A two-year ban on new licenses to clear peatlands and primary forests in Indonesia risks being undermined by the small area protected by the scheme and a host of exemptions, shows a review that calls for the program to be revised.

The ban is the centerpiece of an important climate deal with Norway, signed last year, worth up to $1 billion. A major goal is to cut greenhouse gas emissions from deforestation, by far the largest source of emissions in Indonesia.