1. Introduction

For four decades, climate-related disasters such as floods, droughts, storms, landslides and forest fires have caused a lot of loss on human lives and livelihoods. It also causes the destruction of economic and social infrastructure, as well as damage to the environment with the frequency and intensity of disasters that are likely increasing [1]. According to the Ministry of Environment in 2009, households in Java contribute carbon dioxide (CO₂) emissions from energy use of more than 100 million tons per year. The industries in Java are also a major contribution to CO₂ emissions, about 24 million tons per year.

Along with the growth rate of development, Satterthwite [2] explained in an effort to provide comfort and a healthy environment for the citizens of the city. The concept of Eco-friendly City Policy can be a solution for urban development actors with environmentally friendly base. The concept of Eco-friendly City Policy is a concept that aimed each city in the world contributes to decline the global carbon emissions based on community participation. Eco-friendly city policy is also a symbol of closeness to nature and without exception the support of community will further strengthen and reinforce environmental-friendly urban development. In realizing the eco-friendly city policy, there are eight aspects that must be considered in terms of the process, namely: green planning and design, green community, green building, green energy, green water, green transportation, green waste and green open space.

Rukmana [3] stated that in the context of spatial planning, there are two types of needs underlying community participation, which are control function and the need of social information and data. Public participation in spatial planning becomes crucial as being responsive. The efforts to realize Eco-friendly City Policy in the region of East Java refers to the East Java Provincial Regulation No. 2 of 2006 on Spatial Planning and Regional Governance in East Java province. Article 1 Paragraph 34 states that environmental-friendly in industrial, services, and trade activity in which the production or the output process prioritizes the method or technology that does not pollute the environment and not harmful the living things. In realizing an Eco-friendly City Policy that is based on community participation refers to the funding from the regional budget. The referral becomes a very strong base in integrating community participation to success the improvement of the carrying capacity of Eco-friendly City.

Community participation in city development includes participating in the development activities, and participating in utilizing and enjoying the results of such development [4]. There are several forms of community participation in the development program, i.e. the participation of money, possessions, labor, skills, ideas, social, decision-making and representative [5, 6]. Participation grouped into two types, namely the form of participation that is given in a real form (tangible), e.g. money, possessions, power and skill; and forms of participation that is explicit, e.g. ideas, social, decision-making and representative participation.

The policy formulation of environment-friendly city planning in Tulungagung is not separated from community participation. Increasing the public participation in spatial planning requires initial assessment on the current form of community participation; which is already exist and executed. The problems that arising from the presence of illegal traders has been overcome since the construction of Tulungagung City Square rose with mutual help and community participation. Since the development, it is possible to realize the construction of eco-friendly city policy which base on the public participation. This study assesses the public participation in policy formulation of environment-friendly city planning in Tulungagung. The purpose of the research is to determine the forms of public participation in policy formulation of environment-friendly city planning in Tulungagung. Thus we expected to obtain a conclusion that could be used in decision making regards to the increasing of public participation in policy formulation of environment-friendly city planning in Tulungagung.

2. Research Method

2.1. Research Site

The study referred to Tulungagung Regency Regulation No. 11 of 2012 on Tulungagung Spatial Planning 2012- 2032. The study is conducted in three districts, i.e. Tulungagung, Kedungwaru and Boyolangu. Referred to the implementation of spatial planning regulations, the environment friendly city planning development will be centered on these three districts.

2.2. Data Collection

Data were collected using questionnaire to 100 respondents in the study sites. The respondents are community representatives who have been involved in the environment friendly city policy-making. The respondents include the head of the village and urban community representatives in the planning area.

Qualitative data were obtained through interviews of key persons selected by purposive sampling. Each village were represented by three respondents (e.g. head of the village, village secretary), who are considered to understand the development and the existing potential in the study area [7].

2.3. Data Analysis

This study used descriptive qualitative and quantitative techniques. This study focused on field research to obtain data or input from the community as the primary data and interpreted the data quantitatively. Qualitative description is focused on the disclosure of qualitative information through the collected data to be analysed [8]. The data from the community analysed using a frequency distribution analysis and percentage the forms of community participation. Indicators of community participation are: As the listener; inputs/suggestions contribution, information/data contribution, assistance in clarifying the right of space, objections to the draft plan, and combination of the forms that mentioned previously.

3. Result

According to Derick in Schoburgh [9], the value of participation is not only implemented in the presence or absence on the meeting. The important thing is to determine the type of participation that is appropriate for a particular problem. In this case, we emphasized the importance of recognizing the classification or the type and form of public participation.

The frequency distribution of the forms of public participation in policy formulation of environment-friendly city planning in Tulungagung is mostly inputs/suggestions contribution by 43%. It is followed by as the listeners of 25%, information/data contribution as 17%, and other forms of 15%. No respondents participated as assistance in clarifying the right of space (Table 1).

Table 1. Frequency Distribution of Public Participation in the Policy Formulation of Environment-Friendly City Planning in Tulungagung

This means that only a small percentage of community that did not contribute input/suggestions because they merely act only as a listener. It means that the people in Tulungagung already have the willingness and ability to participate and express their opinions. Willingness to participate is related with the motivation to make changes, while the ability to participate is related to the human resources and learning ability.

Respondents also suggested the existence of other forms of participation such as considerations contribution, identification of community needs, cooperation in the formulation, and the assistance of experts from the public. This suggests that in addition to the input contribution, respondents also expect any form of cooperation between the public and the government in policy formulation of environment-friendly city planning and also the involvement of experts from the community.

With the contribution of inputs, participation has provided space and capacity to meet the needs and rights of the community. It also aimed to develop the local potential and initiatives. The rights and aspirations of society actions against government policy, has a goal to influence government policy and determine a common agenda for policy formulation of environment-friendly city planning in Tulungagung. In this case, public participation is used as a communication tool to get the input of information in the decision-making process, thus responsive decisions can be realized [10]. A responsive planning according to Mc Connell in Santosa and Heroepoetri [11] is the decision-making process of policy formulation that is responsive to the preferences and needs of the communities; which is potentially affected if the formulation of the policy is implemented.

Form of participation in the form of input/suggestion contribution is an indicator on the success of policy formulation arrangement. The policy was arranged so that the policy will be in accordance with the aspirations and needs of the community. The arrangement should provide optimum benefits to meet the needs of society [12]. Definition of participation by Bovaird [13] is the mental and emotional involvement of persons in group situations that encourage them to contribute to group goals and share responsibility for them. Public participation in policy arrangement involves individuals to be responsible members of society both mentally and emotionally to the purpose of the development.

4. Discussion

4.1. Public Participation in Tulungagung Development

Community in Tulungagung is expected to provide support and encouragement in the form of participation that referred to the needs and phase of policy formulation of environmental-friendly city planning. It is composed of planning, implementation, utilization, monitoring and assessment. Policy as the process of improving the ability of humans determines the future. It means that the community should be involved in the policy process itself by providing the power and authority as well as participate in the formulation of the policy. Terms of policy-oriented human development is the direct involvement of the community as a beneficiary of the resulting policy [14].

Burke [15] defined participation as people who are oriented at the preparation and processing of inputs and involved in the articulation of demands and the needs on decision-making. Mubyarto in Ndraha [16] stated that participation is a form of willingness to help the success of any program appropriate to the ability of any person without sacrificing the self-interest. Participation is taking part in join activities [17] and process when citizens (as individuals, social groups and organizations) actively participate and influence the processes of planning, implementation and monitoring of policies that affecting their lives [18]. In detail, active participation is involved in the process of determining the direction, strategies and development of policies [19]. Participation is the involved community members and provided support of energy, thought, matter, and responsibility for any decisions to achieve the objectives that have been determined together.

Soetrisno [20] stated that the recipients of community development program must participate in decision-making, implementation, utilization and evaluation of a development program; as cycle phases of participation. But it may also from decision making directly to the evaluation, and feedback. However, it is emphasized in that the society as a recipient of the program needs to be involved directly in the development of problem identification and development program planning process [17].

Public participation in policy formulation occurred due to [17]: (1) the organization; there is a direction from the leader of the group, and direct participation by individuals; (2) pressure and incentives; (3) the expense of time and personal interests; and (4) hope to make a beneficial contribution. Ndraha [16] classified participation in six forms; (1) through contact with others; which is the starting point of social change; (2) development of operational implementation; (3) pay attention, accept the terms, agree under circumstances, obey, comply, absorb and respond to information, and implement (although refusing); (4) decision-making in development planning; (5) community involvement in assessing the implementation of the development, the congruence with the plan and the needs of the community; and (6) receive, maintain and develop the results of development. Whereas Huraerah [21] studied Bandung community participation in the villages program as ideas in meetings, various activities for the development of the village, property, skills and proficiency, various efforts to encourage business and industry and social participation.

The exclusion of direct community participation in the policy formulation of environment-friendly city planning in Tulungagung becomes a basic proof that this participation includes in top down (bureaucrats) initiative participation. Many respondents did not know that Tulungagung government planned to create a policy formulation of environment-friendly city planning.

4.2. Patterns of Public Participation in Tulungagung

There are two media patterns to raise public participation, i.e. indirect participation, such as participation through mass media (print and electronic), and direct participation, by using structured mediation. Each participation patterns have its advantages and disadvantages.

On the other hand participation also divided into manipulation and consultative participation. Participation is said to be manipulative because the government gave incorrect information to the public, while the consultative participation is a participation in which the government asked for suggestions and criticism from the community prior to the policy arrangement. However, consultation was only used to get legitimacy from community, and in fact no public comments and suggestions are used for consideration in policy making [22].

4.2.1. Indirect Participation

Participation through mass media (print and electronic) is included in indirect forms of participation. Media communication is divided into two forms, i.e. print media (magazines, tabloids, newspapers, etc.) and electronics (television, internet, radio, etc.). The communication media form is as a consequence of advances technologies that have the expansive interests to expand the areas of communication, unifying cultures, and binding various interests. However, it must be recognized that advances in communications technology have expanded the role of the public in political participation. The most fundamental issue is the access to print and electronic media are not equally shared by all members of the community. It leads to public policy-making distortions.

This imbalance problem is rooted in poverty and information literacy (the ability of a person to know the information needed, specify, evaluate and use information effectively). To address this gap, it is required distribution of communication technology to adequately support all levels of society in accessing information regards to any public policy making.

4.2.2. Direct Participation

Direct participation involves many people and takes advantage on the physical public space for the interest articulation. Direct participation includes the public who occupy physical space as the capitol, meeting hall, open field, and others. One example is the hearing which conducted among members of the community with the executive or the legislature at the capitol to reach agreement on a particular policy. Involving the direct participation of citizens in public spaces was aimed to provide input to the executive and legislature in their policy [23].

ACKNOWLEDGEMENTS

The author would like to thank: (1) the Governor of East Java, (2) Government of Tulungagung, (3) Rector of Brawijaya University, (4) Graduate Program Director, (5) Department of Fisheries and Marine Resources of East Java Province, (6) the Society of Tulungagung District, (7) the Society of Kedungwaru District, and (8) the Society of Boyolangu District.