h

Directorate General of Spatial Planning Ministry of Public Works

The Green Concept Interfere the Urban Development Policy in Indonesia

by:
1

Imam S. Ernawi Director General of Spatial Planning

1.

Urbanization : Rapid Transformation of Our Cities

Urban populations are growing inexorably in Indonesia. Similar phenomenon has happened in Asian countries in the postwar years, as consequence of a massive economic growth. One cannot deny the fact that our cities are becoming primary destination for most of people in search of a better quality of life. In Indonesia, urbanization can be observed from 3 (three) aspects. First, the number of people living in urban areas has reached 120 million out of 230 million in 2009 2. Second, the uneven distribution of population, largely concentrated in Java and Sumatra islands (70%), and, third, the constant growth of urban population resulting from a high rate of urbanization, Since the last forty years (1970 2010), the number of urban population has increased from 17.4% in 1970, to 22.3% in 1980, to 30.9% in 1990, then to 43.99% in 2002, and finally, 52.03% in 2010. It means that within 40 years, urban population has tripled. The metropolitan cities, such as Jakarta (including Bekasi, Bogor and Tangerang), Surabaya, Bandung, Medan, Palembang, and Makassar never stop to attract people from small and medium cities, as well as from rural areas.

Keynote Speech is delivered on the occasion of 2nd International Seminar on Tropical EcoSettlements under the theme of Green Infrastructure : A Strategy to Sustain Urban Settlements, 3rd November 2010 in Sanur - Bali. Internationally, UN Habitat (2009) reported that the level of urbanization in the world has been growing from: 29% in1950, to 50% in 2008, and finally to 70% by 2050. In fact, the urbanization has been experienced in developed countries since the era of industrialization. For example, in the Netherlands, the level of urbanization has attained 39% in the 19th century, then increased to 50% in 1910, and is now reaching at around 67% level (Veron, 2006)

Urban migration continues to take place in Indonesia. In the next decade, with a moderate scenario of 1.5%, the proportion of urban population will become 56.05% in 2015 and 60.39% in 2020. In contrast to this, the percentage of rural population is projected to decline from 47.97% in 2010, to 43.95% in 2015, and, at last, to 39.61% (in 2020).

Figure 1. Level of Urbanization in Indonesia from 1970 to 2020

Source : BPS (2010), analysis

However, such rapid social transformation has not been simple to manage. In one hand, cities have long been considered as primary catalyst of economic growth. Cities are the ideal places for innovations, where rich ideas are not only growing unlimitedly, but also competing one to another in search of higher efficiency in urban life. In this light, urbanization results from rational choice of the people towards a better life and better society. Thus, as a process, it is inevitable. But in the other hand, while our cities are transforming themselves into modern places, the quality of urban life has been degrading. Acute congestion, frequent flooding, undrinkable water supply, unhealthy levels of pollution, widespread of squatters and slum areas are commons. This is all what the experts call as the urban paradox. Under such anxious circumstances, the urban poor suffer most. Having no adequate access to basic urban services, especially housing and infrastructures, this social group becomes vulnerable to any urban disasters. One of these is closely linked to climate change as consequence of a long-term accumulation of green house gases in atmosphere.

2.

Climate Change : New Challenge to Cope With

For Indonesia, the impacts of climate change will further amplify the pressure on the cities that are recently in great difficulty in controlling urbanization. It is believed that the cities will face a serious challenge in water, energy, food, and infrastructures provisions, considering their status as net importers. These cities will also potentially be exposed by multiple hazards, such as unpredictable flooding, droughts, cyclones, permanent inundation due to sea level rise 3. In other words, urbanization and climate change will further increase the vulnerability of urban society: socially, economically and environmentally. It is widely accepted that the urban poor are most likely to be the primary victims of climate change impacts. One can question about climate justice, considering the fact that this group of society release much less carbon emissions than higher-income societies. The causes of such vulnerability are in fact cumulative, typically related to limited financial, social, and institutional capacity to respond the various threats of climate change. The resistance of urban poor is even considered as lower than the poor living in rural areas whose hold the local values (wisdom and practices). The latter are able to survive with its own resources, known scientifically as subsistent society. Recent figures of BPS (2009) reveals that within a period of 30 years (from 1980 to 2009), there has been a significant decrease in poverty level, both in urban areas (from 29.04% to 10.72%) and in rural areas (from 28.42% to 17.35%). However, a more precise illustration should be based on an absolute quantity of poor people. Urban poor tend to increase from 9.5 million to 11.91 million people. This is not the case in rural areas, where the number of poor has declined from 32.8 million to 20.62 million by the end of 2009. In overall, with 32.53 million of the poor, the poverty level nationwide is still extremely high, equivalent to the high fraction of vulnerable social groups to the impacts of climate change. No doubt, climate change is an additional economic burden for Indonesian cities and it determines their future survival.

According to recent publication of National Development Planning Board (Bappenas), sea level rise in Indonesia is projected to reach 6 cm to 8 cm per decade (ICCSR, 2010).

Figure 2. Urban and Rural Poverty Level (1980 2009)

Source: BPS (2010), analysis

The urban crisis in water, energy and food supply, infrastructure and housing provision, as well as poverty reduction, all now being experienced will be more difficult to overcome, if the treatment facing climate change is merely based on the "business-as-usual" scenario. More important than that, climate change requires an integrated, innovative, and smarter approach, known as "No Regret" scenario. It should be formulated in more concrete ways through mainstreaming green concept in spatial planning and management for urban sustainability.

3.

From Conventional Planning to Green City Planning for Sustainable Urban Development

We must admit the fact that the practices of conventional planning under the previous law 24/1992 on Spatial Planning reveal many weaknesses. Such practices were not adequate in governing rapid urbanization with its negative impacts. To name a few: urban sprawling, degradation of quality of life, victim of various disasters, and deficit of urban infrastructures. Briefly, urban sustainability is at risk. We can make a list of seven weaknesses in the practices of conventional planning in Indonesia as follows : (1) top-down and highly centralized system, (2) exclusive

with dominant role of government entities, while neglecting the other stakeholders in its implementation, (3) emphasis more on promoting economic growth without sufficient respect to environmental quality, (4) limited integration with sectoral activities (especially urban design and detailed infrastructure design), (5) limited synchronization with programming activities (budget allocation), (6) little acknowledgement to local endogenous as vital assets of planning, and, last but not least, (7) planning activities are not sufficiently framed by adequate policies and geared by strong leadership to turn vision into reality. In short, conventional planning is far from enough as a whole and as a peace . It needs somehow to be re-invented in order to be able to face with more complex of dynamic urban system with interdependence of one factor to other factors. In this context of non-linear relation, the new urban planning is expected to modify profoundly the previous concept and practices. It has to take into account many variables altogether to shift the balance towards a healthier, vibrant and liveable urban future. This includes some important features: basic needs as well as sophisticated needs of society, modernism as well as cultural heritage, built-up as well as natural environment, public as well as private operations in infrastructure provision. As a matter of fact, the idea of re-invented planning is not really new , if we compare to international cases. Traditional planning has been a subject of debate and critics since the early of 1960s in North America and in Europe. The reshaping of planning concept has been developed in conjunction with a growing concern of environmental issues, because of the degradation of environmental carrying capacity and augmentation of ecological footprint. It is therefore not surprising to witness that the multiple green initiatives come into play, well-positioned in the mainstream of any urban planning and management. Green city planning becomes a new icon of sustainable urban development concept. Tom Daniels (2008) evokes two principal arguments for the implementation of the greener cities: first, the needs to create a clean environment as prerequisite of a good quality of life considered as essential joys for the residents; second, the need to be more competitive in the global arena. Green element becomes the cities main economic asset4 to support the sustainable living. Frederick Law Olmsted adds one more argument. For Olmsted5, green city is not purely a technical issue, it is also political. The green city is a prerequisite for the development of a healthy climate of democracy. If you want a healthy democracy, you must cultivate greener cities
4

Chicago and Singapore are two best examples of how green city have been the main reason for tourism activities. Millenium Park in Chicago, as a huge and complete extravaganza garden, attracts at least 4 million visitors every year. While Singapore always seduce people around the globe by creating city of water and garden. One of the program is called NEWATER, with its objective: From functional to beautiful : A vibrant city comes into life. A landscape architect who designed New York's Central Park, Brooklyns Prospect Park and Bostons Franklin Park in the 1850s.

(see Gutmann, 2008): a perspective that seems very relevant to the actual context of Indonesia where democracy is nowadays in the process of maturation. By its perfect definition, "A green city is a carbon neutral and fully sustainable" (Birch & Wachter, 2008, p3). Though it is a little bit abstract, there is a similarity in its form: optimal use of scarce natural resources to ensure the sustainable life of urban population. For example: green open space, use of renewable energy (solar, wind and water), use of public transport, conservation of water and treatment of waste (reduce, reuse and recycle).Environmental problems are viewed as workable solutions. World Bank Group translates the green agenda by promoting the concept of Eco2 Cities. The basic argument is that the ecological and economic aspects are not to confront one to another. Rather, these two elements are mutually supportive to build the synergy and interdependence among them. Three cities in the world (Stockholm, Yokohama and Curitiba) have been selected as examples to show the diversity of approaches within the framework of Eco 2 Cities (see Table 1). It emphasis on an integrated planning and management in water, energy and waster water in district scale, making the best use of a cyclical urban processes (The World Bank, 2010).
Table 1. The Diversity of Approaches in Eco2 Cities City Stockholm - Swedia Approaches and Results Implementation of cyclical urban metabolism model, known as Hammarsby Model, concentrated in one district of an old inner city industrial area (ex-harbour and industries). This attractive model is realized through an integrated and collaborative planning and management approach. Initial result is encouraging with 30% reduction of non-renewable energy use and 41% of water consumption. Implementation of an integrated approach to waste management, coupled with stakeholders involvement. Reduction in solid waste quantity by 38.7%, despite the cities inhabitants increase by 170.000 people. Demonstration of an innovative Bus Rapid Transit System; The rate of public transport use reaches 45%: it becomes raw model for many cities worldwide, especially in Latin America. Investment of large green open space for recreation facilities and flood prevention.

Yokohama - Jepang

Curitiba Brasil

Source : World Bank (2010) p3.

The various models have been developed. It is basically a further modification of 3R model (reduce, reuse and recycle) which has been widely applied. The difference is

that today the model is constructed in a collaborative and integrated approach in a broader scale (city-wide approach). Finally, the idea of green city is to closing the loop in the use of water, energy and waste, so that environmental pollution can be substantially reduced to a minimal level. The efforts to create greener cities are increasingly reinforced with the issue of global warming and climate change. Major cities in the world have had specific responses to these challenges. The city of London has introduced "Climate Change Action Plan" in 2007, while the city of Paris has launched a "Plan Climat" in 2008. Green agenda becomes so popular on a global scale that is identical to the modern lifestyle. Meanwhile in Indonesia, the green agenda is still in the early stage of development and is searching for its best shape. However, affirmative policies for actions are needed, one of which is related to spatial planning and management.

5. Affirmative Policies to Promote Sustainable Green City Planning For Indonesia, building a sustainable green city should be viewed as a long-term vision. Many success stories in other cities worldwide are quite encouraging. Indonesian cities should be able to find their own way, not to adopt the concept as it is. The task is anything but simple. In this light, the naissance of a new Law No 26/2007 concerning Spatial Planning can be considered as a great momentum to conduct better practices of spatial planning and management. In addition to that, this umbrella law has been strengthened by two governments regulation, recently stipulated, in view of its implementation : Government Regulations (GR) No. 26/2008 concerning National Spatial Plan and Government Regulation (GR) No. 15/2010 concerning the Implementation of Spatial Planning. The objectives will be achieved through preparation a set of operational guidelines, such as realization of green open space and application of special zoning for disaster prone areas (flood-risk and landslides risks). To respond the issues of climate change in particular, DGSP has also fixed an array of action plans 6 for mitigation and adaptation to the impacts of climate change. For the concerned regions, the mitigation and adaptation measures to climate change are expected to be formally accommodated and validated in the provincial spatial plans and municipal/district spatial plans, mostly now in revision or in review. Each plan at various levels of administrative constitutes a legally-binding document that reflects the final consensus of the key stakeholders . Furthermore, seven affirmative policies have been formulated by the Directorate General of Spatial Planning (DGSP) - Ministry of Public Works in the initial

Rencana Aksi Nasional Mitigasi dan Adaptasi terhadap Dampak Perubahan Iklim (RAN MAPI)

development of the Green City concept. Most of these policies are now being undertaken in some concrete actions: 1. Improving the quality of local spatial plans in every aspect so it becomes a legitimate and strong public policy intervention. Such plans must have certain degree of rigidity in terms of environmental protection (where not to build), but in the same time, it must have certain degree of flexibility in terms of economic opportunities/investments (where to develop). 2. Accelerating the validation and, as such, implementation of local spatial plans by the end of 2010 or by the early of 2011, so that the period of turbulent transition from centralized to decentralized system can be better managed. 3. Providing incentives to local governments to achieve gradually an objective of 30% of land-use allocation for green open spaces . By law, such prescription is a must for each local government. Several local governments, who have successfully validated their local plans by local regulations (Perda), are now benefitting technical supports from DGSP in implementing their plans. While some symbolic initiatives in Jakarta and Bandung must also be appreciated, where several gas stations are replaced with urban parks. 4. Conducting a continuous public awareness campaign in order to promote peoples initiatives as well as to gain essential public support for various programs. In 2010, for the third consecutive celebration of the World Town Planning Day (WTPD), "Smart Green City Planning" is chosen as the central theme. This consists of promoting communitys initiatives for sustainable cities (use of vacant land and open space green), planting trees (reforestation in coastal areas), conducting workshop, national conference, and writing contest. 5. Improving collaboration with key stakeholders . To mention a few, Indonesian Association of Architects (IAI), Indonesian Association of Planners (IAP), Indonesian school of planners and public policies, non-governmental organization, and other green societies, in developing creative and innovative ideas concerning urban green agendas/programs (for example : transit oriented development/TOD, compact city, green infrastructures and eco-cities); This synergy is preceded by an intensive and contributive communication process through facilitation. Sustainable Urban Development (SUD) Forum has been established, so that the process of formulating the vision, policies, strategies, and program for urban development with mid-to long-term perspective. The issues are based on four pillars of sustainable development: social, economic, environmental and governance. 6. Developing a clear path from urban planning to urban and engineering designs. Local plans alone are not sufficient, so they need to be linked up with urban design (RTBL) and detailed engineering design (DED), in

particularly for public-led infrastructure development (road networks, water supply networks, wastewater networks, and solid waste management). 7. Last but not least, assuring law enforcement through severe sanctions for any non-respect to local plans and related permits . The Law 26/2007 (from Articles 69 to Article 73) has provided the basis for application of sanctions, once the local plans are legally effective.

6. Rural Areas as "Green Heritage" not to be Neglected Since the focus in responding to urbanization and climate change issues has been put in urban areas, it does not necessarily mean to neglect rural areas. As mandated by the Law No. 26/2007, serious attention still needs to be given to this area in terms of environmental, socio-cultural, and, of course, the economical aspects. The green concept is always at the center of any rural development. First, from the environmental aspect, rural areas have typical green rural landscape which must be preserved. Such preservation takes form as protection of paddy fields as well as protection of forest and its biodiversity, so that anarchic land conversion can be reduced or even avoided. It requires a full engagement of public. Second, from socio-cultural perspective, rural areas need also to be considered as a heritage, so as to preserve a diverse local cultural traditions in adapting to the environmental condition. The local genius or local wisdom long been practiced by the Balinese, Baduy and Nias people, for example, are unlimited sources of inspiration. It consists of ethical values for living in harmony with the environment . Third, from the economic perspective, rural areas play an important role in the framework of the national production system, particularly for food security reasons, considering a large national demand of agricultural products and the potential of Indonesia to grow more steadily as one of the leading agriculture producers. Another reason is that the number of the rural population of Indonesia (such as China, India and Mexico) is very large, about 111 million people today. From the perspective of marketing, Ranchhod (2004) says that the rural areas must be considered as an invisible market not to be ignored. Thus, a balanced development of rural and urban areas is necessary . The concept of agropolitan is worth to apply. The agropolitan development has now a solid legal basis, namely the Law No. 26/2007 and GR No 15/2010. Not only to alleviate poverty, such concept is expected to be implemented, so it can contribute to improve national resilience, while reducing the vulnerability to the climate change impacts. To solve the urban problems, one must start from addressing the root of the problems in rural areas, namely chronic and structural poverty, that persist from generation to generation. Poverty and underdevelopment are two main factors inducing the migration of population from rural to urban areas. Such movement is

characterized by extreme differences in 3 (three) conditions: first, availability of a complete urban facilities; second, availability of job opportunities; and, third, modern predicate dedicated to urban communities in contrast to traditional stigma attached to rural communities. If the cities were still regarded as the only place to be prosperous according to the value of modernism, while the villages were still seen as places without hope symbol of poverty and underdevelopment, the process of rural-urban migration would continue to occur.

7. Closing Remarks It should be underlined that implementing green concept in cities is not an utopia. By taking examples of many successes, Birch & Wachter (2008, p7) said that " growing greener cities is an achievable goal. Indonesian cities do not have to wait for an urban catastrophe, like Jakarta flooding in 2007, to begin to restructure their cities because it may be too late. A classic idiom, prevention is better than cure is certainly still very relevant. Even city of New York who already has a high standard quality of life, including its very beautiful Central Park, is still trying to realize a greener city. In 2007, Mayor of New York, Bloomberg, has launched 127 innovative projects through public-private partnership scheme to improve the quality of air, protect drinking water supply, encourage the use of mass transit, and expand its city parks. Of course, this attempt cannot be separated from the collective awareness to respond effectively to the challenges global climate change. It is timely for Indonesian people to think of how the concept of green cities can be adapted to the local contexts (tropical climate and cultural diversity) and put it into practices. We cannot be satisfied with the accumulation of knowledge without capacity for actions. Through the green concept of urban development, the challenge is now how to turn vision of sustainability into reality. Strong political will, clear and consistent policies as well as the strong engagement of key stakeholders are essential to success. It may be too late for some cities, but it is not too late for Asia as Andres Duany () once said. For Indonesia in particular, the same question has been raised. What kind of cities our next generation will live in? It depends largely on how we treat our cities today to preserve the same opportunities for future generations who hold every right to enjoy the same quality of life in a liveable, safer, and resilient city. For this reason, we will surely not expect one day to be blamed by our successor as the egoist predecessors.

Bibliography

10

Birch, E.L. & Wachter, S.M. (ed) (2008), Growing Greener Cities : Urban Sustainability in the Twenty First Century , University of Pennsylvania Press, Philadelphia, 392p. Daniels, T. (2008), Taking the Initiative :Why Cities Are Greening Now, in Growing Greener Cities : Urban Sustainability in the Twenty First Century, edited by Birch, E.L & Wachter, S.M, University of Pennsylvania Press, p ix xii Gutmann, A. (2008), Common Ground, Common Good : Preface, in Growing Greener Cities : Urban Sustainability in the Twenty First Century, edited by Birch, E.L & Wachter, S.M, University of Pennsylvania Press, p ix xii. IPCC (2007), Summary for Policymakers, A Report of the Working Group of the Intergovernmental Panel on Climate Change, Geneva. Juergensmeyer, J.C. & Roberts, T.E. (2003), Land-use Planning and Development Regulation Law, Hornbook Series, Thomson-West, USA. National Development Planning Board (BAPPENAS) Republic of Indonesia (2010), Indonesia Climate Change Sectoral Roadmap (ICCSR), Transportation Sector, March 2010, 18p Ranchhod, A. (2004), Marketing Strategies : A Twenty-first Century Approach, Pearson Education Malaysia, Prentice Hall, 239p Peterson, J.A. (1983), The Impact of Sanitary Reform upon American Urban Planning, 1840 1890, in Introduction to Planning History in the United States, edited by Krueckeberg, D.A, the Center for Urban Policy Research, Rutgers University, New Jersey, p13 39. Pigeon, P. (1996), La gestion des risques urbains, Chapitre 5 in Risques naturels : risques de socits , Bailly A.S (dir.), Economica, Paris, 1996, p51 62 The World Bank (2010), Eco2 Cities : Ecological Cities as Economic Cities , Synopsis, 16p Vale, L.J & Campanella, T.J. (2005), The Resilient City : Modern Cities Recover from Disaster, Oxford University Press, 2005, 376p Veron, J. (2006), Lurbanisation du monde, Collection repres, la Dcouverte, Paris, 122p Wachter, S. (dir.) et al, (2009), Dictionnaire de lamnagement du territoire : Etat des lieux et prospective, Belin, Paris, 318p Law No. 26/2007 Concerning Spatial Management Government Regulation No.26/2008 Concerning National Spatial Plan Government Regulation No. 15/2010 Concerning Impementation of Spatial Planning

11