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         Geoplanning 
   Vol 6, No 2, 2019, 113-121                                                                                                                                                         Journal of Geomatics and Planning 

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

doi: 10.14710/geoplanning.6.2.113-121 

Land Provision for Decent and Affordable Housing for Low-Income 
Community in Salatiga City 

S. Sunartia*, N. Yuliastutia         , I. Indriastjariob 

a Department of Urban and Regional Planning, Faculty of Engineering, Diponegoro University, Indonesia 
b Department of Architecture, Faculty of Engineering, Diponegoro University, Indonesia 
 

Abstract: The need for land for urban housing construction was increasingly difficult 
and more pricey, so low-income communities for owning a house were not easy. 
Limited land in an urban area, especially in small cities such as Salatiga, is not all used 
in housing construction. This condition needed an intervention from the local 
government to facilitate their needs for housing could be fulfilled. Based on the 
problems, this research's goals studied a providing of land for decent and affordable 
housing for low-income communities in Salatiga. The method used was a mixed 
method with a sequential explanation strategy by overlaying secondary data on the 
land potential map from various sources that can be used for decent housing with 
primary data, such as interviews and document reviews with the local government 
reduce of housing cost. The study results figure out that housing used land owned by 
the village government can be affordable for low-income communities with price less 
expensive below the standard set by the government. 
  

 
 

Copyright © 2019 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): 
Sunarti, S., Yuliastuti, N., & Indriastjario, I. (2020). Land Provision for Decent and Affordable Housing for Low-Income Community in Salatiga City. 
Geoplanning: Journal of Geomatics and Planning, 6(2), 113-121. doi: 10.14710/geoplanning.6.2.113-121 

 

1. INTRODUCTION  

 The Declaration of the Universal Declaration of Human Rights (1948) states that everyone has the right 
to a standard of living in inadequate housing conditions. In accordance with the declaration, housing is one 
of the basic necessities of every human being. Everyone needs a home, but not everyone can fulfill housing 
needs. The increasing rate of population growth and the phenomenon of urbanization in big cities that 
affect the surrounding small towns has resulted in an increase in the need for urban space, especially the 
fulfillment of housing and settlement needs. 

 When the scale of urbanization has increased, the provision of decent housing for low - income people 
in cities survive as one of the problems is quite difficult to deal with in developing countries (Teke, 2011). 
Other researchers stated that urban areas in developing countries are experiencing difficulties in providing 
adequate and affordable land to meet the housing needs of urban communities. This impacts low-income 
communities who have difficulties accessing decent and affordable housing (Gbadegesin, Heijden, & 
Boelhouwer, 2016). Generally, housing affordability is a relationship between household income and the 
housing price level (Li et al., 2017). Affordable housing for low-income communities is housing that has a 
price of less than 30% of household income. The United Nations defines when families spend more than 
30% of housing considered as expenses cannot even meet other needs such as food, clothing, education, 
transportation, and medical (Alaghbari et al., 2011). 

  The study of housing has long been an important target of public policy in society, especially in urban 
areas (Cai & Lu, 2015). The Turkish Government carries out one implementation of the public government 
in the provision of housing and settlements for low- and middle-income people in the provision of land for 

Article Info: 
Received: 10 August 2018 
in revised form: 10 October 2018 
Accepted: 10 December 2018 
Available Online: 30 Dec 2019 
 
Keywords:  
Affordable Housing, Land for 
housing, Low-Income Communities 
 
*Corresponding Author: 
S. Sunarti 
Department of Urban and Regional 
Planning, Diponegoro University, 
Semarang, Indonesia 
Email: sunarti@pwk.undip.ac.id 

OPEN ACCESS 

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settlement areas and payment schemes for low- and middle-income communities. Thus, meeting the needs 
of providing housing for low-income people in need of government intervention. 

  Salatiga is one of the small cities in Central Java Province, which is developing quite rapidly and 
heterogeneous areas around the big cities of Central Java (Prawatya, 2013). Along with the natural 
population growth and rapid urbanization, movement affects the availability of land. The administrative 
availability of land is a fixed value, but the demand for housing land is increasing. This will have an impact 
on low-income communities, not having the ability to own a house. Ironically, the tendency of the high 
number of backlogs that occur due to the gap between the demand and supply of houses to low-income 
communities is very worried. The existence of these conditions, Salatiga's Government has managed to 
help low-income communities, especially for Government Civil Servants (PNS) in the provision of houses by 
releasing land assets belonging to the local government to the public, so as to reduce the price determined 
in accordance with the policy of the central government. Land release owned by the local government is 
based on Government Regulation No. 27 of 2014 on the Management of State/Regional Property.  

 In previous research related to the provision of housing and settlements for low and middle-income 
communities (Palancioglu & Cete, 2014). The research is a housing development scheme for low and 
middle-income people who are adequate in terms of quantity with social and physical conditions in a short 
time and affordable. 

 Based on this gap, this study focuses on public government efforts in providing affordable housing for 
low-income communities where using assets from local governments. This study is related to the efforts of 
Salatiga's government in managing local government assets for the provision of decent housing for low-
income communities. 

 

2. DATA AND METHODS 

 The method used in this study is a mixed-method, which is a combination of qualitative and quantitative 
approaches (Creswell, 2010; Bryman, 2006). The research method was a mixed-method with a sequential 
explanatory strategy. The strategy of this method applied data collection and quantitative analysis followed 
with the collection data and qualitative analysis. Data collected by primary and secondary. They are primary 
data collected by interviewing informants and secondary data collected by literature, planning studies, 
policies, articles, and reference books. Informants are the governments involved in hand over the land 
assets from the government to the public, such as Departments of Housing and Settlement, Department of 
Public Works and Spatial Planning, and Departments of Local Financial Revenue. 

 This section will describe the research design and analytical model for the provision of land for 
affordable housing for low-income communities in Salatiga and supported by primary and secondary data 
as data sources. This study combines qualitative and quantitative approaches in different phases of the 
research process (Terrell, 2012). 

 Analysis of the land provision for housing low-income communities seen of the value of housing needs 
in Salatiga. Housing needs are based on the value of the backlog in Salatiga and low-income demographic 
data. This study focuses on Government Civil Servant, especially classes of II and III, as objects of low-
income communities in housing land provision. The registered names filed to be able to own a house are 
1920 persons. The number of housing needs in Salatiga as the basic data to analyze the potential of the 
region as a settlement. 

 Potential for the provision of residential land for MBR based on an overlay of land mapping using a 
settlement area based on the Urban Land Use Plan document (RTRW) of Salatiga relate to the settlement 
area Salatiga. The overlay of both data figures out the locations of potential areas as new settlements. 
Location determination is not only based on potentially residential locations. Local Government 
intervention as an effort of the provision of affordable housing using local assets, which are located in the 
plan of a settlement area. The availability of land assets and new settlement potential areas were utilized 
to provide land for affordable housing for low-income communities. 

 

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3. RESULT AND DISCUSSION 

3.1. General Description of Salatiga City 

Salatiga is one of the small cities in Central Java, which is located in the middle of the Semarang 
Regency. Administratively, Salatiga consists of 4 sub-districts and 23 urban villages with an area of 5.678 
hectares (Central Bureau of Statistics in Salatiga, 2017). They were Argomulyo Subdistrict has 6 urban 
villages, Tingkir Sub-district has 7 urban villages, Sidomukti Sub-district has 4 urban villages, and Sidorejo 
Sub-district has 6 urban villages. In 2016 the land area used for housing and settlement was 1.618,85 
hectares, which is spread in every Sub-District. The condition of the existing location of housing and 
settlement in Salatiga could see in the Figure 1. 

 

 
Figure 1. Existing Location of Housing and Settlement in Salatiga of 2016 

 
In 2015, houses in Salatiga as many as 41,889 housing units. However, this number has not 

accommodated the housing demand in Salatiga. The number of backlog in the Salatiga reached 4.068 
housing units. Reducing the number of backlogs, the Salatiga government is trying to build housing for low-
income communities with affordable prices. Actions are undertaken by local governments, especially 
coordinate with the Governing Board of KORPRI (Corps of Government Civil Servants of the Republic of 
Indonesia) in the form of list their names in accordance with the requirement as many as 1920 employees 
class II and III who do not have a house yet. A government civil servants (PNS) class II was civil servants who 
have maximum educated was the senior high school with maximum salary as much as Regional Minimum 
Wage (UMR) and class III was civil servants with minimum educated was undergraduate with a minimum 
salary above a Regional Minimum Wage (UMR). Land plans for housing and settlements in Salatiga in the 
next 20 years until 2036 years as much as 639.22 Hectares. The land acquisition location plan was used to 
fulfill the demand for houses in Salatiga City, both for reducing a backlog of house ownership or for all 
populations' growth. 

 

3.2 Analysis of Housing Land Potential 

This analysis explains the potential of land in Salatiga from the existing location of settlements and 
settlement plans. This study helps in viewing the locations of land that can be used as a new settlement in 
accordance with the Urban Land Use Plan Document of Salatiga. The study of potential as settlement land 

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is supported by demographic data based livelihoods in productive age, a percentage of the backlog in 
Salatiga, with existing location and land use plan as settlement. 

Planning for housing area refers to National Law Number 1 of 2011 concerning housing and settlement 
area planning. There are several criteria in the planning of housing area, they are : 

1. The use of space appropriate land capacity and providing a healthy environment, safe, and can 
provide a living environment in accordance with community development. 

2. Available for road infrastructure and public transportation services are available/served by public 
transportation. 

3. Management of area supported by public facilities and social facilities. 

Determination of housing area based on location characteristics and land suitability adjusted with 
characteristic and carrying capacity. Landed use for the new housing area is 40% until 60% of the existing 
land  (Hilmasyah & Rudiarto, 2015). Besides that, a new housing area equipped with public utilities and a 
maximum of housing building density did not structure as much above 50 houses per hectare (Hilmasyah & 
Rudiarto, 2015). In addition, it refers to the Ministry of Regulation Number 41/PRT/M/2007 mention 
related criteria to develop housing area, they are : 

1. The land's topography is the flat slope and moderate slope (slope is 0% until 25%). 
2. Available of the water source, both groundwater or water, managed by an organizer.  
3. The location was not in a disaster-prone area. 
4. The drainage condition is good to a medium. 
5. Location was not in river barriers, beaches, reservoirs, lakes, wellspring, irrigation, railways, and 

safe flight areas. 
6. The location was not in an area needing protection and was not in fishery farming, agriculture, or 

buffer area. 

According to the Urban Land Use Plan Document and RP3KP of Salatiga mention, some land locations 
were potential as new settlements (City Government of Salatiga, 2016). The area of potential land as new 
housing and settlements in each Sub-District (Table 1). 

 
Table 1. The land area as potential new Housing and Settlements of 2016 – 2036 in Salatiga based on RP3KP 

Document 
 

Sub-District Land Area (Hectares) 

Argomulyo 121,76 

Tingkir 116,08 

Sidomukti 170,80 

Sidorejo 230,58 

Total 639,22 

 

The land area can be used to a new location for housing and settlement all society and especially for 
providing a settlement of low-income communities. Argomulyo Sub-District and Sidomukti Sub-District 
have a wider area to used as a settlement. Thus, both Sub-District were more potentially used for a new 
settlement because they have a wider area than other Sub-District. 

The potential of settlement land also saw a number of the backlog in Salatiga. Salatiga had 
experienced a deficit in providing the housing. The difference between the demand for house dan existing 
housing (backlog) was 4.089 house units in 2015 (Figure 2). The highest number of a gap in Sidorejo Sub-
District with number reached 2.915 house units. Then, Sidomukti Sub-District, with a number of gaps was 
799 house units, Tingkir Sub-District gap number reached was 317, and the lowest gap number reached 37 
house units in Argomulyo. The table above was the planned land potential for the provision of housing and 
settlements for all community groups, including for low-income and poor communities. 

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Figure 2. Proportion demand for housing in Salatiga of 2016 
 

In the picture above that the gap between the demands of the housing and the availability of land in 
each sub-district for the developing of houses for all community groups. The provision of housing land for 
low-income communities was included in the plan. The cost of urban land in every sub-districts is more 
expensive, making it difficult for low-income people to reach. Thus, it requires government intervention in 
the provision of adequate and affordable housing for low-income communities. The provision of service 
housing for low-income communities was not effective by the formal market mechanism because 
production and housing construction payments were more expensive. In contrast, informal mechanisms 
tended to produce a solution that was less expensive than the standard price (Rojas & Greene, 1995). Thus, 
to fulfill the needs of formal housing and settlement in Salatiga was not easy because the limited land 
caused housing costs more expensive. For low-income communities, it was hard enough to have formal 
market mechanisms. With limited land, the potential land that can be constructed for housing must be 
effective and can be used for public welfare for all civil society (Figure 3). 

 

 

Figure 3. Location of Housing potential in Salatiga of 2016 - 2036 

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Provision of affordable housing for low-income communities saw from several aspects to supported 
affordability for the communities. Affordable housing design by a case study the government Queensland 
give the initiative in promoting the design and construction of the settlement. Affordable for housing 
summarized in several aspects, they are : 

1. The social settlement was designed safe and comfortable for residents. 
2. Environment sustainability with the availability of waste management, water, and energy. 
3. Economic, affordable and efficient cost from time to time. 

Potential land for housing and settlement in Salatiga has in accordance with the criteria, but it could 
not be affordable by low-income communities with their limited economics. This condition can cause the 
government policy of Salatiga to helped low-income communities by handed over half of the land assets 
owned by the government (ex-a land by the village administration) to low-income communities for 
reducing cost standards. 

 

3.3 Analysis of Land Local Government Assets 

The government of Salatiga's effort in the provision of land for housing saw the potential of the new 
area as settlement based on the Urban Land Use Plan of Salatiga. The availability of land as a settlement 
has a lot of potentials, which is distributed on some Sub-District. But, not all communities could access dan 
reach of that land. This is the financial constraint of low-income communities to have land for good and 
decent fulfillment. 

The government of Salatiga has several land assets scattered in every Sub-District of Salatiga. Land 
assets were (Tanah Bengkok), which is private land owned by village administration and handed over to the 
local government of Salatiga. Those assets landed use, such as agriculture, plantation, moor, field, public 
facilities, and social facilities. The area of land from landed use of government assets in every Sub-District 
could be seen on the Table 2-5. 

 

Table 2. Landed Use of  Ex-a land owned by the village 

government (ETB) in Argomulyo Sub-District in 2017 

Table 3. Landed Use of Ex-a land owned by the 
village government (ETB) in Sidomukti Sub-

District in 2017 

Landed Use Area (m2) Percentage 

Plantation 402.629 45% 

Settlement 1904 0% 

Office 7407 1% 

Social Facilities 20.838 2% 

Building water storage facilities 3.765 0% 

Field 30.360 3% 

Agriculture 327.358 37% 

Rice Field 52.783 6% 

Moor 39.420 4% 

Total 886.464 100 % 
 

Landed Use Area(m2) Percentage 

Moor 2.674 1% 

Rice Field 2.521 1% 

Agriculture 338.821 89% 

Park 3.570 1% 

Field 5.739 1% 

Social and Public Facilities 29.687 8% 

Settlement 5.021 1% 

Office 14.155 4% 

Total 382.838 100 % 
 

 
Table 4. Landed Use of Ex-a land owned by the 

village government (ETB) in Sidorejo Sub-District in 

2017 

Table 5. Landed Use Ex-a land owned by the 
village government (ETB) Tingkir Sub-District in 

2017 

Landed Use Area (m2) Percentage 

Agriculture ( Rice Field) 42.372 5% 

Agriculture (Moor) 45.305 5% 

Agriculture 724.990 86% 

Office Building 7.039 1% 

Landed Use Area(m2) Percentage 

Agriculture 175.853 27% 

Rice Field 415.604 64% 

Moor 18.548 3% 

Settlement 7.205 1% 

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Field 11.480 1% 

Social Facilities 9.865 1% 

Bathing Place 255 0% 

Total 841.306 100 % 
 

Office 8.238 1% 

Social Facilities 4.152 1% 

Field 20.148 3% 

Total 649.748 100 % 
 

 

Based on Ex land owned by the village government of Land use in 2017, the majority percentage of 
landed use of ETB as local government assets used for plantations and agriculture (rice field and moor). The 
largest area of land in Argomulyo Sub-District. That land was land owned by the village administration and 
handed over to the local government of Salatiga. The availability land of local government and then 
fulfillment demand of housing for low-income communities by made use of a land asset, which is located in 
accordance with Urban Planning of Salatiga. The above data represented land assets in 2017, but a land 
asset for providing housing for government civil servants (PNS) took asset land in 2007. That land asset as 
dry-soil agriculture and was converted as a settlement area. In 2007 for providing a demand for housing for 
low-income communities related to housing because of the inability of low-income communities to have a 
house, the local government has removed half of their assets (land) for society as their housing settlement. 
The location of local government land assets has been removed for housing in the land that was used 
before as dry-soil agriculture. The chosen location was Kecandran Urban Village, Sidomukti Sub-District, 
and Randuacir Urban Village, Argomulyo Sub-District in Salatiga. The selection of both location because it 
was the largest land asset than other land assets of local government that could use to housing. 

Land acquisition of local government for providing housing of low-income communities, especially for 
government civil servants distributed in some locations. Provision of facilities and infrastructure for the 
housing of government civil servants (PNS) were in some location, they are : 

1. Ex-Land owned by the village government (Eks Tanah Bengkok) in Kecandran Urban-Village with 
area of 59.207 m2. 

2. Right over land Number 27 on behalf of Salatiga government with an area of 48.115 m2. 

But the land acquisition of the Salatiga government with compensation to prospective landowners or PNS 
divide in two ways, they are : 

1. Half of the land Bengkok in Kecandran Urban Village with an area of 31.420 m2 for built 400 house 
units in Prajamukti. 

2. Half of Right over land number 27 in Salatiga with an area of 31.420 m2 which is builed 345 house 
units in Prajamulya. 

 Disposal of right assets from government to public accordance Regulation in Lieu of Law number 27 of 
2014 about Management Regional/National Owned Goods stated that owner of regional or national owned 
goods could propose the utilization and transfers regional owned goods form of land or building that was 
not required the approval Municipal Regional Houses of People's Representatives (DPRD) and regional 
owned goods besides from land and building. And the last could be owned for the public. Still, to avoid any 
problems in the future, The Indonesian civil servant's corps submitted an application to the Municipal 
Regional Houses of People's Representatives (DPRD) of Salatiga to approve the disposal of land assets 
owned by the government to the public. In relation to the local government's land assets, DPRD approved 
the transfers and removed land from the inventory list for housing development to government civil 
servants in Salatiga. Disposal of assets refers to some regulation provision which is supported for transfers 
regional owned assets to society, such as : 

1. Government Regulation of Indonesia number 38 of 2008 about Management of National/Regional 
owned goods. 

2. Government Regional number 50 of 2006 about Managements of goods. 
3. Minister of Home Affairs Regulation Number 17 of 2007 about Technical Guidelines for Regional 

Property Management. 
4. Decision of municipal Regional Houses of People's Representatives (DPRD) of Salatiga about 

Committee for the removed of regional owned goods for provision housing KORPRI in 2012. 

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 Based on regulation before, government land assets have to release can be utilized for the settlement of 
low-income communities. Then the price of government civil servants, especially class II and III, can be 
cheaper. They only replaced with the land at a price in accordance with land and building tax imposition 
base (NJOP). Land used for housing comes from these government assets, it can depress home prices that 
are offered to the public at a price below the standards set by the government. 

 

3.4 Analysis of Affordable Housing for Low-Income Communities 

Generally of affordable housing could see from economic aspects in the ability to buy a housing unit. 
Based on spending money on housing, this condition was not more than 30% of household income. This 
agrees with the research of providing affordable housing for low-income communities in Yamen, which is 
an economic aspect of affordable housing. 

The provision of affordable housing for low-income communities from the land relinquishment of 
government assets could reduce the number of the backlog in Salatiga. Reduction of the backlog in Salatiga 
was providing 745 of house units to 745 families from 1920 government civil servants who had not had a 
house. Government interventions in providing land for low-income communities in accordance with formal 
market mechanisms could help reduce the price of housing, which has to be paid by the community. 
Affordability in the provision of housing and settlement for low-income communities provided the land and 
the effort of pressing cost. 

The affordability of housing payments was seen at the price of one house unit of IDR 85,000,000. This 
price was below the standard of price housing and could access a mortgage (KPR FLPP) by the Ministry of 
Public Works and Human Settlement (PUPR). Based on the standard was given by PUPR, the housing price 
of the mortgage was IDR 130.0000.0000. The local government of Salatiga has pressed as many as 34% 
from standard pricing. In addition, pressed of cost a housing unit of mortgage, pressing of cost also got 
price support by the Ministry of Public Works and Human Settlement (PUPR) as much as IDR 4.000.000 as 
an advance payment for the land. And then pressing of the cost was also gotten help from Bank BTN (Bank 
Tabungan Negara) to make commercial loans. So, the owner's candidate could make a payment of credit in 
one month was Idr 835.000 within a period of 15 years until 20 years. Provision of housing dan settlement 
for low-income communities, especially for government civil servants classes of II and III, has been done 
since 2007. Since 2007 has done list names of owner's candidate with several criteria, such as : 

1. Government civil servants (PNS) in Salatiga. 
2. Priority for PNS class II and III. 
3. Priority for PNS who has worked in Salatiga more than 5 years. 
4. Couples Husband and Wife of PNS can only have 1 house unit. 
5. Prioritized government civil servants who had not have a house. 
6. Government Civil servants who have a job tenure before December 2012. 

Requirement of above, government civil servants who register as much as 1.920 employees, but a 
limited land asset of ex-land owned by village government and has owned by the local government only has 
built 735 house units. The next plan of Salatiga's government will build housing for low-income 
communities in the Sub-District, who have some land assets that can be used for housing and settlement. 
But over time, in the process of housing development, the owner's candidate has changes job titles. So the 
number of job status changes has influenced inappropriately in the purpose and goals of providing housing 
for low-income communities. So, some owner's candidate was not appropriate with criteria. 

 

4. CONCLUSION 

Salatiga is one of the small cities in Central Java with a lot of development as an attraction to the 
increase in activities and demand for housing, especially for low-income communities. However, not all 
low-income communities have the opportunity to obtain affordable land for housing demand. Provision of 
government land assets by the transfers to the public as an effort providing affordable housing. From the 
government, assets have some asset location that can be used as providing low-income communities 

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housing. Intervention from the local government for fulfillment providing affordable housing not only 
focuses on the land provision. Payment scheme as an effort to pressing of cost in the payment process for 
low-income communities. The standard of a unit house with a mortgage (KPR) was IDR 130.000.000, but 
the local government has pressed of cost until 34% or IDR 45.000.000. Low-income communities can claim 
affordable ownership of a unit house with a price under the standard. This Salatiga city government policy 
can be a lesson learned for other local governments to help low-income communities in affordable 
homeownership. The government policy of Salatiga in providing housing and settlement in the future 
should do not reduce land assets owned by local government. A land status did not remove the public-right 
but providing a housing and settlement approach was rent. 

 

5. ACKNOWLEDGMENTS 

Researchers would like to thank the donor of funds, namely the University of Diponegoro for Research 
on the Development and Application of Funds in addition to the State Budget of Diponegoro University in 
the 2018 fiscal year with contract number 474-36/UN7.P4.3/PP/2018. So with these funds, the researcher 
can complete the research. 

 

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