FFTC Agricultural Policy Platform (FFTC-AP)

ABSTRACT

Indonesia’s continued reliance on rice as its primary staple creates systemic vulnerabilities in its food system, particularly amid climate change, global market volatility, and geopolitical disruptions. In response, the Government of Indonesia has advanced policies to promote staple diversification, positioning indigenous crops such as cassava (Manihot esculenta), sago (Metroxylon sagu), and sweet potato (Ipomoea batatas) as strategic alternatives to strengthen food sovereignty. This study critically examines the effectiveness of recent policy instruments—including Presidential Regulation No. 66 of 2021, Ministerial Regulation No. 53 of 2022, and Presidential Instruction No. 1 of 2023—through policy analysis and regional case studies in Lampung, Papua, and East Java. Drawing on national planning frameworks (RPJMN 2025–2029), government statistics (BPS, 2023), and contemporary academic literature, the analysis highlights persistent barriers, including institutional misalignment, underinvestment in agro-processing, and limited consumer awareness. To broaden the analytical scope, the paper also explores comparative experiences from China, Vietnam, India, and Thailand. China’s rural revitalization strategy, Vietnam’s sweet potato diversification programs, India’s innovation ecosystem for tuber crops, and Thailand’s cassava value chain development illustrate how integrated policies and value chain approaches can enhance food diversification. Based on these insights, the study recommends strengthening local government capacity, investing in agro-industrial development, and integrating diversified staples into public procurement and nutrition programs. By repositioning indigenous crops within the national food sovereignty agenda, Indonesia can advance toward a more resilient, diversified, and inclusive agrifood system.

Keywords: food sovereignty, staple diversification, cassava, sago, sweet potato, food policy, Indonesia

INTRODUCTION

Indonesia’s food system remains structurally dependent on rice as the dominant staple, with more than 95% of the population consuming rice daily (BPS, 2023). This mono-staple reliance has entrenched vulnerabilities in the national food security framework, particularly amid climate variability, land conversion, water scarcity, and global supply chain disruptions. Recent shocks, such as the 2023–2024 El Niño-induced drought and the heightened reliance on rice and wheat imports, have intensified policy debates over the need to diversify staple food crops beyond rice and wheat (FAO, 2023; OECD/FAO, 2023). Indonesia’s ambition for food sovereignty—defined not only as the right to adequate food but also as the right to determine its own agricultural and food policies—has gained momentum amid the post-pandemic recovery and the pursuit of Indonesia Emas 2045.

Although staple diversification has long been present in policy discourse, its implementation has historically been fragmented due to inconsistent political will, limited institutional coordination, and a persistent bias toward calorie security rather than dietary diversity (Bappenas, 2023). Programs such as Diversifikasi Pangan, Lumbung Pangan Lokal, and regional food estate initiatives have sought to elevate the role of indigenous staples, yet their impact has remained uneven. Crops such as cassava (Manihot esculenta), sago (Metroxylon sagu), and sweet potato (Ipomoea batatas)—despite their historical significance, climate resilience, and agroecological adaptability—remain underutilized within Indonesia’s food system (Nugraha & Dewi, 2023; Pramudya & Hidayat, 2024).

Recent policy and regulatory measures mark a significant shift. Presidential Regulation No. 66 of 2021 introduced a coordinated national approach to food resilience, explicitly placing diversification at the center of food strategy. This was further operationalized by Minister of Agriculture Regulation No. 53 of 2022, which requires regional governments to promote indigenous food crops and reduce dependence on imported cereals. Complementing these, Presidential Instruction No. 1 of 2023 mandates inter-ministerial alignment to accelerate the development of local commodity-based food systems. These measures are anchored within the broader strategic planning framework of the National Medium-Term Development Plan (RPJMN) 2025–2029, which identifies sustainable, inclusive, and resilient agrifood systems as central to Indonesia’s economic transformation (Bappenas, 2023).

Despite such progress, challenges remain. National policies often lack local contextual adaptation, while weak vertical coordination between central and regional authorities undermines consistent implementation. Market infrastructure for cassava, sago, and sweet potato is underdeveloped, and existing farmer incentives remain skewed toward rice cultivation due to entrenched subsidy structures. In this context, empirical analysis is needed to assess whether recent policy instruments have created enabling conditions for staple diversification and to explore how indigenous crops can be repositioned within Indonesia’s food sovereignty agenda.

This paper, therefore, examines the strategic role of cassava, sago, and sweet potato in Indonesia’s efforts to achieve food sovereignty. Specifically, it seeks to: (1) evaluate the policy and institutional landscape supporting staple diversification since 2021; (2) analyze crop-specific case studies across different agro-ecological and socio-political contexts (Lampung, Papua, and East Java); and (3) propose policy recommendations to strengthen the integration of indigenous staples into the national food system. By grounding the analysis in regulatory instruments, strategic planning frameworks, and comparative international experiences—including those of China, Vietnam, India, and Thailand—this study contributes to ongoing debates on agrifood resilience and sustainable development in Southeast Asia.

Conceptual framework: food sovereignty and staple crop diversification in Indonesia

Staple crop diversification is increasingly recognized as a critical component of Indonesia’s pursuit of food sovereignty and agrifood transformation. The conceptual foundation of this study draws on the framework of food sovereignty, which emphasizes the rights of nations and communities to define their own food and agricultural systems in accordance with ecological, cultural, and socioeconomic contexts (Patel, 2009; FAO, 2023). Unlike the conventional notion of food security, which prioritizes caloric availability, food sovereignty stresses ecological sustainability, local autonomy, and the role of culturally appropriate foods in shaping resilient food systems.

In Indonesia, this framework is particularly salient, given the country’s long-standing dependence on rice reinforced through procurement programs, consumption subsidies, and dominant national narratives. While this monocultural approach has supported calorie sufficiency, it has simultaneously created systemic vulnerabilities, including heightened exposure to climate risks, supply chain shocks, and regional nutritional disparities. Crops such as cassava, sago, and sweet potato—which are deeply embedded in regional food traditions and adapted to diverse agroecological zones—remain marginalized within national planning and procurement systems. Yet these indigenous crops hold considerable potential to contribute to resilience, sustainability, and rural development (Nugraha & Dewi, 2023; Pramudya & Hidayat, 2024).

To address these structural imbalances, the Government of Indonesia has introduced a suite of new policies. Presidential Regulation No. 66 of 2021 positions diversification at the core of national food resilience. Minister of Agriculture Regulation No. 53 of 2022 mandates regional governments to prioritize indigenous food crops in their local development agendas. Most recently, Presidential Instruction No. 1 of 2023 requires cross-sectoral alignment to mainstream local commodities within food planning, budgeting, and investment. These measures are further reinforced by the National Medium-Term Development Plan (RPJMN) 2025–2029, which highlights sustainable and inclusive food systems as a pillar of Indonesia’s economic transformation (Bappenas, 2023). This framework is anchored in Law No. 18 of 2012 on Food, which institutionalizes diversification as both a human right and a state obligation.

Comparative insights from Asia

Indonesia’s pursuit of staple diversification resonates with broader regional trends across Asia, where governments have adopted varied approaches to managing food security, climate risks, and rural development. Examining the experiences of China, Vietnam, India, and Thailand provides useful lessons for Indonesia as it seeks to reposition cassava, sago, and sweet potato within its food system.

China has integrated tuber crops into its rural revitalization agenda, linking food security with poverty alleviation and rural industrialization. Cassava and sweet potato are promoted not only for household consumption but also for bioethanol, starch, and animal feed industries (Zhang & Wang, 2022). State-led investments in research, extension, and agro-processing hubs have enabled tubers to play a significant role in diversifying both rural livelihoods and national energy systems. The lesson for Indonesia lies in leveraging tuber crops beyond food security toward multi-sectoral uses, including energy and industrial applications.

Vietnam has positioned sweet potato as a dual-purpose crop for domestic nutrition and export markets. The country has developed specialized production zones in the Mekong Delta, supported by government–private partnerships that link farmers to international buyers, particularly in East Asia (Huang et al., 2023). Vietnam’s success demonstrates how coordinated value chain policies, combined with global market integration, can upgrade indigenous crops into competitive export commodities. For Indonesia, Vietnam’s model highlights the potential of regional trade and export diversification for cassava and sweet potato products.

India offers a strong example of aligning staple diversification with nutrition-sensitive policies. Through the HarvestPlus program and national biofortification initiatives, India has introduced orange-fleshed sweet potato and high-provitamin A cassava to address micronutrient deficiencies (HarvestPlus, 2022). These crops have been integrated into school feeding programs and maternal health initiatives. For Indonesia, India’s approach underscores the potential of linking diversification directly to stunting reduction and public health policies under the RPJMN 2025–2029.

Thailand has successfully transformed cassava into a global export commodity, supplying starch, ethanol, and animal feed to international markets (TDRI, 2022). The government supports cassava through guaranteed price schemes, research on high-yielding varieties, and investment in processing infrastructure. The Thai experience highlights the importance of connecting staple diversification with industrial policy and global competitiveness. Indonesia, while prioritizing domestic food sovereignty, can draw on Thailand’s export-oriented strategies to strengthen agro-industrial development and foreign-exchange earnings.

Comparative international experiences offer valuable insights for refining Indonesia’s approach. China’s rural revitalization strategy integrates staple diversification with poverty reduction, rural industrialization, and nutrition programs, underpinned by investments in land reform, infrastructure, and digital platforms (Gao et al., 2023; Zhang & Wang, 2022). Vietnam has promoted sweet potato and cassava through farmer cooperatives, improved seed systems, and integration into school feeding and export markets, demonstrating how diversification can simultaneously support rural livelihoods and national food security. India’s innovation ecosystem for tuber crops emphasizes biofortification, nutrition-sensitive breeding, and agro-industrial development, illustrating how research and policy can reshape consumption and improve dietary outcomes. Thailand’s cassava value chain model links smallholders with processors and exporters through certification schemes and “Smart Farmer” initiatives, enabling cassava to emerge as a globally competitive crop while supporting climate-smart agriculture (TDRI, 2022; Pimonsree et al., 2023).

These comparative experiences underscore three critical lessons for Indonesia: (1) staple diversification requires integrated value chains, not only increased production; (2) consumer behavior and market perception must be addressed through branding, innovation, and institutional demand; and (3) effective cross-sectoral governance linking agriculture, health, education, and industry is essential to sustain transformation. While Indonesia has built a strong policy foundation, implementation remains fragmented, and investments in processing, infrastructure, and consumer awareness are still limited. By adapting lessons from China, Vietnam, India, and Thailand, Indonesia can elevate cassava, sago, and sweet potato from marginal alternatives to strategic pillars of national food sovereignty.

Policy, regulation, and institutional framework for staple diversification in Indonesia

Indonesia’s regulatory and institutional framework for staple diversification is multi-layered, reflecting strong political commitment but facing persistent challenges in coherence and implementation. At the legal foundation, national laws provide the normative basis for diversification, while presidential and ministerial regulations operationalize these commitments into programs and institutional mandates. The RPJMN 2025–2029 anchors diversification within broader national planning, supported by research, procurement, and education policies.

Table 1. Regulatory and institutional framework for staple diversification in Indonesia

Note. BRIN = National Research and Innovation Agency; Bappenas = Ministry of National Development Planning; MoA = Ministry of Agriculture; MoT = Ministry of Trade; MoI = Ministry of Industry; BSN = National Standardization Agency; LKPP = National Public Procurement Agency.

Provincial/District regulation

Several subnational governments have also institutionalized diversification through local food reserve regulations. Examples include Central Java Province Regulation No. 7 of 2024, Jombang District Regulation No. 8 of 2024, Magelang District Regulation No. 9 of 2024, and Banyuasin District Regulation No. 6 of 2022. These regulations provide legal frameworks for the procurement, management, and distribution of food reserves, with explicit emphasis on incorporating non-rice staples. While their primary objective is to safeguard food availability during crises, they also create opportunities to institutionalize cassava, sago, and sweet potato in regional food systems. In doing so, they complement national regulations and illustrate how decentralized governance can advance Indonesia’s diversification and food sovereignty agenda (Central Java Province, 2024; Jombang District, 2024; Magelang District, 2024; Banyuasin District, 2022).

HISTORICAL AND POLICY TRAJECTORY OF STAPLE CROP DIVERSIFICATION IN INDONESIA

Early initiatives and legislative foundations

Indonesia’s policy trajectory on staple crop diversification has evolved in response to decades of overreliance on rice. During the Green Revolution era of the 1970s–1980s, government policy overwhelmingly prioritized rice through massive investments in irrigation systems, high-yielding varieties, and subsidies. While this reduced hunger in the short term, it marginalized alternative staples such as cassava, sweet potato, and sago, which became stigmatized as “foods of poverty.” Following the Asian Financial Crisis of 1997–1998, diversification re-emerged in policy discourse but remained fragmented and reactive.

A turning point occurred with the enactment of Law No. 18 of 2012 on Food, which formally recognized diversification as a state obligation and mandated the use of local food resources to strengthen sovereignty. This legislation reframed diversification from an optional program into a constitutional duty, providing the normative foundation for subsequent policies.

Strategic policy advancements and national programs (2021–2025)

A more structured approach to staple diversification emerged during the 2021–2025 policy cycle. Presidential Regulation No. 66 of 2021 introduced a cross-ministerial governance framework, positioning diversification as a central pillar of national food resilience. This was followed by Minister of Agriculture Regulation No. 53 of 2022, which provided operational mechanisms for regional governments, including criteria for crop prioritization, financing schemes, and monitoring systems.

Presidential Instruction No. 1 of 2023 further mandated all ministries and local governments to integrate indigenous staples into annual development plans and budgets. This directive emphasized the inclusion of cassava and sweet potato in school feeding programs, food reserves, and rural development initiatives, while calling for stronger coordination across agriculture, education, industry, and trade sectors.

Momentum was reinforced in 2024 with the issuance of Presidential Decree No. 81 of 2024, which officially designated cassava and sweet potato as strategic commodities. The decree also authorized the National Research and Innovation Agency (BRIN) to lead research on climate-resilient and biofortified tuber crops. BRIN’s National Research Agenda 2024–2025 prioritizes drought-tolerant cassava cultivars and orange-fleshed sweet potato varieties rich in β-carotene, directly linking diversification with nutrition and climate adaptation goals (BRIN, 2024). These initiatives align with the RPJMN 2025–2029, which positions local food diversification as a pillar of sustainable agriculture and long-term economic transformation (Bappenas, 2023).

At the programmatic level, the Ministry of Agriculture launched the Strategic Commodity Revitalization Program, which promotes certified planting materials, agro-processing infrastructure, and access to farmer credit. Priority regions include Lampung, East Java, and East Nusa Tenggara, where ecological suitability, food culture, and market potential intersect. These efforts aim not only to enhance food security but also to strengthen rural economies and reduce poverty.

Relevance to current challenges (2025)

While regulatory progress has been significant, current conditions underscore the urgency of accelerating staple diversification. First, the global food price index has remained volatile due to ongoing geopolitical conflicts, including disruptions to global wheat supply chains. Indonesia, as a net wheat importer, remains highly exposed to external shocks, underscoring the importance of developing domestic substitutes, such as cassava flour and sweet potato-based products.

Second, the lingering effects of the 2023–2024 El Niño event, followed by uncertain La Niña patterns in 2025, continue to stress rice production through irregular rainfall, prolonged droughts, and heightened pest outbreaks. Cassava and sweet potato, which are more resilient under drought-prone and marginal conditions, are increasingly recognized as climate-adaptive crops suitable for Indonesia’s diverse agroecological landscapes.

Third, food inflation remains a pressing concern for Indonesian households, with rice prices remaining elevated throughout 2024–2025. Diversifying household diets to include locally available staples could ease demand-side pressure on rice while improving affordability and nutritional outcomes.

Finally, Indonesia’s economic transformation agenda under the RPJMN 2025–2029 and Indonesia Emas 2045 vision emphasizes inclusive and sustainable growth. Agro-industrial development of indigenous staples presents an opportunity to generate rural employment, strengthen smallholder resilience, and expand exports of value-added tuber products such as cassava starch, bioethanol, and functional sweet potato foods.

Implementation gaps and emerging trends

Despite progress in policy and institutional design, significant gaps remain. Per capita consumption of cassava and sweet potato is still low, and rice continues to dominate public food procurement for schools, hospitals, and social protection programs. Subsidy structures continue to favor rice, further entrenching consumption patterns.

Nevertheless, empirical evidence suggests emerging opportunities. Suhartini et al. (2024) found that root and tuber crops are increasingly important in East Java’s farming systems, particularly in drought-prone and degraded soils. Similar shifts have been documented in Papua and East Nusa Tenggara, where tubers are integrated into climate-adaptive farming practices (Pramudya & Hidayat, 2024).

The consolidation of policies, institutional mandates, and research agendas has created a stronger enabling environment for diversification than in previous decades. The key challenge lies in translating regulatory momentum into structural and behavioral change. If sustained, these initiatives may reposition cassava, sago, and sweet potato not merely as alternative foods, but as foundational elements of Indonesia’s strategy for food sovereignty, climate resilience, and inclusive development.

Strengthening community-based agro-industries and nutrition outcomes

An important but often overlooked dimension of staple diversification in Indonesia is the role of cooperatives and small and medium-sized enterprises (SMEs) in advancing local agro-industries. Farmer cooperatives and village-based enterprises have significant potential to bridge production with processing, distribution, and marketing of indigenous staples. For instance, cassava farmer groups in Lampung and East Java have begun to develop modified cassava flour (mocaf) industries that supply school feeding programs and household markets. Similarly, SMEs in Papua and Maluku are experimenting with sago flour–based noodles and bakery products, demonstrating how community enterprises can translate diversification into tangible livelihood opportunities. By strengthening cooperatives through access to credit, training, and digital platforms, diversification can be positioned not only as a food security strategy but also as a pathway to rural economic empowerment.

Regulatory frameworks reinforce this agenda. Law No. 25 of 1992 on Cooperatives provides a legal foundation for cooperative empowerment, while Law No. 20 of 2008 on Micro, Small, and Medium Enterprises mandates state support for SMEs through financing, capacity building, and market access. Presidential Regulation No. 18 of 2020 on the National Medium-Term Development Plan (RPJMN) 2020–2024 and its successor, the RPJMN 2025–2029, explicitly emphasize strengthening cooperatives and SMEs as drivers of economic transformation, including in the agricultural sector. Furthermore, Minister of Cooperatives and SMEs Regulation No. 5 of 2021 on Cooperative Development and Minister of Agriculture Decree No. 404/KPTS/OT.050/M/6/2020 on the Task Force for Local Carbohydrate Diversification provide institutional anchors for linking community-based enterprises with food diversification initiatives.

Beyond economic dimensions, staple diversification also carries important nutritional implications. Cassava, sago, and sweet potato provide complementary nutrient profiles that can address Indonesia’s persistent challenges of dietary imbalance and micronutrient deficiencies. Orange-fleshed sweet potato, rich in β-carotene, has been promoted globally as a tool for vitamin A supplementation, particularly among children and women of reproductive age. Cassava and sago, while primarily carbohydrate sources, offer affordable alternatives to rice and wheat, helping to stabilize calorie intake during price shocks. Incorporating these staples into school feeding programs, hospital diets, and social protection schemes could therefore contribute directly to the government’s stunting reduction targets under the RPJMN 2025–2029 (Bappenas, 2023).

The integration of cooperatives, SMEs, and nutrition-sensitive policies into the diversification agenda underscores the multidimensional benefits of indigenous staples. By creating value-added agro-industries and simultaneously improving dietary diversity, Indonesia can pursue diversification as both an economic and a public health strategy. Such an approach aligns with Indonesia Emas 2045's vision, in which food sovereignty, inclusive growth, and human capital development are mutually reinforcing.

POLICY RECOMMENDATIONS

Based on the case studies, comparative experiences, and Indonesia’s recent policy trajectory, several strategic recommendations are proposed to strengthen staple diversification. These recommendations emphasize governance, agro-industrial development, nutrition integration, and innovation to ensure that diversification moves beyond rhetoric into structural transformation.

1. Strengthen governance and institutional coordination

Institutional coherence must be reinforced to operationalize Presidential Regulation No. 66 of 2021 and Presidential Instruction No. 1 of 2023 more effectively. The Ministry of Home Affairs should require provincial and district governments to integrate diversification into Regional Medium-Term Development Plans (RPJMD). Bappenas should monitor the mainstreaming of diversification within the RPJMN 2025–2029, particularly within the agro-industrial and climate resilience pillars.

2. Develop agro-industrial hubs for tuber crops

The Ministry of Agriculture, in collaboration with local governments and the private sector, should establish regional agro-industrial hubs for cassava, sago, and sweet potato. These hubs should focus on value-added products such as modified cassava flour, bioethanol, and functional foods. Public–private partnerships and cooperative-based models can ensure that benefits extend to smallholders and SMEs.

3. Integrate local staples into public procurement and social protection

Law No. 18 of 2012 on Food mandates diversification as a state obligation. To stimulate demand, cassava and sweet potato should be integrated into the Non-Cash Food Assistance (BPNT) program, school feeding schemes, and hospital nutrition programs. Embedding diversification into procurement policies would stabilize markets while addressing dietary diversity and stunting reduction goals.

4. Improve consumer awareness and market positioning

Cultural perceptions of cassava and sweet potato as “inferior foods” remain a barrier. A national campaign—such as Bangga Pangan Nusantara—should reposition local staples as nutritious, innovative, and modern. The Ministry of Trade and SMEs should promote product certification, branding, and export opportunities to improve competitiveness in domestic and global markets.

5. Scale up research, innovation, and technology adoption

BRIN, universities, and the Ministry of Agriculture should accelerate research on climate-resilient and biofortified tuber varieties. India’s biofortification initiatives and China’s integration of tuber crops into poverty reduction programs demonstrate the potential of science-driven approaches. Investment in digital agriculture, cold chain logistics, and e-commerce platforms can enhance market access for smallholders and SMEs.

6. Address inflation, climate, and sovereignty challenges

Persistent rice price inflation and reliance on wheat imports underscore Indonesia’s vulnerability to global market shocks. Diversifying staple consumption with cassava flour, sweet potato products, and sago-based foods would strengthen resilience against price volatility. Moreover, diversification enhances climate adaptation, as tuber crops perform better under drought and marginal soil conditions. This approach supports the RPJMN 2025–2029 and Indonesia Emas 2045 goals of food sovereignty, inclusive growth, and human capital development.

CONCLUSION

This study demonstrates that Indonesia’s long-standing dependence on rice as its primary staple creates structural vulnerabilities across its food system, particularly under intensifying climate risks and global market disruptions. Recent policy advancements—including Presidential Regulation No. 66/2021, Ministerial Regulation No. 53/2022, and Presidential Instruction No. 1/2023—show a significant political commitment to mainstreaming cassava, sago, and sweet potato as strategic components of food sovereignty. However, implementation remains hampered by fragmented governance, underdeveloped value chains, limited agro-processing capacity, and persistent consumer bias toward rice.

Evidence from regional case studies and comparative insights from China, Vietnam, India, and Thailand confirms that successful staple diversification requires more than increasing production. It necessitates integrated value chain development, alignment between national and local regulations, and strong institutional incentives that link agriculture, industry, nutrition, and trade. Indonesia’s policy ecosystem has laid an important foundation, yet structural transformation will depend on the country’s ability to:

1. Strengthen inter-ministerial coordination and local government capacity;
2. Build competitive agro-industrial hubs for tuber crops;
3. Integrate local staples into public procurement and nutrition programs;
4. Promote consumer acceptance through innovation, branding, and market incentives; and
5. Accelerate research and technology adoption for climate-resilient and nutrient-rich varieties.

If these measures are pursued consistently within the RPJMN 2025–2029 framework, Indonesia can reposition indigenous staples not merely as alternatives to rice but as central pillars of a resilient, inclusive, and sovereign national food system. In doing so, Indonesia stands to strengthen rural livelihoods, reduce external dependency, and reinforce its leadership in regional food security and sustainable agrifood transformation.

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