IMPLEMENTATION OF COMMUNITY EMPOWERMENT-BASED …The informants in this research were taken from the...
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International Journal of Civil Engineering and Technology (IJCIET)
Volume 9, Issue 9, September 2018, pp. 585–599, Article ID: IJCIET_09_09_058
Available online at http://www.iaeme.com/ijciet/issues.asp?JType=IJCIET&VType=9&IType=9
ISSN Print: 0976-6308 and ISSN Online: 0976-6316
©IAEME Publication Scopus Indexed
IMPLEMENTATION OF COMMUNITY
EMPOWERMENT-BASED TOURISM
DEVELOPMENT POLICY (CASE IN SAMOSIR
REGENCY, INDONESIA)
*Kariaman Sinaga, Suwardi Lubis, Marlon Sihombing and Ritha F Dalimunthe
Universitas Sumatera Utara, Medan, Indonesia
*Correspondence Email : [email protected]
ABSTRACT
The purpose of this research was to determine the implementation of tourism
object development policy in Tourism Office of Samosir Regency. The research type is
a qualitative descriptive method which is a type of research that attempts to describe
objects or subjects. The informants in this research were taken from the Samosir
Regency government, Indonesia. The number of informants was determined by
purposive technique in accordance with the research objectives. As an estimation, the
researcher determined the number of informants as many as 15 people consisting of:
Samosir District (2 people), Tourism and Culture Office (3 people), tourism conscious
community (7 people), business or private sector (3 people). The result shows that the
implementation of tourism development policies in Samosir Regency has not been
carried out well, due to the communication developed by the regional government
with the private sector and the community in implementing the development of tourism
objects in Samosir District has not been able to convince the public so that the
participation of the private sector and the public is still low. The resources of the
Samosir Regency government apparatus, especially the Art and Culture Tourism
Office of Samosir Regency, are not sufficient to support the implementation of tourism
development that empowers the community.
Key words: implementation, policy, development, tourism object, community
empowerment.
Cite this Article: Kariaman Sinaga, Suwardi Lubis, Marlon Sihombing and Ritha F
Dalimunthe, Implementation of Community Empowerment-Based Tourism
Development Policy (Case in Samosir Regency, Indonesia). International Journal of
Civil Engineering and Technology, 9(9), 2018, pp. 585-599.
http://www.iaeme.com/IJCIET/issues.asp?JType=IJCIET&VType=9&IType=9
1. INTRODUCTION
As one of the priorities in the government development, the Ministry of Tourism on a macro
basis has set several tourism targets in 2019. In 2014 the contribution to GDP was 9% (Rp
Kariaman Sinaga, Suwardi Lubis, Marlon Sihombing and Ritha F Dalimunthe
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946.09T) while the target in 2019 will increase by 15%. Foreign Exchange in 2014 amounted
to US $ 11 billion while the 2019 target was US $ 20 billion. Contributions to employment in
2014 were 11 million people while the target in 2019 was 13 million people. Micro tourism
competitive index (Tourism Competitiveness Index) in 2014 is ranked 70 and in 2019 it is
targeted to rank 30. The arrival of International Tourist Arrivals in 2014 is 9 million people
and in 2019 it is targeted to reach 20 million people. Domestic Tourist Trips in 2014
amounted to 250 million people and in 2019 targeted 275 million people. The achievement of
targets that have been set nationally is in desperate need of synchronization between the
central government and regional governments so that the implementation of development can
run effectively and efficiently. Regional governments, especially regency/city level II regions
are expected to carry out various policies that support national policies in accordance with the
tourism potential in the region. As with the issuance of Law Number 23 of 2014 concerning
Regional Autonomy, it is explained that the regional government has been given the authority
to be able to manage its own household problems. So even though tourism has become one of
the top priorities determined by the central government, the regional government still has the
authority and must manage its own tourism development in its area according to its resources.
In order to synchronize between the central and regional governments in realizing national
tourism, there needs to be a clear and directed development vision for the regency/city
government in particular. However, in its implementation, Syaodih (2015) states that there are
still many regency/city governments that are less than optimal in carrying out their regional
visions so that they are poorly understood by the stakeholders. The development planning
system is not optimal in utilizing resources, such as natural resources, human resources,
technology and budget limitations to strive for efficient and effective development. Samosir
Regency is one of 8 (eight) regencies located in the Strategic Area of National Tourism of
Lake Toba (KSPN) as one of the national tourism priority destinations. The tourism object
owned by Samosir Regency is very potential to be developed in supporting the
competitiveness of Lake Toba as one of the priority national tourism destinations. Based on
data from Art and Culture Tourism Office of Samosir Regency in 2015 there were 75 (seventy
five) tourism objects in the form of natural tourism, historical tourism, and cultural tourism.
The beauty of nature, historical heritage, cultural wealth and phenomena of the remains of the
Mount Toba eruption owned by Samosir Regency if managed properly is a tourism potential
that can increase the number of tourist arrivals that are abundant both local and international
tourists. Determination of criteria and classification of tourism objects in Samosir Regency is
based on: 1) Physical Space; 2) Number and Type of Attractiveness; 3) Number and Type of
Tourism Facilities; 4) Number and Type of Public Facilities; 5) Accessibility; 6) Community
Readiness; 7) Number of Travelers. In Part Two, there are 3 (three) classification of tourism
objects, namely 1) Leading Tourism Objects; 2) Priority Tourism Objects; 3) Pioneering
Tourism Objects. Regional development on tourism objects that are expected to be carried out
while still involving community involvement. This is in accordance with Yoeti (1997) who
argued that tourism development needs to pay attention to several aspects, namely tourists;
must know the characteristics of tourists, where they come from, age, hobbies, and in what
season they travel and transportation; research must be carried out on how transportation
facilities are available to bring tourists to the intended tourist destination. Dunn (2003) states
that there are 5 (five) stages in the implementation of public policies ranging from setting the
policy agenda to policy assessment so that a policy can be implemented. To achieve the
objectives at each stage of the policy, it is necessary to have a management process so that the
goals that have been set can be achieved effectively and efficiently.
The implementation of public policy requires a management process for effectiveness and
efficiency in achieving the objectives with the implementation of management functions.
George R Terry in Supomo (2018) stated that management functions consist of planning,
Implementation of Community Empowerment-Based Tourism Development Policy (Case in
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organizing, actuating and controlling. While Fayol in Supomo (2018) stated that management
functions consist of planning, organizing, commanding, coordinating and controlling. Syafri
(2012) states that if the application of certain principles is not accompanied by empirical
reality, the results can cause a boomerang effect. It is only with an in-depth empirical
understanding the implementation of the principles of implementation in the policy
implementation process can be carried out well. Demolingo (2015) also gave the view that in
the framework of tourism development the government must be involved in developing a
management tourism institution, improving human resources, building infrastructure from
tourist facilities that are still lack and form a collaboration between the government and
stakeholders including the community. Community empowerment to participate in the
development of tourism object cannot be directly obtained but must go through processes or
stages. Community involvement in supporting the implementation of tourism object
development policies requires a process of community empowerment through understanding
of a community. The basis of community empowerment is carried out through an
understanding of the social, cultural, and political conditions that exist in society so that the
right way to empower them is obtained (Kartasasmita,1997).Wistiono(2003) states that the
process of community empowerment as one of the government functions is determined by
two factors. , namely exogenous factors and endogenous factors. By looking at the factors that
hinder the increase in the number of tourist visitors in Samosir Regency which are closely
related to the local community, while the local government has issued policies that lead to the
development of tourist destinations and one of them is related to community empowerment.
Some previous researches related to this research were Lestari (2009), Ayu and Nalayani
(2016), Jupir (2013); Ningrum (2014); Mulyana (2011); Demolingo (2015); Peng and.Lin
(2016); Akroush, et.al (2016); Airey (2015); Widjajanti (2016); Simanjuntak (2009) and
Soedarso, Sutikno and Sukardi (2016).
2. LITERATURE REVIEW
2.1. Public Policy
The series of concepts and principles that guide and base the implementation of a job,
leadership, and way of acting are called policies. The policy is a set of decisions taken by
political actors in order to choose the goals of how to achieve goals (Muda and Dharsuky,
2015; Badaruddin et al., 2017; Erlina et al., 2017; Gusnardi et al., 2017; Hasan et al., 2017;
Lubis, 2007; Nasir et al., 2017; Sihombing et al., 2017; Yahya et al., 2017; Eriadi et al., 2018;
Erlina and Muda, 2018 and Pohan et al., 2018). In general, the sequence of problems to the
implementation of public policy can be seen as follows:
Figure 1 Stages of Policy Implementation
Implementation is a part that determines the success of a development program after
passing a political decision.
2.2. Policy Implementation
Service tasks are public services to the community without discrimination and free.
Development tasks are to improve the economic welfare of the community and the task of
empowerment is the role to make every citizen able to improve the quality of humanity and
society (Nugroho, 2004; Nurzaimah et al., 2016; Azlina et al., 2017; Achmad et al.,2017;
Problem Public Policy Implementation Development
Management
Kariaman Sinaga, Suwardi Lubis, Marlon Sihombing and Ritha F Dalimunthe
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Lubis et al.,2016 & 2017; Muda and Hutapea, 2018; Muda and Erlina et al., 2018; Muda et
al., 2018 & Sari et al., 2018). George Edward III said that the main problem in public
administration was the lack of attention to implementation. Edward III advised to pay
attention to four main issues so that the implementation of policies becomes effective, namely
communication, human resources, disposition or attitudes, and bureaucratic structures.
Source: George Edward III (1980).
Figure 2 Determinants Factors of the success of policy implementation
Model compiled by Elmore (1979), Lipsky (1971), and Hjern & Porter (1981) in Nugroho
(2004) identifies the network of actors involved in the service process and asks goals,
strategies, activities, and contacts owned. Grindle (1980) explains that the measurement of the
success of the implementation of public policy related to 2 (two) things. It is seen from the
process, by questioning whether the implementation of the policy in accordance with the
specified by refering to policy actions and policy objectives achieved. Grindle (1980) explains
that the success of an implementation consists of the contents of the policy and the relevance
of interests (context of policy).
2.3. Area Development
The development of an area is directly related to the spatial arrangement of an area. Spatial
planning is the basis for identification to plan and develop an area in order to optimize the
potential of human resources and natural resources (Tarmizi et al., 2016 & 2017; Muda et al.,
2016 & 2017; Sirojuzilam et al., 2016 & 2017; Nurlina and Muda, 2017; Muda et al., 2018).
To analyze the area in general according to Nugroho and Dahuri (2012) the division of the
area is known by three types, namely the functional region. Increased community efforts, both
in terms of type, intensity, service and quality (Sirojuzilam and Bahri, 2014).
2.4. Tourism Development
In general, regional development is defined as a regional process or making an area more
advanced and better and can benefit the public. One of the areas prioritized to be more
beneficial to the public increases the potential of tourism objects. The potential of tourism
object in accordance with Suwantoro (1997) who mentions several forms of alternative
tourism products that have the potential to be developed, namely: Cultural tourism,
ecotourism, marine tourism, adventure tourism, agrotourism, rural tourism, gastronomy
(culinary tourism), spiritual tourism and others.
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2.5. Conceptual Framework
Figure 3 Conceptual Framework
3. RESEARCH METHOD
3.1. Research Type
The method used in this research is a qualitative descriptive method that is the type of
research that seeks to describe the object or subject being researched according to what it is
(natural) with the aim of systematically describing the facts and characteristics of the object
that is examined appropriately and understanding each context of the phenomenon as a whole.
3.2. Data Analysis
Data analysis begins with qualitative analysis to the data collected such as interviews result,
focus group discussions (FGD), observations, secondary data collection. Based on this, it can
be said that in this research, researchers used data analysis in accordance with the theory
proposed by Miles, Huberman and Saldana (2014) which analyzed data with steps such as
data condensation, data display and conclusion drawing and verification.
4. RESULT AND DISCUSSION
4.1. Result
4.1.1. Implementation of Tourism Object Development Policy
The implementation of tourism development policies in Samosir Regency is in line with the
stipulation of Lake Toba as one of 10 (ten) tourist destinations that are prioritized nationally
as National Tourism Strategic Areas (KSPN). Then the implementation of tourism
development policy in Samosir Regency is also in line with the National Tourism
Development Master Plan (RIPPARNAS) 2010-2015 which states that the development of
tourist destinations includes: development of tourist attraction, infrastructure development,
provision of public facilities, development of tourism facilities, and community
empowerment. To be able to improve the quality of tourism development, it is necessary to
have a reference or guideline in implementing a policy. One of the theories that is the basis
for implementing the policy is proposed by George Edward III (1980) through principles
implementation which consisting of aspects of communication, placement (disposition) and
bureaucratic structure. The development of tourism objects carried out in Samosir Regency is
a stage carried out in line with policies at the national (macro) and regional (mezzo) levels but
requires adjustments to the potential owned by regional government both human resources
and natural resources. This is what encourages the regional government to describe it in the
implementation of regional policies to develop tourism objects. Research on the
implementation of tourism development policy in Samosir Regency will look through:
communication, resources, disposition, and the bureaucratic structure that is carried out.
Development of tourism objects that are carried out by research through aspect indicators:
transportation, tourism attractions, tourists, tourism facilities and information technology.
While empowering the community is examined through: identification, awareness,
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strengthening, protection and independence which are an implementation model of tourism
development that is expected to succeed in the development of tourism objects. Based on the
description above, it can be seen that the coordination between the regional and provincial
governments with the central government has run in carrying out the development planning,
especially in the development of tourism areas in Samosir Regency as a leading tourist
attraction, priority tourism objects and pioneering tourism objects. The description of the
coordination of tourism development can be seen in the picture below.
Figure 4 Government Coordination
While the communication of tourism development carried out by the local government
and the community has not been able to increase community participation in supporting the
development of tourism objects. The participation of the community through the
communication carried out by the government has not run as expected (Lubis et al.,2016;
Dalimunthe et al.,2016 & 2017; Hutagalung et al., 2017; Sadalia et al., 2017; Muda et al.,
2017 & Erwin et al., 2018). The communication process carried out through socialization has
not produced the significant results in supporting Samosir Regency government in developing
tourism objects. Some of the problems related to communication of tourism development in
Samosir Regency are as follows: a) Lack of Socialization
Policies in the development of tourism objects really need the support of the ability of the
government apparatus in conducting socialization to the community. b) Disharmony with the Overseas Community
Communication of tourism development carried out in Samosir Regency must be
strengthened with the overseas community so that the development of tourism objects based
on the community is more likely to be carried out. c) Impact of Democratic and Political Processes
The process of implementing democracy in Samosir Regency has produced a negative impact
in the process of implementing tourism object development.
4.2. Discussion
Some of the above are the problems that inhibit communication, while some of the
socializations pathways carried out by the Samosir Regency government are:
4.2.1. Human Resources
The development of tourist areas in Samosir Regency is in line with developing human
resources through a clean and good governance system and oriented to public services. Some
problems related to human resources in the management of tourism development in Samosir
Regency are: a. Lack of Human Resources.
Based on data from the Art and Culture Tourism Office of Samosir Regency, there were 47
people, and some positions were still not filled. There were 21 staff shortages and 1 person for
echelon IV, namely the tourism and infrastructure services business section. This greatly
affects the government's performance in the process of developing tourism objects in Samosir
Regency.
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b. Quality of Human Resources
The ability of the government apparatus in cooperating is very necessary in the process of
developing tourism objects in Samosir Regency because it is crucial in the process of
implementing tourism development policies in Samosir Regency. c. Weak Enforcement of Rules
Regulatory enforcement that supports the development of tourism objects is still weak so that
it has not shown a large role in supporting the development of tourism objects. From several
problems that occur in the resource element, the following solutions are expected in the
development of tourism objects in Samosir Regency, namely: d. The increasing of Human Resources quality
In line with the development of science and technology globally, increasing human resources
becomes a necessity if you do not want to be left behind with other countries. e. Doing Tourism Development Creativity
Regional government apparatus is highly demanded to be able to make adjustments
(acceleration) in the development of tourism objects in accordance with the conditions of
human resources and natural resources. Nurkse and Myrdall in Rustiadi (2001) state that a
partial paradigm is suitable for developing countries in the context of developing the region. f. Seeking a Halal Label
To support the development of sustainable tourism objects, the results of natural resources in
Samosir Regency require strengthening competitiveness by obtaining halal labels.
The development planning system is not optimal in utilizing resources, such as natural
resources, human resources, technology and budget limitations to strive for efficient and
effective development (Muda and Nurlina, 2018; Muda and Windari & Muda and Naibaho,
2018). Therefore, it is very necessary to explain the vision and mission into strategic goals,
performance indicators and development programs. In addition to the elaboration of the vision
and mission, it is also required that there be a coherence between strategic objectives and
programs so that the development process from the central, provincial, district and city levels
of government can proceed to the regional device organization.
4.2.2. Information and Promotion
The provision of information and promotion of tourism objects in Samosir Regency can be
accessed through websites and social media. Information and promotion will provide
convenience to tourists to carry out tourism activities in Samosir Regency. Some channels in
information and promotion can be accessed through: Call Center (0626) 20688,
www.visitsamosir, facebook Samosir Tourism Office and visit_samosir and Touch Samosir.
Through websites and social media, the Samosir Regency government also receives feedback
from the community to be able to make improvements as a policy cycle carried out
continuously to improve the quality of tourism development policies. The equipment
resources such as buildings, land, infrastructure facilities that facilitate the provision of
service satisfaction in the implementation of policies are needed by policy makers (Handoko
et al., 2017; Marhayanie et al., 2017; Sadalia et al., 2017; Situmorang et al., 2017; Muda and
Hasibuan, 2018 & Muda et al., 2018). Information and promotion; is needed, when
advertisements are posted, where leaflets / brochures are distributed so that potential tourists
know each tour package and tourists quickly take tourism decisions in their region and must
carry out policies that are most beneficial to the region and region, because of the functions
and duties of tourism organizations in general : a) Trying to give satisfaction to tourists with
all the facilities and potential they have. b) Coordinating between various businesses,
institutions, agencies and agencies that exist and aim to develop the tourism industry. c)
Trying to socialize the notion of tourism to people in tourist attractions, so that they know the
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benefits and disadvantages if tourism is developed as an industry. d) Conduct a research
program that aims to improve tourism products and develop new products in order to master
the market in the future.
4.2.3. Tourist
As for some factors that hinder the comfort of tourists in supporting the development of white
sand beach Parbaba tourism object which is a leading tourist attraction of Samosir Regency
are: a) Transitional Society
The community still cannot leave the agricultural culture so that it requires a process
(transition period) to switch to tourism. With these conditions, the community is still hesitant
to switch to the main job as a job in tourism sector. b) Character of society
The appearance (stereotype) of the people of Samosir Regency as generally Batak people who
have a style of speaking that tends to be hard and the face that is less smiling must be changed
to provide comfort for tourists.
4.2.4. Community Empowerment
The Samosir Regency Government is empowering the community through a tourism
awareness group which is an institution that is very decisive in developing tourism objects.
Source: Director General of Tourism Destination Development, Ministry of Tourism (2012).
Figure 5 Stakeholders of Development in Tourism Development
The clear description of the roles and functions of each of these stakeholders is as follows:
The Government is in accordance with its duties and authority to carry out its role and
function as facilitator and regulator in tourism activities;
Private sector (business actors /tourism industry) with resources, technology, capital and
networks they have, carry out their roles and functions as activities (Lutfie et al., 2016; Ferine
et al., 2017 and Muda et al., 2017) and or implementers of the development of tourism
activities;
Communities with the resources they have, both in the form of customs, traditions and culture
and their capacity to act as hosts, but also at the same time have the opportunity as actors of
tourism development according to their capabilities.
The tourism sector is one of the strategic sectors and the mainstay in Samosir Regency as
a locomotive that drive the improvement of the community's economy which contributes to
the region's original income (PAD) (Muda et al., 2018). Based on Samosir Regency RPJMD,
that the magnitude of the contribution of this sector really depends on the number of tourist
visits, the availability of lodging and tourism object in Samosir Regency, namely a. Tourist Visits
The number of tourist visits both domestic tourists and international tourists increases from
year to year. The increasing number of tourists to Samosir Regency will increase the PAD
from the tourism sector.
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Table 1 Number of Tourist Visits in Samosir Regency in 2010-2014
Number of Tourist Visits
Year Domestic Tourist International Tourist Number
2010 94.629 20.913 115.542
2011 109.897 22.732 132.629
2012 119.530 25.297 144.827
2013 124.117 25.662 149.779
2014 140.637 30.450 171.087
Source: Samosir in Figures in 2015.
b. Lodging Availability
Table 2 Types, Classes and Amounts of Samosir Regency Lodging / Hotels in 2014 No Type of Lodging / Hotel 2014
Number of Hotel Number of Room Bed
1 5 star hotel 0 0 0
2 4 star hotel 0 0 0
3 3 star hotel 0 0 0
4 2 star hotel 5 354 627
5 1 star hotel 1 51 165
6 Non Star Hotels 76 1301 2128
Total of Lodging / Hotel 82 1706 2920
Source: Samosir in Figures in 2015.
In accordance with Samosir Regent Decree Number 474 of 2017 concerning
Determination of Criteria and Classification of Tourism Objects in Samosir Regency,Third,
Fourth and Fifth Chapter, there is a division or grouping of tourism objects according to
predetermined criteria. The determination of criteria for tourism objects in Samosir Regency
aims to facilitate the Samosir Regency government in the development of tourism, especially
the Lake Toba region. Because the main reason for the development of tourism as a whole,
both nationally and internationally are closely related to regional economic development
which always takes into account the benefits for the community.
4. CONCLUSION AND SUGGESTION
4.1. Conclusion
The implementation of tourism development policies in Samosir Regency has not been
carried out well, which is caused by the communication developed by the regional
government with the private sector as well as the community in the implementation of tourism
development in Samosir Regency has not been able to convince the public that the
participation of the private sector and the public is still low. The Samosir Regency
government, especially the Art and Culture Tourism Office of Samosir Regency is not yet
adequate in supporting the implementation of tourism objects development that empowers the
community.
4.2. Suggestion
There needs to be a more in-depth approach to the community around the tourism objects,
either it is superior, priority and pioneer tourism object, so that the implementation of tourism
development policies can be carried out well.
There needs to be coordination between the units or agencies involved in developing tourism
objects in Samosir Regency.
Kariaman Sinaga, Suwardi Lubis, Marlon Sihombing and Ritha F Dalimunthe
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There needs to be an increase in both quantity and quality of resources, especially human
resources and effective dispositions as policy drivers.
There needs to be a clear bureaucratic structure that regulates service procedures as well as
strict duties, authorities and responsibilities so that services are neatly arranged.
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