Prospective Peri-Urban Areas Around the New Capital City of Nusantara, Indonesia: Sustainable Development and New Urban Agenda Perspectives

In 2022, the Indonesian Parliament passed the historical new capital city bill, commencing the relocation of the country’s capital from Jakarta to Nusantara in Kalimantan Timur. This relocation has been predicted to impact the surrounding areas by, for instance, triggering (peri-)urbanization. This research aimed to analyze the locations and roles of peri-urban areas and discuss the processes that drive their emergence and development in the context of the New Urban Agenda. For this purpose, potential peri-urban areas were determined by examining three spatial elements: the development level, accessibility, and position of a village (administrative unit) relative to the capital. Supporting primary data were acquired through a field survey, and secondary data were obtained from the Village Potential Statistics (PODES) from BPS-Statistics Indonesia. Results show that the identified potential peri-urban areas had the following characteristics: (1) situated within the new capital’s development zone, (2) directly adjacent to the capital, (3) having a high level of development and adequate access to the capital, and (4) currently parts of the peri-urban areas of Samarinda and Balikpapan Cities. According to the New Urban Agenda, peri-urban areas can help provide open green space to support rural-urban linkage and perform the new capital’s ecological functions.


Introduction
Relocating the capital of Indonesia from Jakarta on Java Island to Nusantara in the Province of Kalimantan Timur brings various impacts, especially on the two regions in its planned location: Penajam Paser Utara and Kutai Kartanegara [1].This relocation is unique in that it involves moving from an area with a very dense population to another with a sparse population [2].Aside from the Nusantara Capital Authority, the local governments around the new capital have also made the necessary preparations, including formulating various strategies, such as adjusting regional spatial plans, constructing supporting infrastructure, and preparing quality human resources.Even though the new capital's development is still focused on the core government area, the neighboring regions have started to feel its impact.Various actors and the public have indicated the desire to seize the promising opportunities it offers.The new capital has been legally established but has yet to exist physically.Reflecting on urbanization in Greater Jakarta, it is vital to understand the potential urban development in its surroundings [3].Peri-urban areas occur as a consequence of a city's existence.Their varying and continuously changing characteristics are thus heavily influenced by urban development.Planned as one of the most sustainable capitals in the world, Nusantara needs support from properly managed periurban areas.To control their development, regions immediately adjacent to the new capital must be first identified.
Peri-urban areas are situated in between urban and rural areas [4], where urbanization manifests in continuously changing land use and livelihoods.Increasing use of the growing facilities and resources outside the city by city dwellers allows for interaction between urban and rural areas and, as such, blurs the rural-urban boundaries.Being the "in-between", peri-urban areas are crucial for both the urban and its rural surroundings.One of their roles is as a bridge in the rural-urban linkage [5][6][7].Further, their characteristics vary across time, depending on the development of the urban area.Woltjer [8] characterized peri-urban areas in developing countries according to these characteristics: densification and urbanization, urban population declining at the core, particularly strong peri-urbanization, blending of the agriculture and non-agriculture sectors, and changing lifestyle.A further study by Gonçalves [9] defined this transition zone based on its mobility, identity, land cover, economic activities, natural elements, and spatial functions.It requires spatial planning and regulated land-use zoning to maintain its primary ecosystem services for core urban areas [10].
In the planned location for the new capital, future peri-urban areas will be influenced by the development factors of Nusantara and nearby cities, Balikpapan and Samarinda.Because Nusantara can only develop with the supporting roles of its neighboring cities, the capital city planning uses this concept to integrate various existing sectors in these cities and initiate development in partner areas.Thus, for the above reasons, this study was designed to identify and explore the prospective peri-urban areas around the new capital by factoring in their levels of development.The results are expected to answer these research questions: Which areas have the potential to grow as the peri-urban of the new capital, and what are their roles in its development?In doing so, this study also addressed the conceptual challenge of peri-urban.Several previous studies suggested that peri-urban areas are formed as an attachment to adjacent developing urban areas [11], but, in the meantime, the new capital has yet to exist physically.Therefore, this study decided to explore prospective peri-urban regions at this stage and build a discourse toward Sustainable Development Goals and New Urban Agenda for further discussion.It is expected to inform related stakeholders in anticipating the new capital development by providing early detection of its urban growth while enriching the perspectives of peri-urban studies.

Methods
A qualitative study was considered fitting to achieve the research objectives and answer the research question.Besides, the current research is an initial step to studying prospective peri-urban areas, which requires explorative rather than explanative description [12].Therefore, it primarily worked with qualitative and spatial data using geographic information system (GIS) tools to visualize and complement the explorative description.Development geography, particularly urban geography, was theoretically used to approach the peri-urban area discourse.

Research Location
The unit of analysis used was the administration unit of a village, which divided the study area into villages around or within the planned location of the new capital.This included villages in adjacent cities/regencies: Penajam Paser Utara, Kutai Kartanegara, Paser, Balikpapan City, and Kutai Barat (Figure 1).Based on the unit of analysis, the research population consisted of the villages in these cities/regencies, and the samples were those abutting the administrative area of the new capital.

Data Acquisition
Two types of data were prepared for the analysis: primary and secondary.The primary data were acquired through direct observation and field surveys.Direct observation in the field included a series of methods to determine the driving factors of peri-urbanization, including documentation of the study area's condition to obtain descriptions of prospective peri-urban areas.Secondary data were collected from the Village Potential Statistics (PODES) dataset of BPS-Statistics Indonesia.From the dataset, several parameters related to the development level of the villages were selected, including infrastructure and population.In addition, several relevant policies and regulations on the new capital and regional development planning attained from literature and policy review were also processed and discussed in further analysis.The data used in this study are summarized in Table 1.

Determination of Prospective Peri-Urban Areas
Prospective peri-urban areas were identified by analyzing the development level and the spatial constellation of the sampled villages.The development level was concluded from the composite of data variables (111 variables) from the Village Potential Statistics.Conceptually, these variables represent several criteria that define a peri-urban area, such as economic activities, spatial functions, identity and lifestyle [9], and centralization of activities [8] (Table 2).The composite scores of the regional development level were grouped into three classes using the equal interval technique.Geographic information system (GIS) was used to spatially analyze villages around or within the new capital's planned location.In addition, accessibility based on the presence of roads was used to predict potential peri-urban areas.Their typology was concluded based on the classification as the basis to reveal their processes and characteristics.The typified villages were then visualized using qualitative descriptive analysis in graphs and tables.

Determination of the Roles of Peri-Urban Areas
Prospective peri-urban areas and their typology were explored to predict their roles in the new capital.For this purpose, the regional planning policy, including regulations related to the new capital development, was scrutinized using policy analysis.The policy was combined with the data documented during the field survey to generate more comprehensive information.The result was further used to discuss how the peri-urban would function in the context of the New Urban Agenda, the main framework of discussion in this research.

Regional Development Levels Around the New Capital
To begin with, the sampled villages were discriminated into urban or peri-urban based on their level of development.It is a critical point of departure to determining potential peri-urban areas because the urban area, Nusantara, where their development would be rooted, has yet to be built.The development level indicates an activity center that potentially becomes a peri-urban area after the new capital's urban system takes form.In Indonesia, spatial planning classifies and incorporates various centers of activity at the national, regional, and local levels that can turn into centers of growth [13] with the support of numerous economic, social, and government facilities [14].However, the new capital development in Kalimantan Timur has induced changes in spatial constellations, affecting existing regional conditions and spatial plans [15].
Figure 2 shows the distribution pattern of villages based on development levels in the study area.Several villages in Balikpapan City, Penajam District (Penajam Paser Utara), Muara Jawa District, Samboja, Loa Janan, Loa Kulu, and Tenggarong (Kutai Kartanegara) had high levels of development.Urbanization in Balikpapan and Samarinda Cities has already affected some of these villages and transformed them into peri-urban areas.In addition, several villages were categorized as developed because they were passed through by the main roads (Samboja and Muara Jawa Districts) and were the regency's center of activity (Penajam District).Urbanization due to capital city relocation can spread to its surrounding areas [16,17].Regions that share borders with the capital and are traversed by main roads are predicted to experience developments to a degree possibly never imagined before.However, this projection remains debatable because two other growth poles already exist (Balikpapan and Samarinda Cities), which may be more developed than the new capital.Nevertheless, the above regions can continue growing into peri-urban areas because three big cities with national-scale functions will influence them simultaneously.
The levels of development of each city/regency are presented in Table 3 and Figure 3.Both show that Balikpapan City had the highest proportion of villages with a high level of regional development.These villages were located in urban and peri-urban areas.On the contrary, Kutai Barat Regency had the lowest percentage of highly regionally developed villages, suggesting a rural pattern.

Typology of Prospective Peri-Urban Areas of the New Capital
One of the main leading factors of peri-urbanization in the research area was the continuous growth of Balikpapan and Samarinda as the existing activity centers.Considering their context and location in relation to the new capital, it can be concluded that the development of Nusantara and its peri-urban will create a main structure in the shape of a triangle, termed a tri-city (Figure 4).In addition, this study discovered that the new capital had four types or zones of prospective peri-urban areas (Table 4).This differentiation was inferred from regional settings (positions in relation to the new capital) and regional characteristics, i.e., numerous features of existing infrastructures and development levels observed during the field survey.These prospective peri-urban areas comprised several villages with different levels of development lying in the capital's perimeter.Figure 4 shows the locations and boundaries of each type of prospective peri-urban area, which creates four zones.Their distribution across the cities/regencies is summarized in Table 4. Details on these zones are explained as follows: • Zone 1: Prospective peri-urban areas of the new capital city projected from adjacent villages In the future, this peri-urban category will be affected directly by the new capital development.
Nusantara demands massive infrastructure to support its function as the new capital, including roads, buildings, and transportation facilities.Large-scale infrastructure will inevitably impact its surroundings due to the sprawl of its functions or services, which ripples the trickle-down effect.Another critical feature that will shape this zone is rapid urbanization triggered by a large number of people migrating into the city to seize urban opportunities.Increasing population entails expansions of settlements and their supporting facilities and land use change, transforming a rural into a peri-urban area.• Zone 2: Existing peri-urban areas of Balikpapan and Samarinda Cities Balikpapan and Samarinda are the epicenter of activities in the region.Balikpapan serves as an economic center, which has the oil and gas industry as the backbone of its economy and highly engages in the service sector as its derivative, thus attracting people from other regions.Samarinda is the capital of the Province of Kalimantan Timur, where most of the government infrastructures are concentrated.With these regional settings, Balikpapan and Samarinda bring an effect that contributes to shaping their surroundings into peri-urban areas.Figure 4 suggests that the peri-urban areas of Balikpapan and Samarinda are formed along the primary infrastructure and highways that connect them.

• Zone 3: Coastal peri-urban areas
The peri-urban areas on the coast are transitioning into an urban area.At this stage, this zone has indicated urban characteristics, including a dense population, diverse facilities, and a vast built-up area; all are economically driven by the coal extraction industry.The high population density in this peri-urban area is influenced by its position on the coast, which is the main gate of entrance for people from other regions.It currently accommodates the sprawl of urban features from Samarinda as the center of economic activities.However, it shows the trend of gradually moving southward to Balikpapan, particularly due to highway construction that provides access via Samboja (Kutai Kartanegara Regency), as seen in Figure 4. • Zone 4: Prospective peri-urban areas along the economic corridor Regional development also improves as different regions continuously invest in building connectivity.The research location comprises several areas with different resources and potentials, promoting interregional interactions to support the development.However, this can only occur when roads link their centers of activities.On a regency scale, as demonstrated in Figure 4, these roads have aided in driving the development further into the hinterland, from Samarinda to Tenggarong (the capital of Kutai Kartanegara Regency) and then to Melak (the capital of Kutai Barat Regency).These roads form a kind of corridor that boosts development and, thus, potentially initiates peri-urbanization.5 show that fairly large parts of Penajam Paser Utara, Kutai Barat, and Kutai Kartanegara were categorized as Zone 1.Each of these administrative areas had Zone 2, with the largest proportion identified in Kutai Kartanegara.Zone 3 was found only in Kutai Kartanegara, and Zone 4 in Penajam Paser Utara and Kutai Kartanegara.These calculation results imply that each peri-urban zone in the study area has its own administrative characteristics that the government should use to formulate, adjust, and implement the appropriate policies.

Peri-Urban Areas of the New Capital: What Can They Do?
Considering its location and plan, Nusantara is not much different from other capital cities in the world in the sense that it will require a large amount of natural and human resources.As stipulated in Law Number 3 of 2022 on New Capital City, the government expects the new capital to have at least three roles: world city, sustainable and forest city, and a growth pole in Kalimantan Island and eastern Indonesia.Therefore, interactions between urban and peri-urban areas are essential to achieve these goals, and both areas must be placed in the give-and-take and the supply-demand framework.As suggested by several studies [6,18,19 through flows of materials and human resources [20].This eventually shapes the peri-urban structures and functions, which comprise social networks, environmental features, foods and goods, and services provisions and regulations.The new capital's peri-urban areas will basically take on these structures and functions and be the object of observation in evaluating whether or not the central government's expectations of the new capital are satisfied.Consequently, these peri-urban areas must have sufficient land cover to support agriculture and sustain the environment, strong social cohesion and stability to maintain its social function, and robust economic institutions to promote productivity.As described in Section 3.2.above, each zone may offer one of the peri-urban functions for the new capital.These functions are obtained from the existing condition of available resources and the urbanization process that sets the development trajectories of each zone.For instance, the current situation of Zone 1 (prospective peri-urban areas of the new capital city projected from adjacent villages), located adjacent to the core of the new capital city, shows a rural typology with agriculture as the main economic sector due to the massive transmigration program organized by the Indonesian government in the 1980s [21].Given this unique land cover and landscape, this research agrees that Zone 1 can be developed as a food supplier to the new capital and designated as a recreational or tourism area.Another example is Zone 3 (coastal peri-urban areas), with developed tertiary sectors (Figure 6(a) and Figure 6(b)) and a higher population density than Zone 1.With the increasing population of various ethnic groups and backgrounds, Zone 3 can provide human resources for the new capital.In addition, because it is situated in the new capital's expansion zone, it can be developed into residential areas to accommodate the sprawling urban settlements.Zone 2 (existing peri-urban areas of Samarinda and Balikpapan Cities) will be functionally drawn to the new capital to support its economic activities and be developed as residential areas due to its extensive land resources.Meanwhile, Zone 4 has the opportunity to access the new capital using existing road networks and, thus, has a high potential to be developed as a multi-purpose area and a satellite city.The roles of each zone in the new capital development are presented in Table 5.

Multi-purpose areas to provide economic services
Notes: *Existing main drivers that distinguish between the types or zones of peri-urban areas, including economic activities, spatial functions, and identity and lifestyle [8,9] From these findings, it can be concluded that in predicting the prospective peri-urban areas, land functions and accessibility can influence their relative distance to the urban area, which corresponds to the argument put forward by several previous studies [22].In short, distant locations, such as those shown in Zone 4, may still be affected by the existence of a road network (accessibility).Moreover, land use and land cover, as other characteristics that differentiate peri-urban areas [23], can also be overlooked by the current land functions.As a matter of perspective, this study sees built-up areas from their functions and probable interconnectedness rather than as land cover.

Sustainable Development and New Urban Agenda in Prospective Peri-Urban Areas
As mentioned in Section 3.3 above, the peri-urban areas of the new capital have to maintain several elements of development to achieve its visions, including the environment, people, and the economy.Essentially, these elements are the 3 Ps or pillars of sustainable development: people, planet, and profit.It can be said that the development of peri-urban areas from and for the new capital is strongly tied to the notion of sustainable development and the Sustainable Development Goals as its operationalization.SDGs are closely related to regional development, and the function of a peri-urban area is one of the variables observed to achieve Goal 11 (Sustainable Cities and Communities).Acknowledging these aspects is crucial in preventing the same urban problems that the current capital, Jakarta, experiences from reoccurring in the future capital city.
Amidst the myriad of new urban problems and challenges, the recent development is not only based on and attempting to achieve SDGs but is also obligated to incorporate the New Urban Agenda (NUA) IOP Publishing doi:10.1088/1755-1315/1313/1/01202011 into its foundation [24,25].Peri-urban areas can substantially enhance the efforts to meet the standards and principles of the NUA by strengthening rural-urban linkage, sociocultural cohesion, and ecological function to support the urban area [26], which, in this case, is the new capital.The research findings also indicate that the existing conditions of the prospective peri-urban areas will be beneficial for realizing the NUA, which encompasses social inclusivity, sustainable urban development, and economic growth, as has been envisioned by the Indonesian Government.
Peri-urban areas can contribute to implementing the NUA by, for instance, providing open public spaces.Andersson [27] explained that public space plays a fundamental role in retaining the urban area's social, ecological, and economic capitals, which are the basis of the NUA.Following this explanation, public spaces will likely be developed in peri-urban areas [10,26,28,29].Ischak et al. [29] provided an example of public spaces emerging in the peri-urban area of Kampong Kalipaten, Tangerang, which is believed to result from settlement changes in the urban area.In the new capital, urban settlements will likely change due to a massive influx of people, mainly comprised of civil servants or government employees.The Nusantara Capital City Authority estimated that 1.5 million people would relocate to the new capital, causing substantial changes in residential areas and open spaces.
Providing open and spaces is a small step to accomplishing the standards and principles of the NUA as the ultimate agenda of urban development.However, this can only be with the help of the prospective peri-urban areas.Coastal peri-urban areas, for example, are built on a multicultural basis that demonstrates an inclusive capital city.Moreover, available land resources, such as those in Zone 2, make it possible to provide open and public spaces.Nevertheless, the efforts to realize the NUA must be guaranteed by political will that promotes inclusivity and sustainability in involving all stakeholders in peri-urban development.

Conclusion
The research has discovered that the prospective peri-urban areas of the new capital of Indonesia, Nusantara, have varying structures, functions, and factors that drive their emergence.Sociocultural settings, economic activities, and accessibility to the planned capital are the key features that differentiate them into four categories (i.e., zones).These categories play fundamental roles in aiding the Indonesian Government to accomplish the visions of Nusantara as the new capital and to support its social, ecological, and economic services.They can also assist in achieving Sustainable Development Goals and implementing the New Urban Agenda principles as the current urban development paradigm.
For further study, it is recommended that the potential of each peri-urban area be scrutinized.An explanatory study can also be conducted to complement the current research findings to enrich knowledge for future peri-urban studies.

Acknowledgment
This paper is part of the research titled "Identifying Local Potential of the Peri-urban Areas of the New Capital City of Nusantara (Riset Identifikasi Potensi Lokal Pada Kawasan Periurban Ibu Kota Negara Nusantara)" conducted by Regional Research and Development Agency for East Kalimantan (Badan Penelitian dan Pengembangan Daerah Provinsi Kalimantan Timur).The research is funded by the provincial government of Kalimantan Timur in cooperation with the Faculty of Geography, Universitas Gadjah Mada.The authors would like to thank all parties involved in perfecting this manuscript.

Figure 1 .
Figure 1.Map of the research area

Figure 2 .
Figure 2. Map of the development levels of villages abutting the planned location of the new capital, Nusantara

Figure 3 .
Figure 3. Proportions of villages in the research location by the level of development

Figure 4 .
Figure 4. Map of prospective peri-urban areas of the new capital

Figure 6 ( 3 Figure 6 (
Figure 6(a).Services and trading activities showing the growth of tertiary sectors in Zone 3

Table 1 .
Primary and secondary data used in the study

Table 2 .
Development level parameters and their respective definitions of a peri-urban area It is an urban or peri-urban of an urban area • It has a high number and variety of service facilities • It becomes a center of regional or local activities in the spatial plan • It can be accessed through the main road(s) Medium level • It is a peri-urban of an urban area • It has a medium number and variety of service facilities • It becomes a local activity center in the spatial plan • It can be accessed through the main road(s) level • It has a low number and variety of service facilities

Table 3 .
Percentage of villages in regencies/cities in the research area based on development levels

Table 4 .
Number of villages in the peri-urban zones in regencies/cities abutting or within the new capital's planned location in Kalimantan Timur Figure 5. Areal proportions of different peri-urban zones in the study area by regency/cityTable 4 and Figure ], peri-urban areas mediate the rural-urban interaction or linkage

Table 5 .
Main driving factors of peri-urbanization and projected roles of the peri-urban zones in the new capital development