The forgotten sector: a historical narrative review of environmental governance of artisanal and small-scale sand mining in Indonesia

Technical Summary

This paper examines the historical evolution of environmental governance in artisanal and small-scale sand mining (ASSM) in Indonesia. Using a political ecology approach and narrative policy analysis, it traces regulatory developments from the colonial period to the present through legal documents, archival records, and secondary data. The findings show that sand has consistently been framed as a low-value, abundant resource, leading to its exclusion from strategic mineral classifications and to limited regulatory attention. While artisanal mining has been formally recognised since the 1960s, governance frameworks have largely been adapted from large-scale mining systems and remain poorly suited to river-based extraction. This mismatch has contributed to weak enforcement, limited institutional support, and ongoing environmental degradation. The study further demonstrates that mineral security priorities continue to favour high-value and export-oriented commodities. Recent policies that promote high-quality industrial sand show a growing gap between large industrial operations and small-scale construction sand mining, especially in river systems. The paper argues that improving governance of ASSM requires river-specific regulatory approaches and greater recognition of sand as a development mineral. These findings provide a basis for more inclusive and context-appropriate governance reforms.