PROSES PENATAAN RUANGPROSES PENATAAN RUANG

• Penataan Ruang bukan hanya Proses Perencanaa Teknis, akan tetapi sangat erat

kaitannya dengan :

• sistem politik

• sistem masyarakat (communities)

• sistem manajemen kota

PENATAAN

RUANG

SISTEM

POLITIK

SISTEM

MASYARAKAT

SISTEM

MANAJEMEN

KOTA

22 MODEL HIERARKHISMODEL HIERARKHIS

MAKRO

NASIONAL

REGIONALStrategic

MAKRO

MIKRO

LOKAL

ALOKASI

SUMBER DAYA

IMPLEMENTASI

Actionoperational

33 pendekatanpendekatan

TOP DOWNTOP DOWNTOP DOWNTOP DOWN

• NEO CLASSICAL ECONOMICS• STRUCTURAL-FUNCTIONALISM

• NORMATIVE

• RATIONAL COMPREHENSIVE

•The Third Way

BOTTOM UPBOTTOM UPBOTTOM UPBOTTOM UP

• NEO MARXISM

• PARTICIPATORY

• PRAGMATISM

• INCREMENTALISM

• ACTION PLANNING

•The Third Way•Institutional Economics

•Mixed Scanning•Area Management ??

44 pengendalianpengendalian

SISTEM PERENCANAAN

ZONINGZONINGZONINGZONING PLANNINGPLANNINGPLANNINGPLANNING

PERMISSIONPERMISSIONPERMISSIONPERMISSION

FORFORFORFOR

DEVELOPMENTDEVELOPMENTDEVELOPMENTDEVELOPMENTKOORDINASI

55 wawasan lingkunganwawasan lingkungan

Pengembang

Kebijaksanaan

Nasional

Pengembang

ENVIRONMENT

PRESSURE

GROUPS

PEMERINTAH DAERAH

Beberapa Kritik Pendekatan “tradisional” dalam

Perencanaan Kota

Pendekatan “Tradisional” di dalam Perencanaan Kota yang khas adalah: menyiapkan rencana jangka panjang ditetapkan sebagai dokumen resmi (berstatus hukum).

Dokumen tsb.kemudian dijadikan: landasan investasi pembangunanDokumen tsb.kemudian dijadikan: landasan investasi pembangunan

prasarana & sarana; dan pengaturan dan pengendalian penggunaan dan pemanfaatan lahan yang lebih rinci

Pendekatan tsb. diterapkan dengan baik di beberapa negara OECD yang kondisi perkotaannya mempunyai karakteristik: pertumbuhan yang lambat, tingkat pendapatan rata2 yang tinggi, peraturan dan “enforcement” prosedur yang efektif di dalam penggunaan /peman-faatan lahan. Namun demikian .... Pendekatan ini “diexport” ke negara berkembang.

KELEMAHANKELEMAHAN•• terlalu statis dalam penanganan / terlalu statis dalam penanganan /

perizinan & penyesuaian thd perperizinan & penyesuaian thd per--

kembangan perkotaan yang cepat. kembangan perkotaan yang cepat.

•• terlalu rumit, detail dan memakan terlalu rumit, detail dan memakan

waktu,waktu,

•• lebih ditentukan oleh para elit lebih ditentukan oleh para elit

ketimbang masyarakat luas.ketimbang masyarakat luas.

•• kurang memperhatikan implikasi kurang memperhatikan implikasi

pembiayaanpembiayaan

•• kurang koordinasi dalam strategi kurang koordinasi dalam strategi

pembangunan sektoral, sosial pembangunan sektoral, sosial

ekonomi dan pembiayaanekonomi dan pembiayaan

•• pendekatan 2 dimensi dipandang pendekatan 2 dimensi dipandang ketimbang masyarakat luas.ketimbang masyarakat luas.

•• peraturan & pengendalian tata guna peraturan & pengendalian tata guna

lahan yang kurang memadai.lahan yang kurang memadai.

•• keterbatasan institusional dalam sektor keterbatasan institusional dalam sektor

publik karena kewenangan yang publik karena kewenangan yang

sangat sentralistis dan pertentangan sangat sentralistis dan pertentangan

sektor pemerintah dan swasta sektor pemerintah dan swasta

•• pendekatan 2 dimensi dipandang pendekatan 2 dimensi dipandang

sebagai akhir proses, ketimbang sebagai akhir proses, ketimbang

memandang sebagai suatu memandang sebagai suatu

komponen dalam manajamen di komponen dalam manajamen di

kawasan perkotaankawasan perkotaan

•• KetidakKetidak--pastian hubungan antara pastian hubungan antara

pembangunan tata ruang dengan pembangunan tata ruang dengan

perencanaan ekonomi.perencanaan ekonomi.

Paradigma Baru Perencanaan KotaParadigma Baru Perencanaan Kota(Habitat, 1994)(Habitat, 1994)

•• Community ParticipationCommunity Participation

•• Involvement of all interest groupInvolvement of all interest group•• Involvement of all interest groupInvolvement of all interest group

•• SustainabilitySustainability

•• Financial feasibilityFinancial feasibility

•• SubsidiaritySubsidiarity

•• Interaction of physical and economic planningInteraction of physical and economic planning

Planning is:Planning is:

•• action researchaction research

•• knowledge drivenknowledge driven

•• both process and techniques orientedboth process and techniques oriented•• both process and techniques orientedboth process and techniques oriented

•• interdisciplinaryinterdisciplinary

•• adaptive to emerging concernsadaptive to emerging concerns

John FriedmanJohn Friedman

PlanningPlanning

attempts toattempts to

link betweenlink between

Actions in public Actions in public

domaindomain

Processes of societal Processes of societal link betweenlink between

scientific &scientific &

technicaltechnical

kowledgekowledge

Processes of societal Processes of societal

guidanceguidance

Processes of social Processes of social

transformationtransformation

Lewis KeebleLewis Keeble•• human territorialityhuman territoriality

•• the promotion of accessibilitythe promotion of accessibility

•• good appearancegood appearance

•• allocation of sufficient space for all urban needallocation of sufficient space for all urban need•• allocation of sufficient space for all urban needallocation of sufficient space for all urban need

•• allowance for the effects of topographyallowance for the effects of topography

on urban formon urban form

•• the separation of incompatible usesthe separation of incompatible uses

•• the promotion of true economy the promotion of true economy

in urban development in urban development

Agenda for the 1990’sAgenda for the 1990’s•• Alleviate urban povertyAlleviate urban poverty, by promoting income-generation

activities and transforming the role of informal sector.

•• Promote enabling and participatory strategy, Promote enabling and participatory strategy, for the

provision of urban infrastructure and affordable shelter.

•• Promote the protection and regeneration of the urban Promote the protection and regeneration of the urban

Berdasarkan Human Development Report 1991, ada 5 issues yang perlu

mendapat prioritas untuk diperhatikaan, y.i.:

•• Promote the protection and regeneration of the urban Promote the protection and regeneration of the urban

physical environment, physical environment, especially in low-income settlement

•• Improve Urban ManagementImprove Urban Management, including expansion of local-

governments’ revenue raising capacity and decentralize authority and

responsibility for urban development from central government agencies and

ministries to local governments and NGOs.

•• Full complement of human energy in cities. Full complement of human energy in cities. This means

wider recognition of the role of women and full government collaboration

with the private and voluntary organization.

UN Centre for Human Settlements UN Centre for Human Settlements

(HABITAT)(HABITAT)

•• Providing adequate shelter for allProviding adequate shelter for all

•• Improving Human Settlement ManagementImproving Human Settlement Management

•• Promoting effective land resources managementPromoting effective land resources management

•• Promoting the integrated provisions of environmental Promoting the integrated provisions of environmental

infrastructure: water, sanitation, drainage and solid infrastructure: water, sanitation, drainage and solid infrastructure: water, sanitation, drainage and solid infrastructure: water, sanitation, drainage and solid

waste managementwaste management

•• Promoting sustainable energy & transport system in Promoting sustainable energy & transport system in

human settlementhuman settlement

•• Promoting human settlements planning & management Promoting human settlements planning & management

in disasterin disaster--prone areas.prone areas.

•• Promoting human resources development & capacity Promoting human resources development & capacity

building for human settlement development.building for human settlement development.

UNICEFUNICEF

•• Community basedCommunity based

•• administratively administratively

feasiblefeasible

•• Replicable in a variety Replicable in a variety

of setting and capable of setting and capable

adaptationadaptation

•• sustainablesustainable•• innovativeinnovative

•• lowlow--costcost

•• cost effectivecost effective

•• environment friendlyenvironment friendly

•• sustainablesustainable

•• implementable on a implementable on a

scale that reflects the scale that reflects the

full scope of low full scope of low

income urban income urban

population population

7 pillars of new conventional wisdom7 pillars of new conventional wisdom

in Managing Large Cities in Developing Countriesin Managing Large Cities in Developing Countries

( Hoshino in Douglas Webster, 1994:( Hoshino in Douglas Webster, 1994:

“THE NEW INTERNATIONALIST URBAN POLICY APPROACH” )“THE NEW INTERNATIONALIST URBAN POLICY APPROACH” )

•• DecisionDecision--making power, financial resources (preferably through making power, financial resources (preferably through

local revenue generation), and technical capability should local revenue generation), and technical capability should

decentralized to urban government.decentralized to urban government.

•• Planning and development controls should guide the development of Planning and development controls should guide the development of

cities.cities.

•• Within reasonable limits, urban infrastructure and service Within reasonable limits, urban infrastructure and service •• Within reasonable limits, urban infrastructure and service Within reasonable limits, urban infrastructure and service

provision should be privatized.provision should be privatized.

•• Urban planning and management authority should cover the Urban planning and management authority should cover the

extended urbanized area.extended urbanized area.

•• Many urban improvements are best rooted in the neighbourhood Many urban improvements are best rooted in the neighbourhood

communitycommunity

•• “Projectizing”Cities will not solve the system“Projectizing”Cities will not solve the system--wide problem facing wide problem facing

city regioncity region

•• Cities are not built by government but by the private sectorCities are not built by government but by the private sector

The NeoThe Neo--classical Economics approachclassical Economics approach

the urban development phenomena would be put right by

normal equilibrating market forces

(Bovaird, 1993).

• focus on decision of Consumers and Producers within a

given context

3 Pendekatan di dalam Pembangunan Perkotaan3 Pendekatan di dalam Pembangunan Perkotaan

given context

•• each persons seek an optimum situation to satisfy his needs, each persons seek an optimum situation to satisfy his needs,

given certain budget given certain budget

• decisions of persons can affect spatial structure

• central to this theory is the assumption that competition on

urban arena will always lead to an equilibrium on urban

land market.

PermasalahanPermasalahan

Market failure

• eksternalitas

• pasar tidak mampu memproduksi

public good

• informasi yang asimetris

• monopoli

Government intervention:

policy tools/instrument

• taxation/subsidies

• planning controls

• provision of information

• legal & administrative

controls

• government involvement

in development

• macro-economic tools, i.e.

Monetary, fiscal and other

policy instrument

•Planning is often too negative in its approach

•The Planning process is highly bureaucratic

and slow

•Planning guidelines are sometimes too broad

and lack sufficient flexibility to accommodate

individual cases with individual circumstance

•Planners sometimes neglect the

distributional impacts of planning decision

The Marxist approachThe Marxist approach

Much less concerned with or useful

in explaining some of the specific

patterns and trendspatterns and trends

that have emerged from

disequilibrating processes. (Bovaird,

1993).

The Institutional analysisThe Institutional analysis

• concentrates on the conditioning of decision by

institutional arrangements, regulation and the

influence of power on the functioning of markets

(van der Krabben and Lamboy, 1993).(van der Krabben and Lamboy, 1993).

• the institutional approach is the best approach to

understanding process of urban spatial structuring,

Healey (1992) and van der Krabben and Lamboy

(1993)

conflict

•• ideological differences ( ID )ideological differences ( ID )

•• differences over practical policy ( PP)differences over practical policy ( PP)•• differences over practical policy ( PP)differences over practical policy ( PP)

•• issues about boundaries of responsibility ( BR )issues about boundaries of responsibility ( BR )

•• vested interested ( VI ) of individuals (or vested interested ( VI ) of individuals (or

organization)organization)

Major areas of Major areas of potential conflictpotential conflict

Between politicians

Administrators / professionals

Between administrators

Between professionals

Politicans/administrators

PPPP

yes

yes

yes

yes

yes

BRBR

yesyes

yesyes

yesyes

yes

IDID

yes

yes

VIVI

yes

yes

Between professionals

External consultants / internals

Between departments

Central government / local government

Statutory body / voluntary body

Donor agency / national government

Public authority / community

Within communities

yes

yes

yes

yes

yes

yes

yes

yesyes

yesyes

yesyes

yesyes

yes

yes

yes

yes

yes

yes

yes

yes

yes

yes

yes

A range of instruments potentially available A range of instruments potentially available

to the urban planner/managerto the urban planner/manager

•• public ownershippublic ownership of landof land (including open-market land acquisition,

compulsory acquisition, land nationalisation)

•• legal regulationlegal regulation of private land ownership/tenure

•• legal power to control private use and development of landlegal power to control private use and development of land

•• legal powers and fiscal penalties to control public nuisancelegal powers and fiscal penalties to control public nuisance (pollution

and so on)

•• legal controllegal control over vehicles and transportation

Regulatory Regulatory

mechanismmechanism

Fiscal Fiscal •• government provision of infrastructuregovernment provision of infrastructure

•• government construction of housinggovernment construction of housing

•• government construction of other public servicesgovernment construction of other public services (water, refuse

collection, transport, etc) or the contracting of these services from the contracting of these services from

other agencies/private sectorother agencies/private sector. .

•• regulation of private provision of public servicesregulation of private provision of public services (transport,

commercial activities, etc.)

•• taxation of land and land developmenttaxation of land and land development

•• recovery of the costs of public services from beneficiariesrecovery of the costs of public services from beneficiaries

•• subsidies for public or private provision of public servicessubsidies for public or private provision of public services

Fiscal Fiscal

mechanisms mechanisms

(taxation & (taxation &

subsidies)subsidies)

Direct public Direct public

ownershipownership

/provision/provision

Indication MatrixIndication Matrix

of instruments for urban planner/managerof instruments for urban planner/manager

MECHANISMSMECHANISMS

ELEMENTSELEMENTS

land

use

public

services

infra-

structure

Regulatory mechanismRegulatory mechanism

Fiscal mechanisms Fiscal mechanisms

(taxation & subsidies(taxation & subsidies))

Direct public ownershipDirect public ownership

/provision/provision

Conventional

mechanism

Less common

methods

Conventional

mechanism

Less common

methods

Conventional

mechanism

Conventional

mechanism

Conventional

mechanism

Less common

methods

Pengertian & Pemahaman (1)

Stren (1993) :” while comparative and conceptual work

has taken place, the overall concept of urban

management has not been addressed head on. Is it an

objective, a process, or a structure ?”objective, a process, or a structure ?”

Mattingley Mattingley Mattingley Mattingley (1994) “ a clearer views of meaning &

substance is required”

Werna Werna Werna Werna (1995): “the concept of urban management is elusive”

Pengertian & Pemahaman (6)

Richardson (1993) presents 3 tests of urban

management success:

“The ability of metropolitan managers to implement a declared

spatial strategy may be regarded as a reasonable test of managerial

efficiency”

“Another effectiveness of metropolitan management in cities of “Another effectiveness of metropolitan management in cities of

developing countries is the ability to deliver basic urban services

and trunk infrastructure to a rapidly growing urban population”

“The other key managerial problem with urban service delivery is

the simple one of operations and maintenance”.

:Pengertian & Pemahaman (8)

McGill (1998) menyimpulkan bahwa parameter awal dalam

UM ada tiga topik

“apakah penyaluran sumberdaya itu hanya merupakan fungsi pemerintah

atau merupakan perkara yang menjadi tanggung-jawab bersama bagi

semua pelaku pembangunan kota? Siapa dan apa yang harus menjadi

driving force UM?”

“adanya dimensi institusi sehubungan dengan organisasi: pemikiran

sektoral vs antar-sektoral. Apakah ada cara untuk menjamin

institutional complexity to match the urban complexity ”

“adanya kontradiksi yang nyata antara kepentingan strategik dan

vitalitas operasional. UM membutuhkan keterpaduan. Bagaimana

keduanya dapat dipertautkan? ”.

synthesis

•• becoming becoming facilitators and negotiatorsfacilitators and negotiators among diverse and often among diverse and often

competing interests in the public sector, private sector and the competing interests in the public sector, private sector and the

nonprofit sector nonprofit sector

•• learning about learning about land policy, real estate economics, and the land policy, real estate economics, and the

BLENDING OF PLANNING & MANAGEMENT BLENDING OF PLANNING & MANAGEMENT

•• learning about learning about land policy, real estate economics, and the land policy, real estate economics, and the

consequences of development decisionsconsequences of development decisions

•• concerned with concerned with regulatory powersregulatory powers, and are working with , and are working with

consultants,consultants, conducting meeting and hearingconducting meeting and hearing, , working with working with

developersdevelopers, , managing informationmanaging information, , negotiating real estate negotiating real estate

developmentsdevelopments, and linking budgeting with planning, and linking budgeting with planning

•• concerned with the concerned with the local economy and with policy analysislocal economy and with policy analysis, ,

social expectationssocial expectations, and , and economic developmenteconomic development..

Changing nature of urban management

•• Policy & program innovationPolicy & program innovation

•• Policy & program implementationPolicy & program implementation

•• Organization development and changeOrganization development and change

•• Organization leadershipOrganization leadership•• Organization leadershipOrganization leadership

•• New skillsNew skills

•• Brokerage/negotiationBrokerage/negotiation

•• CommunicationCommunication

•• Empathy with elected officialsEmpathy with elected officials

•• Citizen participationCitizen participation

•• TelecommunicationTelecommunication

Common elements of innovations

G. Shabbir CheemaG. Shabbir Cheema

•• involvement of civic societyinvolvement of civic society

•• institutional developmentinstitutional development•• institutional developmentinstitutional development

•• participatory approachesparticipatory approaches

•• finding entry pointsfinding entry points

•• appropriate technology choicesappropriate technology choices

•• resultresult--oriented approachesoriented approaches

involvement of civic society

The urban environment

affects all people in a cross-sectorial manner

and should be improved through institutional

interfacing between interfacing between

• government,

• the private sector,

• non governmental organizations,

• community-based organizations,

• trade unions,

• the scientific academic society, and others.

institutional development

The development of a technical and legal/enforcement

framework for implementing urban practices

is made possible through proper institutions

for planning, for planning,

developing,

implementing,

monitoring, and

evaluating activities.

• Capacity building is a fundamental component of

institutional development.

participatory approaches

Participatory approaches,

when balanced with representation structures,

are key element

in improving the decision- making process in improving the decision- making process

toward effective urban management.

The issue is not to adopt either

a bottom-up or a top-down methodology,

but to keep both of these in mind

depending on the scale of activities.

finding entry points

All elements of the natural resource base and

human-made interventions in any given urban area

are interconnected.

However, the analytical integration of problems However, the analytical integration of problems

tends to lead to paralysis.

Effective urban management practices should find

entry points that are acceptable

to people and their representatives.

To ensure complementarity,

entry points should be identified using a holistic view

appropriate technology choices

Affordability,

user-friendliness,

and a balance between labor-intensive versus capital,

ease of operation and maintenance,ease of operation and maintenance,

demand-driven approaches,

and capacity-building opportunities

are some of elements that should be considered

when undertaking technology choices for

urban infrastructure and services.

result-oriented approaches

The ultimate criterion for evaluating urban management

is its impact on people’s lives.

The production of action plans,

urban assessments,urban assessments,

institutional improvement,

and community mobilization exercise

are means for achieving people-centered end results.

Innovative practices can only be considered real practices

when they actually generate an improvement in

people’s living conditions.

Improving standards of living

The diversion of a proportion of re-sources

out of current consumption and into

investment in order to in-crease

potential.

• Wherever possible there needs to be

In practical terms, the criterion of

economic efficiency implies:

• resources should be employed in the

most productive and cost effective

• impact of public interventions should be

maximized while the costs, both direct

and indirect, of those interventions

should be minimized.

• that the pricing of both inputs and output

A principal goal to improve the standard of living of

its members as a whole, through an increase in the

production of goods and services.

• Wherever possible there needs to be

effective competition between pro-

ducers, and real choice of goods and

services for consumers.

• Resources should be used in the most

economically efficient possible.

• that the pricing of both inputs and output

should reflect the true value of those

resources to society ( i.e. ‘opportunity

costs’). So that the choices made by

consumers reflect the true costs of the

resources used

The goal of improving living standards raises fundamental questions about the

distribution of costs and benefits involved in this process, and the sustainability of

ever higher standards of living