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         Geoplanning 
    Vol 5, No. 1, 2018, 131-146                                                                                                                                                        Journal of Geomatics and Planning 

                                                                                                 E-ISSN: 2355-6544 
http://ejournal.undip.ac.id/index.php/geoplanning 

                doi: 10.14710/geoplanning.5.1.131-146 

WHY DO SPATIAL DATA AND INFORMATION HAVE A SIGNIFICANT ROLE 
IN SPATIAL PLANNING PROCESS? THE INVESTIGATION OF SPATIAL DATA 
AND INFORMATION USAGE IN INDONESIAN SPATIAL PLANNING 
POLICIES 

A. Yudono a,b  

a Department of Urban Studies and Planning, University of Sheffield, United Kingdom 
b Department of Urban and Regional Planning, Brawijaya University, Indonesia 

 

Abstract: In spatial planning processes, the different aspects of human interactions involving 

political circumstances, social, economics, historical and cultural objectives can be understood 
through maps or spatial visualisations, because those media can illustrate abstract phenomena 
into visual images. Spatial data has a role to play in spatial governance by providing thematic 
spatial information and analysis at all authority scales  (Masson-Vincent, 2008). Furthermore, 
spatial data and information are prerequisites for any participation in planning deliberation 
helping to create consensus (Campbell & Masser, 1995). Spatial data and information currently 
have a role in communicating with all stakeholders (i.e. local authorities, private sectors and 
communities) whose interests are in development proposals in particular areas in order to decide 
implementation, priorities in local geographical areas (Dühr, 2007). This paper investigates the 
role of spatial data and information in Indonesian spatial planning process using archival 
research method. The empirical studies take a qualitative approach in analysing the results of 
data collection from fieldwork observation through collecting legal documents and internal 
institutional reports. Synchronization and consistency between development plan and spatial 
plan must be ensured in every interrelated spatial policy, so that the various implementation 
efforts do not lead to conflict. Furthermore, spatial data and information has a crucial role in 
translating the development strategies into the implementation of the development programme 
for the implementation of the government's agenda. 

 Copyright © 2018 GJGP-UNDIP  
This open access article is distributed under a  

Creative Commons Attribution (CC-BY-NC-SA) 4.0 International license. 

How to cite (APA 6th style): Yudono, A. (2018). Why do spatial data and information have a significant role in spatial planning process? : The 
investigation of spatial data and information usage in Indonesian spatial planning process. Geoplanning: Journal of Geomatics and Planning, 
5(1), 131-146. doi: 10.14710/geoplanning.5.1.131-146 

1. INTRODUCTION 

Physical space can be seen being where social systems interact, involving humans with social, economic 
and environmental aspects (Hall, 2010). These interaction do not always take place in balanced ways that 
automatically and mutually benefit all parties, because of different capabilities, interests and the 
cumulative nature of survival in the geospatial world. Hence, space needs to be organised so as to maintain 
ecological balance and provide support for human and other living organisms in producing and maintaining 
optimal living conditions (Chadwick, 1971; McLoughlin, 1969; Meadowcroft, 2002). 

Spaces for human living as a dynamic circumstance, needs to be planned in ways that not only reflects 
the quality and coherence of a tier planning programs (National to Sub-National planning levels), but also 
reflect the quality of spatial planning components. That is, the qualities of the space itself are determined 
by the realisation of the harmony and balance of the space utilisation in relation to economic, social and 
environmental carrying capacity factors (Faludi, 2000). 

The spatial planning should be based on understanding of the potentials and limitations of the natural 
environment and the socio-economic development activities in particular areas, as well as the current 
demands and the preservation of the environment in the future (Hall, 2010). Thus, ideally, available built 

OPEN ACCESS 

Article Info: 
Received:07 August 2017 
in revised form: 10 Dec 2017 
Accepted: 28 April 2018 
Available Online: 30 April 2018 
 

Keywords:  
Spatial data, information, 
development plan, spatial 
planning  
 

Corresponding Author: 
Adipandang Yudono 
University of Sheffield, Sheffield, 
United Kingdom 
Email: ayudono1@sheffield.ac.uk   
  

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space and environmental conservation need to be set out in an entire spatial planning system at all 
government levels. 

In spatial planning processes, the different aspects of human interactions involving political 
circumstances, social, economics, historical and cultural objectives can be understood through maps or 
spatial visualisations, because those media can illustrate abstract phenomena into visual images (Dühr, 
2007; Stephenson, 2010). Furthermore, the spatial visualization can assist in mediating planning debates 
(Healey, 1997), setting planning agendas (Forester, 1982) and incorporating various viewpoints of planning 
stakeholders (Robbins & Cullinan, 1996). 

Spatial data has a role to play in spatial governance by providing thematic spatial information and 
analysis at all authority scales (Masson-Vincent, 2008). Furthermore, spatial data and information are 
prerequisites for any participation in planning deliberation helping to create consensus (Campbell & 
Masser, 1995). Spatial data and information currently have a role in communicating with all stakeholders 
(i.e. local authorities, private sectors and communities) whose interests are in development proposals in 
particular areas in order to decide implementation, priorities in local geographical areas (Dühr, 2007). 

As an essential planning element, spatial visualisation and spatial information can help to achieve spatial 
planning consensus by shaping attention to relevant spatial issues, communicating strategic planning 
messages and stimulating planning actions at different government levels or within the private sectors or 
amongst communities (Dühr, 2007). Spatial visualization has a significant role in integrating different 
governmental viewpoints for achieving planning goals from national to sub-national levels. 

 

2. DATA AND METHODS 

This paper investigates the role of spatial data and information in Indonesian spatial planning process 
using archival research method. The empirical studies take a qualitative approach in analyzing the results of 
data collection from fieldwork observation through collecting legal documents and internal institutional 
reports. Archival research of legal documents had the purpose of providing a basic background of the policy 
context to gain a comprehensive understanding of the role of spatial data in spatial planning policy 
formulation that has been conducted in the past and likely to be conducted in the future. The primary 
documents used as the principal references for this study are as follows: 

1. Geospatial Information Act No.4/2011  

2. Governmental Regulation No.9/2014 of Detailed Geospatial Information Act No.4/2011 
implementation 

3. Governmental Regulation No.8/2013 of Spatial Planning Map Guides 

4. Spatial Planning Act No.26/2007 

5. Governmental Regulation No.15/2010 of Spatial Planning Act Practices 

6. National Development and Planning System Law No.25/2004 

7. Law No.17/2007 of Indonesian Long-term Development Plan 2005-2025 

Some of these legal documents have been collected by downloading from the official Indonesian 
government websites. Other relevant documents that cannot be directly accessed were obtained by writing 
a formal request letter to the relevant agencies. All documents were downloaded and/or scanned and then 
stored on a laptop, an external hard disk and cloud storage as a backup. 

3. RESULTS AND DISCUSSION 

3.1. The Indonesian spatial planning policies 

In general, the comprehensive planning policies in Indonesia is divided into three parts: The 
Development Plan, the Spatial Plan, and the State Budget Allocation Plan. In practice, the three systems are 
related and complement urban and regional development and planning. 

1. The development plan 

The Development Plan is a translation of the values contained in the Indonesian Constitution (The 
Constitution 1945), and ratified in Law No. 25 of 2004 on National Development Planning System (Sistem 

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Perencanaan Pembangunan Nasional, SPPN). SPPN is a replacement of the outlines of state policy, Garis-
garis Besar Haluan Negara (GBHN) as a result of the Indonesian Constitutional 1945 amendments. SPPN is 
the implementation of Indonesia's development direction for the long-term development period of 20 
years, known as the National Long-Term Plan (RPJPN). This development period is divided into five-year 
durations known as Medium-Term Development Plans (RPJMN). Finally, the detailed RPJMN is the 
government’s annual implementation plan referred to as the Government Work Plan (RKP) at the province, 
regency and municipality levels. 

2. The spatial plan 

The spatial plan is a guideline for the optimal harmonious utilization of natural resources, as well as the 
basis for the country's development priorities in guiding the development of infrastructure and shaping the 
spatial structure and land use plan. The spatial structure plan relates to the public service networks 
connected by the infrastructure networks system between different governmental administrative areas 
(national strategic sites, provinces, regencies and municipalities). The land use plan is concerned with 
environmental protection and built environment areas. Within this consideration, spatial data and 
information have a significant role in providing spatial structure and utilization visualization. The Indonesian 
spatial plan is stipulated in the Law. No. 26 in 2007 and categorized in a hierarchical system at national, 
province, regency and municipality levels. 

3. The state budget allocation plan 

The implementation of the development plan translated into the spatial plan depends on the state 
budget allocation that is approved and distributed by the central, province and local government levels. The 
budget for the operationalization of development and planning is known as the National and sub-national 
(i.e. province, municipality and regency levels) State Budget. The State Budget Allocation Plan stipulated in 
Law No.17 / 2003 of State Budget at each government level. The relationship between the Development 
Plan, the Spatial Plan and the State Budget Allocation Plan can be seen in Figure 1. It shows that the use of 
spatial data and information is crucial for translating the "language of RPJPN and RPJMN" into the context 
of development that is tailored to a geographic region. Spatial data and information contained in the spatial 
plan will identify priorities in determining the amount of the budget to be approved. 

From three Indonesian development and planning aspects, very relevant to the focus of this research on 
spatial data and information usage concerns on the Development Plan and the Spatial Plan. Thus, this 
section will focus on both plans. The next section discusses in more detail procedures for the 
operationalization of the Development Plan. 

 
3.2. The Indonesian development plans 

The Indonesian development plan commenced a new phase in 2005, with the renewed Indonesian 
developmental vision, marked by fundamental changes in the Indonesian political and governmental 
system. During 1998-2004 periods, the Indonesian government had commenced the government transition 
which transformed the Indonesian government system from centralistic to decentralization system. In this 
period, many laws and regulations were enacted and the Indonesian Constitution 1945 was amended four 
times. One of the fundamental transformations during the governmental transitions was the enactment of 
the Indonesian Long-Term Development Plan for 2005-2025.  

This plan is the reference for all components of Indonesian society (government, communities, and 
businesses) in realizing ideals and national objectives in accordance with the vision, mission and agreed 
goals, so that all efforts of development actors are synergistic and coordinated. The objectives of the 
Indonesian Long-Term Development Plan of 2005 – 2025 are to achieve an independent, fair, developed 
nation as a foundation for the next phase of development towards a just and prosperous society in the 
Republic of Indonesia under Pancasila*) and the Indonesian Constitution 1945. The translation of the vision, 
mission and goals of Long-Term Development Plan are summarized in the following Table 1. 

 

 

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Level Development plan  Spatial plan State budget allocation 
plan 

Central Government 
   

Provincial Government  
 

 

 

 

Regency/Municipality 
Government 

 

 

 

Figure 1. The Relationship Between the Development Plan, The Spatial Plan and The State Budget Allocation 
Plan (Source: Yudono, 2016) 

National  

Spatial 

Planning 

(RTRW 

Nasional)  

Map Scale 

1:1,000,000  

National 

Budget Plan 

(RAPB 

Nasional)  

1. Provincial Long 
Term 
Development 
Plan (RPJP 
Provinsi)  

2. Provincial 
Medium Term 
Development 
Plan (RPJM 
Provinsi) 

3. Provincial Short 
Term 
Development 
Plan  (RKP 
Proivinsi )   

 

Provincial 

Spatial 

Planning 

(RTRWP)  

Map Scale 

1:250,000 

Provincial 

Budget Plan 

(RAPB 

Provinsi)  

1. Regency / 

Municipality Long 

Term Development 

Plan (RPJP 

Kabupaten/ Kota)   

2. Regency / 

Municipality Medium 

Term Development 

Plan (RPJM 

Kabupaten/Kota) 

3. Regency / 

Municipality Short 

Term 

Development Plan  

(RKP 

Kabupaten/Kota )   

Regency/Municipa

lity Spatial 

Planning (RTRW 

Kabupaten/Kota )  

Map Scale 

1:50,000 for 

Regency  

And 

Map 

Scale1:25,000 for 

Municipality   

 

 

Regency/Munici

pality Budget 

Plan (RAPB 

Kabupaten/ 

Kota)  

1. National Long 
Term 
Development 
Plan (RPJP 
Nasional) 

2. National 
Medium Term 
Development 
Plan (RPJM 
Nasional) 

3. Government 
Agenda Plan/ 
National Short 
Term 
Development 
Plan  (RKP 
Nasional)   

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Table 1. The Vision, Mission and Goals of The Indonesian Long-Term Development Plan 2005-2025 (Source: 
The Ministry of Home Affairs, 2017, translated to English by the author in 2016) 

Vision Indonesia as an independent, progressive, fair and prosperous nation 

Mission 1. Realizing a society that has good morality, ethics, culture, and is based on the philosophy of 
Pancasila*) 

2. Realizing an energized nation; 
3. Creating a democratic society based on law; 
4. Realizing a secure, peaceful, and united Indonesia; 
5. Achieving equitable development and justice; 
6. Realizing a beautiful and sustainable Indonesia; 
7. Realizing Indonesia as an independent island state, advanced, powerful, and based on national 

interests; 
8. Realizing Indonesia plays a significant role in the international community. 

Goal Highlights 1. The realization of Indonesian society that has good morality, ethics, culture, and civilized; 
2. Establishing a nation that is competitive to achieve a society that is more prosperous; 
3.The realization of a democratic Indonesia, based on law and justice; 
4. The realization of security and peace for all people and the integrity preservation in the territory 

of the Republic of Indonesia and the sovereignty of the country from all threats, both from 
domestic and overseas; 

5. The realization of the construction of a more equitable and fairer; 
6. The realization of making Indonesia beautiful and sustainable; 
7. The realization of Indonesia as an archipelagic nation independent, advanced, powerful, and 

based on national interests; 
8. The realization of the increased role of Indonesia in the international community. 

 

Planning and development oversight in the period of 2005 – 2025 begins with the implementation of the 
direct election of the heads of government from central to sub-national levels, and continued with the 
preparation of the National Development Plan based on Law No. 25 of 2004. In 2010, Law No.17/2010 
ratified the basic planning policy and the National Long-Term Development Plan (RJPN) with five-year 
medium-term development plan (RPJMN) scenarios. 

The idea of 20 year period of the National Long-Term Development Plan can be explained that the onset 
of urbanization in developing countries can lead to a doubling of cities population size over the following 
15-20 years (Clarke, 1992). This trend produces increased demands for meeting human needs such as 
residential, commercial and community services. Since land is a key element of all urban development, 
spatial plans, which typically intend to control the built environment, designate land uses, capacities for 
development and urban area utilization, are extremely important to national government. 

The RPJPN 2005- 2025 sets policy directions and the priorities to be pursued in the National Medium-
Term Development Plan (RPJMN), formulated for five-year periods between 2005-2025. The five-year 
period, like the 20-year plan, can be derived from Clarke’s (1992) studied. He argues that the doubling of 
population numbers of a particular regions in the next 20 years is likely to lead to long-term social and 
environment instabilities as well as monetary problems at national, province and local scales. But planning 
and development programs should focus on short-to-medium term (5-10 year) policies and strategies to 
monitor urban and regional development.  

For Indonesian case, a further reason for the five-year periods of the Medium-Term Development Plan 
(RPJM) is related to the period of office of the Indonesian President to implement his/her agenda while the 
short term development period of one year is related to Presidential Cabinet work in realizing the 
President’s vision and mission during one period of office.   

*) Pancasila is Indonesian state philosophy which has meaning in every Indonesian life aspect, 
society and the state should be based on the value of the Divinity, Humanity, Unity, Democracy 
and Social Justice. 

 

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3.3. How can spatial data and information contribute to the Indonesian development plan process? 

The Indonesian Ministry of National Development and Planning (Badan Perencanaan and 
Pembangunan Nasional, BAPPENAS) Report as the Ministry that is responsible for preparing Indonesian 
development plan, commissioned a study from the Indonesia Infrastructure Initiative (INDII) in 2010 on GIS 
for infrastructure development. The study examines the potential for GIS usage to support BAPPENAS 
performance, including the preparation of RPJPN, RPJMN and RKP. This section discusses spatial data and 
information usage in Indonesian development plans in the light of this Report. As discussed in the previous 
section, the Indonesian development plan is divided into three development plans according to the 
difference in the time period of development: namely, RPJPN which covers 20 years; RPJMN for periods of 
five years; and RKP for periods of one year. The study by INDII of spatial data and information potential 
usage in the national RPJPN can be seen in Figure 2 and for the national RPJM and RKP can be seen in Figure 
3. 

Figure 2 shows that spatial data and information usage or can benefit from Geographical Information 
Systems (GIS) in translating the vision and mission of RPJPN 2005 - 2025 is relevant at the stages of 
prioritizing development programs and for appraisal of development outcomes. Further evaluations of 
development activities that have the potential for spatial data and information usage are the RPJMN 
evaluation of prior periods for feedback and improvement in the next RPJM period, as well as the 
evaluation of public-private partnerships (PKPS) programs. The potential for spatial data and information 
usage in the spatial development system can be implemented by examining the formulations of regional 
development priorities and development projects approval set in RPJPN 2005-2025. Spatial analysis of the 
particular regional characteristics can be identified as socio-economic development issues as the basis for 
deciding priority development programs in the selected regions. 

Once Indonesian Ministry of National Development and Planning has completed formulating the 
RPJMN, special ministries set up their program proposals. After each ministry finished developing their 
program proposals, the program proposals are delivered to the particular divisions under BAPPENAS for 
audit and assessment. The division assesses every system proposition against various criteria: RPJMN 
program preferences and particular aims, while the Deputy of Funding and the Minister of Finance audit the 
source and strategies to allocate in the Government Work Plan (RKP). Furthermore, the draft of usage plan 
and financing for RKP are submitted to the House of Representatives (DPR) for report. In this case, spatial 
analysis potentially will be used in auditing and assessing program proposals to implement in RPJMN and 
RKP agenda (See Figure 3). 

Overall, spatial data and information usage in development plan documents are not stated explicitly, 
but examination of the INDII indicates that there is potential for spatial data and information to be used in 
the audit, assessment and evaluation activities which consider to the development plan goals. In the 
comprehensive Indonesian development and planning context, development policy language needs to be 
translated into spatial planning policy language requiring spatial information visualization for the 
implementation of the government’s agenda. Further spatial data and information usage in Indonesian 
spatial plans will be discussed in the next section. 

 
3.4. The Indonesian spatial planning system 

The previous section has already mentioned that in terms of the comprehensive Indonesian spatial 
policy, the manifestation of the development plan is the Spatial Plan, Rencana Tata Ruang Wilayah (RTRW). 
It becomes the guidelines for all government levels to manage natural resources optimally and 
sustainability with attention to disaster risk, and as well is the basis for the development of national 
welfare. In terms of the spatial planning practices in Indonesia (including the regulation, development, 
implementation, and monitoring), the government has enacted Law No.26 of 2007.  The law regulates the 
spatial planning system at the national, province and municipality also regency levels (See Figure 4). 

The Spatial Plan makes both general and detailed plans of particular areas. A general spatial plan 
consisting of spatial structure plan and a land use plan, which is formulated based on administrative areas. 
The spatial structure plan guides the public service networks that are connected by the infrastructure 
networks system between different governmental administrative areas (national strategic sites, provinces, 

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municipalities and regencies); and the land use plan is defined as a land use planning concerned with 
environment protection and built environment areas. 

The detailed spatial plan for a particular area is based on the strategic value of the local approaches 
and activities with zoning schemes. The preparation of a detailed plan is intended as a spatial plan 
management tool, and as a basis for setting zoning regulations. The zoning regulations set the terms and 
conditions for the control of land utilization for each block/zone designated in the detailed spatial master 
plans. 

Spatial structure and land use plan visualization are specified Government Regulation No. 8 of 2013 (PP 
8/2013). PP No. 8 / 2013 concerns methods for creating the spatial planning maps in relation to the level of 
map accuracy, including: 

1. Geometric accuracy - geospatial reference system, scale and mapping unit. 
2. Details of the spatial planning element maps and symbols. 
The relationship between the spatial plan maps and the elements of the spatial planning system - the 

National Spatial Plan (RTRW Nasional); the Provincial Spatial Plan (RTRW Provinsi); and the Municipality / 
Regency Spatial Plan, (RTRW Kota or RTRW Kabupaten) – will be discussed in the next section. 

National Long-

Term 

Development 

Plan (RPJPN) 

2005-2025

Bappenas Studies 

and Define 

Programmes

Providing Guidelines 

to Sectoral Ministries 

for Strategic 

Planning (Renstra)

Formulating 

Programme Priorities 

List

Sectoral Ministries 

Submit Project 

Proposals

Previous 

Programmes 

2004-09

Other Proposals

Evaluating Results of 

2004-2009

Prioritise & Approve 

Projects

PKPS Evaluate
Government

Funding?

Non-

Government

Funding?

Prepare 

Tender for 

Project

Finance 
Department 
for Approval

Can Benefit from GIS

No Yes

Yes No

 

Figure 2. Potential Spatial Data and Information usage fit in the National Long-Term Development Plan 
(RPJPN) (Source: INDII, 2010) 

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Project 

Proposals 

from 

Ministries

Review & Evaluation

Workshop with 

Stakeholders & 

Technical Experts

National Medium-Term 

(RPJMN) Programme 

Priorities

Objectives:

Economic

Growth

Poverty

Reduction

Fiscal Outlook for 5 years

Potential for Private 

Funding

Work Packages with 

Recommendations

Review of Project 

Finance by Deputy 

for Funding & 

Finance Minister

Draft RKP

Deputies Reviews 

Work Packages

Review by House of 

Representative 

(DPR)

Annual 

Government 

Programmes 

(RKP)

 

Figure 3. Potential Spatial Data and Information usage fit in the National Medium-Term Development Plan 
(RPJPMN) and Annual Government Work Plan (RKP) (Source: INDII, 2010) 

1.  The national spatial plan 
The Indonesian National Spatial Plan stipulated under Government Regulation No. 26 of 2008 (later will 

be abbreviated into GoI, 2008) as a reference for government agencies at all levels to determine the 
location and spatial utilization of the government’s agenda and programs. The purpose of national spatial 
planning reflects the integration of development sectors, regions, and between stakeholders. Policy and 
national spatial planning strategies are formulated by considering science and technology as ways of 
making plan, availability of data and information, as well as finance for development. 

The National Spatial Plan is formulated for a period of 20 years illustrating the spatial dimension of the 
Long-Term Development Plan visions. The National Spatial Plan has functions in supervising spatial plans at 
the provincial and municipality / regency levels to guarantee adherence to laws and consistency amongst 
systems of planning and advancing congruity of arrangements and activities amongst areas. It also takes the 
lead in giving providing basic information and data on the conditions of recent spatial development. 

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The contents of the National Spatial Plan consist of the Spatial Structure Plan, the Land Use Plan, the 
establishment of national strategic sites and the national governmental program indicators. In terms of 
translating the visualization of the National Spatial Plan into the map, there are two elements which are 
regulated by PP No.8 / 2013: The National Structure Plan and the National Land Use Plan. The fundamental 
aspects of the National Spatial Plan Maps use 1: 1,000,000 map scale. (See Figure 5). Therefore, a study of 
spatial data and information usage in the National Spatial Plan needs to focus on both elements. 

The National Spatial Structure Plan looks at national urban systems associated with the rural population 
in a service area and the main infrastructure network systems which have national socio-economic impact. 
The national urban system consists of urban areas with a covering national and local scale activity centers. 
The activity center is supported and equipped with a regional infrastructure network, with levels of service 
tailored to the hierarchy of activities and service needs. The major infrastructure networks are a primary 
system developed to unify the territory of the Republic of Indonesia and in addition, to serve national scale 
activities, including transportation, electrical and energy, telecommunications and water resources network 
systems. 

Meanwhile, The National Land Use Plan describes the land use plan, either for national strategic built 
environment utilization or protected areas. The definition of a National Protected Area is an area in which 
development is either not permitted or is restricted. It is a space which functions mainly for protecting the 
health of the environment including natural resources and artificial resources, cultural heritage and history, 
as well as to reduce the impact of natural disasters.  Built Environment Areas have a national strategic value 
developed to support the functions of national defense and security, regional strategic industry, urban and 
metropolitan areas, and agricultural regions according to the legislation of licensing and management of a 
government authority (See Figure 6). 

 

National spatial 

plan

Island-specific 

spatial plan

National strategic 

regional spatial 

plan

Provincial spatial 

plan

Provincial strategic 

regional spatial 

plan

Regency/Municipal 

spatial plan

Regency/Municipal 

general spatial plan

Regency/Municipal 

detailed spatial plan

Urban area spatial plan

An urban area within a 

regency or urban area 

stradding multiple provinces, 

regencies, or municipalities

Metropolitan spatial plan

One or more contiguous 

urban areas (population of 1 

million or more) that are 

particularity important from a 

policy perspective

Rural area spatial plan

A spatial plan for an 

agriculture area defined as a 

sub-district or multiple 

villages within one regency 

or stradding multiple 

provinces, regencies, or 

municipalities

Agropolitan spatial plan

One or more regencies that 

are particularly important 

from a policy perspective

Central 

government

Provincial 

government

Regency/

Municipal 

Government

Urban areas Rural areas

 

Source: (Ministry of Land, Infrastructure, Transport and Tourism, 2017) 

Figure 4. The Hierarchical Spatial Planning System in Indonesia  

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Figure 5. The Indonesian National Structure Plan Map (Source: BIG, 2008, with permission to re-publish from BIG in 2016) 

 



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Figure 6. The Indonesian National Land Use Plan Map (Source: BIG, 2008, with permission to re-publish from BIG in 2016)

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2. The provincial spatial plan 

The Provincial Spatial Plan is the reference for province and local government agencies (i.e. municipality/ 
regency levels) for determining land use and strategic locations. The Provincial Spatial Plan enshrines 
integrated alignment and balanced development amongst municipalities / regencies’ regions, as well as to 
synchronize different developmental sectors. The duration of the implementation of Provincial Spatial Plans 
aligns with the 20 years at the national level. The Provincial Spatial Plan has similar content elements as the 
national level: The Spatial Structure Plan, Land Use Plan, the establishment of a strategic sites plan, and 
land use direction and controls. For the purpose of this research, analysis of the contents of spatial plans 
focuses on the spatial structure and land use plans either at province or regency / municipality levels. 

The Provincial Structure Plan is the embodiment of the urban system within the province and the 
infrastructure network of the province being developed to integrate entire areas at a province level. Spatial 
structure takes the form of a regional hierarchy starting with the primary activity centers characterized as 
urban activities, and moving to tertiary activity centers characterized as areas developed predominantly by 
a particular sector, for example agriculture. The linkages between activity centers in the province are made 
by the network systems of transportation, energy and electricity, telecommunications, and water resources 
(including the entire upstream dam / watersheds reservoir areas).  

The Provincial Land Use Plan is a picture of the provincial land use system, either having functions for 
protecting designated areas or built environment utilities. Provincial Protected Areas are ecologically 
protected areas in which the ecosystem covers more than one regency / municipality and the management 
is the authority of the provincial government. Built Environment Areas are defined as residential, 
commercial, mining exploration, industrial estates and tourist resorts areas, having a strategic value for the 
provincial economy. In terms of translating the visualization of the Provincial Spatial Plan into the map, like 
the national level, there are two elements regulated by PP No.8 / 2013: The Provincial Structure Plan and 
the Provincial Land Use Plans. The basic provincial spatial maps are at a scale of 1: 250,000. 

For provinces with coastal and marine areas, the Spatial Plan Map must be equipped with bathymetry 
data. For areas bordering other provinces, the Spatial Plan Maps are prepared after the province 
government coordinates with the adjacent provincial government. Information on the Provincial Spatial 
Plan Maps shows the borders of two or more provinces with a five-kilometer buffer along the borderlines as 
a neutral area. Coordination between adjacent provincial governments is a crucial point for spatial plan 
integration. Relevant to the research topic, spatial data between adjacent provinces is sensitive to potential 
conflicts, for instance, in land disputes. Thus, open data with specifically spatial data development and 
sharing is important as a geographical visual communication to achieve spatial plan integration and 
consensus.  
3.  The municipality and regency spatial plans 

The Municipality and Regency Spatial Plan act as the guideline for local governments (municipality and 
regency, also district (kecamatan) levels) to set the development locations, as well as for local government 
planning programs. In terms of translating the visualization of the Municipality and Regency Spatial Plan 
into the map, like the national and provincial levels, there are two elements regulated by PP No.8 / 2013: 
the Municipality and Regency Structure Plan and the Land Use Plan. The maps are at a scale of 1: 25,000 for 
municipality and 1:50,000 for regencies. 

Furthermore, for municipalities and regencies with coastal and marine areas, the Spatial Plan Maps of 
the regency and municipality must be equipped with bathymetry data. For regency/municipality areas 
bordering other regency/municipality areas, Spatial Plan Maps are prepared after the regency/municipality 
coordinates with the adjacent regency/municipality. Information on the municipality / regency Spatial Plan 
Maps shows the borders other municipalities / regencies, with a 2,5 kilometers buffer along the border 
lines as a neutral area. 

In the Provincial, Municipal and Regency Spatial Plan ratification process, spatial data and information 
need to be included as a matter of technical spatial plan maps completeness before spatial plan documents 
can become regulations and need to have been checked by the Indonesian National Mapping Agency 
(Badan Informasi Geospasial, BIG) before plans are ratified. BIG supervision procedure of spatial plan maps 
will be discussed in the next section. 

 



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3.5. BIG oversight of the formulation of spatial planning policy maps  

When Law No. 26 of 2007 on spatial planning was enacted, all levels of government were required to 
make spatial plans, including spatial planning maps, for a period of 20 years. The regulation of spatial plan 
maps is regulated by Article 14 Sections 5b which states that "General spatial plan comprise of planning 
areas which wide-scale on the spatial plan map needs details of spatial plan policy formulation prior to 
implementation." Article 14, Section 7 "further provisions on the level of accuracy of the spatial planning 
map is set by government regulation." 

The mechanisms for developing spatial maps are set out in policies from derived Spatial Planning Law, 
namely Government Regulation (PP) No. 8 of 2013 concerning the accuracy of the spatial plan maps. This PP 
covers technical preparation of spatial maps ranging from the required thematic maps in spatial plans, 
reference system, map scale, mapping units and symbols. It also covers associated procedures for the 
supervision of the preparation of spatial plan maps in order to acquire technical recommendations from BIG 
under Regulation of the Head of BIG No. 6 of 2014.  

The supervision by BIG of spatial plan map production aims to ensure technical accuracy and valid 
spatial data and information as a reference for spatial plan implementation. The inspection of spatial plan 
maps covers six aspects based on BIG, 2014 (translated by the author in 2016): 

1. Geometric position of base map from BIG; 
2. Completion and updated basic spatial data assessment for the base map defined by BIG; 
3. Completeness of thematic maps with in accordance with the Ministry of Public Works Regulation 

No. 20 / PRT / M / 2007; 
4. The consistency of spatial plan maps with spatial plan documents that include spatial structure, land 

use and special areas / strategic plans adjusted with base maps and thematic maps; 
5. The consistency of spatial plan maps with provincial/municipal/regency legislation/regulation 

according to the spatial structure, land use and special areas/strategic plans that meet with the 
existing regulations; 

6. Cartographic presentation with the assessment of symbols, colors, and notation in agreement with 
Government Regulation No. 8 of 2013. 

 
Generally, the supervision procedure of spatial plan maps provides clear guidelines, but obstacles are 

encountered is the consultation process carried out directly with the mapping agencies nationwide. The 
supervision method through direct face-to-face contact between applicants and official BIG staff has been a 
major obstacle to map development process spatial plans until today, because of it takes high cost and 
longtime spatial plan process. There is a need for alternative ways of consulting on the production of the 
spatial maps, for instance, by electronic supervision (e-supervision) method. 

3.6. Synchronizing the Indonesian development plan with spatial plan 
Spatial data or information usage has a crucial role in spatial planning processes to translate the vision, 

mission and strategy of the Long-Term Development Plan (RPJP) and Medium-Term Development Plan 
(RPJM) into the Spatial Plan (RTRW). For instance, in RPJP and RPJM, the role of spatial data and 
information is to describe the general conditions of a region, where the RTRW is translated in the 
terminology of the region's profile (See Figure 7). 

Aspects of the RPJP and RPJM, analysis of strategic issues, policy direction and development strategy is 
translated into the RTRW with the inclusion of spatial information in the discussion of strategic issues, 
spatial structure and land use plans. Especially for RPJM, which requires more detailed information for the 
five-year period of RPJP, an indication of the priority program plans and funding needs to be translated in 
the land use plan directives enshrined in RTRW (main five-year indication programs). The detailed 
relationship between Indonesian development and spatial plan can be seen in the following Figure 8. 

In summary, synchronization and consistency becomes imperative in every interrelated spatial policy, 
so that the various implementation efforts do not lead to conflict. In addition, spatial data and information 
has a crucial role in translating development strategies into the implementation of development programs 
in the spatial planning context. The Development Plan and Spatial Plan Policy decided by the government 
has an impact on civil society, especially since the 1992 UN declaration on sustainable development 

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emphasized creating a good governance agenda in which implementation should involve communities in 
urban and regional planning. 

 

Long-term 

Development Plan

Introduction

General condition

Strategic issues 

analysis

Vision and mission

Policy direction

Development steps and 

priority

Spatial Plan

Introduction

Law and regulation references to 

formulate spatial plan

Geographic condition

strategic issues and maps

Spatial plan purpose

Spatial plan policy and strategic

Spatial Structural Plan

Land use Plan

Regional strategic 

determinations

Spatial utility plan direction (5 

years main indication 

programmes)

spatial control development 

direction

Medium-term Development Plan

Introduction

General condition

Financial management 

description and financial 

framework

Strategic issues analysis

Vision, Mission, Aim and Target

Policy direction and strategic

General Policy and local 

development programmes

Priority Indication Programme 

Plan + Budget demands

 

Figure 7.  Relations between Long-Term Development Plan – Spatial Plan – Medium Term Development 
Plan (Source: Rizal, 2008, translated to English by the author in 2016) 

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National 

Spatial Plan

Strategic Plan of 

Ministry and central 

government 

agencies

National 

spatial plan

National 

Medium-term 

Development 

Plan

National 

Short-term 

Development 

Plan

Provincial 

Spatial Plan

Provincial 

Medium-term 

Development 

Plan

Provincial 

Short-term 

Development 

Plan

Strategic plan of Ad-hoc 

team that comprises of 

local government 

institutions to serve 

spatial planning

Regency/

municipal  

Spatial Plan

Regency/

municipal 

Medium-term 

Development 

Plan

Regency/

municipal 

Short-term 

Development 

Plan

Strategic plan of Ad-hoc 

team that comprises of 

local government 

institutions to serve 

spatial planning

Work Plan of local 

government institutions 

to serve spatial 

planning

Provincial 

Spatial Plan

Municipality

Spatial Plan

Island-Specific Spatial plan

National Strategic Regional Spatial 

Plan

Provincial Strategic Regional Spatial 

Plan

Municipality Detailed Spatial Plan

Municipality Strategic Regional 

Spatial Plan

Regency 

Spatial plan

Regency Detailed Spatial Plan

Regency Strategic Regional Spatial 

Plan

Work Plan of local 

government institutions 

to serve spatial 

planning

Work Plan of 

Ministry and central 

government 

agencies

S
p

a
ti

a
l 
P

la
n

9. MAYOR/

    HEAD OF 

    REGENCY

10. REGENCY/  

      MUNICIPAL 

      BAPPEDA 

      

11. REGENCY/

      MUNICIPAL 

      BKPRD

12. REGENCY/

      MUNICIPAL 

      SKPD

5. GOVERNOR

6. PROVINCIAL 

    DEVELOPMENT 

    PLANNING 

    AGENCY

7. PROVINCIAL  

    BKPRD

8. PROVINCIAL SKPD

1. PRESIDENT AND 

    MINISTRY

2. STATE MINISTRY

    OF NATIONAL

    DEVELOPMENT

    PLANNING

3. NATIONAL 

    COORDINATION

    OF SPASIAL 

    PLANNING

4. MINISTRY

NATIONAL

PROVINCIAL

Regency/

municipality

transcribe

transcribe

transcribe

reference

reference

reference

reference

reference

reference

reference

reference

guidance

guidance

guidance

guidance

guidance

guidance

guidance

guidance
guidance

reference

Development Plan 
according to Law No.24/2005 and Law. 32/2004

Spatial Plan 
according to Law No.26/2007 and Ministry of Public Work 

Regulation No.15,16 and 17/PRT/M/2009

REGENCY SPATIAL PLAN A.1

REGENCY SPATIAL PLAN A.2

PROVINCIAL SPATIAL PLAN A.1

PROVINCIAL SPATIAL PLAN A.2

 

Figure 8. The Detailed Relationship Between the Indonesian Development Plan and The Spatial Plan at All 
Governmental Levels (Source: Rizal, 2008, translated to English by the author in 2016) 

4. CONCLUSION 

The significant laws relating to the Indonesian planning and development system is Law No. 25/2004 on 
the National Development Planning System, Sistem Perencanaan Pembangunan Nasional (SPPN), as a 
replacement of the outlines of state policy, Garis-garis Besar Haluan Negara (GBHN) as a result of the 
Indonesian Constitutional 1945 amendments. The success of SPPN is supported by the State Budget 
Allocation Plan stipulated in Law No.17 / 2003 of State Budget at each government level.  

The details of SPPN development programs are embodied in the development of the Long-Term 
Development Plan, Rencana Program Jangka Panjang (RPJP), with the strategy stages undertaken in the 
five-year Medium Term Development Plan, Rencana Program Jangka Menengah (RPJM) form and the 
details of every annual stage of strategy in the Government Work Plan, Rencana Kerja Pemerintah  (RKP). 
The work plan for the direction of development of SPPN is a-spatial, and then implemented in spatial form 
in spatial planning documents, Rencana Tata Ruang Wilayah (RTRW) in accordance with Law. No. 26/2007. 

Spatial information visualization in development plan documents are not stated explicitly, but studies by 
INDII indicate that there is potential for spatial data and information to be used in the audit, assessment 
and evaluation of development plan goals. The spatial plan is formulated as general and detailed plans of 
particular areas. A general spatial plan is based on the governmental administrative area with the planning 
contents essences coming from the spatial structure plan and land use plan. 

Government Regulation No. 8 of 2013 (PP 8/2013) sets out the methods for creating spatial planning 
maps and stipulates the level of map accuracy according to levels of government and purposes of the maps 
as set out in the Spatial Planning Law. Synchronization and consistency between development plan and 
spatial plan must be ensured in every interrelated spatial policy, so that the various implementation efforts 
do not lead to conflict. Furthermore, spatial data and information has a crucial role in translating the 
development strategies into the implementation of the development program for the implementation of 
the government's agenda. 

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5. ACKNOWLEDGMENTS 

This paper is part of the author’s PhD research. Within this consideration, the author would like to 
thanks to the Indonesian Endowment Fund for Education (LPDP Scholarship) to support this financial 
research, also thank you to my supervisor, Dr. Alasdair Rae, with his patient, always support and motivate 
me to do this research. 

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