Dealing with the Port Impacts to Ensure the Sustainability of

Port-cities Development by Employing Integrated Policy: A Case

Study about Land Use in Semarang City

Muhammad Irfani

1,3

, Harry Geerlings

and Peter Scholten

Institute for Housing and Urban Development Studies, Erasmus University Rotterdam, Burgemeester Oudlaan 50,

Rotterdam, The Netherlands

Department of Public Administration and Sociology, Erasmus University Rotterdam, Burgemeester Oudlaan 50,

Rotterdam, The Netherlands

Technology Centre for Port Infrastructure and Coastal Dynamics, Agency for the Assessment and Application of

Technology (BPPT), Jl. Grafika 2 Sekip, Yogyakarta, Indonesia

Keywords: Port Impacts, Port-city, Sustainable Development, Integrated Policy-Making, Land Use, Semarang.

Abstract: The role of port-cities has increased along with increase in the function of ports as the backbone of global

economy in distributing logistics throughout the world. Port development has positive as well as negative

impacts on the growth of port-city. There are positive impacts in economic and social aspects, while

negative impacts affect on aspects of land use, transport and environment. Semarang is a major port-city in

Indonesia that takes advantage of positive impacts and deals with negative impacts. The aim of this research

is defining the role of integrated policy-making in responding to port impacts, to achieve sustainable port-

city development in Semarang. The design of this research is a case study using qualitative data analysis

with the use of Atlas.ti-8 software for the coding process. Fieldwork had been conducted in 2018 for 2.5

months by observation and semi-structured in-depth interviews. This paper focuses on land use policy-

making process in responding to port impacts on the city. The results indicate inter-territorial integration in

complexity of authorities, horizontal integration through formation of cross-sector ad hoc team, vertical

integration through provincial- national review, civil society involvement through public consultation and

land use policy responses to port impacts.

1 INTRODUCTION

Port cities have a crucial role in economic

development by facilitating national and

international trade. In the era of globalization, the

role of port-cities has increased along with increase

in the crucial function of ports as the backbone of

the global economy in distributing logistics

throughout the world. Lately there have been many

conveniences for various business sectors to gain

opportunities in order to reach international markets

so that it will increase trade among countries that are

based on the sea logistics system. Moreover,

improved technologies that support trade such as e-

commerce also increase the volume of international

trade for goods that must be sent physically using

sea transportation (Terzi, 2011). The port is the

centre of a sea transportation network that facilitates

trade among countries and supports international

supply chains with volume of goods distribution

reaching nearly 80 percent of international trade

with an increasing trend during 2015-2018

(UNCTAD, 2016, UNCTAD, 2018).

Port-cities accommodate two main functions that

occur in the coastal areas such as trade and port

activities. Other functions of the use of coastal areas

such as for housing, industry, recreation are also the

responsibility of the port-cities. To ensure

sustainability, the cities have to be managed

thoroughly and integrated (Clark, 1994).

Port and city have a close relationship of origin,

from a historical point of view. Some trading

activities in a coastal area form a simple trade node

as a natural entrance to facilitate loading / unloading

and shipping of goods using ships, which then

developed into a port. During the growth, these port

activities eventually had positive impacts on

Irfani, M., Geerlings, H. and Scholten, P.

Dealing with the Port Impacts to Ensure the Sustainability of Port-cities Development by Employing Integrated Policy: A Case Study about Land Use in Semarang City.

DOI: 10.5220/0010059901610172

In Proceedings of the 7th International Seminar on Ocean and Coastal Engineering, Environmental and Natural Disaster Management (ISOCEEN 2019), pages 161-172

ISBN: 978-989-758-516-6

161

economic growth and social development of the

surrounding port area, which was then able to

generate a small town around the port. In its

development, this small city grew into a major port-

city. Then, as negative impacts from the growing

port activities, city has to deal with various problems

such as land use issues, traffic congestion and

environmental degradation (OECD, 2014).

Semarang, as a major port-city in Indonesia,

benefits from positive impacts but has to bear the

brunt negative impacts from port activities.

Semarang City was selected as a case study because

Semarang, as the capital of the province of Central

Java, has a strategic location. This city is located on

the northern coast of the island of Java in the middle

of the province so it is easily accessible from all

directions. Semarang City plays a crucial role in the

growth of the province through logistics distribution

sector as the port is the main entrance for

distribution of goods to and from the province of

Central Java. Semarang port has the potential to be

developed because it has a large hinterland area

consisting of 35 regencies/cities, so it should be

planned and managed in an integrated approach to

be sustainable.

Semarang has a long history as a port-city. The

history of Semarang begins with the emergence of

trading activities at the edge of the Semarang river

(called Kali Semarang). These trading activities

form trade nodes that continued to develop into a

major port-city. Subsequently Semarang became the

provincial capital of Java during the colonial period,

in 1775. The role of Semarang as a port-city began

to escalate when the Dutch colonial authority

determined Semarang as the centre of the Northeast

Coast of Java in the 18

century (Knaap, 2015).

The research is concerned about the impact of

implementation of integrated policies in the field of

land use, transportation and environment that must

be taken into consideration by the main stakeholders

of Semarang Port-city. It is imperative that both pros

and cons of port development be considered to

ensure sustainable development. The key

stakeholders are the Government of Semarang City

as the local government, Harbourmaster and Port

Authority (KSOP) as the authority of the port and

Pelindo III as the port operator in the Port of

Semarang.

This paper was written, as a part of the research,

which will focus on the implementation of integrated

policies in land use aspects, particularly response to

port impacts, within the framework of the integrated

policy towards sustainable development in

Semarang Port-city. The paper begins with an

elaboration of the conceptual frameworks of

integrated policies in ports, port-cities and

sustainable development in section 2. Then sections

3 and 4 will discuss methodology and findings

respectively, which is followed by conclusions in

section 5.

2 CONCEPTUAL FRAMEWORKS

Conceptual frameworks are the model that describes

relationships about several relevant theoretical

building blocks, particularly those related to port

development, port impacts on port cities, and

sustainable development as well as integrated policy.

The implementation of integrated policies in port-

cities is an emphasis in the research, especially in

relation to policies in the field of land use,

transportation and the environment in responding to

the positive and negative impacts of port

development. Integrated policy acts as a catalyst that

is expected to assist and accelerate port-city to

achieve sustainable development. The research on

the application of integrated policies in port-cities,

mainly in the fields of land use, transportation and

environment in responding to the positive and

negative impacts of ports is expected to be a new

contribution in policy-making process in port-cities

in general. Port-cities in Indonesia, in particular, are

expected to be able to implement this conceptual

framework model in policy-making, specifically in

the fields of land use, transportation and the

environment.

In addition, this conceptual framework model

was created to guide the research in answering the

research question such as: how integrated policy-

making can contribute to the sustainable

development of port and port-city relationship, in the

case of Semarang Port-city. Moreover, this model

also seeks to answer the following sub-research

questions:

1) How can be understood about the relationship

between port and port-city?

2) How can the role of sustainable development in

the port and port-city relationship be understood

and operationalized, in the case of Semarang

Port-city?

3) What is the role of integrated policy-making in

achieving sustainable development in Semarang

Port-city?

ISOCEEN 2019 - The 7th International Seminar on Ocean and Coastal Engineering, Environmental and Natural Disaster Management

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2.1 Relationship between Port and City

The conceptual frameworks start from relationship

between port and its city. This sub section is a

response to the first sub research question namely

relationship between port and city. Alderton (2008),

Talley (2009) and, Stopford (Stopford, 2009)

describe port in the similar tone that port is an

interface between ship and sea which is equipped

with facilities for ship berths as well as maintenance,

and equipped with several equipment for moving

goods from ship to land and vice versa. In addition,

there are terminal facilities for the movement of

goods and people.

Most ports are located around cities to facilitate

access to sellers, buyers, factories and manufacturers

(Merk, 2018), so that there is a close historical

relationship between ports and cities. In general,

many cities flourish and thrive from ports. Many

cities begin as inter-regional trade nodes that use

ports as natural gateways and use the sea as

interconnected regions. Further development of

these trades encourage small towns to grow and

develop into cities that further grow into major

cities. That is the origin of port-cities.

During its development, relationship between

ports and cities are mutually influenced. The

development of ports will affect the growth of port-

cities, and the growth of port-cities will affect ports

development. The conceptual frameworks of this

research only emphasize on port development

impacts on the port-cities growth.

2.2 Impacts of Port Development to

City

In general, the activities of ports development have

two major influences on port-cities growth. This sub

section is still a response to the first sub research

question namely relationship between port and city.

The first impacts are considered as positive

impacts, which subsequently transformed into port-

related benefits of port-cities. These advantages

consist of several dimensions in terms of economic

and social development. These positive impacts tend

to be spread out to surrounding cities. It means that

the cities around the port-cities can also benefit from

these positive impacts. Ports may contribute crucial

advantages in economic development in coastal

areas through job creations, generate tax (Miller,

2017), generate more revenue (Bichou and Gray,

2005), both directly and indirectly (Ferrari; Percoco,

et al., 2010), as well as stimulating new business

opportunities (Talley, 2009). Ports also deliver

significant contribution for economic development

in hinterland areas because ports connect sea and

land by using ships for transportation (Dwarakish

and Salim, 2015). These activities generate first

contribution of ports to cities namely cargo handling

business. It is one of the earliest economic activities

that acts as a driver to local jobs creation, tax

revenues and other indirect economic activities

(Xiao and Lam, 2017). The impact on social aspect

could change local society life due to relocation of

villages for port expansion, change in lifestyle,

formation of slum areas, effect on tradition and

culture and disturbance in the beach recreation areas.

(OECD, 2014). Moreover, relocation and

resettlement of local society may elicit some

changes in population composition regarding racial

issues between minority-majority groups and

distribution of population related with age

composition (Xiao and Lam, 2017).

The second major impact is considered as

negative impacts of ports which consequently

converted into port-related problems of port-cities.

Those disadvantages affect several aspects such as

land use, transport, and environment. Usually, these

negative impacts tend to be localized inside the port-

cities. The typical requirement of modern ports is the

need for a very wide space so ports cover relatively

large area of land in the cities. Usually, high density

of work and effects of agglomeration are believed as

the reasons of the growth of urban economy and this

effect only occur in the port areas. The impacts of

ports in term of urban economic development

influence the surrounding ports areas only, (OECD,

2014) so that it makes land use in the area around

the port become increasingly dense and complicated.

Then port activities multiply traffic density that

leads to traffic congestion particularly caused by

traffic of hinterland to and from ports areas (OECD,

2014). Environmental degradation around the port is

due to port activities such as air pollution sourced

from ships engines, cargo-handling and port

equipment, engines of railroad locomotives and

trucks (Talley, 2009). Oil spills are the significant

cause of water pollution at ports, even from normal

or accidental activities. Most of the oil spills come

from vessel movement, loading/unloading of oil

tankers, leakages and the operation of ballast water

(OECD, 2014). Moreover, untreated vessels ballast

water, waste disposal of vessels, antifouling paints in

vessels and dredging activities are the cause of water

pollution in the port area (Talley, 2009). Other

source of environmental pollution is soil

contamination from oil spills and chemicals on the

ground (Miola; Paccagnan, et al., 2009). The

Dealing with the Port Impacts to Ensure the Sustainability of Port-cities Development by Employing Integrated Policy: A Case Study about

Land Use in Semarang City

163

disturbance created by vessels and port equipment

during cargo handling. Trains, trucks, and other

maintenances activities are the other sources of noise

pollution in port areas. This continuous noise may

cause sleep disturbance (OECD, 2014).

2.3 Sustainable Development of

Port-City

Sustainable development term was introduced by the

United Nations World Commission on Environment

and Development in its report in 1987 namely “Our

Common Future” (United Nations, 1987). This sub

section is a response to the second sub research

question namely the role of sustainable development

in relationship between port and city. Diesendorf

(2000) reveals that sustainability is for the long term

and establishes moral value of fairness and balance

between current and upcoming generations. In

addition, United Nations (United Nations, 1997)

implements the definition of sustainable

development and its three dimensions in the

description of development in the Agenda for

Development as follows: “Development is one of the

main priorities of the United Nations. Development

is a multidimensional undertaking to achieve a

higher quality of life for all people. Economic

development, social development and environmental

protection are interdependent and mutually

reinforcing components of sustainable

development.” In 2015, UN established the “2030

Agenda for Sustainable Development” that includes

“17 Sustainable Development Goals” (United

Nations, 2015).

In dealing with several impacts of ports, either

positive or negative, port-cities need to employ

sustainable development concept to maintain

sustainability of their roles in the globalization

period as the frontline. This conceptual framework

will focus on typical aspects of sustainable

development such as economic and social as well as

environmental aspects. All these dimensions will

deal with port-related benefits and port-related

problems of port-cities comprehensively.

2.4 Integrated Policy in Sustainable of

Port-city Development

Several port-related benefits and port-related

problems of port-cities will be addressed by

implementation of integrated policy to achieve

sustainable development (see Figure 1). This sub

section is a response to the third sub research

question namely the role of integrated policy-

making in achieving sustainable development in

port-city. An integrated policy is crucial for port-

cities in dealing with the interaction between ports

and port-cities, since they are closely interconnected

and support each other so that port-cities have to

ensure the implementation of policy integration

among economic, social and environment aspects

which are important for sustainable development

(UN-ESCAP, 2015). These sustainable

developments of port-cities will sustain the leading

roles of port-cities in the globalization age as

integrated parts of worldwide supply chain system of

logistic (OECD and ITF, 2009, Merk and

Notteboom, 2015). Integration is the key of

sustainable development. Geerlings and Stead

(Geerlings and Stead, 2003) emphasize that the

integration is significant for sustainable

development, particularly in land use fields and

transport, as well as environmental aspect. It is a

valuable approach of development of cross-sectors

by crossing border and even across generations.

Every decision should concern the prospective

influences on the environment, the society and

economical effect in the future (Strange and Bayley,

2008).

Figure 1: The model of conceptual frameworks for

integrated policy in sustainable of port-cities development.

Policy integration sequence (Geerlings and

Stead, 2003, Strange and Bayley, 2008),(Meijers,

2004) can be described as follows: co-operation

which involves dialogue and information, each

organization works concurrently to realize their-own

targets so that output is efficient sectoral policy.

Economic

aspect

Social aspect

Environmental

aspect

Sustainable

development

Port benefits:

a. economic

. social

Port problems:

a. land use

b. transport

c. environment

Port-city growth

Port development

Positive impacts

Negative impacts

Policy

integration

ISOCEEN 2019 - The 7th International Seminar on Ocean and Coastal Engineering, Environmental and Natural Disaster Management

164

Then coordination (similar policy term with

consistency and coherence) includes co-operation as

well as openness to prevent conflicts. Mutual

decisions may be not the same as their original

outcomes. Policy coordination is more far-attaining

than co-operation. The output is adjusting sectoral

policies that are mutually enforcing and consistent.

Lastly, integration or joined-up policy, which

involves co-operation elements such as dialogue,

discussion and information; includes co-ordination

elements such as clear and transparent concept to

prevent conflicts; and contains joint working, as

efforts to build synergies among policies and use

similar objectives to formulate policy. Policy

integration is better than co-ordination with one joint

policy as the new output related to sectors.

Furthermore policy integration can be

distinguished (Geerlings and Stead, 2003) as

follows: vertical integration (among various levels

of government), horizontal integration (among

various sectors or professions inside an

organization), inter-territorial integration (among

different authority with common interests such as

resources and infrastructure), and intra-sectoral

integration (combining among various sections or

professions in a department and among fields of

environment).

In conclusion, as illustrated in figure 1, the role

of policy integration is as the catalyst to assist and

accelerate port-city in policy-making proses

particularly in the fields of land use, transportation

and environment in responding to the positive and

negative impacts of port to the city in order to reach

sustainable development. The implementation of

integrated policies in policy-making process of port-

city, mainly in the fields of land use, transportation

and environment in responding to positive and

negative impacts of ports is expected to be a new

contribution in policy-making proses in port-cities in

general.

3 METHODOLOGY

The research design is a case study. Semarang is

selected as a case study because this city is one of

the three big port-cities on the Java Island in

Indonesia, which has a history as a port-city. The

data collection stage had been carried out in order to

get appropriate and sufficient data, as a basis for

observing and understanding the phenomena in the

real-world context in depth and specifically, in order

to analyse the policy-making process, particularly in

the field of land use, transportation and environment

in Semarang Port-city. This study employs

qualitative data collection, both for secondary data

sources and primary data sources.

The collection of secondary data provides the

preliminary overview about the profile of each

stakeholder, the government policies in the three

fields mentioned above and other related regulations

before carrying out the fieldwork. Moreover, the

secondary data can also enrich the process of

making questions for semi-structured in-depth

interviews at the primary data collection stage.

Secondary data were obtained through contact

persons in each city government agency in the form

of data archives such as reports, minute of meetings

and academic script during the policy-making

process. Furthermore, planning and policy

documents as well as related regulations, within the

scope of the city government, provincial government

and even the central government were obtained

through internet-based search.

The collection of primary data delivers

qualitative data, which is the main source of this

research, in the form of semi-structured in-depth

interviews and direct observation that are recorded

by using digital recorder and by making several

notes. The fieldwork was conducted in early October

until mid-December 2018 in Semarang Port-city.

Direct observation during fieldwork provides visual

conformation of the phenomena, which takes place

naturally. Then, this can enrich the interview process

with the triangulation approach. Semi-structured in-

depth interviews were conducted using a list of

open-ended questions as a guide. The list is an

implementation of the conceptual frameworks,

which is a derivation of related theory building

blocks. In general, this list contains questions

anticipated to answer the main research question,

namely how integrated policy-making can contribute

to the sustainable development of port and port-city

relationship, in the case of Semarang port-city.

Moreover, those questions are also supposed to

answer the sub-research questions as follows:

1) How can be understood about the relationship

between port and port-city?

2) How can the role of sustainable development in

the port and port-city relationship be understood

and operationalized, in the case of Semarang

Port-city?

3) What is the role of integrated policy-making in

achieving sustainable development in Semarang

Port-city?

Interviews were conducted with the official

representative of each of the relevant stakeholders.

Dealing with the Port Impacts to Ensure the Sustainability of Port-cities Development by Employing Integrated Policy: A Case Study about

Land Use in Semarang City

165

The main stakeholder is Semarang City Government

as the holder of the local government authority such

as the Mayor, Regional Development Planning

Agency, City Spatial Planning Office,

Transportation Office, Public Works Office, as well

as Environmental Office. Other chief stakeholders

are the Office of Harbourmaster and Port Authority

(KSOP) as the port authority holder and Pelindo III

as the port operator holder. In addition, interviews

were also conducted with other stakeholders

involved in the policy-making process, such as

Semarang City Regional People's Representative

Council (DPRD II/City Council), academics,

experts, professionals, business associations,

professional associations, non-governmental

organizations, communities, journalists, heads of

sub-districts in the port area, and heads of RWs/RTs

(the smallest informal unit of society), informal

leaders also residents around the port area. The

respondents are expected to have sufficient capacity,

knowledge and authority regarding the policy-

making process in the field of land use,

transportation and environment in Semarang Port-

city.

In order to meet the appropriate persons, formal

procedures were carried out to contact each

representative of above mentioned relevant

stakeholders. Each of these stakeholders or agencies

would then give recommendations about the

appropriate persons to contact who are directly

involved in policy-making process or who currently

have the authority in policy-making. The

respondents were generally top level and middle

level officers who were at least the first level

officers, and several retired top and middle level

officers who were directly involved in the policy-

making process. The appropriate respondent

representative of each of the above stakeholders

were located using snowball sampling technique by

asking for recommendations from active officers, so

that all representative of each stakeholder are

represented by at least one qualified respondent.

All data were processed by using Qualitative

Data Analysis method. All recorded interviews were

transcribed from voice data to written data.

Furthermore, coding process was carried out using

Atlas.ti-8 software by incorporating all interview

transcript data, interview notes and secondary data

such as policy documents, regulations and minute of

meetings. The coding process, by using a deductive

approach, began with organizing indicators obtained

from the conceptual framework. The indicators serve

as a preliminary guideline in the coding process.

Data were grouped according to their similarity to

each other, then the groups were given names as

new sub-indicators that still have relevance to their

existing indicators. Furthermore, when the

similarities of the groups did not have relevance to

the existing indicators or sub-indicators as contained

in the conceptual framework, new indicators and

sub-indicators would emerge. After that, all the

results of coding process were arranged in the matrix

form so that the composition and relationship among

the indicators and sub-indicators are clearly visible.

Based on the results of the coding process, the

interview data from various respondents with similar

indicators or sub-indicators were compared and

analysed with the documents from secondary data

such as policy documents, regulations and minute of

meetings. Elaboration of this analysis process to

ensure the relationship and consistency between

indicators and sub-indicators contained in the

conceptual framework in answering the main

research question along with sub-research questions.

4 FINDINGS

4.1 The Challenge of Inter-territorial

Integration in the Complexity of

Authorities

There is a complexity of authorities in the

relationship between the port and the city among the

main stakeholders in Semarang City. In this port-

city, there are three main stakeholders namely the

city government, the port authority and the port

operator. These main stakeholders have significantly

affected the relationship between the port and the

city. In general, the relationships among the key

stakeholders in the Semarang Port-city can be

described in figure 2.

The first main stakeholder is Semarang City

Government, as the authority holder of the local

government of the city. The City Government is

equipped with agencies and offices that generally

represent each sector. This research only focuses on

agencies from the Semarang City Government

which are related to policies in the fields of land use,

transportation and environment. Agency and offices

that have the primary role are the Mayor, Regional

Development Planning Agency, City Spatial

Planning Office, Transportation Office and

Environment Office. The city government has

authority over the area of Semarang City in the form

of regional autonomy, while the mayor is elected

directly by the citizens of the city through regional

ISOCEEN 2019 - The 7th International Seminar on Ocean and Coastal Engineering, Environmental and Natural Disaster Management

166

elections held every five years. Regional

Development Planning Agency is a body that has a

coordinative nature among the sectors, while City

Spatial Planning Office, Transportation Office and

Environmental Office are the bodies that deal with

the related sectors. All of these agency and offices

are responsible to the Mayor.

Figure 2: The complexity of authorities among the main

stakeholders in Semarang Port-city.

The second main stakeholder is the Office of the

Harbourmaster and Port Authority (KSOP), as the

authority holder of the port in Semarang City. KSOP

is the office that is responsible to the Ministry of

Transportation through the Director General of Sea

Transportation, so structurally this office is part of

the Central Government. KSOP has authority over

the port area in Semarang City.

The third main stakeholder is Pelindo III, as a

port operator in the port of Tanjung Emas in

Semarang City. Pelindo III is a state-owned

enterprise that is responsible to the Ministry of

State-Owned Enterprises, so that this company is

organically part of the Central Government. As a

business entity, Pelindo III is a port operator in the

form of a Port Business Entity (BUP). In addition to

running its business, Pelindo III has Land

Management Rights (HPL) granted by the Central

Government to the Tanjung Emas Port Working

Area, in Semarang City.

The complexity of authorities among the main

stakeholders occurs because there are differences in

command lines and responsibilities of each of the

main stakeholders (see figure 2). In general, in daily

operational activities, both KSOP and Pelindo III

have to comply with all applicable policies and

regulations, both at the central, provincial and

regional levels. Pelindo III, as a port operator is fully

responsible to the Ministry of State-Owned

Enterprises in terms of corporate and financial

responsibilities, but Pelindo III has to also comply

with all regulations set by the Ministry of

Transportation through the KSOP as port authority

in terms of shipping safety. Whereas as a

stakeholder who has an interest in Semarang City,

Pelindo III has to also comply with applicable local

regulations at the city or provincial level. KSOP, as

the port authority, is directly responsible to the

Ministry of Transportation. Besides that, KSOP and

Pelindo III, as a port operator, work together in

maintaining the safety of shipping and complying

with local regulations set by the Mayor or the

Governor.

Semarang City Government as the owner of

authority in Semarang City area must also comply

with all regulations set by both the central

government and the provincial government. As an

autonomous region, Semarang City Government has

the right to issue Regional Regulations, together

with Semarang City Regional People's

Representative Council (DPRD II / City Council).

Policy in the field of land use is regulated in the

Semarang City Regional Regulation on Regional

Spatial Planning (RTRW). Since a while ago, the

port area has been considered as the area of the

central government that seems to have special

autonomy, so that Semarang City Government

cannot regulate land use within the port area.

The complexity of authorities among main

stakeholders is a major challenge in implementing

integrated policy in Semarang Port-city particularly

in the fields of land use, transportation and

environment. This is because port is an area that has

major impacts on the city, not only positive impacts

on economic and social development but also

negative impacts on land use, transportation and

environmental aspects. This paper only focuses on

aspects of land use. In land use zoning, as stipulated

in Semarang City Regional Spatial Plan, land use

within the port area is only set as a transportation

facility, in general, without further description

related to land use in detail of the zoning of the

transportation facility. This is because Semarang

City Government does not have authority to regulate

Ministry of Transportation through

Director General of Sea Transportation

Ministr

of State Owned Enter

rises

Central Government Level

Gove

rnm

eve

City/Regency Government Level

Area of Semarang City

Semarang City Government

City Spatial

Planning

ffi

Transportation

Office

Environmental

Office

Regional

Developmen

Planning

Agency

Port

Operator

(Pelindo III)

Port

Authority

(KSOP)

rt Ar

Dealing with the Port Impacts to Ensure the Sustainability of Port-cities Development by Employing Integrated Policy: A Case Study about

Land Use in Semarang City

167

within the port area, only KSOP, as the port

authority holder, has the right to regulate zoning

within the port area.

Port, in carrying out its activities, has to make a

Port Master Plan for future development. In the

process of making the Port Master Plan, the KSOP

has to obtain approval and recommendations from

the Mayor. This is actually a good opportunity as a

starting point for the City Government to be

involved in land use planning within the port area,

together with the port authority, so that the negative

impacts of the port from land use aspects can be

anticipated such as slum dwelling around the port

area and mixed land use for zoning as warehousing

and residential areas. However, this is not easy to

execute because there is no mandatory for the Port

Authority to implement all the recommendations of

the Mayor. The recommendations are implemented

within the authority of the KSOP as the port

authority holder. When the Port Master Plan is

finished and determined by a Ministerial Decree, the

Port Master Plan must be fully accommodated in the

city land use plan in the future because it already has

the legal force in the form of a ministerial decree.

Inter-territorial integration, which is an

integration between different authorities with

common interests such as resources and

infrastructure, cannot be executed optimally among

Semarang City Government, KSOP and Pelindo III.

The main reason is that each stakeholder has

different vertical responsibilities and has the

respective authority over their respective territories.

However, at least there have been efforts to carry out

inter-territorial integration, even within the limits of

their respective authority. There have been efforts

from the port authority to request approval and

recommendations from the Mayor in the process of

making the Port Master Plan. Likewise, Semarang

City Government employs cooperation and

coordination with KSOP and Pelindo III by adopting

the Port Master Plan entirely into Semarang City

Regional Spatial Plan. This decision was taken with

the consideration that the master plan regulates

within the port area that the city government does

not have the authority to regulate the land use within

port area. Communication among competent related

parties has begun even though it still uses formal

communication and time consuming in the process

of coordination and integration because each party

has to consolidate internally according to their

respective authorities and responsibilities.

4.2 Horizontal Integration through the

Formation of Cross-sector Ad-hoc

Team

The land use policy in Semarang City is contained in

the Semarang City Regional Spatial Plan which is

determined based on the Semarang City Regional

Regulation number 14 of 2011 regarding Semarang

City Regional Spatial Plan for 2011-2031.

In the policy-making process, City Government

forms a technical team which is an ad hoc cross-

sector team with the Regional Development

Planning Agency as the leading institution because

this body has a horizontal coordinating function

among the sectors under the city government. This

technical team works for a duration of one fiscal

year with the main task of policies-making in the

field of spatial planning. This land use policy

concerns almost all sectors in Semarang City that

requires space as the place to carry out its activities.

The technical team essentially requires bureaucrats

as member, who have proficiency, capability and in-

depth knowledge related to policies in their

respective sectors, so that they can represent the

policies of each sector they represent. With the team

members who meet the requirements, the

discussions are expected be valuable to yield prompt

and qualified decisions. The members of this

technical team consist of sectors whose activities are

closely related to spatial requirements, such as the

Regional Development Planning Agency as the

coordinator, the City Spatial Planning Office, the

Transportation Office, the Environmental Office, the

Agriculture Office, the Housing and Settlement Area

Office, and Public Works Office, as well as Land

Office. The technical team is in charge of drafting

concepts with the assistance of a consultant team,

which has been selected through an auction process

with the task of assisting the process of collecting

data and providing updates on regulations related to

spatial planning.

The horizontal integration process begins when

the technical team works intensively in formulating

policies which are realized through intensive weekly

meetings. There are two types of meetings to build

two-way communication such as plenary meeting

and certain sectors meeting. Plenary meeting tend to

use formal communication while certain sectors

meeting mostly use informal communication apart

from formal communication. At this stage,

horizontal and intra-sectoral integration occurs

among members of the Technical Team, who

represent various city government sectors.

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Sectoral egos are phenomena that arise when

discussing policy formulation related to sector

priorities, for instance when discussing zoning for

housing. The agriculture office is insistent and

adamant to maintain total amount of sustainable rice

fields that has to be maintained in Semarang City, as

a mandate from the Ministry of Agriculture through

the provincial government. In another perspective,

the Housing and Settlement Area Office proposes to

increase the area for housing because the need for

new residential areas always increases every year.

This dynamic ends with the emergence of a common

understanding that the purpose of the spatial

planning policy is for the common goal, namely the

development of Semarang City as a whole.

However, it is cross-sectoral, so that it will not be

able to please all sectors. Fortunately, after

calculating in more detail, the need for additional

areas for housing can be met while maintaining the

amount of land area for sustainable rice fields.

4.3 Civil Society Involvement through

Public Consultation

After the policy-making process in the land use

sector is complete, the next step is to conduct public

consultations. This process is carried out with the

aim of socializing with the community and at the

same time to collect community aspirations. This

consultation process is mandatory by the regulations

for a minimum of two times. The public

consultations that have been carried out more than

twice uses two approaches. The first approach is

territorial based, namely by holding meetings in

each sub-district attended by village heads, informal

leaders, communities and non-governmental

organizations. The second approach uses the focus

group discussion method on certain segments of

society such as academics, experts, professionals,

business associations, and professional associations.

In the first approach, which is regional-based, the

public consultations tend to be a formality, because

it is held in a short time without giving much time

for the communities to learn more about the draft

material on land use policy. Usually the material

given to participants at the beginning of the event is

in the form of an executive summary, so there is not

enough time for participants to study deeply. In

addition, generally people still do not have sufficient

knowledge and capacity in understanding spatial

planning so that their questions and aspirations tend

to be normative, qualitative and pragmatic, for

instance the questions are related to micro problems

such as clogged drains and damaged road within a

residential complex. Spatial planning delivers

beyond than small matters.

In the second approach, which is based on certain

segments of society, the public consultations tend to

be of higher quality because most of the participants

have the capacity to understand spatial policy and

many have interest in commercial use of space.

4.4 Vertical Integration through

Provincial and National Review

After completing the technocracy process in the

technical team, the next process is political process.

This political process involves Semarang City

Regional People's Representative Council (DPRD II)

or City Council in discussing Draft of Regional

Regulation concerning Semarang City Regional

Spatial Plan. At this stage, there is lot of input from

the members of the city council in voicing the

aspirations of their constituents, related to various

issues such as economic, social and environmental

issues, including the emergence of aspirations from

the business sector. The dynamics during this

discussion process are the involvement of the public,

which is indirectly represented to the members of

the city council involved. When the political process

with the city council was completed, then the draft

was approved by the city council in a plenary

session. Next step is the application for the

Governor's approval letter.

In this stage, vertical integration appears when

there is a review of Semarang City Regional Spatial

Plan from a policy perspective at the provincial level,

such as in the form of maintaining the amount of land

for sustainable paddy fields. This vertical integration

process tends to use formal communication and is

time consuming. After the provincial policy of the

province is accommodated, then the governor's

approval letter is issued. Then the vertical process

needs to request for approval from the Ministry of

Public Works to be aligned with various national

policies. Then, as the last vertical integration process,

the approval of the Ministry of Home Affairs was

requested before being stipulated as a Semarang City

Regional Regulation Number 14 of 2011 concerning

Semarang City Regional Spatial Planning for 2011-

2031.

4.5 Policy Responses in the Field of

Land Use to Port Impacts

The city government has not yet made a specific

study or assessment on the response to the positive

and negative impacts of the port on the development

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169

of Semarang City comprehensively. Semarang City

Government also has not yet specifically counted the

responses to positive and negative impacts of port on

city development, as the main consideration in the

policy-making particularly in the field of land use in

Semarang Port-city.

However, there have been efforts from Semarang

City Government to pay attention to the influence of

port on the city development, although partially.

This can be seen in the change in land use zoning in

the area around the port. The existing condition is

zoning for residential areas, while the zoning plan

for the area around the port is mostly used for

warehousing and mixed functions consisting of

residential areas, trade and services.

5 CONCLUSIONS

In general, the main stakeholders in the port-city

such as Semarang City Government, the Office of

the Harbourmaster and the Port Authority (KSOP) as

well as Pelindo III, realize that in carrying out their

duties, they have to cooperate, coordinate, and even

integrate with each other, who often differ in

authority and perspective. Semarang City, which is

one of the major port cities in Indonesia, faces

several challenges in carrying out the process of

integration in the policy-making, particularly in the

field of land use. These main stakeholders have

made a number of collaborative, coordinated and

integrated efforts in the policy-making process,

within their respective authorities, particularly in the

field of land use to achieve a common goal, namely

for the future development of Semarang City.

The complexity of authorities is a significant

challenge in conducting inter-territorial integration

where each major stakeholder cannot break through

the differences in authority and structure of

responsibilities in policy-making in the field of land

use. So what has been done is optimally integrating

within each authority. In making the Port Master

Plan, the Harbourmaster and the Port Authority

(KSOP) requests approval and recommendations

from the Mayor, which is mandatory based on

regulations. On the other hand, in the process of

making Semarang City Regional Spatial Plan, the

technical team also made an integrated effort by

discussing and accommodating the Port Master Plan

into Semarang City Regional Spatial Plan on the

land that was intended specifically for the port.

Furthermore, the city government made some

adjustments in response to the presence of port in the

area, such as changing the designation around the

port area for warehousing, trading and service

functions. In this inter-territorial integration, among

related stakeholders tend to use formal

communication approach. This process is time-

consuming because each party must adjust according

to their respective regulations and authorities.

Horizontal integration occurs among several

bodies under the authority of Semarang City

Government. The formation of a technical team,

which is an ad hoc cross-sectoral team, is a strategy

to reduce sectoral egos that emerge from each sector.

This sectoral ego arises because each of these

sectors must meet the provisions of the relevant

Technical Ministry. In general, the problems of

sectoral egos can be overcome by the technical team.

Each sector understands the main shared goals under

the authority of Semarang City Government. This

integration process uses two kinds of

communication approaches such as formal

communication and informal communication.

However, the informal approach for communication

is more often used. Each member of the technical

team already knew each other well. Interpersonal

interactions among the members of technical team

are caused by several things, among others, due to

the mutation process between agencies and offices in

the scope of Semarang City Government on a

regular basis. This mutation process could be due to

promotion or rotation process. With this mutation

process, people can get to know each other

personally. In addition, because most of the agencies

and offices are located in the same office complex,

the process of social interaction leads them to get to

know each other well. Getting to know each other

personally and egalitarian attitude among the

members of the technical team makes this technical

team solid and makes it easier and faster in solving

problems that arise between sectors, including the

emergence of sectoral egos. This horizontal

integration process is an effort of city government to

carry out a bottom-up approach in policy-making by

accommodating the aspirations of each sector within

the city government based on applicable regulations,

including involving the participation of civil society

by conducting public consultations during the

policy-making process.

Vertical integration occurs when the review

processes are carried out, by both the provincial

government and central government, to ensure that

programs from the province and the central

government are accommodated in the Semarang

City Regional Spatial Plan. This integration process

uses a formal communication approach. This process

is time consuming because each level of government

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has to ensure that their respective policies are

accommodated. This vertical integration process is

an attempt by the government to carry out a top-

down approach in policy-making, because when

provincial and central government policies are not

accommodated by the city government, Semarang

City Regional Spatial Plan cannot be ratified.

The involvement of civil society is possible in

the policy-making process through public

consultation, because this is mandatory by the

regulations, at least two times. The public

consultations were carried out more than twice

during the land use policy-making process. Although

in practice, the aspirations of civil society could not

all be accommodated because of differences in the

capabilities of the communities in understanding

spatial planning. In addition, regulations regarding

spatial policy-making are also a tool used to filter all

public aspirations. This public consultation process

is an attempt by city government to involve civil

society participation in policy-making process, even

though the accommodations of these aspirations still

have to refer to the relevant regulations.

In the policy-making process in the field of land

use, the city government has not yet considered a

specific study or assessment on the responses of the

city government to the positive and negative impacts

of the port on city development in the future.

However, there have been efforts to respond to the

existence of port by changing zoning of land use in

the area around the port, from residential areas to

zoning for warehousing and mixed functions

consisting of residential areas, trade and services.

With this zoning change, it will support the port's

operational activities and at the same time be able to

utilize the positive impacts of the port, particularly

in the economic development of Semarang City.

ACKNOWLEDGEMENTS

Muhammad Irfani has received a Ph.D. scholarship

from the Program for Research and Innovation in

Science and Technology (RISET-Pro) -World Bank

Loan No. 8245-ID, Ministry of Research,

Technology and Higher Education of Republic of

Indonesia.

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