The 1997–1998 Forest Fires: When Soeharto Apologized to Indonesia’s Neighbors, and the Lesson of “Prevention That Came Too Late”

As the government tackles this year’s forest and land fires (karhutla), it is worth looking back at one of the worst fire crises in Indonesia’s history: the fires of 1997–1998. That crisis even led President Soeharto, then the longest-serving and most influential leader in ASEAN, to apologize publicly to neighboring countries.

Two Apologies

On 16 September 1997, at a meeting of ASEAN environment ministers at the State Palace, President Soeharto apologized to people in neighboring countries affected by haze from fires in Sumatra and Kalimantan. International media such as the Australian Financial Review and the International Herald Tribune reported the apology the next day.

A few weeks later, on 5 October 1997, in a speech marking the 52nd anniversary of the Armed Forces (ABRI), Soeharto apologized again. United Press International quoted him:

“The thick smoke not only harms our own people, but also the communities of the neighboring countries. Therefore, once more Indonesia offers our most sincere apologies.”

President Soeharto, 5 October 1997

On that occasion he also ordered the armed forces to expand firefighting efforts. By then, thick haze had blanketed the region for about two months, especially Malaysia and Singapore, disrupting flights, shipping, tourism, and the health of millions.

9.75 Million Hectares Affected

According to a study by Bappenas and the Asian Development Bank (ADB), a combination of forest degradation, deliberate land clearing by burning, and El Niño in 1997–1998 left around 9.75 million hectares of forest and land affected by fire, with losses of about US$4.86 billion. The crisis coincided with the onset of the Asian financial crisis, adding to the government’s burden.

Hendropriyono’s Notes: Prevention Came Too Late

Another side of the crisis is recorded in the reports and reflections of AM Hendropriyono, who served as Secretary for Development Operations Control (Sesdalopbang) from 1996 to 1998. In his writing, he named the most fundamental lesson of the crisis: prevention that came too late.

“By the time efforts focused on firefighting, the land was already dry and the fires had spread. We were dealing with the consequences, while many chances to reduce the causes had already been missed.”

AM Hendropriyono, Sesdalopbang 1996–1998

Hendropriyono believed natural factors, namely an exceptionally strong El Niño, played a dominant role in 1997–1998, so not every fire could be simplified as human error. Because fires were hard to put out across so many locations at once, the strategy then focused on building firebreaks to limit their spread and protect vital areas, involving local communities and coordination among the military and police, local governments, and forestry officials.

He described peat with a simple analogy: “Peat is like a sponge: as long as it is wet, it is hard to burn; once dry, fire can creep and smolder beneath its surface.”

Don’t Sacrifice Small Farmers

A point from Hendropriyono that matters greatly for village communities concerns legal fairness. He highlighted how many traditional farmers were arrested and prosecuted as the main culprits, even though they had no alternative technology for clearing land without fire. Small farmers therefore need support and safe land-clearing options, while law enforcement must be evidence-based and free from abuse of authority.

Seven Lessons for Today

1. Prepare cloud seeding before drought peaks.
2. Keep peatland moist and manage its water before the dry season.
3. Turn early warning into early action.
4. Have personnel, equipment, and budgets ready before emergencies.
5. Make communities the main partners in prevention.
6. Enforce the law fairly and with integrity, including protecting small farmers.
7. Build data-driven environmental diplomacy and regional cooperation.

Relevant to the 2026 Fires

These lessons are relevant again as Indonesia faces the 2026 fires. The government under President Prabowo Subianto has deployed tens of thousands of joint personnel, and the police have named hundreds of individual suspects and 20 corporations in this year’s fire cases.

The history of 1997–1998 reminds us that success is measured not only by how many fires are put out, but by how many are prevented in the first place, and that is where villages around forests and peatlands play a key role.

Summarized from an article by Zulfikar Fuad on kumparan (in Indonesian).