Journal of Indonesian Tourism and E-ISSN : 2338-1647 Development Studies http://jitode.ub.ac.id

Culture Development Planning in the Special Region of (Management Planning of Cultural Heritage in District based on Community Empowerment Conservation Model)

Eko Suryanti1,2*, Sumartono3, Hermawan3

1Master Program of Public Administration, Faculty of Administrative Sciences, University of Brawijaya, Malang 2Department of Regional Development Planning, Yogyakarta 3Graduate Program, Faculty of Administratives Sciences, University of Brawijaya, Malang

Abstract The Special Region of Yogyakarta is a cultural rich city with excellent cultural resources. Yogyakarta should manage their assets with long-term planning to keep the sustainability. There is a very unique planning process due to a combination of political, technocratic, participatory, top down and bottom up approaches. This planning process is comprehensive or integrated because its involved many actor from multisectoral, multidisciplinary, multi regulatory, and multi planning documents, etc. Local wisdoms have been coloring the planning documents. This study describe and analyze the cultural development planning in Yogyakarta especially on the Management Planning in Kotagede Cultural Heritage District. We used qualitative descriptive approach methods and Miles and Huberman analysis methods. Participation of community and Non Governmental Organization (NGO) in conservation planning of cultural heritage in this area is very significant in simplify the government task because people have been more literate in planning, have database of cultural assets, and capable of making their own decisions for the future of the region. Participatory rural appraisal (PRA) dan Rapid Rural Appraisal (RRA) were integrated in the planning process of Kotagede Heritage District management, thus it becomes a model of cultural heritage with community empowerment-based conservation.

Keywords: culture development planning, comprehensive planning, heritage cultural district, community empowerment-based conservation.

INTRODUCTION local community will face problems, due to the Recent day’s people should be in the circlet of lack of attention to the social-cultural dimension changes in all sectors triggered by globalization, that became public behavior frame of the modernization, urbanization, industrialization/ community [5]. capitalization. The changes have brought accul- Culture contribute to the achievement of turation and dependence that was not sustainable development with environmental synchronized with the cultural resistance, thus it conservation; improving income of community as narrows the national identity [1]. The impact of embodied in the Millenium Development Goals. were eviction, over-functioned, and demolition Culture industry has undoubtedly become a of historic building in the city and it’s very public need and affect the economic growth and conspicuous in capitalist industrialized countries quality of life. Cultural industries provide a [2,3]. creative space for the public, to protect and A strategy for cultural resources conservation preserve the cultural diversity, employment, and was proposed to face the process of changes on increasing national or regional revenue [6, 7]. cultural sector in the planning documents. It was Some countries have efforts to protect their expected to ensure a comprehensive and coor- old buildings, e.g. Australia, Japan (Kyoto and dinated approach from the concept of national Nara), Korea, England, France, and Italy. Thus the policies to the implementation and its follow-up settings of building permits are very strict and [4]. Culture should be included in the the facade suitability is carefully concerned. On development strategy thus the cultural assets the contrary, this is not strictly applicable in can be saved and used in the regional [4]. development. Development that ignores the During this time, the culture and civilization wisdom of traditions and cultural values of the problem is less of concern, however, we should consider that no civilization means no nation. As  Correspondence address: a result, the evolution of society is dominated by Eko Suryanti external forces instead of internal motivation and Email : [email protected] spiritual aspirations. It makes communities to be Address : Master Program of Public Administration, Faculty of Administrative Science, University of Brawijaya, isolated [5]. Sometimes areas of cultural Jl. Mayjen Haryono 163 Malang 65145

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conservation were neglected due to physical and domain of cultural institution, but also other economic development [8]. sectors in a network [3,12]. The government's Culture-based approach is an oldest approach inability to control the activities performed in model and predominantly used in the planning different levels of government and private sector process of nation development. The cultural will complicate the efforts to conserve the approach in development should be interpreted protected areas. Involving the community in the not as a means of social engineering, but phase of planning, implementation and primarily to find sources of strength in the local monitoring will ensure the sustainability of culture [5]. programs and activities that have been planned Some efforts proposed for recognizing the by the stakeholders because they are entrusted importance of cultural assets in the Special [13,14]. Region of Yogyakarta. The conservation efforts Development planning is influenced by three have been made through the protection and the factors: 1) the ability of local governments to rescue from destruction, monuments extinction, fund the development plan, 2) community buildings, also its surroundings and prevent it involvement in the development process, 3) the from further danger. Conservation is also an commitment on the results of the development attempt to maintain the existence of historical and planned development targets [15]. and archaeological heritage with its values The approach of 'down to earth' and people through management that includes protection, as center of development is strongly appropriate development and utilization. Management is also to meet the needs of cultural heritage pursued by the way of planning, implementation conservation and needs of the political, social and evaluation on an ongoing basis. Protection and economic development [10]. requires rescue acts, zoning, maintenance and restoration (consolidation, conservation, rehab- Cultural Heritage in Yogyakarta ilitation, reconstruction, renovation) [9,10]. Integrated planning in the Special Region of The objectives of the study are : 1) identify Yogyakarta must consider that Yogyakarta is a and describe the planning process of cultural cultural city with excellent cultural prehistory development especially the management resources, e.g. Ancient Mataram, Islamic planning of Kotagede cultural heritage district; 2) Mataram, Yogyakarta Palace, and contemporary identify and describe the accomodated aspects in culture, that designed to be the cultural center. the planning documents; 3) construct the cultural Yogyakarta have origin history in Kotagede, as heritage conservation planning model which the capital of Islamic Mataram Kingdom for the based on the community empowerment. first time of its establishment. Kotagede is rich with cultural resources such as King Thombs, Management of Heritage Area Mosques, Traditional Houses, Silver Handycraft, The management of a heritage area is highly Tolerance Alley, Traditional Market, Moat, city vulnerable and face a severe global scale wall, city square, granary, etc [16,25]. changes, thus the planning of regional develop- Depreciation on the cultural heritage of ment should be culture-based to be significant in Kotagede Heritage District continues to occur the development of the area. Socio-cultural due to various causes, e.g. incomprehension, changes without the support of a superior unwillingness and inability to maintain the planning which considering the aspects of inheritance; incorrect maintenance actions, lack internal, social and economic growth leading to of sinergy in cross sectoral development, weak greater resilience of culture and prosperity in the law enforcement on natural processes. An area of cultural heritage. The efforts of regional example is earthquake in May 27th, 2006 that development should be conducted in a more destroyed the heritage building, thus need a long effective and efficient way by combining the time restoration planning. Moreover, the regional and sectoral aspects to be successful. problem become more complex related to the Revitalization of cultural heritage area can be infrastructure, traffict, handycraft industry, pursued in an integrated development model tourism, art, multi-actors, regulation enforce- [11,12]. Integrated management of cultural ment, relationship scenario, and the shrinkage of heritage area will prevent intervention inaccu- tangible and intangible heritage [10,17]. racies [4]. Kotagede is not the only target of It should be understood by all stakeholders government institution. Not all resources have that the cultural management plan is not just the the same level on the understanding and

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awareness towards the concept and planning of planning, regulation, books, letters, reports, etc. culture, especially Kotagede. Planning We observed some events like festival, performance is still weak, specifically in the discussions, cultural dialogues, data entry to competence of human resources, updating and www.jogjaplan.com, and priority selecting forum. validity data and information, coordination and Analysis methods used interactive model of syncronization amongs systems, establishment Miles and Huberman. The research phases are regulations, concepts understanding on data collection, data reduction, data presenta- conservation and planning, which is often partial tion, drawing and testing conclusions. Test of or overlapping [18]. data validity using the technique of credibility, transferability, auditability (dipendability), con- Theory on Regional Planning firmability and triangulation [24]. The regional planning is a process of determination phases to manage the region’s RESULTS AND DISCUSSION resources for people welfare. It comprises of Cultural Resources of Yogyakarta data and information processing, analysis of Special Region of Yogyakarta as a special existing condition and problems, plan’s frame province in Indonesia is a Kingdom, that Dutch and budgeting, policy, sectoral planning, named it as Vorstenlanden and Japan called it as government function distribution, regional plan, Kooti. It is located between Mount Merapi and work plan (program, activities, budgeting), South Coast of Central , which is believed to stabilization of policy, communication of actors, laid on the imaginary axis between Merapi to controlling and evaluation, implementation South Coast. The assosiative cultural landscape of review, and estimation. Development planning this region were the result of creativity, taste, use multiple approaches, i.e. technocratic, intention, and the work of the ancestors in participatory, political, top down and bottom-up prehistoric times, ancient Mataram, Islamic [19, 20, 21, 22]. Mataram, Colonial Dutch and contemporary Planning is a part of modern public manage- product. Yogyakarta’s culture contains a lot of ment. There are seven function of public mana- value of struggle/heroism, cultural heritage, gement, i.e. planning, organizing, staffing, leadership/governance, livelihood, language, spa- directing, coordinating, reporting, and budgeting tial planning and architecture, art, technology, [23]. customs and traditions [25,26,27]. Special Region of Yogyakarta originated from MATERIALS AND METHODS Islamic Mataram with first capital in Kotagede, This research is descriptive qualitative with thus Kotagede has strategic value for realizing focus on the planning process of cultural the renaissance and functioned as cultural development in Special Region of Yogyakarta, center. Kotagede located at 6 km southeast of especially management planning of Kotagede the province’s capital city, situated between cultural heritage district. The aspects were Gajah Wong River and Manggisan River, in two accomodated by the planning documents, the administration planning area, Bantul cultural heritage conservation model based on and Yogyakarta City [16, 28]. community empowerment. Site of research is in Kotagede is not administrative nomenclature, Kotagede Cultural Heritage District, Special but it is a cultural entity that consisted of five Region of Yogyakarta. villages, i.e. Purbayan, Prenggan, Rejowinangun, Jagalan and Singosaren. Kotagede designated as Data Collection and Analysis a heritage area within the provincial authority by Data sourced from the informant, events and the Governor Decision No. 186/2011, due to the documents through in-depth interviews, policy gaps between Kota Gede under the Bantul observation and technical documentation. In- Regency and Yogyakarta City [28]. depth interviews were conducted to the Kota Gede initial character is the center of planners, implementors, supervisors and evalua- governance, economic, social, and religious tors regards to the infrastructure, culture, cross- activities with royal city planning. It was sectoral aspects. The respondents were come characterized by four unity components, which is from government, NGO, community, academic, identical to catur gatra tunggal that normally and culturalist. Documentation were taken from exist in the centers of Islamic empire in the 16th some documents regards to Special Region of Century. It consisted of Palace, Square, Mosque Yogyakarta and Kotagede, such as regional and Market as relationship symbol with God,

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universe, and people of the world [16,17,28]. The developed communities’ income. It is because following is the cultural resources in Kota Gede the cultural heritage related with the creative today (Table 1 and Fig. 1). industry that produce many benefits for the state and nation [30]. Table 1. Cultural Resources Based on Spacial Character Cultural heritage is mentioned in many Character Cultural Resources planning document, because Yogyakarta has five Centre of Kingdom Great Mosque, Thomb of the Kings and Pilgrimages and the Knights, Spring of Selirang, privilege authority in filling the position of Market, Sites of Dalem, Cantheng Governor and Vice Governor, culture, institution, Watu, Topo-nymy of square, Spacial spatial lay out, and agrarian by Indonesia Law No. Structural of Java City Centre. 13 /2012. City of craftmens and Java Traditional Houses with Ethics movement of cultural heritage artisans distinctive characteristics and very conservation initiated by international institu- high density in the core area. tions or personal repercussions towards City of Commerce The houses of the skipper with Indonesia. Thus, established Indonesian cultural typical eclectic style that is formed heritage institutions such as Jogja Heritage as independent building Society, Centre of Heritage Conservation, Cultural City of Religious Development centre of religious Studies Center of Gadjah Mada University, Reforms activities and religious leaders Kanthil Foundation, Centre for Documentation, occupancy Joglo Forum, Senthir, JMBN, etc. The foreign City of tourism Buildings for silver organization that supported Yogyakarta Region gallery/showroom especially Kotagede are JICA, JRF, ICOMOS, Contemporary city Mass settlement in the suburbs UNESCO, IOM, and World Bank [18]. Source : [29] NGO always move to courage government, donator, and community to participate in the cultural conservation efforts, especially in Yogyakarta and Kotagede. NGO consider cultural assets of Yogyakarta and Kotagede is very unique and rich, consists of cultural heritage, natural heritage, and a blend of natural and cultural heritage. Cultural Planning process has being led by Cultural Agency supported by Public Work Agency and many stakeholders. Cultural Agency need to gather some stakeholders and shareholders to collect some data and infor- mation about their need and interest in the cultural development. The gathering was also beneficial for the synchronization, sharpening, Documentation of Researches, 2012-2014 and coordination to avoid overlapping in the Figure 1. Cultural Resources in Kotagede Description: development planning. a. Alley c. Pacak Suji After this process, Cultural Agency conducted b. Kalang House Harmony d. Babon Anim internal coordination with all of the units in the agency to follow up the result of stakeholders Planning Process of Culture Development and shareholders meeting in cultural planning All sectors of development was directed to draft. This draft then integrated with all sectors regard Special Region of Yogyakarta as cultural in region development planning led by the center and Yogyakarta Rennaisance. Region Department of Regional Development Planning. cultural development planning will contribute to The draft from cultural agency was integrated in national cultural development. It directed to the longterm, midterm, and shortterm planning. realize cultured, ethical, and civilized human If the cultural plannings were cross sectoral, it resources based on Pancasila, competitive must be handled by the Department of Regional nation, as well as beautiful and sustainable Development Planning, especially for Kotagede Indonesia. This region cultural development privilege planning (culture and spatial). planning also contribute to the national Five years planning need syncronization development goal, to gain sustainable and between midterm region planning with midterm

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cultural agency planning, or strategic planning keep the alignment between the central and with national plan. Draft on strategic plan of regional planning. Cultural Agency is used as an improvement Kotagede Cultural Heritage District design of Midterm Regional Planning. A short- community has been literate in planning. Their term planning also syncronized between Local process was accompanied by Java Reconstruction Government Work Plan (RKPD) and Cultural Fund trough several steps as follows (Tabel 2). Agency Work Plan (Renja SKPD), also its contribution to national program. Table 2. Cultural Heritage Conservation Planning in Kotagede No. Phases After processed by the Cultural Agency, the draft integrated in the Department of Regional 1 Understanding the management planning Development Planning. For example, drafting 2 Socialization to the level of district and urban/rural actors regional work plan begins from data and 3 Coordination and consultation to the provincial/ information processing, and continued by city/regency analysis to a general overview in economic and 4 Meetings of village consultation and outreach of financial area. Next phase was to evaluate the planning last year performance, review on national 5 Spatial and other rules assessment government policy and main ideas of Yogyakarta 6 Mapping of self help community (physical environ- Region Parliament. Furthermore, they formulate ment, social, economic, cultural factors) the development problems, proposed the 7 Cultural asset inventory (green maps and block-based framework of economic and financial policies, map planning) priorities, goals and indicative platform, program 8 Analysis of core zone and its priorities. They also established public 9 Formulate the reconstruction rehab plan and social consultation forums, alignment the priority of environmental management plan program plan and indicative platform [30]. 10 Selection of priority plan Plan drafting is a design refinement process 11 Verification process and eligibility is based on aspects of initial draft into work plan draft based on the of disaster mitigation, preservation principle, aspects of budgeting, technical, and benefits results of workplan verification on cultural 12 Legalization of documents (Public, Local Government, institution. Verification was essential to integrate BP3 (Heritage Protection Board from Central the programs, activities, performance indicators Government, Institute for Archaeology) and indicative funds. The initial planning draft is Source: [31] presented systematically at least as follows: 1) introduction The stages of each planning process are not 2) evaluation on last year planning implemen- much different. They collect data and tation information from many resources, then analysis 3) design of the regional economic and funding the planning area overview, financial manage- framework ment and funding framework. Next, formulate 4) priorities and targets the regional cultural development issues, 5) priority and program planning areas strategic issues, SWOT analysis, explanation of vision, mission, goals and objectives, strategy and Development Planning Discussion policy direction, indicative program with funding Musrenbang (development planning discuss- priorities, and establishment of local perform- ion) is a long enough processes and stages for ance indicators. sharpening, alignment, clarification and agree- The planning process appears to have been ment on the short planning draft. It was aimed to applying modern management theory of Gulick merge Musrenbang and the results of cultural [23] called POSDCORB which consisted of sector forum; integrate the sectors. It also held a planning, organizing, staffing, directing, coordina- joint agreement among sectors’ institution in ting, reporting and budgeting. Cultural planning Trilateral Forum in Department of Regional process also through the stages of organize all Development Planning regard to the activities related stakeholders, distribution of task which sharing. appropiate with the regulation. There are Formulation of the final draft need the meeting between bottom up and top down Musrenbang work plan agreement. Finally, the direction from upper government and upper Work Plan of Local Government defined by regulation. All of the planning process will be Regulation. This agreement was expected to reported to the upper manager, government,

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and the community. Budgeting alocation also Department of Regional Development Plan- become a main part of planning because cultural ning (BAPPEDA DIY) has generated long-term development in an area will need great cost. (RPJPD), mid-term (RPJMD) and short-term (RKPD) regional development planning. BAPPEDA Regulation and Plans on the Cultural Heritage DIY also produced Action Plan for Stabilization on All of process have been appropriate with the Special Region of Yogyakarta as Cultural Regulation from Ministry of Internal Affair No. Center, Action Plan of Heritage District, Action 54/2010 as derivative of Laws No. 25/2004 and Plan of Integrated Management for Kotagede Government Regulation No. 8/2008. All of the Cultural Heritage District. phases also implicate the planning theory of Planning process by Cultural Agency have Conyers [22], Djunaedi [19], Nugroho and resulted Cultural Agency Strategic Planning and Wrihatnolo [20], and Tjokroamidjojo [21]. It is Short Term Cultural Agency Work Plan. This included not just the phases, but also what must agency also have produced sub sector planning be accomodated in the document, such as document, i.e. Grand Strategy of Cultural overview of planning area, estimation, program Resistance, Kotagede Master Plan, Cultural and activities planning. Village Action Plan, etc. The planning of City Cultural development planning had goal to Government was resulted Action Plan of Heritage preserve and save all cultural asset, nation City. Publics Works Agency has resulted Building competitive, nation identity, and people and Environment Lay Out Plan, Detail prosperity based on Law No. 11/2010 about Engineering Designs, and Drainage Master Plan. Cultural Heritage. It is also described in the Comprehensive Kotagede Planning has produced Regional Regulation No. 6/2012 about Cultural by all actors based on their function in the Heritage Conservation and Governor Regulation management organization. No. 186/2010 about determination of Cultural Community of Kotagede have produced Heritage District as derivative of the Regional Action Plan of Kotagede Heritage Management Regulation. and Conservation, Community Settlement Plan Planning the development of culture in by village through participatory rural appraisal Special Region of Yogyakarta, especially Kotagede (PRA) and rapid rural appraisal (RRA) as combines many affairs, many norms, ideals of mentioned in Sumpeno [11] as approaches on conservation and development planning and integrated village planning. The integrated budgeting. The application of spatial planning planning process in Yogyakarta’s culture will form was synergy with each other but sometimes not. a pattern as follows (Fig. 2).

Figure 2. Integrated Development Planning Process in Yogyakarta

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Accomadated Aspects in Planning Documents Resources of the funding come from central Local wisdom of the regional culture is and local government, and NGO, e.g. JRF, GMU, fundamental philosophy for planning and has JICA, and World Bank. Although the funding for included in the documents as mentioned follows cultural development is overflow, it doesn’t (Table 3). made cultural activities in Kotagede and the entire area in this region can be planned. Table 2. Local Wisdom as Philosophy in Yogyakarta Especially after Law No. 13/2012 established. The Local Wisdom Interpretation investors fears about the law, which inhibit the Hamemayu hayuning effort to save and beautify the bawono world planning. Programs of cultural planning which referred Gemah ripah loh jinawi Prosperous society to the existed law are Culture Values Sawiji greget sengguh ora spirit to work hard and mingkuh responsibility Development, Culture Richness Management, Catur gatra tunggal relation symbol of King with Culture Diversity Management, Cooperation in politics, social, economic, Culture Management, Culture Facilities and religion Infrastructure improvement. Many activities in Sangkan Paraning Dumadi God as the origin of man and each program is bottom up proposals or top their culture down directions. Golong gilig merging of the ruler and the Haris [15] explained that development people for development planning is influenced by the ability of local Musyawarah/Rembugan a form of discussion based on government funding, community involvement, family spirit and the commitment to the plannings. For this Gotong Royong working something together cases, heritage conservation will need great cost, Tepa selira tolerant and also will need strong leaderships of street civil servants, good governance, independent The aspects that accomadated in some soul, skill, and dare to risk. Planning sustainability cultural documents in Yogyakarta and Kotagede need community participation and consistents are normative aspect, syncronization among with commitments in plannings. documents, general conditions, the problems of

conservation and management, integration with Heritage Conservation based on Community spatial regulation, vision, mision, goals, strategy, Empowerment targets, program and activities plan, budgeting Kotagede Community is a conservation model planning, implementator scenario, and agenda of that has been ready to manage and preserve policy. This aspects has schemed by Conyers [22], their district because they have data and Nugroho and Wrihatnolo [20], Tjokroamidjojo information, some planning, and community [21]. institutions. The community participates in the Java Reconstruction Fund facilitated Kotagede phase of planning, implementation and controll- planning document. They accomodated the ing. They consult to the local government documents related to disaster management, (planning dept., cultural agency), central govern- investation program plan, women empower- ment (heritage preservation agency, archeology ment, heritage conservation, infrastructure, agency, and ministry of public work) to integrate environment, education and poverty. the development and conservation. Integrated Revitalization Masterplan of Some NGO like JRF, JHS, CHC and its networks Kotagede Heritage Dictrict consist of review on did facilitate in donating, data collecting, juridical aspect, condition of Kotagede, planning, institutional strengthening, and institution plan, vision, mision, strategy, policy, expanding of networks after earthquake on May and community empowerment in Kotagede th 27 , 2006 in Kotagede. conservation. The policy related to cultural Currently, Kotagede community has some heritage conservation, city characters strength- ’s web or online information regard to their cultural ening, tourism, infrastructure, institutional, heritage, i.e. www.kotagedeheritage.org, http:// traffict management, handycraft industry, and kotagedelib.com, https://www.facebook.com/ art performance. Integrated networks by sectors, Perpustakaan-Heritage-Kotagede that created department, agencies, units, actors, and privately or collective. Kotagede also has library resources of funding also has recommended by that useful for planning and research, and people Sumpeno [11] and Branch [12]. will get information about this library by accessing the website (Fig. 3).

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Figure 3. e-cultural heritage conservation of Kotagede Description: a. web of Kotagede Heritage; b. Facebook page of Kotagede Heritage Library.

Figure 4. e-participatory planning in regular and special authority of regional development planning Description: a. web of jogjaplan; b. log in page for jogjaplan

Planning process in this district also group- Community facilitated by government and based in each villages, as like Abilawa, NGO for participating in the cultural planning of Mandaraka, Singosari, Binangun, Purbatilas, BKM Yogyakarta. Available websites for the planning and Joglo Forum. However, before the are e-participatory planning, e-monitoring and e- earthquake, Kotagede still have many evaluation. conservation organizations such as Kanthil Foundation, Pusdok, Living Museum and OPKP ACKNOWLEDGEMENTS Kotagede. At the time, fragmentation of the Thank you for Dean and Head of Study community becomes a threat for planning. Program, Department of National Developmet The government of Yogyakarta Special Region Planning, Department of Regional Development provides opportunity for local community to give Planning, Cultural Agency, Joglo Forum, Java their input into the planning process by accessing Reconstruction Fund, and Kotagede community. the www.jogjaplan.com (Fig. 4). Unfortunately, not all people in Yogyakarta including Kotagede REFERENCES can access and use the internet technology, thus [1]. Adrisijanti, I. 2006. Islam as an Indonesian the advantage of the webiste is limited to certain Cultural Roots. Mimeo. Coaching for Special internet aware community. Region of Yogyakarta, Central and East Java Regional History. BPSNT of Yogyakarta. 11- CONCLUSION 14 Juli 2006, 1 and 8-9. Development planning regard to the cultural [2]. Bandarin, F. and R. V. Oers. 2012. Historic heritage of Yogyakarta integrate the aspect of urban landscape. Wiley Blackwell Pub- political, technocratic, participative, top down lishing. West Sussex, 5-17. and bottom up approach. [3]. Harrison, R. 2013. Heritage, critical approach. Routledge. New York, 27 and 31.

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