IMPLEMENTATION OF COMMUNITY EMPOWERMENT-BASED … · Cite this Article: Kariaman Sinaga, Suwardi...

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International Journal of Civil Engineering and Technology (IJCIET)

Volume 9, Issue 9, September 2018, pp. 585–599, Article ID: IJCIET_09_09_058

Available online at http://www.iaeme.com/ijciet/issues.asp?JType=IJCIET&VType=9&IType=9

ISSN Print: 0976-6308 and ISSN Online: 0976-6316

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IMPLEMENTATION OF COMMUNITY

EMPOWERMENT-BASED TOURISM

DEVELOPMENT POLICY (CASE IN SAMOSIR

REGENCY, INDONESIA)

*Kariaman Sinaga, Suwardi Lubis, Marlon Sihombing and Ritha F Dalimunthe

Universitas Sumatera Utara, Medan, Indonesia

*Correspondence Email : [email protected]

ABSTRACT

The purpose of this research was to determine the implementation of tourism

object development policy in Tourism Office of Samosir Regency. The research type is

a qualitative descriptive method which is a type of research that attempts to describe

objects or subjects. The informants in this research were taken from the Samosir

Regency government, Indonesia. The number of informants was determined by

purposive technique in accordance with the research objectives. As an estimation, the

researcher determined the number of informants as many as 15 people consisting of:

Samosir District (2 people), Tourism and Culture Office (3 people), tourism conscious

community (7 people), business or private sector (3 people). The result shows that the

implementation of tourism development policies in Samosir Regency has not been

carried out well, due to the communication developed by the regional government

with the private sector and the community in implementing the development of tourism

objects in Samosir District has not been able to convince the public so that the

participation of the private sector and the public is still low. The resources of the

Samosir Regency government apparatus, especially the Art and Culture Tourism

Office of Samosir Regency, are not sufficient to support the implementation of tourism

development that empowers the community.

Key words: implementation, policy, development, tourism object, community

empowerment.

Cite this Article: Kariaman Sinaga, Suwardi Lubis, Marlon Sihombing and Ritha F

Dalimunthe, Implementation of Community Empowerment-Based Tourism

Development Policy (Case in Samosir Regency, Indonesia). International Journal of

Civil Engineering and Technology, 9(9), 2018, pp. 585-599.

http://www.iaeme.com/IJCIET/issues.asp?JType=IJCIET&VType=9&IType=9

1. INTRODUCTION

As one of the priorities in the government development, the Ministry of Tourism on a macro

basis has set several tourism targets in 2019. In 2014 the contribution to GDP was 9% (Rp

Kariaman Sinaga, Suwardi Lubis, Marlon Sihombing and Ritha F Dalimunthe


946.09T) while the target in 2019 will increase by 15%. Foreign Exchange in 2014 amounted

to US $ 11 billion while the 2019 target was US $ 20 billion. Contributions to employment in

2014 were 11 million people while the target in 2019 was 13 million people. Micro tourism

competitive index (Tourism Competitiveness Index) in 2014 is ranked 70 and in 2019 it is

targeted to rank 30. The arrival of International Tourist Arrivals in 2014 is 9 million people

and in 2019 it is targeted to reach 20 million people. Domestic Tourist Trips in 2014

amounted to 250 million people and in 2019 targeted 275 million people. The achievement of

targets that have been set nationally is in desperate need of synchronization between the

central government and regional governments so that the implementation of development can

run effectively and efficiently. Regional governments, especially regency/city level II regions

are expected to carry out various policies that support national policies in accordance with the

tourism potential in the region. As with the issuance of Law Number 23 of 2014 concerning

Regional Autonomy, it is explained that the regional government has been given the authority

to be able to manage its own household problems. So even though tourism has become one of

the top priorities determined by the central government, the regional government still has the

authority and must manage its own tourism development in its area according to its resources.

In order to synchronize between the central and regional governments in realizing national

tourism, there needs to be a clear and directed development vision for the regency/city

government in particular. However, in its implementation, Syaodih (2015) states that there are

still many regency/city governments that are less than optimal in carrying out their regional

visions so that they are poorly understood by the stakeholders. The development planning

system is not optimal in utilizing resources, such as natural resources, human resources,

technology and budget limitations to strive for efficient and effective development. Samosir

Regency is one of 8 (eight) regencies located in the Strategic Area of National Tourism of

Lake Toba (KSPN) as one of the national tourism priority destinations. The tourism object

owned by Samosir Regency is very potential to be developed in supporting the

competitiveness of Lake Toba as one of the priority national tourism destinations. Based on

data from Art and Culture Tourism Office of Samosir Regency in 2015 there were 75 (seventy

five) tourism objects in the form of natural tourism, historical tourism, and cultural tourism.

The beauty of nature, historical heritage, cultural wealth and phenomena of the remains of the

Mount Toba eruption owned by Samosir Regency if managed properly is a tourism potential

that can increase the number of tourist arrivals that are abundant both local and international

tourists. Determination of criteria and classification of tourism objects in Samosir Regency is

based on: 1) Physical Space; 2) Number and Type of Attractiveness; 3) Number and Type of

Tourism Facilities; 4) Number and Type of Public Facilities; 5) Accessibility; 6) Community

Readiness; 7) Number of Travelers. In Part Two, there are 3 (three) classification of tourism

objects, namely 1) Leading Tourism Objects; 2) Priority Tourism Objects; 3) Pioneering

Tourism Objects. Regional development on tourism objects that are expected to be carried out

while still involving community involvement. This is in accordance with Yoeti (1997) who

argued that tourism development needs to pay attention to several aspects, namely tourists;

must know the characteristics of tourists, where they come from, age, hobbies, and in what

season they travel and transportation; research must be carried out on how transportation

facilities are available to bring tourists to the intended tourist destination. Dunn (2003) states

that there are 5 (five) stages in the implementation of public policies ranging from setting the

policy agenda to policy assessment so that a policy can be implemented. To achieve the

objectives at each stage of the policy, it is necessary to have a management process so that the

goals that have been set can be achieved effectively and efficiently.

The implementation of public policy requires a management process for effectiveness and

efficiency in achieving the objectives with the implementation of management functions.

George R Terry in Supomo (2018) stated that management functions consist of planning,

Implementation of Community Empowerment-Based Tourism Development Policy (Case in

Samosir Regency, Indonesia)


organizing, actuating and controlling. While Fayol in Supomo (2018) stated that management

functions consist of planning, organizing, commanding, coordinating and controlling. Syafri

(2012) states that if the application of certain principles is not accompanied by empirical

reality, the results can cause a boomerang effect. It is only with an in-depth empirical

understanding the implementation of the principles of implementation in the policy

implementation process can be carried out well. Demolingo (2015) also gave the view that in

the framework of tourism development the government must be involved in developing a

management tourism institution, improving human resources, building infrastructure from

tourist facilities that are still lack and form a collaboration between the government and

stakeholders including the community. Community empowerment to participate in the

development of tourism object cannot be directly obtained but must go through processes or

stages. Community involvement in supporting the implementation of tourism object

development policies requires a process of community empowerment through understanding

of a community. The basis of community empowerment is carried out through an

understanding of the social, cultural, and political conditions that exist in society so that the

right way to empower them is obtained (Kartasasmita,1997).Wistiono(2003) states that the

process of community empowerment as one of the government functions is determined by

two factors. , namely exogenous factors and endogenous factors. By looking at the factors that

hinder the increase in the number of tourist visitors in Samosir Regency which are closely

related to the local community, while the local government has issued policies that lead to the

development of tourist destinations and one of them is related to community empowerment.

Some previous researches related to this research were Lestari (2009), Ayu and Nalayani

(2016), Jupir (2013); Ningrum (2014); Mulyana (2011); Demolingo (2015); Peng and.Lin

(2016); Akroush, et.al (2016); Airey (2015); Widjajanti (2016); Simanjuntak (2009) and

Soedarso, Sutikno and Sukardi (2016).

2. LITERATURE REVIEW

2.1. Public Policy

The series of concepts and principles that guide and base the implementation of a job,

leadership, and way of acting are called policies. The policy is a set of decisions taken by

political actors in order to choose the goals of how to achieve goals (Muda and Dharsuky,

2015; Badaruddin et al., 2017; Erlina et al., 2017; Gusnardi et al., 2017; Hasan et al., 2017;

Lubis, 2007; Nasir et al., 2017; Sihombing et al., 2017; Yahya et al., 2017; Eriadi et al., 2018;

Erlina and Muda, 2018 and Pohan et al., 2018). In general, the sequence of problems to the

implementation of public policy can be seen as follows:

Figure 1 Stages of Policy Implementation

Implementation is a part that determines the success of a development program after

passing a political decision.

2.2. Policy Implementation

Service tasks are public services to the community without discrimination and free.

Development tasks are to improve the economic welfare of the community and the task of

empowerment is the role to make every citizen able to improve the quality of humanity and

society (Nugroho, 2004; Nurzaimah et al., 2016; Azlina et al., 2017; Achmad et al.,2017;

Problem Public Policy Implementation Development

Management



Lubis et al.,2016 & 2017; Muda and Hutapea, 2018; Muda and Erlina et al., 2018; Muda et

al., 2018 & Sari et al., 2018). George Edward III said that the main problem in public

administration was the lack of attention to implementation. Edward III advised to pay

attention to four main issues so that the implementation of policies becomes effective, namely

communication, human resources, disposition or attitudes, and bureaucratic structures.

Source: George Edward III (1980).

Figure 2 Determinants Factors of the success of policy implementation

Model compiled by Elmore (1979), Lipsky (1971), and Hjern & Porter (1981) in Nugroho

(2004) identifies the network of actors involved in the service process and asks goals,

strategies, activities, and contacts owned. Grindle (1980) explains that the measurement of the

success of the implementation of public policy related to 2 (two) things. It is seen from the

process, by questioning whether the implementation of the policy in accordance with the

specified by refering to policy actions and policy objectives achieved. Grindle (1980) explains

that the success of an implementation consists of the contents of the policy and the relevance

of interests (context of policy).

2.3. Area Development

The development of an area is directly related to the spatial arrangement of an area. Spatial

planning is the basis for identification to plan and develop an area in order to optimize the

potential of human resources and natural resources (Tarmizi et al., 2016 & 2017; Muda et al.,

2016 & 2017; Sirojuzilam et al., 2016 & 2017; Nurlina and Muda, 2017; Muda et al., 2018).

To analyze the area in general according to Nugroho and Dahuri (2012) the division of the

area is known by three types, namely the functional region. Increased community efforts, both

in terms of type, intensity, service and quality (Sirojuzilam and Bahri, 2014).

2.4. Tourism Development

In general, regional development is defined as a regional process or making an area more

advanced and better and can benefit the public. One of the areas prioritized to be more

beneficial to the public increases the potential of tourism objects. The potential of tourism

object in accordance with Suwantoro (1997) who mentions several forms of alternative

tourism products that have the potential to be developed, namely: Cultural tourism,

ecotourism, marine tourism, adventure tourism, agrotourism, rural tourism, gastronomy

(culinary tourism), spiritual tourism and others.




2.5. Conceptual Framework

Figure 3 Conceptual Framework

3. RESEARCH METHOD

3.1. Research Type

The method used in this research is a qualitative descriptive method that is the type of

research that seeks to describe the object or subject being researched according to what it is

(natural) with the aim of systematically describing the facts and characteristics of the object

that is examined appropriately and understanding each context of the phenomenon as a whole.

3.2. Data Analysis

Data analysis begins with qualitative analysis to the data collected such as interviews result,

focus group discussions (FGD), observations, secondary data collection. Based on this, it can

be said that in this research, researchers used data analysis in accordance with the theory

proposed by Miles, Huberman and Saldana (2014) which analyzed data with steps such as

data condensation, data display and conclusion drawing and verification.

4. RESULT AND DISCUSSION

4.1. Result

4.1.1. Implementation of Tourism Object Development Policy

The implementation of tourism development policies in Samosir Regency is in line with the

stipulation of Lake Toba as one of 10 (ten) tourist destinations that are prioritized nationally

as National Tourism Strategic Areas (KSPN). Then the implementation of tourism

development policy in Samosir Regency is also in line with the National Tourism

Development Master Plan (RIPPARNAS) 2010-2015 which states that the development of

tourist destinations includes: development of tourist attraction, infrastructure development,

provision of public facilities, development of tourism facilities, and community

empowerment. To be able to improve the quality of tourism development, it is necessary to

have a reference or guideline in implementing a policy. One of the theories that is the basis

for implementing the policy is proposed by George Edward III (1980) through principles

implementation which consisting of aspects of communication, placement (disposition) and

bureaucratic structure. The development of tourism objects carried out in Samosir Regency is

a stage carried out in line with policies at the national (macro) and regional (mezzo) levels but

requires adjustments to the potential owned by regional government both human resources

and natural resources. This is what encourages the regional government to describe it in the

implementation of regional policies to develop tourism objects. Research on the

implementation of tourism development policy in Samosir Regency will look through:

communication, resources, disposition, and the bureaucratic structure that is carried out.

Development of tourism objects that are carried out by research through aspect indicators:

transportation, tourism attractions, tourists, tourism facilities and information technology.

While empowering the community is examined through: identification, awareness,



strengthening, protection and independence which are an implementation model of tourism

development that is expected to succeed in the development of tourism objects. Based on the

description above, it can be seen that the coordination between the regional and provincial

governments with the central government has run in carrying out the development planning,

especially in the development of tourism areas in Samosir Regency as a leading tourist

attraction, priority tourism objects and pioneering tourism objects. The description of the

coordination of tourism development can be seen in the picture below.

Figure 4 Government Coordination

While the communication of tourism development carried out by the local government

and the community has not been able to increase community participation in supporting the

development of tourism objects. The participation of the community through the

communication carried out by the government has not run as expected (Lubis et al.,2016;

Dalimunthe et al.,2016 & 2017; Hutagalung et al., 2017; Sadalia et al., 2017; Muda et al.,

2017 & Erwin et al., 2018). The communication process carried out through socialization has

not produced the significant results in supporting Samosir Regency government in developing

tourism objects. Some of the problems related to communication of tourism development in

Samosir Regency are as follows: a) Lack of Socialization

Policies in the development of tourism objects really need the support of the ability of the

government apparatus in conducting socialization to the community. b) Disharmony with the Overseas Community

Communication of tourism development carried out in Samosir Regency must be

strengthened with the overseas community so that the development of tourism objects based

on the community is more likely to be carried out. c) Impact of Democratic and Political Processes

The process of implementing democracy in Samosir Regency has produced a negative impact

in the process of implementing tourism object development.

4.2. Discussion

Some of the above are the problems that inhibit communication, while some of the

socializations pathways carried out by the Samosir Regency government are:

4.2.1. Human Resources

The development of tourist areas in Samosir Regency is in line with developing human

resources through a clean and good governance system and oriented to public services. Some

problems related to human resources in the management of tourism development in Samosir

Regency are: a. Lack of Human Resources.

Based on data from the Art and Culture Tourism Office of Samosir Regency, there were 47

people, and some positions were still not filled. There were 21 staff shortages and 1 person for

echelon IV, namely the tourism and infrastructure services business section. This greatly

affects the government's performance in the process of developing tourism objects in Samosir

Regency.




b. Quality of Human Resources

The ability of the government apparatus in cooperating is very necessary in the process of

developing tourism objects in Samosir Regency because it is crucial in the process of

implementing tourism development policies in Samosir Regency. c. Weak Enforcement of Rules

Regulatory enforcement that supports the development of tourism objects is still weak so that

it has not shown a large role in supporting the development of tourism objects. From several

problems that occur in the resource element, the following solutions are expected in the

development of tourism objects in Samosir Regency, namely: d. The increasing of Human Resources quality

In line with the development of science and technology globally, increasing human resources

becomes a necessity if you do not want to be left behind with other countries. e. Doing Tourism Development Creativity

Regional government apparatus is highly demanded to be able to make adjustments

(acceleration) in the development of tourism objects in accordance with the conditions of

human resources and natural resources. Nurkse and Myrdall in Rustiadi (2001) state that a

partial paradigm is suitable for developing countries in the context of developing the region. f. Seeking a Halal Label

To support the development of sustainable tourism objects, the results of natural resources in

Samosir Regency require strengthening competitiveness by obtaining halal labels.

The development planning system is not optimal in utilizing resources, such as natural

resources, human resources, technology and budget limitations to strive for efficient and

effective development (Muda and Nurlina, 2018; Muda and Windari & Muda and Naibaho,

2018). Therefore, it is very necessary to explain the vision and mission into strategic goals,

performance indicators and development programs. In addition to the elaboration of the vision

and mission, it is also required that there be a coherence between strategic objectives and

programs so that the development process from the central, provincial, district and city levels

of government can proceed to the regional device organization.

4.2.2. Information and Promotion

The provision of information and promotion of tourism objects in Samosir Regency can be

accessed through websites and social media. Information and promotion will provide

convenience to tourists to carry out tourism activities in Samosir Regency. Some channels in

information and promotion can be accessed through: Call Center (0626) 20688,

www.visitsamosir, facebook Samosir Tourism Office and visit_samosir and Touch Samosir.

Through websites and social media, the Samosir Regency government also receives feedback

from the community to be able to make improvements as a policy cycle carried out

continuously to improve the quality of tourism development policies. The equipment

resources such as buildings, land, infrastructure facilities that facilitate the provision of

service satisfaction in the implementation of policies are needed by policy makers (Handoko

et al., 2017; Marhayanie et al., 2017; Sadalia et al., 2017; Situmorang et al., 2017; Muda and

Hasibuan, 2018 & Muda et al., 2018). Information and promotion; is needed, when

advertisements are posted, where leaflets / brochures are distributed so that potential tourists

know each tour package and tourists quickly take tourism decisions in their region and must

carry out policies that are most beneficial to the region and region, because of the functions

and duties of tourism organizations in general : a) Trying to give satisfaction to tourists with

all the facilities and potential they have. b) Coordinating between various businesses,

institutions, agencies and agencies that exist and aim to develop the tourism industry. c)

Trying to socialize the notion of tourism to people in tourist attractions, so that they know the



benefits and disadvantages if tourism is developed as an industry. d) Conduct a research

program that aims to improve tourism products and develop new products in order to master

the market in the future.

4.2.3. Tourist

As for some factors that hinder the comfort of tourists in supporting the development of white

sand beach Parbaba tourism object which is a leading tourist attraction of Samosir Regency

are: a) Transitional Society

The community still cannot leave the agricultural culture so that it requires a process

(transition period) to switch to tourism. With these conditions, the community is still hesitant

to switch to the main job as a job in tourism sector. b) Character of society

The appearance (stereotype) of the people of Samosir Regency as generally Batak people who

have a style of speaking that tends to be hard and the face that is less smiling must be changed

to provide comfort for tourists.

4.2.4. Community Empowerment

The Samosir Regency Government is empowering the community through a tourism

awareness group which is an institution that is very decisive in developing tourism objects.

Source: Director General of Tourism Destination Development, Ministry of Tourism (2012).

Figure 5 Stakeholders of Development in Tourism Development

The clear description of the roles and functions of each of these stakeholders is as follows:

The Government is in accordance with its duties and authority to carry out its role and

function as facilitator and regulator in tourism activities;

Private sector (business actors /tourism industry) with resources, technology, capital and

networks they have, carry out their roles and functions as activities (Lutfie et al., 2016; Ferine

et al., 2017 and Muda et al., 2017) and or implementers of the development of tourism

activities;

Communities with the resources they have, both in the form of customs, traditions and culture

and their capacity to act as hosts, but also at the same time have the opportunity as actors of

tourism development according to their capabilities.

The tourism sector is one of the strategic sectors and the mainstay in Samosir Regency as

a locomotive that drive the improvement of the community's economy which contributes to

the region's original income (PAD) (Muda et al., 2018). Based on Samosir Regency RPJMD,

that the magnitude of the contribution of this sector really depends on the number of tourist

visits, the availability of lodging and tourism object in Samosir Regency, namely a. Tourist Visits

The number of tourist visits both domestic tourists and international tourists increases from

year to year. The increasing number of tourists to Samosir Regency will increase the PAD

from the tourism sector.




Table 1 Number of Tourist Visits in Samosir Regency in 2010-2014

Number of Tourist Visits

Year Domestic Tourist International Tourist Number

2010 94.629 20.913 115.542

2011 109.897 22.732 132.629

2012 119.530 25.297 144.827

2013 124.117 25.662 149.779

2014 140.637 30.450 171.087

Source: Samosir in Figures in 2015.

b. Lodging Availability

Table 2 Types, Classes and Amounts of Samosir Regency Lodging / Hotels in 2014 No Type of Lodging / Hotel 2014

Number of Hotel Number of Room Bed

1 5 star hotel 0 0 0



4 2 star hotel 5 354 627

5 1 star hotel 1 51 165

6 Non Star Hotels 76 1301 2128

Total of Lodging / Hotel 82 1706 2920

Source: Samosir in Figures in 2015.

In accordance with Samosir Regent Decree Number 474 of 2017 concerning

Determination of Criteria and Classification of Tourism Objects in Samosir Regency,Third,

Fourth and Fifth Chapter, there is a division or grouping of tourism objects according to

predetermined criteria. The determination of criteria for tourism objects in Samosir Regency

aims to facilitate the Samosir Regency government in the development of tourism, especially

the Lake Toba region. Because the main reason for the development of tourism as a whole,

both nationally and internationally are closely related to regional economic development

which always takes into account the benefits for the community.

4. CONCLUSION AND SUGGESTION

4.1. Conclusion

The implementation of tourism development policies in Samosir Regency has not been

carried out well, which is caused by the communication developed by the regional

government with the private sector as well as the community in the implementation of tourism

development in Samosir Regency has not been able to convince the public that the

participation of the private sector and the public is still low. The Samosir Regency

government, especially the Art and Culture Tourism Office of Samosir Regency is not yet

adequate in supporting the implementation of tourism objects development that empowers the

community.

4.2. Suggestion

There needs to be a more in-depth approach to the community around the tourism objects,

either it is superior, priority and pioneer tourism object, so that the implementation of tourism

development policies can be carried out well.

There needs to be coordination between the units or agencies involved in developing tourism

objects in Samosir Regency.



There needs to be an increase in both quantity and quality of resources, especially human

resources and effective dispositions as policy drivers.

There needs to be a clear bureaucratic structure that regulates service procedures as well as

strict duties, authorities and responsibilities so that services are neatly arranged.

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