Relation Model Between the Central Government and Local
Goverments in Lake Toba Tourism Development Related to the
Implementing Agency of the Lake Toba
Guntur Khayangan Sitompul, Erika Revida, Hatta Ridho and Tengku Irmayani
Master Program of Development Studies, Faculty of Social Science and Political Science,
Universitas Sumatera Utara, Indinosia
Keywords: Relations, Central Government, Local Government, Autonomy, Tourism, Policy, Authority
Abstract: Tourism in Indonesia is still experiencing overlapping authorities both between the central and local
governments, also occurs in the provincial government and district/city governments. Problems that occur
between governments must be resolved properly because tourism in the current government era is a priority.
Meanwhile, the development of tourism destinations has become one of the priority programs of the central
government during the Jokowi administration (2014-2019). One of the government's programs is the
establishment of an area of 10 new tourism destinations called the "10 Balis". The ten new Balis include: Lake
Toba, Tanjung Kelayamg, Tanjung Lesung, Pulau Seribu, Borobudur Temple, Mandalika, Mount Bromo
Tengger, Wakatobi, Labuan Bajo and Morotai. However, with the passage of time, the government. These
tourist destinations still have several problems that need to be addressed by local and central governments
such as not being supported by equitable and adequate development, the absence of modernization of tourist
areas, there are still differences in each region in offering tourism products. Cooperation relations between
the central government and local governments must be formed to be able to develop tourism, this relationship
is in the form of cooperation including through coordination, synchronization, commitment and agreement
and clean governance from both regional and central governments. This study uses qualitative methods,
namely research procedures that prioritize descriptive data in the form of written or oral data, from people
and related institutions that are observed.
1 INTRODUCTION
1.1 Background
There is a post-reform government dynamic with the
establishment of regional autonomy in Indonesia. An
important change to study in this dynamic is the
development of relations between the central and
local governments. The relationship between the
center and the regions in a decentralized government
system is by handing over government affairs based
on broad, real and responsible autonomy (Huda,
2007).
Regional autonomy is the right, authority and
obligation of the region to be able to run, regulate and
manage its own government affairs. Law Number 22
of 1999 concerning the implementation of regional
autonomy which was later amended into Law
Number 32 of 2004 and Law Number 23 of 2014
concerning regional government. After the
implementation of autonomy, the regions are given
autonomous rights by the central government to be
able to regulate and run the wheels of their own
government. In this case, the rights and powers given
are mainly in managing natural wealth and the
economy of their own household (Safitri, 2016).
Indonesia as a unitary state distributes power
based on the relationship between the central and
regional governments which are arranged in a
decentralized and centralized system (Saiman, 2017).
The decentralization system does not mean to break
the relationship between the central government and
local governments. The implementation of this
decentralized system is expected to open up
cooperation between government units.
The relationship between the center and the
regions has long experienced ongoing ups and downs.
The ups and downs that occur are caused by the tug
of war between the central government and local
Sitompul, G., Revida, E., Ridho, H. and Irmayani, T.
Relation Model Between the Central Government and Local Goverments in Lake Toba Tourism Development Related to the Implementing Agency of the Lake Toba.
DOI: 10.5220/0011567700003460
In Proceedings of the 4th International Conference on Social and Political Development (ICOSOP 2022) - Human Security and Agile Government, pages 339-345
ISBN: 978-989-758-618-7; ISSN: 2975-8300
Copyright
c
 2023 by SCITEPRESS – Science and Technology Publications, Lda. Under CC license (CC BY-NC-ND 4.0)
339

governments. The central government has an interest
in the region, not only in the use of resources and
regional exploration but also to control the region so
as not to cause national disintegration and remain part
of the Unitary State of the Republic of Indonesia
(Akbar, 2006).
The division of authority between the central
government and local governments, in the tourism
sector, overlaps between the provincial and
district/city governments. These overlapping
problems must be resolved because tourism has
become a development priority that can contribute to
the growth of Gross Domestic Product (GDP), and
create jobs (Irawan, 2020). The legal basis for
harmonization of authority between the Central
Government and Regional Governments is regulated
in Law No. 10 of 2009 concerning tourism. Article 5f
of the tourism law states that tourism is carried out
with the principle of ensuring integration between
sectors, between regions, between the center and
regions which are one unit within the framework of
regional autonomy and also integration between
stakeholders (bumn.go.id accessed on 24/6). /2022.
At 15.33 WIB).
Meanwhile, Article 6 of the Regional Government
Law stipulates that the Central Government
establishes policies as the basis for carrying out
government affairs. Article 7 of the Act also explains
that the Central Government conducts guidance and
supervision over the implementation of government
affairs by the regions and also determines that the
President has final responsibility for the
administration of government affairs carried out by
the central and regional governments
(peraturan.bpk.go.id Accessed on 24/6/2022 at 16:09
WIB).
To accelerate the development of the Lake Toba
area as a tourist destination, the government
established the Lake Toba Authority Agency. The
organizational structure of the Agency consists of a
Steering Committee led by the Coordinating Minister
for Maritime Affairs and the Implementing Agency
for the Lake Toba Authority led by a director. The
establishment of the Authority Agency aims to
minimize overlapping authorities as stipulated in the
Regulation of the Minister of Tourism concerning the
Lake Toba Authority (Regulation of the Republic of
Indonesia Number 13 of 2016 concerning the
Organization and Work Procedure of the
Implementing Body of the Lake Toba Authority).
Article 24 of the Minister of Tourism stipulates that
in carrying out his duties, the President Director is
obliged to apply the principles of integration,
coordination, and synchronization with the head of
the work unit within the Ministry of Tourism and also
with relevant agencies in accordance with their field
of duty.
The formation of the Authority Body received
mixed reactions. The Regent of North Tapanuli, for
example, is of the opinion that the formation of the
Lake Toba Authority Agency (BODT) is
inappropriate because it will cause overlaps in each
district. The Regent suggested that it would be more
effective to establish tourism zoning in each district
located in the area around the lake (Republika.co.id.
accessed on 24/6/2022. 16:24 WIB). A louder voice
came from the Head of Legal Affairs of the Lake
Toba Lovers Foundation who argued that the
formation of BODT violated the law (Sinar
Keadilan.com. accessed on 26/6/2022. 16:26 WIB).
Meanwhile, the Deputy Chairman of Commission
B of the North Sumatra Regional House of
Representatives (DPRD) is of the opinion that the
formation of the BODT needs to be carried out by
law, not just a Presidential Regulation. The reason is
that BODT will synergize with the provincial
government and seven districts established by law
(Jurnalasia.com accessed on 24/6/2022. 16:29 WIB).
Meanwhile, Member of the House of Representatives
Commission V, Sahat Silaban, suggested that a Lake
Toba Area Development Agency be formed to
replace BPODT. The agency is led by the Head of the
Agency who reports directly to the President so that
he can coordinate regional heads in the Lake Toba
area (Kompas.com. accessed on 24/6/2022. 16:32
WIB).
The view that criticizes the formation of the Lake
Toba Authority Agency is motivated by the
relationship between the center and the regions where
the formation of the Lake Toba Authority is a form of
distrust of the central government to local
governments. The presence of BPODT does not
necessarily answer big issues regarding where to take
tourism policy in North Sumatra, especially in the
Lake Toba area, there is even a thought that this
Authority Agency is a business area for central people
who take advantage of regional potential.
In addition, the tourism culture of the local
community is also in the spotlight. The tourism
culture in the Lake Toba area has not been well
formed, this will become a challenge in the future
because the community is the most important part in
managing tourism in the Lake Toba area. In addition,
other issues such as the economic rights of the
community also surfaced. With the existence of an
authority body, it is an entry point for investors,
especially foreign investors, so that local people seem
to be victims of the activities of this Authority.
ICOSOP 2022 - International Conference on Social and Political Development 4
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Concerns about overlapping authorities between
institutions in Lake Toba also arose because
previously there was an Authority Body, a number of
institutions had existed and were active around Lake
Toba. One of them is the Coordinating Board for
Conservation of the Lake Toba Area Ecosystem or
BKPEKDT which was formed by the Governor of
North Sumatra with Decree N0.062.05/245/K/Year
2002 dated 2 May 2002 (authorita-asahan.go.id).
Article 24 of the Minister of Tourism of the Lake
Toba Authority requires that the main director apply
the principles of coordination, integration and
synchronization with the leadership of work units
within the Ministry of Tourism and with related
agencies according to their field of duty. One of the
duties of the steering board is to synchronize the
policies of ministries/agencies and local governments
regarding the management, development, and
development of the Lake Toba tourism area. The
Implementing Agency for the Lake Toba Authority as
an institution for the development of Lake Toba
tourism is tasked with coordinating ministry
programs in the development of the Lake Toba area.
So that it can be said that BPODT is an extension of
the arm to coordinate ministry programs to
local/city/district governments. (See Presidential
Regulation Number 49 of 2016). Meanwhile, district
governments also have the authority to determine
regional development, formulate long-term and short-
term regional development policies and regional
development plans.
The development and development of the Lake
Toba area itself refers to the master plan for
development and development which is jointly
prepared by the Central Government/Ministry,
Regional Government/Provincial Government, and
Regency/City Government, the private sector in this
case is the tourism industry players and the
surrounding community. a tourist attraction that is
directly affected by the planned development and
construction of the Lake Ttoba tourist attraction. The
master plan that was prepared was named "Integrated
Tourism Masterplan for Lake Toba". (Wulandari, et
al, 2021). The existence of understanding and trust
from the local government, the community and the
private sector will directly affect the performance of
BPODT, one of which is by making breakthroughs in
policy regulations and coordinating infrastructure
improvements.
With a large area, of course there can be obstacles
in the process of developing and developing Lake
Toba. These obstacles include public understanding
of tourism, lack of access to information in the
process of formulating and implementing policies
issued by BPODT. This condition can lead to
conflicts between the Agency and the local
government as well as with indigenous peoples
regarding land disputes.
The community is a great potential in all aspects
of tourism development. Community participation
has an important role in various government policies
and plans, including monitoring and evaluation, as
well as in decision-making processes. This potential
can be realized by providing space for the community
to participate, gather and determine the future.
Be advised that papers in a technically unsuitable
form will be returned for retyping. After returned the
manuscript must be appropriately modified.
1.2 Formulation of The Problem
1. How is the relationship between the central
government and local governments in the
development of the Lake Toba tourism industry
in relation to the Implementing Body of the
Lake Toba Authority?
2. Why is the Implementing Body of the Lake
Toba Authority not yet optimal in implementing
the development of the Lake Toba tourism
industry?
3. What is the relationship model between the
central government and local governments in
the development of the Lake Toba tourism
industry related to the Implementing Body of
the Lake Toba Authority?
1.3 Research Purposes
1. Analyzing the relationship between the central
government and local governments in the
development of the Lake Toba tourism industry
related to the Implementing Body of the Lake
Toba Authority.
2. Analyzing the not yet optimal implementation
of the Lake Toba Authority in developing the
Lake Toba tourism industry.
3. Finding a model of the relationship between the
central government and local governments in
the development of the Lake Toba tourism
industry related to the Lake Toba Authority
Implementing Body.
Relation Model Between the Central Government and Local Goverments in Lake Toba Tourism Development Related to the Implementing
Agency of the Lake Toba
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2 THEORETICAL
FRAMEWORKS
2.1 Regional Autonomy Concept
Decentralization has become a policy choice in many
developing countries. This idea is an instrument that
can form an effective, efficient, responsible and
accountable government which has become a strong
stimulant for countries that implement it. However,
theoretically and empirically decentralization is still
the pros and cons. Some argue that implementing
decentralization can be both positive and negative for
the country that implements it.
The concept of decentralization itself is often
understood partially and not holistically. However,
from a princple point of view, the idea of
decentralization stems from the structure of a
centralist political system. This is due to the centralist
political structure which tends towards
uniformity/centralization of political power in the
hands of the central government, while
decentralization proposes an idea of uniformity of
power and authority between the central and regional
governments (Yakub, 2018).
Various thoughts on regional autonomy indicate
that the policy issue is related to empowerment,
which means giving power and authority to local
communities to take the initiative and make decisions
in managing the interests of the community.
Empowerment will enable local government
institutions and communities to have access not only
to decision-making at the local level but also to have
access to decision-making at the central level related
to the interests of the people and the region. The
urgency of decentralization and regional autonomy in
Indonesia is implemented through a local perspective.
This perspective is in terms of treating diversity,
strengthening unity, protecting national stability,
social harmonization, while maintaining the
relationship between the central and regional
governments equally by advancing development
policies from the periphery to build social justice for
local communities (Yakub, 2018a).
The regional autonomy policy gives very broad
autonomy to regions, especially cities and regencies.
Regional autonomy is implemented in order to restore
the dignity of the people in the regions, provide
opportunities for political education in order to
improve the quality of democracy in the regions,
increase the efficiency of public services in the
regions, and increase the acceleration of
development. in the regions, and in the end the
creation of good governance (Habibi, 2015).
According to Piliang (in Chalid, 2010)
decentralization and regional autonomy are a form of
a system of transferring power in government affairs
and delegating authority to the regions under them. At
the lowest level, autonomy means referring to the
manifestation of the free will inherent in humans as a
gift given by God. Free will can be an attraction for
humans to explore all the potential that exists in
humans and actualize them to the fullest. Starting
from each of these autonomous individuals who then
form a community and become a superior nation.
2.2 Power Relations
Overlapping of authorities, coordination that does not
work at the central and local government levels is a.
One sign of weak coordination and synergy between
governments, between ministries or government
agencies. In order to implement good coordination
and achieve synergies between ministries and
between governments, it is necessary or necessary to
evaluate the intergovernmental authority as well as
policy changes that have resulted in the strategic
service sector not running well.
The government must be run in a transparent,
efficient and responsible manner. In addition, local
governments and local communities are given space
to be able to innovate with choices and governance
tailored to the needs of the region. This condition has
been given to Aceh, DIY, DKI Jakarta and Papua.
Centralization is a model in local governance. As a
model that has a political goal, namely, integration
and legitimacy for a national government. By
implementing decentralization, regions that have
characteristics, religion, ethnicity, ethnicity and
language are factors in the formation of a nation. At
the same time, decentralization can also realize the
desire of the regions to determine the realization of
regional development, both physical development,
community development and the creation of clean
government (Lating, et.all, 2021).
Countries whose existence has been accepted as
an undeniable building sometimes do not exist by the
community. Its existence is realized if its role has
touched every individual and there is a clash between
the individual and the power holder. The presence of
state power in various forms. However, the presence
of the state may also not represent the interests of the
community so that its existence or the presence of the
state may clash with a group of people who call
themselves representatives of the community.
(Triantini, 2019).
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Power, when used as a unit of systematic analysis
of politics, will be a concept with great meaning.
Changed from its unclear and vague nature. In this
study the author uses the theory of power relations
from Michael Foucault and other political thinkers
such as Wright Mills. Michael Faucault describes that
power (power) works without being noticed by the
people around him. While Mills describes human
power is limited by the environment in which they
live (place to live, family, and place of work). The
environment that has pushed humans to do something
without being understood and understood. Power is
described as the drama of the elite sitting in the
decision makers (Uphoff, 1989).
In addition to Wright Mills, Steven Lukes
describes power in theory: the three faces of power”
in his book, Power: A Radical View. This theory
explains that there are three ways of power, namely
first, power in decision making, second, power in
terms of non-decision making, and thirdly ideological
power (Triantini, 2019a).
In contrast to Mills and Luke in describing the
theory of power, Foucault in understanding power
emphasizes that it is not who is in power and where
does power come from, but Foucault sees power as
related to the process of how power operates and in
what way that power is exercised. Focault sees the
patterns of the theory of power as expressed by Weber
which are always evolving and moving dynamically.
Focault explains that the concept of power in modern
society is not sovereign power but disciplinary power.
Disciplinary power is not a concept of power that
is possessed based on authority in controlling others
but power functions in every social, economic,
family, and sexual relationship. The form of power is
not to show between the weak and the strong or the
powerful and powerless, but power is a form of
abstract power in which power operates (Triantini,
2019b). Focault (Kamahi, 2017a) sees that power is
everywhere and emerges from various forces, and the
emergence of power is absolute that humans are not
aware of the arrival of that power, because power is a
strategy and takes place in a place where there are
systems, rules, arrangements. and regulations.
Focault (Kamahi, 2017b) sees that power does not
come from outside but rather the power that
determines the structure, rules and relationships that
arise from within that allow all things to happen
(Triantini, 2019c).
2.3 Formation of the Tourism
Authority Agency in the Era of
Regional Autonomy
At the end of 2015 the Indonesian government
through the Ministry of Tourism of the Republic of
Indonesia (Kemenpar) announced the establishment
of a Tourism Authority Agency (BOP) in all tourism
priority area destinations in Indonesia, starting in
2016. The BOP will later manage destinations outside
Bali because Bali is considered too old. crowded. The
establishment of the BOP is carried out in order to
realize a single destination single management for
each tourist destination. The synergy factor between
the managers of tourist destinations is the main factor
in the formation of this institution. The tourism
minister at that time, Arief Yahya, gave an example
of the Lake Toba tourist area being managed by seven
(7) managers even though the Lake Toba area only
had one infrastructure (Tempo, 2015). Likewise with
the Borobudur Temple tourist area which is a single
destination but managed by so many managers
(Kompas, 2016).
The establishment of the Tourism Authority
Agency is expected to develop and combine natural,
cultural and other entertainment attractions. The
Tourism Authority Board has a steering board and an
executive board, and the funds come from the state
budget, non-binding donations, or from business
earned. In the implementation and results of the
implementation of this Agency, it reports to the
President through the Steering Committee.
Furthermore, this agency consists of the Ministry of
Transportation, the Ministry of Tourism, the Ministry
of PUPR. The infrastructure to be built includes
roads, ports, airports, internet networks. In
infrastructure development, it will cooperate and
coordinate with the Tourism Authority Agency
(Detik, 2015).
The establishment of the Tourism Authority
Agency is a breakthrough made by the central
government because the establishment of this Agency
is not a mandate from Law No. 10 of 2009 concerning
Tourism. The establishment of an Authority Agency
is planned for ten (10) destinations, but so far only
three (3) have been successfully established, namely
the Lake Toba area in North Sumatra, the Borobudur
area in Central Java and Labuan Bajo in East Nusa
Tenggara.
The tourism sector is a sector that has an
important role for the sustainability of the Indonesian
economy, both for the central government and for
local governments. If the tourism sector can be
managed properly and correctly, the development of
Relation Model Between the Central Government and Local Goverments in Lake Toba Tourism Development Related to the Implementing
Agency of the Lake Toba
343

the tourism sector can act as one of the industries that
creates prosperity through the development of
transportation, accommodation and communication
which creates relatively large job opportunities
(Wardani and Nasution, 2019). The national
development program that has been established by the
central government through Presidential Regulation
of the Republic of Indonesia No.25/201 (Presidential
Regulation) is the basis of policy for the management
and development of tourist areas in Indonesia,
including the Lake Toba tourism area. The
development of this area is even more significant
after being designated as the Toba Caldera UNESCO
Global Geopark. With this determination, Lake Toba
has been recognized worldwide as a tourist area and
a place for research on local wisdom. But on the other
hand, with the determination being a challenge in
itself to maintain the determination, it will be
evaluated every four (4) years.
The Lake Toba tourist area is an example of a
tourist area that relies on the tourism sector as a
source of regional income. The existence of Lake
Toba with its natural beauty makes the surrounding
area a priority object and tourist attraction (ODTW)
in North Sumatra. The Lake Toba area has been
designated by the Central Government as a National
Tourism Destination (DPN) and as a Leading
Tourism Destination (DPU). The central government
also established the Lake Toba Area (KDT) as a
National Strategic Area (KSN) in the tourism sector.
In carrying out the development of the Lake Toba
area, special handling is needed in the form of special
arrangements to unify the implementation of area
management authority in order to accelerate
development so that the government deems it
necessary to form the Lake Toba BOP (Lake Toba
Tourism Area Management Authority). On June 1,
2016 President Joko Widodo signed Presidential
Regulation Number 49 of 2016 concerning the Lake
Toba Tourism Area Management Authority. In the
Presidential Decree, the Authority for the Lake Toba
Tourism Area is set to be under and responsible to the
President (Wardani and Nasution, 2019a).
In order to accelerate the development of tourism
areas in Lake Toba, the government stated that the
Lake Toba tourism project will preserve nature and
make a positive contribution to the economic
development of local communities and the province.
The Coordinating Ministry for Maritime Affairs has
formed a “Quick Win” oriented team in accelerating
the development of the Lake Toba area. All parties
are involved such as the community, and the private
sector uses partnership investment. Thame park is
planned to be built in the Lake Toba area in order to
provide economic benefits for the local community.
This team works in parallel to support the Lake Toba
Tourism Authority, which has already been present in
a number of these destinations (Kompas, 2021).
Presidential Regulation No. 49/2016, authorizes
BOPDT to take all actions including coordinating
with cross-ministerial in accelerating the realization
of Lake Toba tourism. In addition, based on the
Presidential Decree, BOPDT is also given a
management area of 500 hectares and forest areas can
be converted into non-forest area status through
BOPDT in coordination with the Ministry of
Environment and Forestry (KLHK) and Regional
Governments (See Presidential Regulation No. 49 of
2016).
The policy also allows land acquisition from
third parties (non-state land) to be able to develop
Lake Toba by providing compensation in accordance
with statutory regulations (PP, No. 49 YEAR 2016,
Chapter V Article 24). Structurally, BOPDT is under
the Ministry of Tourism and Creative Economy
which has the task of coordinating, synchronizing,
and planning, developing, developing and controlling
facilities in the Lake Toba tourist area (PP No. 49.
Year 2016. Chapter III Article 14).
3 METHODS
This study uses qualitative methods, namely research
procedures that prioritize descriptive data in the form
of written or oral data, from people and related
institutions being observed (Maleong, 2006).
Creswell (2015) states that the qualitative method was
chosen because this study emphasizes the process, not
the result. Meanwhile, Bogdan and Taylor (in
Maleong, 1992) say that qualitative research is a
research procedure that produces descriptive data in
the form of written or spoken words from people and
observed behavior from phenomena that occur. This
is in order to provide an in-depth picture of the
relationship between the Central Government and the
Regional Government regarding the Implementing
Body of the Lake Toba Authority.
4 CONCLUSIONS
BPODT can be regarded as an extension of the central
government in the regions. The condition of the
relationship between the central government and
local governments with the existence of BPODT also
raises pros and cons. There are those who support the
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existence of BPODT and there are those who reject it.
The disharmony between the center and the regions
can be seen from the overlapping authority, the large
role of the central government and the minimal role
of local governments, especially regencies/cities,
creating a gap between the center and the regions. The
discussion of central and regional relations related to
BPODT will be explained using the concept of
regional autonomy and the theory of power relations,
so it is hoped that this research will obtain an
appropriate model of relations between the central
and regional governments regarding the existence of
BPODT.
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