Gis network analysis to optimize zoning system implementation for public junior high schools in yogyakarta city

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Gis network analysis to optimize zoning system implementation for public junior high schools in yogyakarta city

To cite this article: R K S Utami et al 2022 IOP Conf. Ser.: Earth Environ. Sci. 1089 012035

View the article online for updates and enhancements.

Gis network analysis to optimize zoning system

implementation for public junior high schools in yogyakarta city

R K S Utami^1*, N Khakhim¹, R H Jatmiko¹, A Kurniawan¹, L Halengkara²

1Fakultas Geografi, Universitas Gadjah Mada, ²FKIP Universitas Lampung [email protected]

Abstract. Schools availability as public facilities is the government duty and responsibility.

Recently, the government implemented a policy of school zoning system to increase society access to education. This policy requires children to choose school closest to their home.

However, facts denoted that many problems occur with this system. School zoning techniques with buffer system become an obstacle due to the emergence of ‘blankspot area’. This study aims to provide an alternative solution of blankspot area problem in the school zoning system.

This study applies network analysis using the p-median model (location-allocation analysis) and service area analysis. The network analysis used impendace modification as a standard for zoning based. ArcGIS is used as a spatial analysis tool to provide better illustration of this network analysis. The results indicated that the service area analysis was more effective in solving zoning technique problems compared to the p-median model analysis because it provided a higher percentage of demand coverage when using the same impedance constraints.

However, the p-median analysis technique is able to provide a more realitic picture of the allocation for each demand (without impendance). This research emphasizes the importance of adding schools in order to optimize the school services.

1. Introduction

Education has a central role in improving the quality of human resources and is considered as a key factor in the success of national development [1]. The government as state administrator has an obligation to provide educational services that prioritize the principles of justice, equilization [2]. The provision of educational services generally uses social approach, that educational facilities are planned and implemented in the context of equitable development [3] and to maximize the social welfare of the community [4]. Schools availability has become the government's duty and responsibility. Public schools are educational facilities run by the government as public facilities that are considered as the main providers of primary educational services.

Formal education in Indonesia has two main problems, that is equity and expansion of access to education [5]. The essence of equitable access to education is the convenience of community to access the nearest school location [6]. Efforts to equilize education through accessibility enhancement to reach all school-age children can be done by bringing schools closer to the neighborhood where residents live. This has been pursued by the government by implementing school zoning regulations starting in 2017, where the enrolling of new students at each level of formal education is generally determined by the closest distance criteria to where prospective students live to school.

The school zoning system has various advantages which not only have implications for equal distribution of education but also in areas such as public health, transportation systems, and

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sustainable development [7]. The school close to home policy provides benefits to overcome the problems of physical inactivity and children's health, dependence on motorized transportation, traffic congestion around schools, transportation safety, air quality, and greenhouse gas emissions [8]. School zoning also has an impact on reducing school travel time and students are in a more fit condition when participating in lessons [9]. The potential for traffic jams and air pollution can be reduced [10].

In fact, the implementation of school zoning in Indonesia has many obstacles. General condition of education in Indonesia currently still has various weaknesses that don’t support the implementation of zoning optimally. The number of prospective students is not balanced with the number of school quotas [11]. There are areas which lack of schools and otherwise, excess of schools [12]. There are schools that cannot accept all new students due to limited capacity [13] and there are schools that shortage of students because there are less registrants in the process of enrolling new students [14].

The next weakness is the uneven distribution of public schools [15] and generally not in accordance with the settlement distribution pattern characteristics [16]. This condition causes the residents obliged to choose schools outside the residential areas [17] so that they have to travel in a longer distances [18]

with higher operational costs [19].

The main weaknesses of implementing school zoning systems are closely related to spatial aspects, that is location (number, distribution) and educational service coverage (zoning areas). It indicates that planning for school placement in an area is proven to be very important [20] to ensure that educational facilities can be reached by all levels of society fairly, equitably, and proportionally [21]. Efforts are made to determine the location of the facility in a space to meet the population demands in order to optimize service access [22]. The decision to place the location of public facilities is one of the most crucial decisions [23] so that the government should not do it randomly [10].

The common zoning technique used by the local government are buffer system, which is the radius range distance from the students residence to school. This technique has a major weakness that is the emergence of ‘blankspot area’. Which means that the chilldren in this blankspot area were not served by any education facilities. So, this study aims to solve this blankspot area problem with network analysis using the p-median model (location-allocation analysis) and service area analysis as a zoning determination technique. The network analysis used impendace modification as a standard for zoning based on the road network with ArcGIS as a spatial analysis tool. This analysis is used for Public Junior High Schools (PJHS) only in Yogyakarta City.

1.1 Literatur Review

Location-allocation is a location theory development model that can be used to locate facilities spatially based on demand [24]. Research that uses location-allocation analysis is widely used to locate various public facilities such as the location of schools, hospitals, fire-brigades etc. In educational facilities such as schools, the availability of shool is not only in order to meet the needs in terms of the number of facilities but the school location must be located in an area that is accessible for the community.

Location-allocation model has mathematical characteristics and is a normative model to solve location problems [25]. Several studies have been conducted to solve different problems regarding school locations. The simplest concept of location-allocation theory is ‘P-median model’, which is classified as a discrete location model [26]. Pizzolato used it to evaluate the location of public schools [27] and later developed it again as capacitated and uncapacitated P-median models [28]. Prima and Arymurthy [29] used P-median model combine with a firefly algorithm to solve location problems of junior high schools in South Jakarta. Another study was conducted by Nurcahyono [30] by comparing location-allocation model, that is P-center problem, the P-median problem, and maximum covering problem to identify the location and distance traveled by students to school.

Service area analysis is a method for determining the coverage area of a facility with the principle of distance or travel time to the facility location thru transportation network. This analysis also widely used to analyze the location of public facilities. Prajna [31] examined the analysis of educational capacity for junior high schools in Semarang City, Indonesia, using service area analysis. Meanwhile,

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Mindahun and Asefa [32] used the service area analysis as a reference for determining the location of the new primary school in Yeka, Adis Ababa, Ethiopia. Putri et al [33] analyzed the coverage of Trans Semarang bus shelter services to the Central Business District (CBD) area in Semarang City.

1.2 Study Area

This research was conducted in Yogyakarta City, which is known as the ‘City of Students’ or the ‘City of Education’ in Indonesia. Yogyakarta City has an area of 32.5 km² which is divided into 14 districts and inhabited by 414.055 people with an average population density of 12.740 people/km².

Yogyakarta City is known to have 16 Public Junior High Schools (PJHS) where the location distribution is considered uneven and not in accordance with the residence of prospective students [34]. The highest number of schools is located in the northern region while the concentration of residence is placed in the southern and eastern regions. General conditions of Yogyakarta city can be seen in table 1.

Table 1. General Condition of Yogyakarta City per District District Population Number of Children

(13-15 years old)

Number of PJHS

Mantrijeron 35.433 1.767 1

Kraton 21.831 1.144 1

Mergangsan 32.043 1.603 0

Umbulharjo 69.887 3.414 1

Kotagede 34.311 1.679 1

Gondokusuman 42.818 2.359 3

Danurejan 21.335 1.109 2

Pakualaman 10.810 572 0

Gondomanan 14.982 749 1

Ngampilan 18.550 946 0

Wirobrajan 27.868 1.393 0

Gedongtengen 19.891 1.003 1

Jetis 27.132 1.351 3

Tegalrejo 37.164 1.913 2

Total 414.055 20.972 16

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Figure 1. Administrative Map of Yogyakarta City Figure 2. Distribution Map of Settlements and SJHS It is known that there are four districts that do not have PJHS facilities, that is District of Mergangsan, Pakualaman, Ngampilan, and Wirobrajan. The uneven distribution of schools has an impact on the inequality of access to education for the residents.

The school zoning system in Yogyakarta City generally uses a certain school radius, which can be ilustrated on the map below using a buffer system of ArcGIS.

Table 2. Blankspot Area Distribution

Blankspot District Sub District area

(%)

Kotagede Prenggan 26.94

Kotagede Purbayan 83.62

Kotagede Rejowinangun 72.86

Kraton Panembahan 19.87

Mantrijeron Gedongkiwo 54.00 Mantrijeron Mantrijeron 52.19 Mantrijeron Suryodiningratan 6.45 Mergangsan Brontokusuman 37.26

Mergangsan Keprakan 72.02

Mergangsan Wirogunan 42.27

Ngampilan Notoprajan 1.01

Umbulharjo Giwangan 100.00

Umbulharjo Mujamuju 37.56

Umbulharjo Pandeyan 85.16

Umbulharjo Sorosutan 40.46

Umbulharjo Tahunan 26.82

Umbulharjo Warungboto 76.44

Wirobrajan Pakuncen 1.46

Source: Pustek UGM and Bappeda Kota Yogyakarta [34] Figure 3. Blankspot Distribution Area

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PJHS map Network map

P-median Location-Allocation

Analysis Service Area Analysis

Maximum distance

Optimimum Zone Technique for PJHS

Network Data Sheet Existing Facility

The school zoning system with buffer system has weakness because it does not pay attention to the function of road network that will affect the student’s travel time. The radius system doesn’t reflect the actual conditions of student travel. This condition causes a blankspot phenomenon where there are several locations that are not served by educational facilities. The location of blankspot area covers especially the southern region with different intensities [34]. There are sub-districts with a 100%

blankspot level, that is Umbulharjo (Giwangan District) and Patangpuluhan (Wirobrajan District).

This means that at this location, the junior high school age children (13-15 years old) have absolutely no access to public-school education services.

2. Methods

This study analyzes the condition of Public Junior High Schools distribution in Yogyakarta City, in context of the school zoning system rules implementation. The school zoning system determines that students attend the school that located closest to the place of residence (settlement). The school zoning analysis use the network analysis of location-allocation analysis (p-median) and service area analysis in ArcGIS programme.

Figure 4. Research Method

Network analyst is a network-based spatial analysis with road networks as the main basis data. The P-median model locates the facility based on the resident demands which is described as demand point. The demand points used in this research are residential blocks where a block of residential area is represented by a single demand point. The basic principle of P-median model is that the location selection is based on the minimum average distance needed to reach the nearest facility location. This study will use an impedance limit in accordance with government regulatory standards of Indonesian National Standard, known as Badan Standar Nasional (BSN) Indonesia.

Service area analysis use the principle of calculating the coverage area of a facility object based on the distance traveled to a location. The result of the analysis is a polygon of education service area in one school facility. The main principle in this system is that the transportation network system uses impendance to determine the best route at each facility.

3. Result and Discussion

Two alternative solutions to the zoning system problem are offered, that is P-median model (allocation-location analysis) and a service area analysis which is part of the ArcGIS network analyst.

This analysis considered to be more adequate when it compared to buffer systems that only relies on a radius coverage as applied in the school zoning system in Yogyakarta City recently.

Demand Point Settlements map

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3.1. Location-Allocation Analysis

The allocation-location analysis was carried out using three impendance scenarios which serve as the farthest distance boundary reached by the facility location (PJHS). This limit starts from a distance of 1.000 meters in accordance with the maximum distance limit for the location of the JHS to settlements according to the criteria of BSN, Indonesia, and then extended to see the result of education services.

Adjusted to BSN standards, only 37,89 percent of the areas are served.

Figure 5. P-median Analysis with Impendance Variance of 1.000m, 2.000m, dan 3.000m Table 3. P-median Analysis Result

Impendance Demand Served Demand Point Point Percentage Unserved

1000 meter 535 37,89% 877

2000 meter 1.119 79,25% 293

3000 meter 1.383 97,95% 29

Figure 6. P-median Analysis without Impendance

This P-median without impendance allocate all the demand points at certain PJHS which based on the minimum distance average. All points of demand served at a distance limit of 3,745 meters. This condition is of course very far from ideal. Yogyakarta City is known to be an area with high

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population density (12,740 people per km²). Areas with high population density require that schools be located within a maximum walking distance [35]. The ideal distance standard for junior high school location in a settlement is 800-1.200 meters. Adjacency or proximity factor is very important in spatial optimization to ensure there is no conflict between regions [36]. Yogyakarta city really need additional PJHS in order to ensure all the JHS-age chilldren served equally.

The advantage of P-median model is the capability to allocate the demand so that it can be seen how many demand can be served. The results of this analysis can be used as a reference to allocate new school locations in order to optimize the range of education services. The demand points in this research only determined based on the representation of one residential block. The number of junior high school age children is 20.972, in this study only represented by 1.412 demand points. It would be better if demand pont is representative of junior high school age children, so that the data obtained more accurately presents demand conditions and reflects the pattern of service areas accurately.

3.2. Service Area Analysis

The service area analysis also use the same three impendance scenarios as the P-median location- allocation analysis which is based on the Indonesian standard (BSN).

Figure 7. Service Area Analysis with Range of 1.000m, 2.000m, dan 3.000m Table 4. Service Area Analysis Result

Impendance Demand Served

Area (km²) Percentage

1000 meter 14,25 43,85%

2000 meter 27,33 84,09%

3000 meter 32,05 98,62%

The service area techniques is able to show the coverage area of educational services in form of block areas where it ilustrated the range of PJHS education services. The analysis show the demand served area which can be calculated the served area or unserved area. With the BSN minimum standard of JHS facilities (1.000 meter) it can be seen that only 43,85% area served. This is also an indication that Yogyakarta City is require more public school (PJHS) in order to optimize the education services. The weakness of service area analysis is that the technique does not consider the position of demand. The analysis can’t allocate demand to the facility, it only describe which area are served in certain impendance. The demand point is needed as additional map layer if we want to calculate the demand served or not. But, how many demand served or unserved still have to be calculated manually.

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Based on the results of the analysis according to the BSN criteria, can be concluded that Yogyakarta City has an imbalance in the number of schools in various areas. This condition will impact on educational services inefficiency. Refer to the BSN distance limit of 1.000 meters, it found that more than 70 percent of demands are not served. This shortage of schools means that residents have to access schools far from their resident, or enter a private schools, which means that they have to pay significantly more. BSN has the criteria for the number of JHS supporting population is 4.800, then Yogyakarta City should have at least 89 PJHS. This number has a wide gap with the current condition of the number of schools which only 16 PJHS. So, it is highly recommended to add new school locations to maximize junior high school education services. The location of the new school is possible to minimize the distance between the school and the residence place. According to BSN, the calculation of the addition of the number of schools presented in table 5.

Table 5. Additional Needs for School Acording to SNI

School Type Capacity Number of Schools Required

Type A 1.080 20

Type B 720 29

Type C 360 58

The addition of schools can be done at least in the district locations that don’t have PJHS, that is Mergangsan, Pakualaman, Ngampilan, and Wirobrajan. This is because each district should have at least one junior high school education facility (Ministry of Education, 2007-regarding the standard of school infrastructure). To adjust it spatially, it can be seen from the results of the P-median network analysis or service area mentioned above. Regarding the exact location for establishing a new school location, further analysis is needed using the site selection. It is highly recommended to use the criteria for school type B or C given the conditions of future population growth. Type A schools no longer allowed for adding the number of students, while for schools types B and C, an upgrade can still be done in the form of adding classes to cope with the increase in the number of students due to the influence of the increase and population growth in Yogyakarta City.

4. Conclusion

The location-allocation analysis of the P-median and service area analysis can provide an overview of education services range. P-median model considered more effective to solve the problem of school zoning system, because each point of demand can be directly allocated to public junior high school.

Service area analysis only provides an overview of service coverage area, but it is predicted better than the buffer system because it accommodates transportation network, provides more realistic condition.

The number of PJHS in Yogyakarta City is far from adequate. Additional schools are needed to optimize junior high school education services. The government should overcome this by adding new PJHS. It is possible for private schools to support the government to overcome this problem, but not all residents have the ability to enroll their children to private schools due to the economic conditions.

This study has limited road attribute data which may cause weaknesses in the analysis results.

Network analysis, both P-median and service area, can run optimally if the road network data (network data set) is correct (in a topological sense) and detailed - in the sense that it includes information about the direction of the road (one or two directions, turning, etc.), whether there are obstacles (such as closures, markets, etc.), as well as the type of road (road class, ability to be used by means of transportation).

The next research should pay more attention to the detail attribute data for network analysis, especially the detailed road network data as the basis for the network data sheet. This research can be continued with an analysis of the addition of new schools to optimize junior high school education services, such as site location spatial analysis.

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