Planning Assessment
Evaluation of the spatial planning in agropolitan area development in Nagan Raya Regency, Indonesia
2022 Volume 10 Issue 2 Pages 219-234
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2022 Volume 10 Issue 2 Pages 219-234
Development is the act of managing natural resources to meet human needs, and good development must match development programmes and land use plans. As a result, development programmes that are not accommodated in spatial plans – including agropolitan plans – will face various obstacles in their implementation. The aim of this spatial evaluation was to review and assess how well development is incorporated in the spatial plan for the Nagan Raya regency. This involved analysing development dynamics, the quality of spatial planning, how space is used and the compliance of the spatial plan with laws and regulations. The results show that in Nagan Raya seven programmes have been developed in cultivated areas: production forests, agriculture, fisheries, mining, industry, tourism and settlements. According to the evaluation, the use of the cultivation area was not fully synergized. There is also a need for agropolitan land. Therefore, the spatial layout of Nagan Raya must be revised based on the conditions and dynamics of existing development, especially agropolitan development. A proper balance and synergy in cultivated areas can help strengthen agropolitan development in the future.
Development is necessary for natural resources management to meet increasing human needs in line with population growth, technological developments and human culture (Zallé, 2019). The acceleration of national economic development, which is the accumulation of regional development, requires regional economic support from the bottom up, so strengthening the regional economy also strengthens the national economy.
"Common Law of the Republic of Indonesia Number 22 of 1999 Concerning Regional Government." (1999), concerning regional government, was revised to become ("Common Law of the Republic of Indonesia Number 32 of 2004 Concerning Regional Government", 2004). It mandates the implementation of regional autonomy in Indonesia. However, this has forced basic changes in regional development planning. Regional development, which was originally uniform, has become more varied depending on the potential of a region, its main problems and its aspirations for growth (Saputra, 2015). In addition, the development of a region must follow conditional and situational principles because each region has its own uniqueness and characteristics, such as its natural resources, its human resources, the level of technological development, capital, knowledge, institutions and legislatures, values, ethics and commitment. As a result, regional development policies often ignore national and global interests (Šabić Dejan & Snežana, 2017). This development requires each region to set its development priorities in accordance with its conditions and potential (Sjafrizal., 2014), but it must also be synchronized with national growth with respect to specific development programmes and spatial plans (Yamashita & Morisawa, 2020).
For areas where the agricultural sector is the mainstay of development, such as the Nagan Raya regency, the development of an agropolitan area can be an option because it is an integrated pattern of agricultural development from upstream to downstream. This is because the agricultural sector constituted 45.55% of the gross regional domestic product (GRDP) of the Nagan Raya in 2016 or almost half of its economic activity (https://naganrayakab.bps.go.id/)
The concept of an agropolitan plan is ideal and prospective, so many local governments have developed them (Sitorus, 2011). This approach builds up rural areas that have one or more centres of agricultural production; it manages certain natural resources, and it has functional linkages and spatial hierarchies of settlement system units and agribusiness systems (Ismail, Siwar, & Ghazali, 2018; Ismail et al., 2018; Haula Rosdiana, Inayati, & Murwendah, 2014).
Agropolitan plans integrate rural and urban areas, and they are regulated in ("Common Law of the Republic of Indonesia Number 26 of 2007 Concerning Spatial Planning.", 2007). The arrangements include objectives, policies and strategies, regional arrangements, directions for use and rules for controlling agropolitan areas.
It is very important to note the relationship between agricultural development and spatial planning in the Nagan Raya District. If agricultural planning is accommodated, it would greatly support current agricultural development. However, if it has not been accommodated, the spatial layout must be studied and evaluated and revised if necessary. This is important so that the benefits of developing an agropolitan plan can occur in Nagan Raya.
Implementing an agropolitan plan leads to various benefits and advantages, including the creation of a rural atmosphere equal to the city and balancing development between cities and villages. The agricultural sector will be the driving force of the rural economy, create job opportunities and reduce unemployment, reduce poverty in rural areas, suppress urbanization, optimize the use of natural resources and suppress their exploitation of natural resources, improve the quality of agricultural products, improve farmers’ skills, increase their income and help them access export markets (Yandri et al., 2021; Surya et al., 2021; Ismail et al., 2019; Haula Rosdiana, Inayati, & Murwendah, 2014; Widijastuti, Sun, & Collins, 2013; Hastuti, 2001). As a result, the concept of developing agropolitan agriculture is widely used in various regions and countries (Safariah, Kurniadie, & Widodo, 2016; Buang et al., 2011; Smith & Thelen, 2003).
However, the weakness of such plans is that agropolitan areas have multidimensional vulnerabilities from social, economic, physical, and environmental aspects (Yamashita & Morisawa, 2020; Ismail et al., 2019; Ismail, Siwar, & Ghazali, 2018; Ismail et al., 2018; Haula Rosdiana, Inayati, & Murwendah, 2014). The development of agropolitan areas depends a great deal on the quality of the land and how it is used to support human life (Briassoulis, 2000). An agropolitan area has a dynamic nature that can change along with the activities of the population to meet needs, exploit economic opportunities, create land-use policies and benefit nature itself (Priambudi & Pigawati, 2014; Lambin et al., 2001).
Moreover, the development of agropolitan areas requires support for land-use patterns and must be synchronized with the regional spatial plan (RSP) and agropolitan development plans. This is confirmed by Wedanti (2016), who concludes that strategic environmental studies and RSPs must complement each other and that strategic environmental studies help RSPs overcome environmental problems.
An RSP is an elaboration of the national spatial plan, and it is the result of planning for a specific geographical unit with such things as boundaries and systems determined by their administrative aspects ("Regulation of the Minister of Agrarian Affairs and Spatial Planning of Indonesia No. 6 of 2017", 2017). As a product of law, RSPs are no longer seen as a static development reference. They must be flexible, firm and clear and they must anticipate the dynamics of development in an ever-changing society (Sumahdumin, 2001). An RSP, as a reference for land use, can be reviewed every five years. This review is an effort to determine the compatibility between spatial planning and current development by considering the strategic environment needs and the internal dynamics in the use of space or land ("Common Law of the Republic of Indonesia Number 26 of 2007 Concerning Spatial Planning.", 2007).
The Nagan Raya Regency Medium-Term Development Plan (MTDP) 2017–2022 prioritizes agricultural development, so developing agropolitan areas requires the support of the RSP for 2015–2035 to review and evaluate Qanun (a local term for regulation).
This study was conducted to analyse and examine the existing spatial plans for agropolitan development in Nagan Raya. As mandated by "Common Law of the Republic of Indonesia Number 26 of 2007 Concerning Spatial Planning." (2007) concerning spatial planning, every local government must make ongoing efforts to monitor space utilization and evaluate the suitability of spatial services in its RSP. This study analysed the dynamics of development, the quality and use of space and whether the RSP followed the laws and regulations in Nagan Raya. This study evaluated the current spatial plan in Nagan Raya and made recommendations about including agropolitan programmes in future RSPs.
This research was conducted in Nagan Raya, Aceh Province from July to December 2019. It was conducted in connection with the need and potential for agropolitan development in Nagan Raya. Therefore, agropolitan information and adjustment actions are needed in the spatial planning of Nagan Raya, with locations as shown in Figure 1.
Research materialsIn this study, the data and method of evaluating the spatial plans refer to the "Regulation of the Minister of Agrarian Affairs and Spatial Planning of Indonesia No. 6 of 2017" (2017). Descriptive research was conducted using secondary data and these data and information collection techniques: (1) Review and analysis of documents on spatial planning for Nagan Raya, including technical materials, fact documents and KLHS (Strategic Environmental Studies) material; (2) Development dynamics including policy changes in regional spatial planning, such as development policies for the West South Aceh region; amendments to laws and regulations which become a reference for spatial planning; provincial and regency cultural dynamics covering social, economic and cultural aspects; change in development direction based on community aspirations; the development of a paradigm of thought, technology, and natural resource discovery that continues to evolve based on national and international developments regarding changes in demand for certain products; and (3) Actual use of space, including data and information from the RSP up to the time of the evaluation and data programmes and budgets in order to embody spatial planning (agropolitan, plantation, transmigration region, determination of agriculture area and sustainable food and land and supporting directions); map of actual space utilization (existing land use), including the balance of land use, results of spatial planning audits, and public reports.
Figure 1. Map of the Nagan Raya regency
(Modified from the Nagan Raya government map and Google Earth).
The evaluation was carried out by compiling a matrix of conformity between spatial planning and development needs and considering the dynamics of development and space utilization, including (1) a development dynamics matrix and (2) a matrix of actual space utilization. Furthermore, the evaluation of regional spatial planning measured the quality and validity of the RSP as a reference for developing Nagan Raya in terms of (1) the quality of regional spatial planning; (2) compliance with statutory regulations; and (3) implementation of spatial use. The evaluation stages are shown in Figure 2.
Figure 2. Stages for Evaluating Regional Spatial Planning
The spatial structure is the arrangement of residential centres and infrastructure network systems to support the community’s socio-economic activities. Table 1 presents the development in Nagan Raya from the enactment of the spatial plans to the review stage (July to December 2019). Based on data analysis, seven development programmes already exist or are being planned in the regency. The programme consists of developing power plants, and agropolitan, transmigration and sustainable areas for food. The hydropower plants are high-capacity sources of renewable energy in Krueng Lamie Tadu Ateuh Village (360 MW), Blang Puuk Village (50 MW) and Beutong (10 MW). A micro-hydropower plant was built in Krueng Isep.
During the review, the hydropower in Krueng Isep was increased by 10 kV–20 kV while the other plants remained at their same levels. In Nagan Raya, six sub-regencies (covering 4749.6 ha) were identified as agropolitan areas: Kuala (in Cot Kumbang), Kuala Pesisir (Kuala Trang), Suka Makmue (Cot Peuradi), Tadu Raya (Sarah Mantok), Tripa Makmur (Mon Dua) and Darul Makmur (Simpang Deli Kilang).
In the review stage (Table 1), the government plans to add to the existing agropolitan areas to support regional development. Transmigration areas are designated to form new regional growth centres. Transmigration also supports the development of agropolitan areas.
Based on spatial plans, five sub-regencies in Nagan Raya (covering 4749.6 ha) were designated as local transmigration areas. Of these five sub-regencies, the Darul Makmur sub-regency (2340.04 ha) is the densest, while the Suka Makmue sub-regency (1.01 ha) is the smallest. At the review stage, the government initiated a transmigration programme to develop its population. The growth of transmigration and sustainable regional development require food availability.
Nagan Raya has 12777.64 ha of agricultural land for sustainable food (e.g. paddy fields) located in 10 regencies. This area is designated to support food availability for the region. However, at the review stage, some agricultural land was found to have changed its function.
Table 1. Matrix of Development Dynamics for the Nagan Raya Regency
| No. | Development dynamic | Condition when compiling the RSP | Information | Impact on the content of the RSP |
|---|---|---|---|---|
| 1 | The hydropower plant of Blang Puuk Village | Not available | Must be included in the Qanun of the regional spatial planning in Nagan Raya | Affects changes in the spatial structure |
| 2 | There is a plan for the hydropower plant of Krueng Lamie, Tadu Ateuh Village | Not available | Must be included in the Qanun of the regional spatial planning in Nagan Raya | Affects changes to the spatial structure plan, such as the energy infrastructure network plan |
| 3 | There is the hydropower plant of Beutong Sub-regency | Not available | Must be included in the Qanun of the regional spatial planning in Nagan Raya | Affects changes to the spatial structure plan, such as the energy infrastructure network plan |
| 4 | There is a potential need to develop a micro-hydropower plant in Krueng Isep with a capacity of 10-20 KW | There is a micro-hydropower plant unit with a capacity of 10–20 kW | Must be included in the Qanun of the regional spatial planning in Nagan Raya | Affects changes to the spatial structure plan, such as the energy infrastructure network plan |
| 5 | There is a need for agropolitan development | There is an agropolitan area plan | Must be included in the Qanun of the regional spatial planning in Nagan Raya | Affects changes in spatial structure plans, such as cultivation land use plans |
| 6 | There is a need for transmigration development | There is initial transmigration, and there is a development plan | Must be included in the Qanun of the regional spatial planning in Nagan Raya | Changes spatial structure plans in terms of the use of cultivated land, production forests and other areas |
| 7 | There is a plan to determine Sustainable Food Agricultural Land | Paddy fields exist, but those have changed their function | Must be included in the Qanun of the regional spatial planning in Nagan Raya | Changes the spatial structure plan in terms of rice field use |
Source: Research data, 2020.
Table 2 shows the evaluation stage of Nagan Raya development. It presents the relationships between the contents of spatial plans with development dynamics and space utilization based on national and regional government regulations for spatial planning follow existing spatial plans, development in Nagan Raya aligns with spatial planning objectives, including disaster mitigation. For implementing spatial use, the potential or risk of disasters like floods and landslides has been mapped. However, specific and detailed disaster maps are still required.
Table 2. Matrix of Actual Use of Space in the Nagan Raya Regency
| No. | Contents in the RSP | Development needs | |
|---|---|---|---|
| Development dynamics | Space utilization | ||
| 1. | Spatial planning purposes | There is a need to consider vulnerability to disaster | Disaster-prone areas have been mapped, but details must be developed |
| 2. | Spatial planning policy | Need to arrange space utilization in detail | Spatial use of protected and cultivation areas has been regulated |
| 3. | Spatial planning strategy | Mapped protected and cultivation areas | Uses of cultivation areas are not fully synergized with the cultivation areas themselves |
| 4. | Service centre system | Development of rural growth centres and rural expansion | The construction of government facilities and village expansion must be adjusted to match the regional spatial planning |
| 5. | Infrastructure network system | The length of several roads is unknown | Need to trace the lengths in detail |
| 6. | Space pattern | The use of spatial patterns outside the existing arrangement | Spatial design must be rearranged in more detail and follow actual conditions |
Source: Research Data, 2020.
Developing an agropolitan area requires excellent and detailed spatial planning. Currently, the local governments have established regulations regarding land use for protection and cultivation and mapped protection and cultivation areas. However, based on the evaluation, the cultivation area is still not fully synergized with its use.
Another spatial content is the regional service centre. Such centres are sub-regency cities with the potential to be centres for collections, distribution and transportation on a service scale between villages in one sub-regency. With the functioning of regional service centres, agropolitan activities and productivity can increase. Based on the evaluation, the regional service centres grew and expanded. This development must be accompanied by constructing government buildings and housing, which refers to spatial plans.
In addition to buildings, roads are arteries for regional development. However, the lengths of several roads in Nagan Raya are still unknown. Therefore, the government should explore the on-road sections in Nagan Raya in detail. Based on observations, the use of space in Nagan Raya still does not follow spatial plans. Therefore, the arrangement and use of space must be adjusted again to match actual conditions.
Quality of regional spatial planningThe quality of regional spatial planning can be evaluated by looking at indicators of the spatial plan’s completeness and depth and the quality of the data used when compiling the spatial plan. The indicators used in evaluating the quality of regional spatial planning include the completeness and depth of the RSP load and the quality of the data.
The criteria for evaluating the extent and depth of regional spatial planning used the fullness and depth of assessment criteria the RSP for the regency are as follows:
1. Value 3 = Good, if they are comprehensive and deep enough.
2. Value 1.5 = Poor if they are complete but not deep enough.
3. The value of 0 = Bad if the entirety is not available (for the load/sub-cargo that should be there) and automatically the depth is less (not there).
Several subfields are given points in each RSP. The overall average is the final value for assessing the extent and depth of the plan for regency load.
Table 3. Average Values for the Extent and Depth of RSP Load in Nagan Raya
| No. | the Regional Spatial Planning content | Total value | Average |
|---|---|---|---|
| 1. | Spatial planning policy objectives and strategies | 7.50 (3 points) | 2.50 |
| 2. | Territorial spatial structure plan | 46.50 (25 points) | 1.86 |
| 3. | Space pattern plan | 37.50 (17 points) | 2.21 |
| 4. | Determination of the strategic area | 10.50 (5 points) | 2.10 |
| 5. | Spatial utilization directive which indicates the leading long-term five-year program | 30.00 (10 points) | 3.00 |
| 6. | Spatial use control directions | 6.00 (4 points) | 1.50 |
| Total | 13.17 | ||
| Average | 2. 19 |
Source: Research data, 2020.
Table 3 shows that the extent and depth of load in the Nagan Raya Regency Spatial Plan is in the range of 1.5–3 or Less – Good. The most critical content of the spatial plan is the directive on controlling the use of space. The content that is already good is the directive on the use of space, which indicates the main programme for the medium term of five years, while the contents of the other spatial plans still must be improved to become good criteria.
The assessment of data quality is not very different from assessing the extent and depth of the regency’s load in the RSP. The average value of each item is the final value for the RSP for the quality assessment of the regency data. The criteria for assessing the quality data are:
1. Value 3 = Good if the data are available/complete and still relevant.
2. Value 1.5 = Poor if the information is available/complete but needs updating
3. Value 0 = Bad if the data are missing/incomplete and need updating.
Table 4 shows the quality of the data in the Nagan Raya Regency Spatial Plan. The results of the analysis of the quality of the data show an average value of 1.83. This is between 1.5 and 3 or between Bad and Good. The good types of data are administrative area data and physiographic data, while others are still poor and need improvement. These data concern population, use of space, economy and disasters (Table 4).
Table 4. Quality of the Regional Spatial Planning Data for the Nagan Raya Regency
| No. | Type of data | Average value |
|---|---|---|
| 1. | Administrative area data | 3.00 |
| 2. | Physiographic data | 3.00 |
| 3. | Population data | 1.50 |
| 4. | Economic and financial data | 1.50 |
| 5. | Data on the availability of necessary infrastructure and facilities | 1.50 |
| 6. | Land use data | 1.50 |
| 7. | Space allocation data | 1.50 |
| 8. | Disaster-prone area data | 1.50 |
| 9. | Availability and Completeness of maps according to the required scale | 1.50 |
| Total | 16.50 | |
| Average | 1.83 |
Source: Research data, 2020.
Conformity with legislationThe conformity of RSPs with the existing laws and regulations is evaluated by assessing them against the rules for regional spatial planning. The criteria for conformity assessment with laws and regulations are as follows:
1. Value 3 = Appropriate if there are no differences/changes in statutory regulations that should be referred to/related to the contents of the RSPs;
2. Value 1.5 = Poor if they are complete but not deep enough.
3. Value 0 = Not appropriate if the contents of the RSP do not comply with/do not refer to new/amended laws and regulations, where these laws and regulations should be directed to/related to the contents of the RSP.
Table 5. Conformity of the Regional Spatial Plans with Legislation
| No. | Legislation to which the RSPs must be referred. | Score |
|---|---|---|
| 1. | Const. no. 41/1999 on forestry | 3.00 |
| 2. | Const. no. 7/2004 on Water Resources | 3.00 |
| 3. | Const. no. 11/2006 on the Government of Aceh | 3.00 |
| 4. | Const. no. 26/2007 on spatial planning | 0.00 |
| 5. | Const. no. 32/2009 concerning protection and management of the environment | 3.00 |
| 6. | Government regulation No. 15/2010 concerning Control and Utilization of Abandoned Land | 0.00 |
| 7. | Government regulation No. 24/2010 concerning Use of Forest Areas | 1.50 |
| 8. | Government regulation No. 8/2013 concerning the Level of Accuracy of Spatial Planning Maps | 3.00 |
| 9. | Presidential Decree No. 4/2009 concerning National Spatial Planning Coordinating Board | 0.00 |
| 10. | Presidential Decree No. 20/2007 | 0.00 |
| 11. | Regulation of Public Works and Housing Ministry No. 16/PRT/M/2009 concerning Guidelines for Preparation of Regency the Regional Spatial Planning | 3.00 |
| 12. | Regulation of Public Works and Housing Ministry No. 17/PRT/M/2009 concerning Guidelines for City the Regional Spatial Planning Formulation | 0.00 |
| 13. | Public Works and Housing Ministry Regulation No. 20/2011 concerning Guidelines for the Compilation of Detailed Spatial Plans and Regency/City Zoning Regulations | 1.50 |
| 14. | Agrarian Affairs and Spatial Planning Ministry Regulation No. 6/2017 concerning Procedures for Reviewing Spatial Plans | 3.00 |
| 15. | Minister of Forestry Decree No 170/2000 on Aceh Forest Area | 3.00 |
| 16. | Minister of Environment and Forestry Decree No. 103 Kpts-II-2015 | 3.00 |
| Total | 30.00 | |
| Average | 1.88 |
Note: Const.= Constitution
Source: Research data, 2020.
The suitability of the spatial plans with statutory regulations is presented in Table 5. Sixteen legal regulations are compared with the spatial plans for Nagan Raya. The average score is 1.88, a middle range between being feasible (3) and unfit (0). Some legislation has been used as a standard, but others are not used as a reference.
Space utilizationThe directives for the use of space are evaluated based on the type of implementation, the size of the area and the impact of implementing the designated use. This assessment is carried out qualitatively, divided into two categories:
1. Value 3 = Appropriate if realised according to the directions in the plan and programme indications; and
2. Value 0 = Not suitable, if the type of programme realisation in the field is not suitable, the location is not suitable, or there is no programme implementation as stated in the plan and programme indication.
Furthermore, the evaluation of the amount of area used according to the plan is based on the following criteria:
1. Value 3 = Very high/perfect suitability, if the realization is above 75%;
2. Value 2 = Medium, if the realization is between 50% and 75%;
3. Value 1 = Low, if realization is between 25% and 50%; and
4. Value 0 = Very low, if realization is below 25%.
The evaluation of the impact of implementing the spatial use on social, economic and environmental aspects is based on the results of the regional spatial planning evaluation. The criteria for assessing that impact are as follows:
1. Value 3 = Environmental scale negative impact (village/sub-regency) or there is no indication of a negative impact or showing a trend towards positive implications;
2. Value 2 = Regency/city scale negative impact;
3. Value 1 = Regional-scale adverse effects, namely provinces or across regencies/cities; and
4. Value 0 = Negative impact at national scale or across the provinces.
Table 6. Evaluation of Spatial Utilization for Regional Spatial Planning in Nagan Raya
| No. | Spatial Plans Content | Total value | Average |
|---|---|---|---|
| 1. | Percentage of space utilization realized | 1,530.00% | 90.00% |
| 2. | Type and amount of space utilization | 42.00 | 2.47 |
| 3. | Impact of space utilization | 42.00 | 2.47 |
Source: Research data, 2020.
How well space is utilized is obtained from the number of materialized plans for the spatial structure, spatial patterns and the determination of strategic areas. There are 17 aspects of assessment based on the Act. No. 6/2017. Table 6 shows the results for space utilization of Nagan Raya. The assessment shows that the percentage of realized use is relatively high, at 90%. Meanwhile, the types and magnitude of the use of space and the impact of that use had the same value, namely 2.47. These results are then recapitulated and weighted to obtain recommendations for spatial plans.
Evaluation of spatial planning for Nagan RayaThe final evaluation of regional spatial planning is based on a summary of the assessments of all the aspects, including the quality of the regional spatial planning, compliance with laws and regulations and the implementation of spatial use multiplied by the weight of each element. All aspects of the assessment are then given criteria to determine whether the regional spatial planning is generally of good or poor quality. If the quality of the planning is good, there is a recommendation that the RSP does not need revision. If the quality is found to be poor, there is a request for a revised RSP from the regency. The following are the criteria for revised and non-revised recommendations based on quantitative methods according to the predetermined weight of the assessment:
1. If the Final Score > 85, the RSP is declared to be of good quality and is not revised;
2. If the final score is < 85, the RSP for the regency is declared of low quality and requires revision.
Table 7. Recapitulation of the Evaluation of the Regional Spatial Planning for Nagan Raya
| No. | Aspect | Final grade | Weight | Multiplication by weight |
|---|---|---|---|---|
| 1 | 2 | 3 | 4 | 5 = 3 x 4 |
| 1. | The Regional Spatial Planning Quality (30%) | |||
| Completeness and Depth of the Regional Spatial Planning Load | 2.19 | |||
| Data Quality | 1.83 | |||
| Average | 2.01 | 30 | 60.30 | |
| 2. | Compliance with statutory regulations (30%) | 1.88 | 30 | 56.40 |
| 3. | Implementation of the use of space (40%) | |||
| Type and Amount of Space Utilization Implementation | 2.47 | |||
| Impact of the implementation of spatial use | 2.47 | |||
| Average | 2.47 | 40 | 98.80 | |
| Average Final Value of the Regional Spatial Planning Evaluation | 2.12 | - | 71.83 |
Source: Research data, 2020.
The final value calculated for the evaluation of regional spatial planning for Nagan Raya is 71.33% or less than 85%. As stipulated in the regulation, because the cumulative value is less than 85%, the regional spatial planning is of low quality and must be revised.
Effective resource management allows regions and provinces to thrive. Based on the special regional regulations of Aceh or the Qanun of Nagan Raya Regency No. 11 of 2015, development in Nagan Raya must improve public welfare, defence and security through optimal, useful, prosperous, harmonious, balanced and sustainable use of regional space. To support this, an RSP based on actual conditions is needed. The spatial plans of Nagan Raya mandate that the region is a conservation area based on agropolitan, minapolitan, trade in services, industry and disaster mitigation. Thus, the spatial plans must be aligned with agropolitan development.
In this study, we reviewed the dynamics in the Nagan Raya. We also evaluated the suitability of spatial plans against those dynamics and the needs for development in the Nagan Raya. The evaluation includes the quality of the spatial plans, how well they are implemented and whether they comply with laws and regulations.
According to the review, Nagan Raya is working to develop sectors such as energy, agriculture and population. Renewable energy plants were built in Krueng Lamie Tadu Ateuh Village, Blang Puuk Village and Beutong. A micro-hydropower plant has been built in Krueng Isep, Nagan Raya to address local needs. This energy development is required to support Nagan Raya’s long-term growth, particularly in industry and agriculture.
Six regions in the Nagan Raya have been designated agropolitan areas. However, because of a lack of land resources and a rapidly growing population, the government prioritized adding agropolitan areas. Nagan Raya has 22985,851 ha of cultivation area, part of which can be allocated to agropolitan use. However, this still must be planned and readjusted to prevailing regulations and spatial plans.
The agropolitan concept is a regional development strategy that emphasizes an agribusiness-based economy. This approach also aims to create self-sufficient villages that are not merely dependent on urban services. Agropolitan development recognizes the significance of regional integration across sectors, spaces and stakeholders. As a result, not all territories can be classified as agropolitan. According to Thamrin et al. (2007), an agropolitan plan must be sustainable across five dimensions: ecology, economy, infrastructure and technology, law and institutions. Yamashita and Morisawa (2020) also stated that social factors influence agropolitan sustainability. Residents’ decreased interest in farming may reduce the availability of agricultural land.
In Indonesia, the dimensions of ecology, infrastructure and technology are less sustainable than in other countries (Thamrin et al., 2007). This is consistent with the finding that land functions, such as paddy fields, have been reduced and transformed into settlements in Nagan Raya. This change may continue because of economic conditions and the transmigration initiated by the government. In addition, migration from rural to urban areas, as well as migration from urban centres to suburbs, drives land-use change (Yandri et al., 2021). Many other changes affect the spatial structure, both in cultivation land use plans and infrastructure networks. Therefore, it is necessary to improve the dimensions (ecology, infrastructure and technology) in future spatial plans.
Spatial planning must be supported by adequate geographic data, such as disaster information. In Indonesia, natural disasters and climate variability contribute to a high level of livelihood vulnerability (Rudiarto & Pamungkas, 2020). Natural disasters are unavoidable and difficult to forecast. Development that does not consider the risk of disasters can result in significant losses. The disaster-prone areas in the Nagan Raya were mapped during the evaluation, but those maps must still be detailed. It is crucial to anticipate floods, landslides, fires and earthquakes. With disaster mapping, community capacity for disaster adaptation increases and exposure levels decrease (Rudiarto & Pamungkas, 2020). This mapping also supports space for protected areas and agriculture, which the government should detail. The policy regarding disaster-prone regions has been published in Clause 29 of Nagan Raya spatial plans. However, the disaster map still must be updated.
As a spatial use strategy in agropolitan areas, mapping and utilizing protected and cultivated areas are required. Protected areas have the primary function of safeguarding the environment and promoting sustainable development of natural resources, artificial resources and historical values. Meanwhile, cultivation areas have designated uses, based on natural, human and unnatural conditions and resources. In Nagan Raya, at least seven programmes have been developed in cultivated areas: production forests, agriculture, fisheries, mining, industry, tourism and settlements. A proper balance and synergy between these sectors can help strengthen agropolitan development in the future. According to the evaluation, the cultivation area in Nagan Raya is still not fully synergized with its uses. As a result, the synergy of cultivation areas is an important factor to consider in the spatial plans. The interaction between the cultivated area and its uses can result in environmentally friendly and long-term exploitation. This approach also aligns with the government’s initiative to increase food availability through palm oil and endemic fish production.
In the development of Nagan Raya, several things must still be addressed, including infrastructure, roads and use of spatial patterns. Infrastructure is an integral part of supporting agropolitan plans, as stated by Thamrin et al. (2007). In Nagan Raya, the rural centres are developed, but they must be directed through the spatial plans towards sustainable development that is environmentally sound. In addition, development must be adjusted to the urban regency system stipulated in the spatial plans.
The regency’s infrastructure, including roads, is essential because it connects the activities of cities and villages. Based on Nagan Raya’s evaluation, there are still roads whose length is unknown, especially regency roads. Information about the length of the roads must be gathered because it is related to access to infrastructure and agropolitan development. Apart from roads in the Nagan Raya, there are still spatial use patterns that are not under the applicable spatial plans. They must be adjusted again to follow the spatial plans by making a more detailed approach.
The results of the evaluation show that the extent and depth of the content of the RSPs for Nagan Raya are quite good for five years, but the plans must still be improved in terms of their regional spatial structure plans. What must be improved is the service centre and infrastructure network system. Meanwhile, in terms of quality, the RSPs in the Nagan Raya are still weak. They require many updates, especially regarding population, spatial use, economy and disasters. This is consistent with the development dynamics observed in the field.
From a legal perspective, the content of the current spatial plans must be adjusted again to conform to legal and statutory regulations. Of the 16 rules, seven provisions must be considered in the RSPs of Nagan Raya:
1. The Common Law concerns Const. No. 26/2007 on Spatial Planning
2. Government regulation No. 15/2010 concerning Control and Utilization of Abandoned Land; Government regulation No. 24/2010 concerning Use of Forest Areas;
3. Presidential Decree No. 4/2009 concerning the National Spatial Planning Coordinating Board; Presidential Decree No. 20/2007;
4. Regulation of Public Works and Housing Ministry No. 17/PRT/M/2009 concerning Guidelines for City the Regional Spatial Planning Formulation;
5. Public Works and Housing Ministry Regulation No. 20/2011 concerning Guidelines for the Compilation of Detailed Spatial Plans and Regency/City Zoning Regulations.
Although these regulations are numerous, considering them in the content of the RSPs can strengthen the policy-making for future agropolitan programmes. These points should be reconsidered for future spatial plans, especially regarding spatial structure and spatial patterns.
The spatial structure is closely related to the development of agropolitan and other industries. The realization of spatial structure occurs through a specific regions’ determination and development. It is helpful for centres of local activities, regional services and environmental services. Meanwhile, the embodiment of a spatial plan’s pattern includes the supervision and use of protected areas, cultivated areas and marine areas.
The results of the evaluation show the need to adjust the existing spatial plans. Those plans should be a reference for future development, both because of changes in land-use dynamics and development programmes that are not yet accommodated in the RSPs. This is especially true for the agropolitan programme, one of the mainstay programmes of Nagan Raya.
The recommendation to revise the current Nagan Raya spatial plan is based on changes in land use. Purnama (2016) has shown that land use in Nagan Raya has shifted: 24.39% of large plantations have increased, while 64.30% of smallholder plantations have decreased. To optimize the spatial plan development process, the RSPs must refer to the potential of existing resources, in terms of both human and land resource potential (Akbar Maulana, Hairul Basri, & Sugianto, 2018) .
The results of the evaluation of the spatial plans of Nagan Raya indicate that in terms of development dynamics, several programmes have not been accommodated in the existing spatial plans, including agropolitan development. This will affect the structure of the existing space. Therefore, it is necessary to make improvements in the dimensions of ecology, infrastructure and technology and increase the benefits of spatial patterns. Furthermore, concerning the quality of the RSPs, conformity to statutory regulations and the implementation of land use shows that the spatial plans of Nagan Raya must be revised. Revision is very necessary so that the plans are in accordance with existing conditions and that they accommodate the existing development dynamics both in terms of land resource potential and human resources in supporting the agropolitan development of Nagan Raya. Agropolitan development in the Nagan Raya regency cannot be separated from the quality of spatial use, so the agropolitan planning for 22,885 ha of cultivated area must be adjusted to the existing spatial plans. This is because not all cultivation areas can be designated as agropolitan areas.
