Planning Innovation in the Preparation of the Detailed Spatial Plan

Abstract

This paper is the result of the author’s study of his involvement in the preparation of the Eastern Sendawar Spatial Detail Plan (RDTR) in West Kutai Regency, East Kalimantan Province. Planning innovation in the preparation of the RDTR at the study location, much can still be done in innovation related to the planning product. This can also be done in the preparation of other spatial plans. If planners understand the potential, problems, and opportunities that exist in the planned area or area, there will always be many opportunities to innovate and build attractiveness in the planning results. The results of the study indicate that some weaknesses need to be addressed, including the preparation of base and thematic maps, classification of guidelines and standards, reasonable preparation time, and synchronization with the system in OSS. It is recommended to do a crash program in preparing base maps and thematic maps, adjusting the guidelines, separating processes with KLHS, and preparing human resources in managing flexible systems on OSS.

1. Introduction

Government affairs include all matters that concern the whole life of society. In the life of the state in Indonesia, the affairs of regional government are all of these matters, except for those declared to be the affairs of the (central) government. This is as stated in Law Number 23 of 2014 (UU 23/2014) concerning the Regional Government [1]. One of the governmental affairs that must be carried out by the regions is the matter of spatial planning. In Law 23/2014, spatial planning affairs are concurrent affairs that must be carried out and related to basic services, including concurrent affairs, because spatial planning affairs are carried out by both the central and regional governments. One of the aspects of the implementation of spatial planning affairs is spatial planning activities. This activity is carried out to produce general plans and detailed spatial plans, one of which is the Detailed Spatial Plan (RDTR). This RDTR is required as a basis for granting permits related to investment.

Based on Government Regulation (PP) Number 24 of 2018 concerning Electronically Integrated Business Licensing Services [2], or what is commonly referred to as Online Single Submission (OSS), investment licensing in Indonesia will go through one door. The issuance of this PP was motivated by complaints from many investors over conditions that were not conducive in obtaining business licenses in Indonesia. To cut down on the number of tables that are passed through in this licensing process, the Government issued this PP, which it is hoped that investors can immediately start their business quickly when all the requirements have been completed and increase certainty in obtaining permits.

To realize these expectations, the system being developed requires important input, namely spatial planning, which is the basis for issuing permits that enable investors to carry out development or construction at their place of business. This is because investors certainly need a Location Permit and Building Permit (IMB) to operate their business, even though the principal permit has been obtained from the central government. The spatial plan required as the basis for issuing the Location Permit and IMB is the RDTR and Zoning Regulations (PZ). In this regard, since the enactment of the OSS, the government has tried to accelerate the preparation of the RDTR until it becomes a Regional Head Regulation which is expected to become the basis for the OSS in issuing location permits and IMBs.

This study aims to look at various innovations, problems, and challenges faced in the preparation of an accelerated RDTR as OSS input in increasing this investment. The results of this study can be used as input for policy evaluation and improvements in policies and subsequent strategic and technical steps. The case chosen is the location for the preparation of the RDTR where the author was involved in its preparation, namely the preparation of the Sendawar Timur RDTR, West Kutai Regency, East Kalimantan Province.

2. Method

The research was conducted using a qualitative descriptive approach because it has characteristics that are in accordance with qualitative research according to Sugiyono [3] and Creswell, John W. [4], which is to describe conditions explained in qualitative words, answer any research questions and how, understand the meaning of what is seen, and is not done for the purpose of generalizing. A qualitative descriptive method was used to describe what was done or existed and the process that went through in the preparation of the Detailed Spatial Plan (RDTR) for the urban area of Sendawar Timur, West Kutai Regency, East Kalimantan Province. Apart from that, data from other studies that have been carried out by the author regarding the preparation of OSS in the implementation of investment services by local governments, and results of sharing experience in implementing RDTR preparation in other areas with fellow planners. Data collection were carried out using documentation, observation, and interview techniques. The documentation technique is carried out by compiling all the results of the RDTR planning process starting from the facts and analysis books, plan books, focus group discussion (FGD) minutes, consultation/assistant minutes, KLHS documents, governor recommendations, and substance approval from the ATR ministry, and documents—other related documents. Observation techniques are carried out by researchers looking directly at the planned area, as well as several consultation meetings and FGDs. Interviews were conducted with experts directly involved in the process of data collection and RDTR planning, mapping surveyors, and operationalization of the concept of innovation, using the Schumpeterian approach taken from the opinion of Kogabayef Timur [5], which explains that “…Innovation consists of the generation of a new idea and its implementation into a new product, process or service. ..” In the opinion of Rowley J. et al. (2011 in Timur [5]), innovation includes four types of innovation, namely paradigm innovation, process innovation, product innovation, and position innovation. In this study, because in spatial planning all processes and procedures have been regulated in the guidelines, innovation is seen in the type of product innovation, namely all new ideas, which are then outlined in the results/products of the planning.

3. Results of study locus planning

The urban area of Sendawar Timur is part of the entire urban area of Sendawar, which is the capital of West Kutai Regency in East Kalimantan Province. According to the Regional Spatial Plan (RTRW) for the province of East Kalimantan, the urban area of West Kutai is designated as one of the Regional Activity Centers in the province of East Kalimantan. Therefore, in view of the authors involved in preparing the RDTR in the area, the urban area of Sendawar will be developed from a medium-sized city to a large city in the next 20–50 years, even though its current condition is still a small urban area with a population of less than 500,000 people.

The eastern part of Sendawar urban area is in the easternmost area of West Kutai Regency and is bordered by Kutai Kartanegara Regency with its border on the median line along the Mahakam River. As a whole, the Sendawar urban area as a whole does not yet have an RDTR that has been ratified as a Regional Regulation (Perda). In the previous several years, detailed planning had been carried out, but until the time of the preparation of the Sendawar Timur RDTR, the RDTR for the Sendawar urban area (as a whole) had not yet become a Perda.

By taking into account the various potentials, problems, and the carrying capacity and capacity of the planning area from various aspects discussed starting from the policy aspect, the position and role of the region, the physical condition of the area, population and sociocultural conditions, existing land use conditions, economic conditions, development finance, and various other aspects, including the opinions and aspirations of stakeholders, the structural plan, and spatial pattern plan, in the Sendawar Timur RDTR are as shown in Figures 1 and 2 below.

Figure 1.

Structural Plan of the Sendawar Timur Room for West Kutai Regency. Source: Detailed Plan Regulation Concept of East Sendawar, West Kutai, East Kalimantan Province.

Figure 2.

Spatial Plan of Sendawar Timur, West Kutai Regency. Source: Detailed Plan Regulation Concept of East Sendawar, West Kutai, East Kalimantan Province.

In the planned service center system in the East Sendawar planning area, it is planned to develop a secondary center I for the whole Sendawar urban area. This development is very reasonable and possible because before the secondary center I was developed, which was close to the West Kutai Regency office center, the largest secondary center in the urban area of Sendawar was in this area, namely in the trade and service area near the Sendawar/Melak Islamic Da’wah Center. To this day, when the urban community of Sendawar needs goods for annual needs or non-daily needs that cannot be obtained at the secondary center I, which is near the district office center, they will make their purchases in this area. Therefore, it is very reasonable and possible that this area will also be developed as a secondary center I for the urban area of Sendawar as a whole.

Likewise, with the airport in the planning area, its utilization will also be maximized by developing an aero-eco city near the airport, which will also be developed into a secondary center II (under secondary center I, which is near Melak). Likewise, there is an opportunity that the Sendawar urban area will also be traversed by a railway line that is connected to Samarinda, so plans for an integrated terminal and station are also being developed in the area. This plan combines the opportunity for the railroad line, the determination as a Regional Activity Center, which will become a medium-large city, and the existence of a primary collector road that runs through the area.

The existence of an opportunity as a Regional Activity Center city in future is also used to develop the road network in the secondary system. Although in the RTRW of East Kutai Regency as well as in the RDTR concept for the Sendawar urban area, a road network in the secondary system has not yet been developed, the RDTR for the part of the Sendawar urban area in the eastern part, proposes to develop a road network in the secondary system in anticipation of Sendawar urban becoming a medium or large city, which acts as Regional Activity Center city for the East Kalimantan region.

Likewise, with the orientation of the movement of people who have been through the river and there are still many areas around the river that have not been built, plans are also being developed to build a secondary collector road that can connect the movement of people from secondary center to II with other II as well as between secondary center II and the other III is on the road, which is also an inspection road for the Mahakam River. This is also an effort to control the risk of flooding in parts of the area that are close to the river’s lips. These various plans are outlined in the spatial structure plan and spatial pattern plan (besides other RDTR contents) as shown in Figures 1 and 2.

4. Planning innovations at the study locus

From the description of the plan developed above, it can be seen that in the preparation of the RDTR at the location of this study, namely in the eastern part of the Sendawar urban area, several planning innovations have been carried out which have been realized as a new idea in the planning product according to the opinion of Rowley J (2011 in Timur [5]), as follows:

1. Developed an aero-eco city by taking advantage of the potential of the airport in the planning area and the use of land that is still vacant, by trying to create spatial patterns that when viewed from above will form a pattern like an airplane.

2. Developed a secondary road network system in urban areas designed as Regional Activity Center, taking into account that in the next 20–50 years the urban area of Sendawar will develop into a medium to large city with a population of more than 500,000 people or even over 1,000,000 people. Therefore, it is better to develop a secondary system road network at the beginning before various problems arise, losing quickly with population development and the speed of change in built areas in the area.

3. An intermodal integrated terminal and train station area is being developed, taking advantage of the combined opportunity between the planned railroad line that passes through the urban area of Sendawar, the establishment of Regional Activity Center City and the primary collector road 3 (provincial road).

4. A road network was developed in a secondary system, which is the authority of the district with a road width that is much wider than the minimum regulations. For example, the secondary arterial road network, according to Government Regulation No. 34 of 2006 concerning roads [6], has a minimum road width of 11 m (the same as the primary arterial road width), but the secondary arterial road in the eastern part of Sendawar urban area is planned with much wider dimensions. The space belongs to the road about 50 m.

   Therefore, the width of the road body will be much wider than the 11 m. Likewise, secondary collector roads, secondary local roads, and neighborhood roads in urban areas are also determined with a wider road body width than the normative provisions.

5. A secondary collector road is being developed as well as an inspection road for major rivers in the region, namely the Mahakam River, which functions to connect secondary center II with secondary center II and secondary center III.

6. Developed landmark black orchid and vocal points at certain locations.

7. Developed primary drainage network in urban areas by utilizing natural basins and rivers (even if they do not have springs).

5. Problem in preparing the RDTR for OSS

Based on the entire process of preparing the RDTR at the locus of study, namely in urban areas of Burp eastern part, which may also occur in other regions where the RDTR is also being prepared within the framework of the OSS, it can be summarized that there are several problems in the process of preparing and ratifying the RDTR, as follows:

5.1 Action map for compilation of RDTR causing inefficiency

This is a spatial planning problem from tens of years ago when regional and urban planning became known in Indonesia, which until now has not been resolved. The mandate of Law Number 4 of 2011 concerning Geospatial Information [7], which gives full authority to the Geospatial Information Agency (BIG) to be the only institution authorized to determine the validity of maps in Indonesia has resulted in piles and a bottleneck in matters of map approval for planning. Especially if the priorities between BIG and other spatial planning units are different, then of course the matter of maps for the preparation of spatial plans, including the RDTR, can be neglected in preparing the maps at BIG. In addition, it takes a relatively long time for the preparation of this map to become a map that is ready to be used for planning. This is also in accordance with the studies of Sukojo [8] and Pribadi et al. [9]. As a result, planners often use work maps that are not considered valid by BIG in completing their work. This is actually an inefficiency in completing the spatial planning work because planners have to do the work twice so that the results of the planning are contained in a map that has been approved as valid by BIG. The first phase of work is carried out on working maps, namely maps that have not yet received BIG approval to be used as base maps of many plan maps. This was done because when the analysis and formulation of the concept plan had to be carried out, it turns out that the base map is not ready to use (has not been approved by BIG). The second work is after the draft plan has been discussed and approved, but because it is still being carried out on a work map that has not been approved by BIG, the concept plan that has been approved needs to be transferred to a new map that has received approval from BIG.

5.2 Prepare thematic maps according to the required scale

Ideally, the various thematic maps needed for analysis purposes in the preparation of the RDTR are in accordance with the scale of the plan produced in the RDTR, namely at a scale of 1:5000. However, in reality, the various thematic maps needed, especially thematic maps related to physical conditions, have never been mapped at the 1:5000 scale. The largest scale ever made is on a 1:25,000 scale map for an area the size of a district. Meanwhile, for agencies/institutions that provide various thematic maps, the provision of thematic maps on a larger scale, up to a scale of 1:5000, may not be a priority. This resulted in a priority gap that could result in the unavailability of the maps needed for RDTR planning activities at the study location.

5.3 The KLHS process in the preparation of the RDTR often becomes an obstacle

The mandate of the Environmental Law, which included the Strategic Environmental Assessment (KLHS) process in the preparation of the spatial plan, including the RDTR, often slowed down the process of preparing the RDTR. This is because the process that must be followed in preparing the KLHS is also lengthy starting from the appointment of the committee to the entire technical process. What often becomes a problem is the mismatch of funding in the office/body that handles KLHS affairs with the interest of preparing spatial plans, including this RDTR. If the budget for the agency/agency in charge of the KLHS is not available for the preparation of the KLHS, while in spatial planning work there is also no budget available to finance the committee involved in preparing the KLHS within the local government, then the preparation of this KLHS will wait for changes to the Regional Budget Execution Document that allow it to be in accordance with the Regional Revenue and Expenditure Budget that has been determined. Another obstacle will make the process of preparing the KLHS even longer if the officials at the agency/agency that handles the KLHS are less responsive or have resistance. Resistance will be higher if there is a poor coordinating relationship between the agency/agency in charge of spatial planning and the agency/agency in charge of KLHS. Therefore, bringing these two processes together at one time will be an obstacle, especially for the spatial planning process. It will be more of a problem if the spatial planning process is a crash program that must be completed in a relatively shorter time than the regular process.

5.4 The resistance of local government officials

In the Sendawar RDTR process for the eastern part of West Kuta, it is also felt that there is a problem with this resistance. This is indicated by the slow response of regional officials in responding to all directions for accelerating activities given by the center through formal letters whose implementation is escorted by consultants implementing the RDTR preparation. This might have happened because the RDTR drafting process was facilitated by the (central) government and the regions were not involved in it, so they did not feel they were in the interests of the region, or various other resistance factors that might have occurred. It seems that this also applies to the process of preparing other spatial plans, which are financed by the government.

5.5 Differences in classification of activities between Indonesian business field standard code and the classification in the guidelines

The difference in the classification of activities stated in the guidelines with the classification of activities in the guidelines for the preparation of RDTR and PZ issued by the Ministry of Agrarian Affairs and Spatial Planning (ATR) and the Indonesian Business Field Standard Code (KBLI) [10] issued by BPS, often raises doubts for planners. This problem will continue to be dynamic because BPS determines the KBLI and will continue to develop. The code from this KBLI will be used and listed in the Trading Business License (SIUP), Company Registration Certificate (TDP), and investment permits issued by a notary and affect business activities for investment activities. Therefore, it will be used as a basis for investment, including the application for permits related to spatial planning.

5.6 The preparation of the OSS RDTR is too short in terms of lengthy procedures

The preparation of the OSS RDTR took only 5 months, with very long procedural provisions with lots of FGDs and meetings involving many parties and the many obstacles encountered became serious obstacles to its completion. On the one hand, all of these long series must be completed within the contract period, but on the other hand, there are many obstacles that are difficult to resolve and are beyond the control of the executor (consultant), which can result in delays in completing work outside the contract period. This is also a serious pressure for planners who carry out. Supposedly if the preparation of this RDTR crash program is in a relatively short time, then there needs to be a slight adjustment from the regular process to the guideline, which should be very long.

5.7 There are weaknesses in the guidelines for determining industrial allocations

There are weaknesses in the guidelines, especially in the classification of spatial patterns for the designation of zones and subzones for industry. The guideline only recognizes subzones of industrial estates, while subzones of industrial designation are not possible. Even though the subzone for industrial designation.

and the subzone for industrial estates are different. On the one hand, if it does not comply with the guidelines, it can be considered as not complying with regulations, but on the other hand, if what is planned is an industrial designation and not an industrial area zone, then it is not appropriate if in the spatial pattern, it is designated as an industrial area zone. This will be a dilemma for planners because if the guidelines are not implemented it is deemed to violate the normative but if it is carried out according to what is written in the guidelines it also violates theoretical aspects and higher regulations governing industry [11], namely Law No. 3 of 2014 concerning Industry and Government Regulation No. 142 of 2015 concerning Industrial Estates [12]. Therefore, in preparing the RDTR in Sendawar, the terminology used is in accordance with higher legislation, which adheres to the two subzones. However, because in the planning area, there are no zones designated for industrial designation zones, only one term is plotted on the spatial pattern map. However, in the preparation of RDTRs in other areas where there may be zones planned for industrial designation, the weaknesses in this guideline can become obstacles and problems for planners.

5.8 The development of secondary system roads has not been supported by broader planning

Development roads in the secondary system in planning areas have not been supported in higher planning documents. However, road development in this secondary system is also not wrong, because the urban area of ​​Sendawar has been designated as PKW in the RTRW of East Kalimantan Province, and is designated as an urban area in the RTRW of West Kutai Regency. The development of roads in the secondary system in the planning area within the RDTR may experience problems if the RTRW in the whole Sendawar urban area or its borders does not proceed as a secondary system that is macro-planned in one urban area.

6. Detailed plan result synchronization challenges with the computing system on OSS

Problems in the process of drafting and ratifying the RDTR need to be addressed immediately. However, besides the problems that have occurred, there are still other challenges that are likely to be faced after the process of preparing the RDTR is good and good output can be produced. At the very least, the following sync issues will occur:

1. Do the one hand, the process of preparing the RDTR was accelerated in a relatively unreasonable time to produce binding policies for the next 20 years, while the preparation for synchronization within the OSS system has not yet been completed. Based on valid data and information, it is found that in West Kutai Regency there has not been an RDTR that has been ratified as a Regional Regulation, it is certain that the investment licensing process that has been processed so far at the One Stop Integrated Investment and Licensing Service (DPMPTSP) is definitely not based on RDTR and PZ that have been established as Regional Regulations. The author tries to find a comparison by conducting interviews in other cities that are relatively more advanced in the use of information technology and computing, namely Bandung City and Bekasi Regency, both of which have relatively high levels of investment. Based on the results of other studies related to OSS readiness in increasing investment [13], it turns out that the OSS that has been managed so far has no systemic link with the RDTR products they have. Therefore, the acceleration of the RDTR completion process becomes less effective if the systemic synchronization between RDTR and PZ in the OSS system has not been completed. Included in the standard coding system and the development of autonomous robots, it turns out that the OSS that has been managed so far has not been systemically related to the RDTR products they have. Therefore, the acceleration of the RDTR completion process becomes less effective if the systemic synchronization between RDTR and PZ in the OSS system has not been completed. Included in the standard coding system and the development of autonomous robots, it turns out that the OSS that has been managed so far has not been systemically related to the RDTR products they have. Therefore, the acceleration of the RDTR completion process becomes less effective if the systemic synchronization between RDTR and PZ in the OSS system has not been completed. Included in the standard coding system and the development of autonomous robots.

2. Besides there is no synchronization in the system protocol for RDTR and PZ products whose maps use the SHP format, the preparation for a web-based system is also not yet ready. Especially with the autonomous robot system and its Artificial Intelligence which have not yet been built. Or at least for the development of a flexible system only, there are no signs yet. The author once tried to ask, can it be known from the OSS system, the number of industries based on certain business field classifications (e.g., based on the ISIC code) where the number of employees is greater than a certain number? It turns out that the OSS system does not allow such queries. Even the resulting database also does not allow manual queries to be able to answer these questions.

7. Conclusion

From the relatively brief discussion above, the following conclusions can be drawn:

1. Planning innovation in the preparation of the RDTR at the study location, much can still be done in innovation related to the planning product. This can also be done in the preparation of other spatial plans. If planners understand the potential, problems, and opportunities that exist in the planned area or area, there will always be many opportunities to innovate and build attractiveness in the planning results.

2. There are still some weaknesses in the implementation of the investment acceleration policy through the implementation of OSS, especially in the crash program in the preparation of the RDTR. Several important problems, namely the unpreparedness of the base and thematic maps, obstacles to the KLHS process, differences in codes and KBLI, weaknesses in guidelines for classification of zones and subzones, apathy of the relevant officials, and too short a time for preparation.

3. There are also many challenges in preparing the RDTR for OSS. And if these challenges cannot be anticipated, then the effectiveness of the RDTR and the crash program efforts in preparing the RDTR will become somewhat less meaningful. From the various problems that have occurred and the challenges ahead that may still have to be overcome, the following recommendations can be given:

   1. A crash program is needed in preparing the map prior to the preparation of the RDTR and other RTRs that BIG should prepare.

   2. In preparing the RDTR in a crash program, it is better to use the guidelines for preparing the RDTR which are also adjusted so that the process has a larger proportion in the technical process, and it is necessary to reduce the number of FGDs, although not eliminate them.

   3. It is advisable that the KLHS preparation process does not have to be included in the RDTR and other RTR preparation processes, but is made in a separate process whose implementation domain is within the Ministry of Forestry and Environment and its related staff in the regions. Meanwhile, the results of the KLHS process can be used in the process of reviewing spatial planning products (RTR), including RDTR.

   4. Refinement of the RDTR guidelines so as to eliminate standard differences in the classification of zones and subzones and also the classification of activities that may utilize the planned zones and subzones in the Zoning Regulations.

   5. Preparing human resources to be able to handle the flexible system and take advantage of big data licensing in Indonesia, which is managed on the OSS platform.

Additional information

This chapter is an English translation of the article: Santoso EB, Iswi A, Yanuasmara I. INNOVATION, PROBLEM, AND CHALLENGES IN PREPARING RDTR FOR OSS: CASE IN PREPARING RDTR IN EEATERN SENDAWAR, WEST KUTAI REGENCY, EAST KALIMANTAN PROVINCE [Internet]. Vol. 46, Jurnal Ilmu Pemerintahan Widya Praja. Institut Pemerintahan Dalam Negeri; 2020. p. 230–41. Available from: http://dx.doi.org/10.33701/jipwp.v46i1.1092