The Paradox of Farmers in Response to Agricultural Land Conversion Policies in Central Java

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PAPER • OPEN ACCESS

The Paradox of Farmers in Response Agricultural Land Conversion to National Strategic

Development Policies in Central Java

To cite this article: B W Utami et al 2024 IOP Conf. Ser.: Earth Environ. Sci. 1313 012041

View the article online for updates and enhancements.

The Paradox of Farmers in Response Agricultural Land Conversion to National Strategic Development Policies in Central Java

B W Utami^1,2, S S Hariadi ^1,3 and A B Raya ^1,3*

1 Extension and Development Communication Department, Graduate School, Universitas Gadjah Mada, Indonesia

2 Agricultural Extension and Communication Department, Universitas Sebelas Maret, Indonesia

3 Agricultural Extension and Communication Department, Universitas Gadjah Mada, Indonesia

* [email protected]

Abstract. The pros and cons of developing infrastructure, including transportation infrastructure, in a country known as an agricultural country will certainly involve and possibly sacrifice several parties. The development causes a dilemma for the affected parties. Klaten Regency is one of the areas in Central Java where the Yogyakarta-Solo toll road would be built.

This article investigates some farmers affected by toll road construction in Klaten Regency to present the dilemma they felt using an approach to the level of achievement of farmers' feelings towards this policy. The results of the research show the following achievement levels: (1) farmers felt sad about the land conversion due to the toll road construction project policy, (2) farmers were happy about the land acquisition compensation appraisal, and (3) farmers were sad about the decision to sell the land.

Keywords: dilemma, policy, affected farmers, toll road

1. Introduction

Public policy is an interaction involving a number of actors, including the government and society [1].

Participating in development is undoubtedly something to be proud of for citizens, especially for farmers in rural areas. They are simple people, with ordinary and genuine thoughts, and they feel honored when contributing to the government. Residents of Klaten Regency whose agricultural land is affected by the National Strategic Project (Program Strategis Nasional/PSN) for constructing the Solo-Yogyakarta toll road belong to those people [2]. Klaten is one of the regencies in Central Java impacted by the program.

Despite the fact that Indonesia is known as an agricultural country, there are a number of strategic projects that use productive agricultural land to support development [3].

Farmers were confused and surprised when it was announced in 2019 that several areas in Klaten Regency would be affected by toll road construction. They were concerned about their fate as well as the process that would be followed during the construction stage. The government, on the other hand, prepared a number of regulations to ensure that the process runs smoothly and without causing conflicts that impede the stages of the project. In fact, development has become a paradox, causing inequality and even eroding moral values [4]. This condition is worth investigating, particularly in terms of how affected farmers perceive government policies in Central Java.

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This article aims to shed light on the feelings of farmers impacted by the National Strategic Project for the construction of the Solo-Yogyakarta toll road. Even though the farmers eventually gave up their land for conversion (and were happy to accept the compensation money), they had a psychological bond with the agricultural land, which had been their source of livelihood for years, and there was a sense of dilemma and turmoil within them in responding to the project. This article is a part of a grander study examining affected farmers' behavior.

The article presented describes farmers’ feelings, and one of the most interesting findings in this research is that farmers faced a dilemma when they lose their agricultural land, but they could also receive compensation higher than the market price of land. Therefore, in order to characterize farmers' feelings, the researchers examined a number of indicator variables, including (1) feelings toward land conversion in toll road construction project policy, (2) feelings toward calculation of compensation for land acquisition, and (3) feelings toward the decision to sell agricultural land for the benefit of toll road infrastructure development.

2. Methodology

The research analysis unit was the construction of the Yogyakarta-Solo toll road route in Central Java, and thus the locations selected were the areas affected by the route. Klaten is the area that was most affected by toll road construction. Toll road construction in Klaten Regency affected 11 sub-districts and 50 villages. The researchers chose five sub-districts on each part of Klaten Regency with the most agricultural land areas in order to obtain representative samples. The samples were distributed across ten villages; two villages were selected from each sub-district based on the number of farmers affected by project (based on nominative village data), and 258 respondents were drawn at proportional random basis. The psychological aspect of feelings was measured using several question items in the questionnaire, analyzed by calculating intervals, averages, and percentages of achievement to reveal the feelings of farmers affected by the development of the National Strategic Project (PSN) policy for the Solo-Yogyakarta route. A Likert scale was used to assess the statements. After the interval of ordinal data scores was measured, the scores were categorized into tiered assessment scores: 0-20 (very happy), 21-40 (happy), 41-60 (neutral/normal), 61-80 (unhappy/sad), and 81-100 (very unhappy/very sad). The level of achievement was identified and reviewed in a descriptive analysis based on this categorization

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3. Results and Discussion

Farmers affected by the National Strategic Project (Proyek et al./PSN) policy experience a double paradox: People who work in the agricultural sector or own agricultural land must be displaced from their livelihoods. With their age no longer young and other field skills that they are no longer good at, they seem to be forced to leave the search for land; even if they can buy another land, it is certainly challenging to find. Nevertheless, agriculture also faces many challenges for small-land farmers like them. The high compensation money makes them happy even though they must release their land.

In this study, the feelings of affected farmers are defined as the inner state felt by farmers affected by the PSN policy for the development of the Solo-Yogyakarta toll road. The feelings were measured in terms of (1) feeling/inner state regarding land conversion, (2) feeling/inner state regarding calculating compensation, and (3) feeling/inner state regarding the decision to sell the land.

The table below presents numerical data on the level of achievement of the feelings of farmers affected by PSN for the construction of the Solo-Yogyakarta route toll road.

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Table 1. Achievement Level of Feelings of Farmers Affected by the Policy

No. Component Score Achievement

Level (%)

Category Interval Average

1 Farmers' feelings when they lose their land serving as a source of family income

0-4 2.93 73.16 Sad

2 Farmers’ feelings that many farm workers who had been working would also lose their jobs

0-5 3.75 74.96 Sad

3 The farmer's feelings that they would probably be separated from their fellow farmers in the area

0-5 3.71 74.19 Sad

4 Farmers' feelings that they would abandon the spirit of mutual cooperation, farmer associations, and customs existing in the village for so long

0-6 3.62 60.40 (Likely to

be) Sad

5 Farmers’ feelings that they might no longer be farmers and would have to work in other sectors

1-6 3.76 62.66 Sad

Average Farmers' Feelings on Land

Conversion 26 17.77 68.34 Sad

6 Farmers' feelings if some believed that the method of calculating and determining the estimated compensation price was insufficient, resulting in inadequate compensation money

0-4 2.87 71.71 Sad

7 Farmers' feelings if some said that the price did not follow the basic price or Tax Object Sales Value (NJOP) as a basis for calculation

0-4 2.87 56.40 Neutral

8 Farmers' feelings if some mentioned how officers communicated with farmers regarding compensation money

calculations was detrimental to farmers

0-4 2.12 53.00 Neutral

Average Farmers' Feelings regarding

Calculation of compensation 12 7.24 60.37 (Likely to be) Sad 9 Farmers' feelings when deciding to sell

their farming land

0-4 2.90 72.48 Sad

10 Farmers' feelings towards other farmers who refused to sell their land or disagreed with the estimated value

0-4 3.19 79.84 Sad

11 Farmers’ feeling that the number of those working as farmers was decreasing

0-5 3.78 75.58 Sad

12 Farmers' feelings that they might work in other sectors and no longer became farmers

0-5 4.27 85.35 Very sad

Average Farmers' Feelings on Their

Decision to Sell their Land 18 14.14 78.31 Sad

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Farmers were unhappy with the Yogyakarta-Solo toll road construction policy, as indicated by an average achievement level of 68.34%. Farmers were sad by the fact that many farm workers had lost their jobs, signified by an achievement rate of 74.96%, and that they might be separated from fellow farmers, with an achievement rate of 74.19%. Farm workers who had been employed were also affected by the toll road construction. Farm workers lose their jobs because agricultural land was converted into toll roads. They relied on other people's agricultural land for their primary source of income. This concept is also consistent with the findings of research by Juanda et al (2019) on agricultural workers' survival strategies [5]. The farmers would be separated from their fellow farmers in the same area because the agricultural land would be converted for toll road construction. Farmers were sad about losing land as a source of family income (with an achievement rate of 73.16%) and the possibility that they would no longer be farmers and thus should work in other sectors (with an achievement rate of 62.66%). Most of the farmers were of unproductive age, so they might never work again. Moreover, farmers lacked a history of higher education or experience working in other sectors. Farmers believed that it would be difficult to purchase replacement agricultural land near the area in which they lived.

Therefore, they might be limited to using their yard land and benefiting from livestock they had. It is understandable that farmers no longer worked as farmers because their previous agricultural land changed its function [6].

Farmers were likely to be sad, as signaled by an achievement level of 60.40%, because they would be leaving behind the spirit of cooperation and farmer associations, as well as the customs existing in the village for centuries. There would be several villages separated by toll roads, so the distance between the areas would be wider. Some farmers, on the other hand, believed that the spirit of cooperation and local customs would remain intertwined.

Farmers were generally happy (with an average achievement level of 60.37%) with the appraisal or compensation range for land acquisition in the construction of the Yogyakarta-Solo toll road. They were satisfied (with an achievement level of 71.71%) with the method of calculating and determining the estimated compensation price. Farmers had never received money from the sale of land in which the selling price of each square meter of land was higher than the market price in general. Farmers had a neutral feeling (with an achievement level of 56.40%) on the basic price or Tax Object Sales Value (Nilai Jual Objek Pajak/NJOP), as the basis for calculation.

Farmers believed that the compensation value determined was ideal or reasonable, and that the appraisal team had taken this into account by considering all aspects. Farmers had a normal feeling, with a level of achievement of 53.00%, on how officers communicated about compensation calculation.

Farmers were more likely to accept pricing decision made by the appraisal team. If farmers disagreed with the decision, they could file a complaint or appeal with the court, which required a lengthy process.

However, farmers believed that a file would only complicate matters and harm themselves.

Farmers were sad with the decision to sell land for the construction of the Yogyakarta-Solo toll road, as proven by an average achievement level of 78.31%. Selling land entailed farmers foregoing their daily work as farmers, which was necessary for supporting their families. Farmers were also sad (with an achievement level of 79.84%) if other farmers refused

to sell their land or did not agree with the estimated value of compensation. They believed that rejection would only complicate and harm the situation, so it was better for the 'common people (community)' to accept and support

the national project. Farmers were unhappy, as indicated by an achievement level of 75.58%, because the number of farmers working was decreasing. The decrease in agricultural land would result in fewer farmers' jobs. Farmers, on the other hand, played a vital part in achieving food self-sufficiency and national economic levels. They encountered both positive and negative effects from land conversion.

According to Sulistyawati (2014) in Dewi et al (2022), land conversion had both direct and indirect effects. The direct effects covered the loss of fertile agricultural land, the disruption of irrigation channels, landscape damage, and environmental issues, as well as agricultural pests. Meanwhile, the indirect effect was population migration from cities to suburbs [7]. The positive effects were the increased income and welfare for farmers, while the negative effects comprised the reduced agricultural land and agricultural products, as well as reduced water catchment areas. When it comes to selling

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agricultural land, farmers were sad, as indicated by the achievement level of 72.48%. Even farmers were unhappy at the potential of working in other sectors and no longer being farmers, as demonstrated by the achievement level of 85.35%. Some farmers no longer productive would be unable to work in other sectors. Those no longer productive were typically unable to work optimally [8]. Farmers could make money from their yards and livestock in addition to using compensation money wisely.

The inconsistency of feelings experienced by farmers occurs due to opposite cognitions, making farmers experience doubts and tension in determining their feelings. Mentions that cognitive dissonance is a dissonant relationship between two elements of knowledge [9]. If two cognitive elements (knowledge and belief) there are two cognitive elements (knowledge and belief) that contradict each other, then people will feel tense (dissonant) [10]. Baron and Byrne said cognitive dissonance is unpleasant and occurs when the individual realizes that he has some attitude inconsistent with his behavior [11]. Farmers experience a dilemma. The double paradox, where one side of them is sad, evidenced by the level of achievement of their feelings in this aspect, shows that they are sad if they have to lose land and their friends because of their land conversion policy for the development of national strategic projects, especially farmers have to be willing to give up the agricultural land they have for toll road construction. Land is a symbol of self-esteem that must be guarded and defended. In a broad sense, land can be interpreted as private land, land inherited by parents, land belonging to ancestors or predecessors, and even the territory of the nation and state in the national territorial sense;

hence, if others intend to control even if only sanyari bumi (an inch) the earth must still be defended.

The land is like an inheritance that symbolizes self-respect; moreover, the land is in the form of inheritance land, and it must be maintained, especially if the land is a land heritage called wutah getih (spilled blood), as the place where a person is born is considered to have high historical value. Therefore, it feels heavy to let go and be controlled by others, even if it is a state. The expression sanyari bumi is related to the spirit of pride in the land owned.

However, on the other hand, the affected farmers are happy with the range of compensation received because the value of compensation provided is high. They did not expect their land to be an asset of high economic value and were happy because the government bought it at a high price. This behavior aligns with Popkin's thinking that farmers reason [12].

One way to eliminate dissonance is to adjust one cognitive element to harmonize with another.

So, in this paradox of feelings experienced by affected farmers, they seek this "justification" by planning that some of the compensation money will be rebought for paddy fields because, for some farmers, agriculture is not only their skill and livelihood but also that farmers do not own land, which is a shame.

They also think that selling land for the benefit of the state is a good thing and supports the government.

Dissonance theory sees that mismatches between harmful elements produce dissonance, which must be reduced. A person only needs to change new thoughts and attitudes, and behavior can also be changed.

Conclusion and Recommendation

This study concludes that farmers were sad when they lose their agricultural land, which served as a source of income and had historical value. Although it is impossible to deny that they were pleased because their agricultural land was replaced at a higher compensation value than the market price, farmers affected by toll road construction had paradoxical feelings. The project or program owners, on the other hand, had homework to do, which were to figure out how the project would run smoothly without any conflict and how the conditions would be after the farmers received compensation for land acquisition. Farmers, as affected residents, had a right to obtain adequate information on the toll road construction project that displaced their agricultural areas. Personal approaches and communication were required to provide information and persuade farmers affected by program. They would not challenge the government, but it is impossible to deny that they were sad and burdened by the potential of losing agricultural land that had historical significance and represented honor to them. Providing compensation above the average value was insufficient to compensate for the historical value of the land, so it is best to consider the psychological side of the community when communicating development projects

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Acknowledgement

The authors would like to express gratitude to Universitas Sebelas Maret, Surakarta, for assisting with a multi-year Doctoral Dissertation Grant research scheme from 2022 to 2023, allowing the authors to conduct this research. The authors would also thank the 5th ICERM 2023 International Seminar review team for the corrections and constructive feedback that helped to improve the article. This article is expected to provide benefits for readers.

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