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Policy Implementation of Marine Protected Areas Program in Indonesia: a Case Study of The Marine Recreational Park of Gili Meno, Gili Ayer, and Gili

Trawangan, West Nusa Tenggara, Indonesia

A. Boby Yefry Adi Rianto

¹

*, Bambang Supriyono

²

, M.R. Khairul Muluk

³

1Balai Kawasan Konservasi Perairan Nasional Kupang, Kementerian Kelautan dan Perikanan

2Magister Program of Public Administrative Science, Brawijaya University

3Magister Program of Public Administrative Science, Brawijaya University

Abstract

This paper examines TWP Gili Matra as a case study to illustrate the current situation of MPAs in Indonesia.

It will use qualitative approach to discuss the extant government policies through key informant interviews and reviews of documents with the consideration of different factors that impede such program which was then analyzed using the policy implementation analysis framework developed by Najam (1995). The result of the study shows that implementation of MPAs policy in TWP Gili Matra has not well implemented yet because of some constraining factors explained by the Najam’s framework. Thus, it need several clear action to be considered in suppressing such constraining factors and improving supporting factor of the management and development of TWP Gili Matra.

Keywords: policy implementation, TWP Gili Matra, 5C Protocol, Marine Protected Area

INTRODUCTION^

Conservation in marine area has been widely discussed among countries all over the world in order to sustain not only the marine resources mainly but also to enhance the quality of the environment. Marine protected area (MPAs) is one of tools of conservation in marine and coastal resources management [1] . Targeted to have 20 million hectare marine protected area at 2020, Indonesia has attempted to reach it seriously. So far, according to press release from Ministry of Marine and Fisheries Affairs (MMAF), Indonesia has reserved at least 15.5 million hectares or equivalent with 77.5% of the target (Ministry of Marine Affair and Fisheries, 2012)

In West Nusa Tenggara province, there is a region of small islands named Gili Meno, Gili Air and Gili Trawangan or also known as Gili Indah which was designated as a marine protected area.

As a Water Recreational Park Area, of course, tourism activities in TWP Gili Matra tend to increase rapidly. Such tourism activities comprise, that is: diving, swimming, snorkeling, surfing, sun bathing), fishing and Sunset. All activities are

Alamat korespondensi:

A. Boby Yefry Adi Rianto

Email : [email protected]

Alamat : Jln. Yos Sudarso, Jurusan Bolok, Kel. Alak, Kota Kupang, NTT - 85223

supported by a variety of tourist facilities including hotels, bungalows / cottages, restaurant, eating house, glass bottom boat, the art market, passenger boats, and entertainment venues. Various activities related to marine tourism have impacts which have serious implications for the dimensional changes of ecological, economic, socio-cultural and institutional, both positive (constructive) and negative (destructive). The tourism sector has been the main livelihood of the people in Gili Matra. The Regent of Lombok Utara stated that 70% of Lombok Utara’s revenue (PAD) comes from tourism sector, especially from the Gili Matra. In 2011, a total of 886,880 foreign and local tourists visited Nusa Tenggara Barat (NTB), and 50% of them visited Gili Matra [2].

It is said that the lack of concept of an integrated resource management and integrated between coastal and inland areas will have detrimental effect to such area. The pattern of development and management of existing areas are likely to be partial which focus simply to the coastal area or only just to inland areas without integrating into a single management unit. It is reflected when coastal management policy is managed by the MMAF, while the land is managed by the Local

Government District of Lombok Utara (KLU).

Up to now, the development of TWP Gili Matra still has not yet considered the ecological

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dimension, socio-cultural, economic, and institutional integrated in development properly.

In line with the above, it is also believed that the optimization in governing marine tourism of Small Island based on adaptive and participatory management has not been implemented significantly in the region.

Generally, given the complexity of policy implementation, my study attempts to understand how MPAs program is translated into action and what affect actions and processes have on compliance. In doing so, this study provides insights into the implementation and enforcement pitfalls of MPAs program implemented in TWP Gili Matra. Specifically, this study examines extant government policies through key informant interviews and reviews of documents with the consideration of different factors that impede such program. For the study, I used the policy implementation analysis framework developed [3]. Particularly, this study asses on the content of policy used to govern TWP Gili Matra, the nature of the institutional context of the implementation in governing TWP Gili Matra , the administrative capacity of implementers, the commitment of the implementers and the support of clients and coalitions of policy implementation of MPAs program of TWP Gili Matra rather than focusing on specific testable hypotheses, because of the complexity of topic and issues, this study is exploratory and generates general knowledge ofthe problems.

RESEARCH METHOD

The type of the research method is descriptive, while the research approach is using qualitative approach. The researcher measures the implementation of MPAs program in Indonesia particularly dealing with the management of TWP Gili Matra to discuss about supporting and constraining factors that exist so far.

The research was conducted in Lombok Utara, West Nusa Tenggara. In order to get the validity of data, researcher takes data from formal documents such as government regulations and others issued officially by the office, which will be analized. Data from depth interview will be gained from key informants included chairpersons and officers in Balai Kawasan Konservasi Perairan Nasional Kupang, NGOs, and other stake holders.

FINDING AND DISCUSSION

This section describes research location overview, data presented, data analysis, and data interpretation.

a) Research Location Overview

Gili Meno, Gili Anyer, And Gili Trawangan (MATRA) are three small islands which belong to one village named Gili Indah which is located in District of Pemenang Lombok Utara Municipality.

Gili Indah was first proposed to be included in National Conservation Area on February 16, 1993 based on The Decree of Ministry Of Forestry (Keputusan Menteri Kehutanan) Number 85/kpts-II/1993 which later was officially acclaimed as National Protected Area in 2001 and named as Marine Nature recreational Park (Taman Wisata Alam Laut/TWAL) Gili Matra.

The designation was based on The Decree of Ministry of Forestry (Surat Keputusan Menteri Kehutanan) No. 99/Kpts-II/2001on March 15, 2001 with the area of 2,954 hectare. As the Memorandum of Understanding (MOU) of the handover of Nature Reserve Area and Conservation Areas approved on March 4, 2009, the authority of TWAL Gili Matra went to MMAF based on The Decree of Minister of MMAF Number KEP.67/MEN/2009.

On September 3, 2009 the nomenclature was changed from TWAL to become Water Recreational Park (Taman Wisata Perairan/TWP) Gili Ayer, Gili Meno, and Gili Trawangan with the area of 2,954 hectare. Moreover, TWP Gili Matra is managed by a technical implementation unit (Unit Pelaksana Teknis) formed by Directorate of Marine, Coastal and Small Islands (Direktorat Kelautan, Pesisir dan Pulau-Pulau Kecil/KP3K) of MMAF named National Marine Protected Areas Agency (Balai Kawasan Konservasi Perairan Nasional / Balai KKPN) located in Kupang, West Nusa Tenggara.

b) Data Presented, Data Analysis, and Interpretation

1) The Influencing Factors of Management and Development of TWP GiliMatra

Several factors influencing the MPAs program implemented in TWP Gili Matra were documented in key informant interviews. All factors is referred to the 5C Protocol grouped into 2 major themes which encompass the supporting factors and constraining factors, as presented in the following table:

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J-PAL, Vol. 5, No. 2, 2014 32

Table 4. 1. Supporting and constraining Factors Influencing the Policy Implementation of MPAs Program in TWP GiliMatra.

No

Factors Influencing the Policy

Implementation

Category of Factors

Supporting Constraining

1.

The Content of Policy

Supported by law and number of regulations as well as

their derivate

Lack of the harmonizatio

n among other regulations

related to the coastal managemen

t Lack of standard operating procedure

2.

The

Administrative Capacity of the Implementers

Most of the personnel have basic training of MPAs Managem ent

Lack of administrativ e resources

Having basic infrastruct ures

Non echelon institution

.

Having operationa l budget

3.

The

Commitment of the

Implementers

High commitme nt and creativity of the personnel

Tends to be a rhetoric

Using Collaborati ve manageme nt

. 4.

The Support of Clients and Coalitions

Supported by Central Governme nt

Some resistance from Fishermen on Zoning Supported

by NGO

5.

The Nature of the Institutional Context

National interest dealing with the characteris tic of the region that has the specific ecosystem

The formulation and implementat

ion of

policies carried out by more than one authority

No

Factors Influencing the Policy

Implementation

Category of Factors

Supporting Constraining resources

Harmoniza tion and alignment of regional affairs and conservati on of fish species

Source : Researcher Analysis (2013)

2) Optimizing the Management of TWP GiliMatra

Optimization of the management of TWP Gili Matra constitutes tactical steps in enhancing the effectiveness of the area. Such steps are accomplished through the identification of tactical activities that can be taken to improve the supporting and constraining factors.

Supporting factors of the management of Gili Matra need to be improved and maintained in order to obtain a better management. Supporting factors are supported through the effective ways in order to support the weak factors to be further strengthened through appropriate means or steps. Identify ways to increase the driving factors are presented in the following table.

Table 4. 2. How to Strengthen the Supporting Factor of TWP Gili Matra

No 5C Protocol

Ways to

strengthening, maximize the driving forces

1 .

The Content of Policy Prompting to complete the legislation needed dealing with Law 45/2009 and PP 60/2007 in the terms of surveillance, facilities and infrastructure, human resources, sustainable funding, MPAs Network, and level of institutional manager

2 .

The Administrative Capacity of the Implementers

Determining the priority scale of the capacity building of

both, human

resources and

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No 5C Protocol

Ways to

strengthening, maximize the driving forces

infrastructures

3 .

The Commitment of the Implementers

Developing the appropriate reward and punishment system to improve the morale and working spirit of the personnel

4 .

Developing and strengthening the collaborative management system to govern the area

5 .

Keeping the

consistency to carry out MAPs Program involving central government, local government, and coastal community around the area of MPAs

Source: Researcher analysis (2013)

Constraining factors that have been identified based on influence and constraints given to the achievement of management objectives of TWP Gili Matra then reduced by the highest degree of such factors. Moreover, such constraining factors are inactivated through effective ways. The way to reduce constraining factor is presented in Table 4. 3.

Table 4. 3. How to Decrease the Constraining Factor of TWP Gili Matra

No 5C Protocol

Ways to Reduce Restraining Forces

1 .

The Content of Policy Prompting to harmonize the regulation dealing with the MPAs issues to diminish the overlapping regulation

2 .

Prompting to increase the level of the street level implementer

No 5C Protocol

Ways to Reduce Restraining Forces

3 .

The Commitment of the Implementers

Implementing performance contracts related to the target of management of MPAs in TWP GiliMatra

4 .

Increasing the quantity and quality of socialization of zoning system Designing alternative zoning based on the mutual agreement with fishermen community Developing alternative livelihoods

5 .

Enhancing the management capacity throuh collaborative management

Source: Researcher analysis (2013)

Clear action for the management of TWP Gili Matra can be carried out as a catalyzer to improve the strategy implemented. Activities carried out an activity that efficiently and effective and acceptable to all parties. This is a series of activities which are expected to achieve the objectives of TWP Gili Matra without ignoring the participation of all stakeholders, particularly the coastal people. Clear action is obtained through the results of enhancement of the influencing factors in regard with the way to reduce constraining factors. The following table will presentthe clear action the management and development of TWP Gili Matra ( see appendix, table 4.4).

CONCLUSION AND SUGGESTION Conclusion

To optimize the management of TWP Gili Matra, by using Force Field Analysis developed by Lewin [4] it can be drawn several clear actions to be considered, particularly to suppress constraining factors and improve supporting factor of the management and development of TWP Gili Matra, namely:

1. Create and establish a working group consisting of government agencies (central

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J-PAL, Vol. 5, No. 2, 2014 34

and local) in the field of conservation, NGOs, academia, and the legislative body to conduct the review and harmonization of regulations related to the management of protected areas and then used as reference material in a conservation area;

2. Create a special committee to prepare materials and review of the unit (such as the workload analysis, standard service operations, finance, etc.) to speed up the process of establishing Satker TWP Gili Matra to become Echelon IV unit by the Ministry of Empowerment and the State Apparatus;

3. Formulate regulations related with career, awards, and qualification standards of management officer of UPT;

4. Personal approach to the fishermen and community leaders to find common ground on the issue of zoning;

5. Make zoning alternatives that suit the desired criteria;

6. Conduct a study of alternative livelihoods in accordance with social, cultural, and economic, as well as the characteristics of the region;

7. Facilitate and strengthen the programs and activities that have been planned in the Management Plan as well as activities that have been harmonized in the Coordination Forum of Collaborative Management of TWP Gili Matra.

Sugestion

For academical interest, this research should be followed by a study about policy evaluation related with the MPAs policy in Indonesia, particularly the evaluation policy of TWP Gili Matra.

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35 J-PAL, Vol. 5, No. 2, 2014

Appendix

Table 4. 4. The clear action the management and development of TWP Gili Matra

No 5C Protocol

Ways to strengthening, maximize the driving forces

Ways to Reduce

Restraining Forces Clear Action

1. The Content of Policy

Prompting to complete the legislation needed dealing with Law 45/2009 and PP 60/2007 in the terms of surveillance, facilities and infrastructure, human resources, sustainable funding, MPAs Network, and level of institutional manager

Prompting to harmonize the regulation dealing with the MPAs issues to diminish the overlapping regulation

create and establish a working group consisting of government agencies (central and local) in the field of conservation, NGOs, academia, and the legislative body to conduct the review and

harmonization of regulations related to the management of protected areas and then used as reference material in a conservation area

2.

Determining the priority scale of the capacity building of both, human resources and

infrastructures

Prompting to increase the level of the street level implementer

Create a special committee to prepare materials and review of the unit (such as the workload analysis, standard service operations, finance, etc.) to speed up the process of establishing Satker TWP Gili Matra to become Echelon IV unit

3.

The Commitment of the

Implementers

Developing the appropriate reward and punishment system to improve the morale and working spirit of the personnel

Implementing performance contracts related to the target of management of MPAs in TWP Gili Matra

formulate regulations related with career, awards, and qualification standards of management officer of UPT

4.

Developing and strengthening the collaborative management system to govern the area

Increasing the quantity and quality of socialization of zoning system

personal approach to the fishermen and community leaders to find common ground on the issue of zoning

Designing alternative zoning based on the mutual agreement with fishermen community

Make zoning alternatives that suit the desired criteria

Developing alternative livelihoods

Conduct a study of alternative livelihoods in accordance with social, cultural, and economic, as well as the characteristics of the region

5.

Keeping the consistency to carry out MAPs Program involving central government, local government, and coastal community around the area of MPAs

Enhancing the management capacity throuh collaborative management

Facilitate and strengthen the programs and activities that have been planned in the Management Plan as well as activities that have been harmonized in the Coordination Forum of Collaborative

Management of TWP Gili Matra

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J-PAL, Vol. 5, No. 2, 2014 36

References

[1]. Lubchenco, J., Palumbi, S., Gaines, S., &

Andelmans, S. (2003). Plugging a Hole in the Ocean: The Emerging Science of Marine Reserves. Ecological Applications 3(1), S3-S5.

[2]. Ari Primadona. (2012, Januari 14).

Lingkungan. Retrieved April 21, 2013, from Primadona Lombok Indonesia:

http://primadonalombok.blogspot.com/201 2/01/pemkab-lombok-utara-optimalkan- potensi.html

[3]. Najam, A. (1995). Learning from the Literarture on Policy Implemenation: A Synthesis Perspective. Austria: International Institute for Applied System Analysis.

[4]. Burnes, B. (2004). Kurt Lewin and the Planned Approach to Change: A Re-appraisal.

Journal of Management Studies, 41, no.6, 772-1002.