,that is,oneoftheirancestorsbelongstooneofthePenangroupswhichhenamed.ItisalsoawayforthePenanshowsegmentarylineage.Thenamesofthegroups,however, is recognisedanddocumented inhistoricalmaterials. Thenamesof thePenangroupsusually refer toaparticular river. ForinstancetheApatandBenaluianamesofriversinSarawak.

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(includingthePenanGengPleiranandPenanGengBelaga);PenanBenalui;PenanApau;PenanKeluan;PenanBunut;PenanBunut;PenanDipe(Dipah);PenanSeping;andPenanBatuKoyat.

ThePenangroupsinthePleiranandJaikarePenanGeng.

Penans as Tax Payers and Voters

From the late 19th century, the Penans were visited on occasion by the District Officers, NativeOfficers/SAOsandothergovernmentagents.AlthoughthePenanswerenomadicandseemedtobebackwardswhencomparedtoothermainstreamcommunity,thePenansregularlypaidtaxestothegovernmentatthattimefromasearlyas1898.ThisisdocumentedinDistrictReports.

ThePenansalsovoted.Iknowthattheyvotedinthe1970swhichprobablystartedintheearly1960s.

Penan Historical Knowledge

ThePenansareseriouswhengivinginformationabouttheirhistoryandgenealogicalinformation.OneoftheaspectsthatIlearnedwhendoingthisresearchwastoidentifythepersonswhoreallyspeaksthetruthandwhoisreliable.Nonetheless,therearethosewhoseemtobeknowledgeablebutmixuppeopleingenerations,mixescousinswithsiblings.TheinformationIgatheredfromthemareallmentalrecollection.

TherearetwopersonsinparticularwhoIhaveworkedwith,SugunUwingandTingangBajang.SugunUwingwasbornaroundthe1900anddiedon17May1987,whileTingangBajangwasbornaround1908andpassedawayaroundMarchorApril1987.ThePenansdonothavedatesfortheirbirth.So,IhadtoextrapolatetheiragesbasedonmigrationhistoryandotherdocumentationliketheSarawakGazetteandDistrictOfficereports.Forinstance,howtallandbigtheywerewhenthelastvisitfromtheDistrictOfficerwasmade.

TingangBajang,inparticularisaremarkablepersonwithanastoundingmemoryinasensethathismemoryisvividandaccurate.HisknowledgeonthePenangenealogyisdeepandIspentasolidthreeweekswithhimtoobtainhisknowledgeonthePenangenealogy.

BesidesthePenaninBelaga,IalsocollectedsomegenealogyfromthePenansinSuaiandJelalong,Sarawak.TheydidnothavespecificgenealogicallinkstocertainindividualsbuttheydidtracetheiroriginbacktotheSepingandPleiranintheBelagaDistrict.

Concordance of Penan Oral Accounts with Published Accounts

The information obtained from him is corroborated by other Penans as well as finding by otherresearchers.For instance,duringthesameperiodofmyresearch,another researcher,Mr.RajPuri,wasdoingresearchonthePenanLurah,whichisaPenangroupinKalimantan,Indonesia.ThePenanLurahisactuallyagroupofWesternPenanswhosplitofftoKalimantaninabout1905aftertheyhada seriousargument.Mr.RajPuricollectedgenealogyof thePenanLurahandsome fromthose inBelaga.WemetinHawaiiandcomparednotesandfoundconsistencyintheinformationgiventousbythePenans,includinginformationonthosewhomovedtotheBaramDistrict.

IalsospentagreatdealoftimedoingarchivalresearchintheSarawakMuseumandseveralotherplaces.OneoftherichestsourcesofinformationonresearchesconductedinSarawakistheSarawakGazette.TheSarawakGazettehadbegunpublicationin1970.IalsoreferredtofilesfromtheDistrictOfficewhichincludesinformationontravelingreportsandannualreports.Otherpublishedarticlesandbooks include thoseauthoredby,amongothers,Hose,Arnold,Needham,Urquhart,Harrison,

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NicholaisenandLangub.TheSarawakMuseumhasa lotofPenanfile. I spenta lotoftime lookingthroughthosefiles intheDistrictOfficewhichincludedmoredetailedtravelingreportswhichisnotavailableintheSarawakGazette.TheyalsohavedevelopmentreportswhichdocumentsthetimewhenthePenansbegantosettleandtheirlocationandthenamesofofficialswhovisitedthem.

Therearealsoconsensusesofpeople.Ihaveanumberofconsensusesgoingbacktothe1930s.

BasedontheinformationobtainfromthePenansanddocumentsfromarchivesandconsensuses,youwouldseethecontinuityofoccupationthroughtheyears.IalsofoundthatthegenealogicalaccountsobtainedfromthePenansoftenmatcheventsthatwerereportedinpublications.Forinstance,IwastoldbythePenansthataround1875,therewasadisputebetweenthePenansandKayanswhichresultedtosomedeaths.TheytoldmethatsomeonetriedtotakesomeofthePenanstomakethemslaves.ThePenansresistedandkilledthem.ThePenansthenfled.Thefeudcontinued.Althoughlate,thisstorymadeittotheSarawakGazettearound1982-1984.InformationonsomenamesgiventomebythePenans,forinstanceaPenantheycalledLake’Balat,aPenanleaderinvolvedinthefeud,wasalsomentionedintheSarawakGazette.

However, Ineed topointout that thekillingsby thePenanswereveryunusualas thePenansareperhapsoneofthemostnon-violentpeopleonearth.Theyperceivedthekillingsasanacttodefendthemselves.

OtherinformationobtainedfromthePenanswhicharecorroboratedbytheSarawakGazetteandothersourcesincludethefollowing:

Lake’Baya’andKayanUmaDaro–1975Koh’sattackonthePleiran–1896FirstBunutRaidSecondBunutRaid–1916

Evidence of Prior Occupation

EvidenceofPenanoccupation in theUsunApaucanbe tracedback to the1800s. TheSarawakGazetteisrichsourceofinformationwhichdocumentstheexistencePenangroupsinSarawak.GroupsmentionedintheSarawakGazetteincludethefollowing:

PenanGeng–1919,1950and1955PenanGenginUluSeping–1951PenanDipa–1882(forincidentoccurringin1875)PenanBunut–1882,1955PenanApat–1928PenanApau–1955PenanSilat–1955PenanTalun–1955

TheSarawakGazettealsomentionedseveral individualswhoalsoappear incontemporaryPenangenealogiesandoralhistories.Theyinclude:

Lake’Baia(PenanDipa)–1882,1884LujaBaia(PenanBunut)–1882TamaLuyong–1887TamaKelingGau–1892,1902

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TamaSok,TamaDinigan,TamaLawai–1898AbanSelong–1906TamaKumang(PenanGeng)–1919AkamJapi–1950JukUlei(TamanBintang),OyanJuk,MajaJuk,KapunMaja,Juk–1955.

InadditiontotheSarawakGazette,indiviualPenansarealsomentionedinpublicationsby,amongothers,GuyArnoldandIanUrquhart,RodneyNeedhamandJohannesNicolaisen.

History of Settlement

Thoughtraditionallynomadic,thePenanintheBelagaDistricbegantosettleasearlyas1906(PenanBunut,LinauRiver).TheyabandonedagricultureafterbeingraidedbytheIban.BeforeWorldWarII,thePenanintheLinauRiveragainbegantotakeupagriculture,againreturningtoanomadicwayoflifeduringthewarandafter.SeveralPenansinBelagaDistrictbeganexperimentingwithagriculturefromthelate1950stoearly1960s.

Theyears1960and1970wereaperiodofmassivesettlement. In1960, therewereabout70%-80%nomadicPenans.However,by1970, therewereonlyabout10%Penanswho remainednomadic.Theywereneverforcedtosettleandnevertakenoutfromtheirancestralland.Theychosetosettleastheysawitasanopportunitytosettleinplaceswheretheyhavebeen.

AllPenansintheBelagaDistrictweresettledby1970.ThePenancommunityinLongJaikwasoneofthelasttosettleinabout1970.TheysettledintheJekRiver,andhavegraduallymoveddowntheJaikandSepingtotheirpresentlocation.

Relationship between the Penans and Places

ThefirsttimeIarrivedinLongJaik,surelyIcouldn’tmakesenseofanythingifIdidn’tknowsomethingabouttheplaceasmyresearchfocusesonthehistoryofthepeople,theirwayoflife,includingtheirmovement,migration.KnowingthenamesofplacesforthecaseofthePenansisimportantaseverydiscussionwiththeniswithreferenceofnamesofplaces,specificallyrivers.IlearnedthatthePenansusetheriversasakindofskeletontomapouttheirland.

WhenIaskmystudentintheUniversityofGeorgiaonhowmanyroadstheycanname,mostcouldnameabout25-30namesofroads.ThePenans,ontheotherhand,couldnameabout500namesofriversandstreams.IcollectedthousandsofriversandstreamsnamesintheinteriorofSarawakfromthePenans.

Thenamesofriversandstreamsmarkallkindsofthings.Sometimesitisthenameofaspeciesoffruittreethatgrowsatthemouthofariver,orarockformationlikebatugajah,orhowariverflowsparalleltoanotherriver,orhowthemouthoftheriverchangeswhenitfloods,orothereventsthathappenedthereforinstancewhensomeonekillsarhino.Thenamesofplacesarerichwitheachtellingastoryofpeople’slivesandhistory.

Whenapersondies,thereispropitiationagainstsayingtheirnames.Hence,whenapersonpassesaway,he/shewouldbe referredto thenameof riverorplacenear towhere theyareburied.Forinstance,ifapersonpassesawayandburiedneartheKlangRiver,theywouldrefertopersonaslake’Klang.Itgivesakindofmarkerforthemtorememberwherepeopleareburied.ThePenansdomarkthegraves.However,Penangravesareusuallyvisibleforonlyafewyears.Nonetheless,thepointisthereisanassociationofpeople’slivesandtherivers,evenwhentheyhavepassedon.

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Duringmyresearch,Ialsousedabout150,000mapsprovidedbytheStateGovernmentandIhavemarkedthoseplacesinaccordancetoinformationgivenbythePenans.Imanagedtocollectmorethan2,000rivernames.

ThePenanlanguageis rich.SimilartothephrasethatEskimoshave30wordsforsnow;thePenanshavedifferentwordsfordifferenttypesof landscapefeatures.For instance,riversthatflowparalleltoeachother, rivers thatmeetat theendof theheadwatersand rivers thataredeep,eachareidentifieddifferently.

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ANNEXURE 6

Presentation Paper on Native Customary Laws and Native Rights over Land in Sarawak by the Sarawak Attorney General’s Office


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NATIVE CUSTOMARY LAWS AND NATIVE RIGHTS OVER LAND IN SARAWAK 1. PREAMBLE1.1 Native Customary law system prevailing in Sarawak is peculiar to our State. What is “native

customarylaw”mustbedeterminedwithreferencetothelawsoftheState,andwhatconstitutes“nativecustomaryrights”overlandmustalsobedeterminedwithreferencetotherelevantStatelaws.

1.2 Native Customary Rights to land is also a system which recognizes the rights of the native

community tooccupyanduse landwhichby lawbelongs in theolddays to theCrown,butnowadaysbyreasonofSection12oftheLandCode,belongstotheState.

1.3 Thesystemofnativecustomaryrightsoverlandhadevolvedovernearoneandhalfcenturies;

since1841whentheRajahJamesBrookedecidedtomakehisfirstpronouncementpertainingto Land. Through this process of evolution, native rights to land were recognized, undercertainconditionsspeltout inthevariousProclamationsandOrdersmadebytheRajahsandsubsequently,invariouslegislationspassedbytheCouncilNegeri(nowDewanUndanganNegeriofSarawak).

1.4 Assuch, landoccupiedbynativesundernativecustomarytenure,areuntitled i.e.there isno

documentoftitletoshowownership.Whetheranativehasrightstosuchlandwoulddependonwhetherheorhisforefathersfulfilledcertainrequirementsunderthelawsprevailingatthetimewhichrightstothelandweresaidtohavebeencreated.

1.5 NativecustomswhichcouldcreaterightsoverlandhadbeenmodifiedinSarawakbylawsmade

bytheRajahsandsubsequentlybytheCouncilNegeri.Atthisjuncture,itoughttobepointedoutthatinalllegalsystems,indigenousrightsmaybemodifiedorextinguishedbylegislativeorexecutiveaction.ProfessorDouglasSandersinhisPaperon“IndigenousAndTribalPeoples:TheRighttoLiveOnTheirOwnLand”(presentedatthe12thCommonwealthLawConferenceheldinKualaLumpurinSeptember,1999)stated:

“A leadingAustralianconstitutional textsummarizes thebasic rule fromtheMabodecisionas

follows: Theindigenouspopulationhadapre-existingsystemoflaw,whichalongwiththerightssubsisting

thereunder,wouldremaininforceunderthenewsovereignexceptwherespecificallymodifiedorextinguishedbylegislativeorexecutiveaction.”

1.6 Itmustbeemphasizedthattheevolutionofourlawsonnativecustomaryrightsoverlandover

morethan1½centurieswasapeacefulandorderlyprocess,withoutanyseriousdiscordamongstthevariouscommunitiesinSarawakorbetweenthemandtheGovernment,andhasenabledtheGovernmentofthedaytoimprovethesocialandeconomicpositionofthesecommunitiesandbringaboutoveralldevelopmentandprogresstotheruralareas.

2. NATIVE CUSTOMS AND NATIVE CUSTOMARY LAW

2.1 It ispertinent toobserve there isa significantdifferencebetweennativecustoms (Adat)andnativecustomarylaw.

2.2 AJNRichards(aformerResidentandacknowledgedauthorityonthissubject)inhisbookLand

LawandAdatatpage9,stated: “AswaspointedoutbyMooney,asCrownCounselandHickling,thelawdoesnot,infact,gives

effecttoanycustomswhatsoeverexceptthecodifiedlawofdelicts,…”2.3 TheLandCodeand itspredecessordefines“customary law” tomean“acustomorbodyof

customstowhichthelawofSarawakgiveseffect”.

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2.4 ThenativesofSarawakmayhaveandinfactdohavemanycustoms,butforthesecustomstohaveeffectas“customarylaws”theymusthavethesanctionoftheLaw.Thisiswhatcharacterizedthe difference between native customs and the customary laws; and this differentiation isacknowledgedbythedefinitionof“Adat”intheMajlisAdatIstiadatSarawakOrdinance,Ord.No.5of1977where“Adat” isdefinedas“nativecustomorbodyofnativecustomstowhichlawfuleffecthasnotbeengiventhereto”.

2.5 Thus,inrelationtoland,thepracticeofnativecustomdoesnotnecessarilygiverisetorightsover

land.ItisonlythepracticeofthosecustomswhicharepartofthecustomarylawofSarawak,whichcancreaterightstolandandthisisevidentbytheprovisionsofSection5(1)oftheLandCode which provides, inter alia, that native customary rights over land may be created “inaccordancewithnativecustomarylaw”.“Nativecustomaryrights”toland,however,receiveditsfirststatutorydefinitionintheLandSettlementOrdinance(alsoknownasRajahOrderL-7of1933),enactedon22.6.1933.ItisdefinedbySection66ofthatOrdinanceasfollows:

“Native customary rights shall be recognized in respect of – (a) landplantedwithfruittrees,whenthenumberoffruittreesamountstotwentyandupwards

toeachacre;

(b) landthatisincontinuousoccupationorhasbeencultivatedorbuiltonwithinthreeyears; (c) burialgroundsorshrines; (d) usual rightsofway formenandanimals from rivers, roads,orhouses toanyorallof the

above.”(emphasisadded)2.6 However, the Government has always respected the Adat of the natives in Sarawak and

establishedtheMajlisAdatIstiadattocodifytheAdatsofthevariouscommunitiesandestablishedaNativeCourtsSystemtoseethatnativecustomsareenforced.SofarthefollowingAdatshavebeencodified.

(i) AdatIbanOrder,1993(Swk.L.N.18/93) (ii) AdatBidayuhOrder,1994(Swk.L.N.27/94);and (iii) AdatKayan-KenyahOrder,1994(Swk.L.N.28/94) ThoseAdatswhichhavebeencodifiedwouldconstitutethenativecustomarylawoftheState.

TheunmodifiedcustomsandtraditionscanbepracticedbythenativecommunitiesbuttheydonotformpartofthenativecustomarylawoftheState.

3. PRE-1933 LEGAL POSITION ON NATIVE RIGHTS TO LAND3.1 Although the Land Settlement Ordinance provides the first statutory recognition to native

customaryrightsoverland,theexerciseofrightsbynativesoverlandwereregulatedbyvariouspronouncementsandordersmadebytheRajahspriorto1933.

3.2 Infact,theexercisebythenativesofcustomaryrightsoverlandhadbeenrecognizedsincethe

daysofthefirstRajah.Writinginhisjournalin1840,thefirstRajahstated:

“ThefruittreesabouttheKampong,andasfarasthejungleround,areprivateproperty,andallothertreeswhichareinanywayuseful,suchasbamboo,variouskindsformarkingbark-cloth,thebitterkony….andmanyothers. Land, likewise, is individualproperty,anddescends fromfathertoson;so,likewise,isthefishingorparticularrivers,andindeedmostotherthings…”

3.3 Legislationwassubsequentlyintroducedtodealwithspecificaspectofcustomarylaw.In1899,

thesecondRajahissuedtheFruitTreesOrder.

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Section1reads: “Suchfruittreeswhichhavechieflyspringupfromseedsthrownoutofandabouthouses,

andhavebecomecommonpropertyoftheinhabitantsofalonghousesorvillage,arein nocasestobesoldorinanywaytransferredorclaimedbyindividualsleavingsuchhouses orvillages.”

Andsection2reads: “AnyDyakremovingfromariverordistrictmaynotclaim,sell,ortransferanyfarmingground

insuchriverordistrict,normaybepreventothersfarmingthereon,unlessheholdssuchland underagrant.”

3.4 ThesignificanceofthisOrderisthatitsetsoutthemannerinwhichclaimstonativecustomary

tenuremaybemadebyanativecommunitythroughthecultivationoffruittreesonlandwhichwasdeemedtobelongtotheState.Anotherimportantcharacteristicofnativecustomarytenurewasapparent, i.e. rights socreated throughnativecustomary tenuremaybe lost ifanativemovedfromoneriversystemtoanother.

3.5 Thenextdevelopmentoccurredin1920whentheRajah’sOrderNo.VIII,1920waspublishedon

21.10.1922,therelevantpartsofwhichreadsasfollows:

“22. (i) Under this part lands may be occupied by Natives free of all charges for the cultivationoffruittrees,padi,vegetables,pineapples,sugarcane,bananas,yams andsimilarculturesinaccordancewiththecustomarylawsprovidedthatwhere possibleclaimstofruitgrovesandfarming landsshallberegistered.Recordsof suchclaimsshallbekeptbyallNativeHeadmenandalsointheLandOfficein eachdistrict.

(ii) Acertificate in the formof ScheduleAofNotificationNo……of 1920maybe

issuedtoregisteredlandholdersunderthispart.”(emphasisadded). AsupplementtotheOrderreads: “2. (i) Native land reserves shall be made in suitable situations and these shall

be divided into lots of three acres and any native born subject of His Highness the Rajah shall be permitted to occupy one such lot free of all charges (excepting fees for demarcation) provided that no person not being a native of the Country shall occupy land in such reserves and further that no one person shall occupy more than one lot at one and thesametime.

(ii) Arecordofthenamesofthoseoccupyinglandunderthissectionshallbekeptby

allTuahKampongandalsointheLandOfficeineachdistrict. (iii) AcertificateintheformofScheduleAmaybegrantedtoeachnativelandholder

onapplication.”(emphasisadded).3.6 FromtheseOrdersandtheLandSettlementOrdinance(formerlyknownasRajahOrderL-7of

1933),itisobviousthattheonlyrecognition,givenbywrittenlawsaspronouncedbytheRajah,requiresphysicaloccupationofanareabeforeanativecanestablishhisrightsoverthesame.AsAJNRichardsnotedinLandLawandAdatatpage8–“Occupationundercustomappearstohavebeengenerallyregardedas“lawfuloccupation’and‘lawfulownership’”.The1920Orderandthe1933Ordinanceevenrequiredsomeformofregistrationofsuchrightstoaccordnativesprotectionoftheirclaimsoverland.Additionally,itistobeobservedthattheRajahdidplacealimitationontheamountoflandthatanativecouldoccupybytheexerciseofrightsunderhisAdat.Atthatpointintime,theRajahonlyallowedeachnativetooccupyonelotofthree(3)acres.Also,underthe1933Ordinance,landclaimedonthebasisofcultivationbyanativemustbeincontinuousoccupationorhadbeencultivatedon“withinthreeyears”.

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3.7 In1939, theRajah realizedaneed toprevent somecommunities frommoving into territoriesoccupiedbyothernativecommunities.Hence,theProhibitedAreasOrdinancewaspassedtopreventsomecommunitiesfrommovingintoareasalreadyoccupiedbyothers.Inotherwords,nativecommunitiesdonothaveabsolute licencetomove intoanyarea,clearvirgin junglesandsettlethereon.TheRestrictedAreasNotification(see:Vol.VIIoftheRevisedEditionoftheLawsofSarawakpage153)prohibitsSeaDayaks(Ibans)fromremaininginthethenBaramAdministrativeDistrictforanaggregateperiodofmorethan60daysinanycalendardaywithoutthepermissioninwritingoftheDistrictOfficer,BaramorDistrictOfficer,Limbang.

3.8 After the1933LandSettlementOrdinance, rulesandadministrativecircularswere introduced

toreinforcetherequirementfornativestooccupyandcleartheirlandbeforetheycouldhaverightsoverthesame.ThisisillustratedbytheAppendixmadetotheTusunTunggu(ThirdDivision)Order,publishedinVol.VIIoftheRevisedEditionoftheLawsofSarawak1958,asa“guidetoJudges,Magistratesandothersonadoption,divorce,theacquisitionanddispositionofpropertyaspracticedamongstSeaDayaksoftheThirdDivision,ratifiedatthePenghulus’Conference,heldatSibuon15July1952’.Therelevantportionsthereofread:-

“7. Theoreticallyalluntitledlandwhetherjungleorclearedforpadifarming(Temuda)istheproperty

oftheCrown.ThefactthatDayaksdoclearaportionofvirginlandforthesiteoftheirpadifarmsconfersonthemarestrictedrightofproprietorshipoverthelandthuscleared.Oncethejunglehasbeencleareditbecomestemuda.It isarecognizedcustomthattemudaisfortheuseoftheoriginalworker,hisheirsanddescendants.ThisistheonlywayDayakscanacquirelandotherthanbygiftorinheritance.

Informerdaystherewerenorestrictionsonanyonefellingjungleprovidedthathedidnotdestroy

valuablecommercialtreessuchasgutta,jelutongandengkabang.Butitisnotsonow.Sincethe introduction of the Forest and Erosion Ordinance no one is allowed to fell jungle withoutpermissionfromtheproperauthority.

NoDayak isallowedtosell,purchaseor lease(bywayofdemandingrenteither inkindor in

cash)untitledland.ItwouldbeaninfringementoftherightoftheCrowniftheydidso,andtheymaybeprosecutedinviewofthefactthatsellingofuntitledlandisprevalentinthisdivision,andDayaksseemtoforgetthiscustom.

TherearenootherwaysinwhichDayakscanpartwithpossessionofuntitledlandotherthanby

giftorondeath.WhenaDayakabandonshislandtemudaandmovestoanotherdistricthelosesallhisrightstoit.ThelandthathasbeenfarmedbyhimrevertstotheCrown(aslegallyitisCrownland)anditisusuallysetasideforthebenefitofthegeneralcommunityortohelpthosewhoareotherwise lacking in land. In suchacasetheoriginalownerhasno right topreventothersfrommakinguseofthelandandtheuseracquirestheright.”(emphasisadded).

3.9 ItoughttobepointedoutthatwhatissetoutabovehasbeenmadeanAppendixtotheTusun

Tunggu(ThirdDivision)OrderandwasalsoadoptedbytheTusunTunggu(FourthDivision)OrderandTusunTunggu(FifthDivision)Order.ItthereforehastheeffectandauthorityandconstitutesthecustomarylawsoftheSeaDayak(Iban)inSarawak.

3.10 What is contained in this Appendix is also consistent with what was contained in Secretariat

Circular No. 12/1939 which briefly outlined the creating of rights over land through nativecustomarytenureasfollows:-

(i) Therighttocultivateclearedlandvestsinthecommunitywithprioritytotheheirsoftheoriginal

fallerofthebigjungle.Therightmustbeexercisedinaccordancewithacyclecompatible withthepreservationofthemaximumfertilityofthe land(andno longer)bymethodsof cultivationwithinthereachofthecommunity.Thecycleis,intheireyes,notamatterforrule ofthumbbutforexpertnativeopinion.

(ii) Where not inconsistent with the above, the existence of permanent cultivation of a

reasonabledensityisevidenceofcustomaryownershipasopposedtocustomaryrightsof user.

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(iii) Individualownershipislimitedbythecustomaryrightofthecommunitytoasayinthematter ofdisposaltoanyoneoutsidethecommunity.

(iv) Nocommunityorindividualmayholduplandinexcessofrequirementsand,theextreme

case,removaltoanotherdistrictautomaticallyextinguishedallrightsofuser.TheoldOrder (a)dated10.8.89isanexcellentexpositionofthisprinciple.

3.11 Insummary,thecreationandexerciseofnativerightsoverland,priortothepresentLandCode

which came into force on 1st January 1958, were regulated by laws or Orders made by theRajahorCouncilNegeriandnotjustbythecustomsandtraditionsofthenatives.TheselawsorOrdershavetheeffectofmodifyingoroverridingcustomsortraditionspracticedbythenatives,andtheysetoutthecustomarylawsforcreationorexerciseofrightstoland.Theylaiddowntheconditionsandrestrictionsforthecreationofnativerightstolandandlimitedthesizeoftheland,withouttitle,whichnativesmayoccupyandclaim“ownership”.

3.12 Subsequentto1958,nativecustomaryrightsmaybeclearedoverInteriorAreaLanduponthese2conditions,viz:

(a) apermitisobtainedundersection10(3)oftheLandCodefromtheSuperintendent;and (b) bydeployinganyofthesemethods- (a) fellingofvirginjungleandoccupationoflandtherebycleared; (b) plantingoflandwithfruittrees; (c) occupationorcultivationofland; (d) useoflandforburialgroundorshrine; (e) useoflandofanyclassforrightsorway;or (f) anyotherlawfulmethod.3.13 OtherlawfulmethodsmustrefertotheAppendixtotheTusunTunggu–seeparagraph3.8above

i.e.bygiftorinheritance.Itisnecessarytonotethatfishingorcollectionofjungleproducedonotcreaterightsoverland.

4. RELATIONSHIP BETWEEN NATIVE CUSTOMARY LAW AND OTHER STATE LAWS 4.1 Asthedefinitionofcustomarylawimplies,thewrittenlawsoftheStatemusttakeprecedence

overnativecustoms.Thisisbecausefornativecustomstohavethestatusofcustomarylaws,theymustbethosewhichthelawsofSarawakgiveseffect.ThisisfurtherreinforcedbytheprovisionsofSection9oftheNativeCustoms(Declaration)Ordinance1996,whichreads:-

“If any provision of a code is found to be repugnant toor is inconsistent with a provision of

any written law, the latter shall prevail.”4.2. ThisisfurtherreinforcedbySection10(4)oftheLandCodewhichre-enactedSection8(4)ofthe

Land(Classification)Ordinance1948.Section10(4)reads:- “Theoccupationof InteriorAreaLandbyanativeornativecommunitywithoutapermit

inwritingfromaSuperintendentshallnot,notwithstandinganylaworcustomtothecontrary, conferany rightorprivilegeonsuchnativeornativecommunityand, inanysuchcase, suchnativeornativecommunityshallbedeemedtobeunlawfuloccupationofStateland andsection209shallapplythereto.”(emphasisadded).

4.3. ThelegalpositiontakenbytheStatewithregardtotherelationshipbetweencustomsandwrittenlawisnodifferentfromthatadoptedinanyothercommonlawjurisdiction;thatis,customsmaybeoverriddenbystatutes.

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5. COLLECTION OF FOREST PRODUCE, FISHING AND HUNTING BY NATIVES. 5.1 Althoughnativeshavebeencollecting timberandother jungleproduce fromforests for their

domesticorpersonaluse,suchasforfirewood,buildingofhousesandboats,theexerciseofsuchrightsbynativeshavebeenregulatedbylawsincetheendofthe19thcentury.Thefollowingaretherelevantlegislationsgoverningthetakingoftimberorforestproduce:-

(a) TheRajah’sOrderdated22.6.1899states,interalia,that“anypersonwishingtoworkand

collecttimberforwhateverpurposeshallfirstobtainpermitattheResident’soffice.

… Anypersonworkingtimberwithouta licenseonandafterthe lstdayofAugust,1899will

renderhimselfliabletoafinenotexceeding$25.” (b) OrderNo.1,1912statesthat,interalia,“itisherebyorderedthatthefellingofEnkabangand

Keitotreesisstrictlyforbidden”. (c) OrderNo.IX,1912provides,interalia,that– “Wheneveranypersonorpersonsaredesirousofplantingplotsofmarshlandwhichhave

beenclearedwithinthreeyearspreviouslyorhilllandwhichhasbeenclearedwithinseven yearspreviously,suchpersonorpersonswillbepermittedtodestroyallkindsofEnkabang, KeitoandJelutongtreesfoundonsuchlandswhennecessarywithoutpenalty,butwhena personorpersonsdesiretoclearmarshlandcoveredwithjungleofagrowthofmorethan three years old or hill land covered with a growth of more than seven years old where such treesaregrowing,permissionmustbefirstobtainedof theOfficer inChargeof the district;otherwisethepenaltywillbeenforced.”(emphasisadded).

(d) Similarly,OrderXIV,1921provides,interalia,asfollows: “2. (i) Exceptasprovidedinrules9and10belownopersonshall– (a) cut,saw,convertor removeanytree,timberorfirewoodonor fromState

land;or …

(c) cut,collectorremoveonorfromStatelandanyofthekindsofforestproduce mentionedinScheduleI,exceptunderandinaccordancewiththeconditions ofalicenseinForm1underthehandofaForestOfficerorotherOfficerduly authorizedinthatbehalf.

9 (i) WiththewrittenpermissionoftheConservatorpermitsinForm17maybeissued underthehandofaForestOfficertocut,collectandremoveonorfromState landanyforestproducethereinspecified.

11 (i) NotwithstandinganythinginthisOrdercontaineditshallbelawfulforanysubject

ofH.H.theRajahofSarawaktocutandremovefromState landanytimberor forest produce required by him for his own use and not for sale, exchange or profit.”(emphasisadded).

(e) Section108oftheLandOrdinance(Cap.27)providesinteralias,thatanypersonwhoshall

be foundunlawfullyoccupyinganyCrown landeitherbycultivatinganypart thereofor cuttingtimberorproducethereonshallbeguiltyofanoffenceagainsttheOrdinance.

(f) TheForestsOrdinance(Cap.31)of1934andForestsRules,1947. CollectionofforestproducefromStatelandforestsorcommunalforestswerealsoregulated

bytheForestsOrdinanceof1934,whichhasbeensupersededbytheForestsOrdinance

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(Cap.126)of1953,whichcameintoforceon1.1.1954.Section37oftheForestsOrdinance of1934providesthatwhentheResidentissatisfiedthatitisthedesireofamajorityofthe membersofacommunity thatacommunal forest shallbeconstitutedheshall,with the approvaloftheChiefSecretary,publishaproclamationintherequisiteform.

Onceacommunalforesthasbeendulygazetted,section43(1)oftheForestsOrdinance of 1934provides that subject toanyconditions imposed inwritingby theDistrictOfficer undersection42,anymemberof thecommunitymayremovefreeof royaltyor feeany forestproduceforhisownuseandnot for sale,exchangeordirectprofit.Section43 (2) providesthatnootherpersonshallremoveforestproduceforwhateverpurposes.

(g) TheForestsOrdinance(Cap.126)of1953 ThisOrdinancecame intoforceon1.1.1954andfurther regulates thetakingof timberor

forestproduce,evenbynatives.Forinstance,section65followsanyinhabitantofSarawak toremove,fromStateland,whichisnotaforestreserve,timberproduceexclusivelyforhis ownuseandnotfortradeorbarterorprofit.

5.2. (a) It is to be noted that under both the Forests Ordinance 1934 and the current Forests Ordinance 1953, the Government has the right to constitute Protected Forests, Forest Reserves and Communal Forests. In constituting Protected Forests, the Government would acknowledge and concede certain rights or privileges to the affected native communities. For instance, when the Lemiting Protected Forest (216,800 acres) was constituted on 15 September 1951, the Government acknowledged the rights of the communities expressly named therein “to farm their secondary forest (temuda) but it shall be an offence to clear high forest except with the authority of the Conservator of Forests. The persons named shall have the right to cultivate the rubber and fruit gardens named with the provisos that no tree may be felled and no more trees may be planted”(emphasisadded).

(b) Thus the rightsof thenativeswithinaparticularprotected forestarestrictly regulatedby

the Notification constituting the same e.g. G.N.S. 881/1951 constituting the Lemiting ProtectedForest.

5.3. (a) In the case of forest reserves, the amount of jungle produce that could be taken

therefrom are controlled. For instance, in constituting the Binatang Forest Reserve (vide L.N.791dated3.7.1951),itisstated,interalia,that:

“TheForestReserveisconstitutedforthebenefitofthefollowinglonghousesandkampongs

whoshallhavetherighttotakejungleproducefortheirownuseandnotforsaleorbarter. Providedthatthequantitythatmaybetakenannuallyshallbesubjecttothecontrolofthe ConservatorofForests.”

(b) Notonlythetakingofjungleproducebutalsofishingandhuntingwouldberegulatedwhen,

forinstance,NationalParksareconstituted.AtypicalexampleistheGunongMuluNational ParkProclamations(G.N2852and2853of3.10.1974)whichconfinedfishingandhuntingby thecommunitiesnamedtherein tocertainspecifiedareasof theGunongMuluNational Park.

5.4 Where there is a need to maintain a forest area for the benefit of a local community, the

GovernmentcoulddeclareanareaasCommunalForest,seeforinstance,theKabongCommunalForest(2,500acres)(G.N.S.96/61)whichisforthebenefitoftheinhabitantsofKampongsKabongandPalog.

5.5 Alltheseshowthattherightofthenativestotaketimberandjungleproducehavebeenregulated,

evenbeforeMalaysiaDay,by lawsandarecontrolledby theConservator (nowDirector)ofForests.Althoughthenativesmayhavetheirowncustoms,suchas,pemakaimenoaandpulaugalau, thesecustomsarenotpartof theTusunTungguor theAdat IbanoranyotherCodesproducedbytheMajlisAdatIstiadatSarawak.Hunting,fishingandcollectionofjungleproduce,

ANNEXURE6

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therefore,donotcreaterightsoverland(see:AppendixtotheTusunTungguandSection5oftheLandCodeandSection66oftheLandSettlementOrdinance).Thenativesunfortunatelyhaveawrongperceptionthatitistheircustoms,thoughnotpartofnativecustomarylaw,whichgivesthemrightstoland,thejunglesandinsomecases,thestreamsandriversneartheirlonghouses.But,thewrittenlawswhichhaveevolvedover160yearsdonotrecognizecertainoftheircustomsascustomarylawsuponwhichtheycouldcreaterightsoveruntitledStateland.

6. GOVERNMENT POLICIES AND PRACTICES REGARDING RECOGNITION OF NATIVE RIGHTS

TO LAND 6.1 WhentheGovernmentintroducedtheLandCode(Amendment)Bill2000,theGovernment’sfirm

intentionistorecognizenativerightslawfullycreatedoverland.ThatisstilltheobjectiveoftheGovernment.

6.2 Thismeansthat theGovernmentcanonly recognizethose rightsofnativeswhichhavebeen

lawfullycreated.Inotherwords,theserightsmusthavebeencreatedinaccordancewiththenativecustomarylawi.e.lawthatgivesforcetonativecustoms.

6.3 All landbelongstotheState. Inthecaseofnativecustomary land,withnotitles,nativeswith

legitimatecustomaryrightstotheland,(i.e.createdinaccordancewiththelaw),occupythelandaslicenceesoftheGovernment.

6.4 TheGovernment intendstosurveytheland,settleorconfirmtheirrightstothelandandhave

theirinterestsorrightsregisteredandultimately,granttitlestotheland.Thisprocessisboundtotaketime.Additionally,inthemeantime,theGovernmentwantstheNCRlandtobedevelopedintoplantationestates.Inthisregard,theGovernmenthasstartedtheNCRlandbankconceptwherebythenativeNCRclaimantcan“pool”theirlandtogetherintoalargeestateandenterinto jointventureswithestablishedplantationcompanies for thedevelopment thereof intooilpalmplantationsorthelargescalecultivationofothercashcrops.Underthisscheme,thenativeswillhavesharesinthejointventurecompanieswhichwouldbegrantedleasesovertheNCRlandforatermof60years.Uponexpirythereof,thelandwilleitherberevertedbacktothenativesortheirheirsorifthenativesagree,theleasetothejointventurecompaniescanbeextended.Inthismanner,theGovernmentintendstofacilitatethedevelopmentoftheNCRlandandtobringbettereconomicreturnsorvalueforsuchlandtothenatives.UptoOctober2001,43,975.5hectaresofNCRlandhasbeenconstitutedas“landbank”,with27,505hectaresclearedand19,755hectaresplanted.

6.5 Theobjectivementionedinparagraph6.4isdifficulttoachieveifthenativecommunitiesmakeclaimswhicharenotconsistentwiththelawsgoverningthecreationofnativecustomaryrightsoverlandorwheretherearedisputesbetweenthenativesthemselvesastothesizeorboundariesoftheirrespectiveholding.

6.6 As regards claims to forests (pulau), the Government will maintain the stand that the pulaus

arenot“temuda”(farmingland)astheyareneverbroughtundercultivation.Thenativeshaveno legitimate right to thepulausandno legal rights to the land therein. If there isaneedbyanycommunityforjungleproduceetc.fromaforestareafortheirownsubsistenceoruse,theGovernment could declare such a forest area as a communal forest. The native communityoughtnottoclaimjunglewhichtheyhaveneverbroughtundercultivationastheirNCRland.

6.7 TheGovernmentmaintainsthatwhatanativecouldclaimashisNCRlandmustbeforhisown

farmingrequirementandmustbelimitedtowhatheneedsoriscapableofcultivatingbasedupontraditionalfarmingmethods.Inotherwords,thesizeofhisNCRlandmustnotexceedwhatheneedsforhimselfandhisfamily,andusingtheconventionalortraditionalmethodoffarming,abletobringcultivation.

6.8 Whatanativeclaimsasrightsundernativecustomarylawmustberestrictedtowhatthelaws

overthelast1½centuriespermit.Ifherequiredmorelandthanwhathecouldobtainthroughthenativecustomarylawsystem,hemayapply,likeanyotherSarawakian,totheGovernmenttoalienatehimland.Heshouldnotattempttoincreasethesizeorareaofhislandbypleadingthatheisentitledtohavemorelandbecauseofcertaincustomswhicharenotrecognizedas,

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ornotpartof,thecustomarylawoftheState.ThelawonNCRwhichhasevolvedmorethanacenturymustberespected.Forinstance,theprinciplethatNCRlandistemudaland(i.e.landclearedofvirginjunglesforcultivation)andoccupiedbythenativesorusedasburialgroundor rightofway,hasbeenpartof thenativecustomary lawsince1933and reinforcedby theSecretariatCircularof1939anddeclaredasportoftheTusunTungguoftheIbansandrestatedinSection5oftheLandCode.TheGovernmentcannotagreetoanychangeinthisfundamentalconceptwhichhasgovernedlandutilization,planninganddevelopmentfornearlyacentury.

6.9 NCRlandliketitledoralienatedlandmayberequiredforpublicpurpose.UndertheLandCode,if

NCRlandisneededforpublicpurposes,thelawfulholderofsuchlandwillbepaidcompensation.NCRlandclaimantswillnotbetreateddifferentlyfromregisteredproprietorsofland;consistentwiththerelevantprovisionintheFederalConstitutionfortheprotectionofpropertyandagainstdiscrimination.

7. CONCLUSION7.1 TheGovernmentwillalways respectallnativerightsto land, lawfullyacquired inaccordance

withthenativecustomary lawsof theState.Likewise, theGovernmentexpects thenatives torespectsuchlawsevolvedinapeacefulandorderlymannerovermorethan1½centuries.

7.2 TheGovernmentwillcontinuetofacilitatethedevelopmentofNCRlandwithaviewtoenabling

thenativeswholawfullyhaverightsoversuchland,toenjoybettereconomicreturnsandvaluefortheland;andintheprocess,alsotoenhancedevelopmentoftheruralareasandtoimprovethelivingstandardsoftheruralcommunities.

7.3 TheGovernmentwillrespectandhonourtheconstitutionalprotectionsaccordedtothenatives

byawardingrecognitionoftheirlegitimaterightstotheirNCRlandandifsuchlandarerequiredforpublicpurposes,topaytheduecompensation.

7.4 TheGovernmentrecognizestheneedofthenativestomaintaintheirtraditionalwayoflifeand

farmingandtheneedtotaketimberandjungleproducefrom,andtohuntandfishing,inourforests.Wherethereisaneedforthenativestotaketimberortimberproductsfromaforestarea,theGovernmentwilldeclarethatareaasacommunalforest.Incaseswhereaparticularnativecommunityneeds tobesettled inaspecifiedareawhichsuit their traditionalwayof lifeandfarming,theGovernmentwould,pursuanttoSection6oftheLandCode,declarethatareaasaNativeCommunalReserve.ExamplesofNativeCommunalReservesdeclaredrecentlyare:

(a) TheNativeCommunal(Agriculture)ReserveOrder,2001(Swk.L.N.77/2001); (b) TheNativeCommunal(Kampung)ReserveOrder,2001(Swk.L.N.65/2001); (b) TheNativeCommunal(CommunityHall)ReserveOrder,2001(Swk.L.N.28/2001); (d) TheNativeCommunal(Surau)ReserveOrder,2001(Swk.L.N.93/2001);7.5 ButthenativesmustatthesametimeunderstandandrespecttherightsoftheGovernmentto

realize,forthebenefitofthecountry,thefulleconomicpotentialsoftheresourcesofourforestswhicharenotpartofournationalparks,naturalreservesandwildlifesanctuaries.

7.6 InademocraticsocietywheretheRuleofLawmustbeupheld,theinterestsandrightsofany

individualshouldbeexercisedoradvancedwithoutanydisregardfortheLawandtheinterestoftheStateandNation.Thenativepeopleshouldnottakethelawintotheirownhandsbysettingupblockadesorintimidatingthoseundertakingdevelopmentprojectsintheirareas.Theirrights,ifany,tolandcanalwaysbeenforcedbyproceedingseitherbeforetheCivilCourtortheNativeCourtswhicharesetup,amongstotherreasons,toadjudicateondisputesorclaimstoNCRland.SUHAKAM,asaninstitution,shouldencouragethepeopletoupholdandrespecttheLawandhelptoexplaintheLawtothosewhoaresupposedtoobserveandabidebytheLaw.

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ANNEXURE 7

State Government Responses on the issues on the affected Penans in Long Singu and Long Jaik, Belaga

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ANNEXURE 8

Response from Shin Yang Forestry Sdn. Bhd.

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ANNEXURE 9

Response from the Consultant for the Environmental Impact Assessment (EIA) Report for the Proposed Shin Yang Forest Plantation locatedbetween Batang Belaga and Sg. Murum, Belaga, Kapit, Sarawak


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suhakam's report on penan in ulu belaga: right to

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