Analysis of the role of local government in the prevention of environmental damage of Lake Toba, North Sumatra, Indonesia

This study aims to investigate the evaluation of the Lake Toba Priority Tourism Master Plan (LTPTMP) for the year 2022. Employing a qualitative research design, the research utilizes a thematic approach. Data collection involves interviews, observations, focus group discussions (FGDs), and document studies. The selection of informants is done through purposive sampling. Thematic analysis is employed for data analysis. Findings indicate that key stakeholders, such as local governments and ministries, exhibit a good understanding and implementation of the LTPTMP. However, the community and Micro, Small, and Medium Enterprises (MSMEs) in the Lake Toba region lack awareness and knowledge regarding the LTPTMP. Challenges in implementing the plan include issues like lake water pollution, deforestation, the presence of waste, especially in tourist-frequented areas, low public understanding and awareness of resource conservation, and inadequate management by the Regional Government. Furthermore, the incomplete infrastructure network hampers visitors’ ability to explore various sites.


Introduction
The tourism industry plays a significant role in generating revenue and fostering economic development in various regions across Indonesia.As highlighted by Shi et al. [1], tourism not only contributes to regional incomes but also attracts investments, fostering the growth of both individuals and businesses.According to LAKIP [2], the tourism sector accounted for 9% of the National Gross Domestic Product (GDP) in 2014, equivalent to IDR 946.09 trillion.Undoubtedly, the substantial and impactful contribution of tourism to the national income underscores its pivotal role in shaping economic growth and development in the foreseeable future.
Regrettably, the substantial contribution to national revenues from the tourism sector remains concentrated in specific destinations, notably Bali, within Indonesia.In response, the President has launched initiatives to ensure a more equitable distribution of development efforts across various tourism destinations in the country, aiming to support Bali's prominence as Indonesia's primary destination.This involves the establishment of "The New Bali," with the initial phase focusing on expediting the development of five high-priority destinations: Lake Toba, Borobudur, and its surrounding areas, Lombok, Labuan Bajo, and Manado-Likupang.The effective advancement of these five super-priority destinations is anticipated to serve as a catalyst, potentially hastening the growth momentum of Indonesia's tourism sector.
IOP Publishing doi:10.1088/1755-1315/1352/1/012010 2 Despite varying perspectives, nearly all stakeholders are in consensus regarding the importance of "sustainability" in the development of tourism, recognizing that the genuine appeal of natural environments attracts tourists [3].The pattern of foreign tourist visits to North Sumatra Province displays diversity, as reported by BPS North Sumatra Province in 2019, with the majority originating from Malaysia.According to the International Tourist Preference Survey conducted by Bank Indonesia North Sumatra Branch in 2018, over 60% of international visitors to North Sumatra also explored the Lake Toba area.Concurrently, the number of foreign tourists visiting North Sumatra has continued to rise, surpassing 11 million trips in 2018, as per Archipelago Tourist Statistics [2018].This growth has positively impacted the economic sector, with the increasing acknowledgment of tourism's contribution to economic growth and development paving the way for heightened attention to tourism in both political and economic agendas [4].
Source: North Sumatra BPS (2019) Figure 1.Increase in international tourist visits to North Sumatra.Through the fusion of tourism policy and tourism development, a novel convergence and development model for tourism policy can be devised, applicable to scenario plans for development [5].The development of tourism around Lake Toba necessitates the establishment of an integrated territorial unit, incorporating both physical and non-physical aspects, as well as addressing various sectors.This unit should serve as a comprehensive document encompassing macro and micro perspectives.The optimization of development areas should target existing zones with high development intensity, robust resource and environmental control, and the requirement for structural adjustments and optimization of industrial configurations [6].Furthermore, a cohesive and inclusive management system must be implemented, ensuring the fulfillment of the needs and aspirations of all stakeholders, and directing efforts towards a shared vision focused on tourism development while steadfastly maintaining a commitment to a sustainable future [7].
The most noticeable progress in the Lake Toba region pertains to accessibility development, highlighted by the inauguration of several toll roads connecting to and from the Lake Toba area, the expansion of a runway at one of the local airports, and various other enhancements in accessibility.As outlined by Zajadac [8], the development of accessibility stands as a crucial key in unlocking the existing tourism potential.A recent addition to the amenities in the Lake Toba area is the establishment of a 5star hotel in Toba Samosir Regency, involving an investment of up to 500 billion.This initiative is anticipated to be followed by the construction of other international standard hotels in different areas around Lake Toba.The ongoing program for attraction development is presently centered on training local performers and refining the marketing management of attractions on Lake Toba, with outcomes expected in the post-pandemic period.According to Doe et al. [9], harnessing attractions for tourism development can enhance the local economy and positively impact community cohesion.The interconnected system of tourism elements-accessibility, amenities, and attractions-is instrumental in achieving the overarching goal through interrelated and reciprocal interactions, with each element influencing and depending on the others [10].
Yet, despite the comprehensive Lake Toba development plan, a significant portion of stakeholders remains unaware of the real-time progress of the plan.Numerous questions have arisen regarding the effectiveness of the plan's implementation, spanning from initial planning stages to the evaluation of the LTPTMP.The government has invested a considerable budget in enhancing Lake Toba, prompting the necessity for observational studies and research to assess the effectiveness of the Lake Toba Priority Tourism Destination Master Plan (LTPTMP) up to the year 2021.
This study aims to provide the latest information on the ongoing development of Lake Toba, encompassing aspects such as government budget allocations, procurement processes, strategic management, community benefits, and overall progress.The research outcomes aim to serve as educational material for the community, offering valuable suggestions and information for stakeholders.Recognizing the pivotal role of stakeholders in tourism development, especially in shaping a tourism system that contributes to a robust socio-ecological system [11], their active involvement is crucial in effectively and efficiently executing the Lake Toba Priority Tourism Master Plan (LTPTMP).Given that the LTPTMP spans a considerable timeframe until 2045, stakeholders play a vital role in its sustained implementation.To address the evolving development needs in the current context, the application of a comprehensive innovation-based development strategy is deemed necessary [12].Consequently, understanding the government's management strategy regarding the implementation of the LTPTMP becomes imperative.

Research methods
This research employs a qualitative method with a thematic approach to analyze the implementation of the 2022 Lake Toba Priority Tourism Master Plan.Key informants for the study include the Ministry of PUPR and the Coordinating Ministry for Maritime Affairs and Investment.These informants were selected due to their direct involvement and connection with the subjects under examination.These government agencies are deemed active and relevant to the study, meeting the criteria of understanding, engagement, and appreciation of the activities in focus.Additionally, data from primary informants include eight district governments in the Lake Toba region, encompassing Simalungun Regency, Samosir Regency, Toba Regency, Karo Regency, North Tapanuli Regency, Humbang Hasundutan Regency, Dairi Regency, and Pakpak Barat Regency.The study is further enriched by supplementary informants, including members of the local community and Micro, Small, and Medium Enterprises (MSMEs) in the vicinity of Lake Toba.
To gather primary data for the research, various data collection methods, including interviews, observations, focus group discussions (FGD), and documentation studies, have been employed.Thematic analysis serves as the chosen approach for analyzing the collected data, focusing on identifying recurring patterns in the phenomenon under study.Specifically, inductive theme analysis is the sole form of thematic analysis utilized in this research.The study spanned a duration of one year, during which specific research locations were selected, primarily centered on the development hub of the Lake Toba Region.This included eight regencies within the Lake Toba Region and relevant ministries, such as the Ministry of PUPR and the Coordinating Ministry for Investment and Maritime Affairs.

Implementation of the Lake Toba Tourism priority destination master plan policy with the strategic management concept
The LTPTMP policy has been executed in compliance with the established regulations, as substantiated by: 3.1.1.Policy stipulations.The North Sumatra Province LTPTMP lacks control over the interests of both managers and the community.The district administrations of Karo, Simalungun, Toba Samosir, North Tapanuli, Humbang Hasundutan, Samosir, Pakpak Bharat, and Dairi serve as managers, in collaboration with the Central Government, including the Ministry of PUPR and the Coordinating Ministry for Investment and Maritime Affairs.The community, in this context, encompasses the economic community around Lake Toba (comprising traders and parking attendants), travelers, and those seeking religious worship.

Implementation decree. The individuals responsible for implementing the LTPTMP in North
Sumatra Province comprehend their responsibilities and roles, and they execute their duties with varying levels of urgency.Tourism officials have adhered to the policy as outlined in its provisions.However, other stakeholders, including management and the community, lack detailed guidance on the specific regulations to follow.The ambiguity arises from the absence of clear regulations within the LTPTMP of North Sumatra Province that define the primary roles and functions of managers and communities.

Target setting.
The objectives outlined in the LTPTMP of North Sumatra Province aim to establish strategic guidelines and directions for tourism development in the region and to ensure their effective implementation.This aligns with the LTPTMP, which serves as a comprehensive guideline for tourism development in the Lake Toba area.Simultaneously, the implementation goal for developing tourist destinations around Lake Toba includes achieving an annual 10% increase in tourist arrivals through collaborative efforts with key stakeholders, such as introducing attractions or promotional activities.However, the actual growth in visitors to Lake Toba has not been accompanied by a corresponding improvement in the quality and quantity of tourism amenities, particularly parking facilities.The shortage of available parking spaces has led visitors to park on land owned by residents.Consequently, in the absence of stringent regulations, property owners demand exorbitant parking fees, creating an issue for tourists.

Environmental decree.
The formulation of the LTPTMP takes into account both the internal and external environments.Internally, it involves government entities directly responsible for tourism, such as the Tourism Office, along with other government agencies like the Regional Development Planning Agency, Department of Industry, Trade, Cooperatives, Small and Medium Enterprises, etc. Externally, it incorporates the management of Tourist Attractions and community associations in shaping the strategy.In this context, the district government assumes responsibility for overseeing the Lake Toba tourist destination.Despite the significant increase in the number of visitors, negative responses from the community persist, particularly regarding the lack of facilities and cleanliness at Lake Toba, as well as challenges related to the primary parking area.Consequently, the public perception of the development of Lake Toba is deemed unfavorable.

Thematic development strategy.
There are four clusters comprising six Key Tourism Areas (KTA) in the Lake Toba region.The formed clusters include Parapat, Balige, Pangurunan, and Simanindo, each with a concentration of tourism objects and facilities.Additionally, there are two KTAs, Muara and Merek, which can serve as clusters or extensions of existing ones.The proposed themes in the KTA development plan are as follows: Western Cluster: Focused on the geological theme, highlighting the youngest part of the Toba Caldera; East Cluster: Encompasses strong cultural elements in Simanindo KTA, as well as recreation and MICE for Parapat-Ajibata KTA, including the Sibisa area managed by the Lake Toba Authority Management Agency (LTAMA); South Cluster: Centers around the urban heritage theme for KTA Balige, incorporating Muara-Baktiraja; and North Cluster: Emphasizes natural beauty, particularly in the Merek area.
3.1.6.Equitable development distribution strategy.Until the year 2045, the East and Central Clusters (Parapat and Simanindo) will continue to dominate, holding the highest share, succeeded by the South, West, and North Clusters.To alleviate this concentration, tourism development in the Lake Toba area will be strategically directed towards the Pangururan KTA and Balige KTA, while the development plans for Parapat KTA and Simanindo KTA will be deferred.Additionally, tourism development initiatives are extending to the proposed new KTAs, Merek and Muara, as well as other sub-districts within the 31 districts in the Lake Toba Region, such as Silalahi, Pematang Silimakuta (Tigaras), Lumban Julu, Onan Runggu, and Nainggolan.
3.1.7.Strategy for increasing accessibility for the Lake Toba Area.The enhancement of accessibility is evident through the construction of national highways, toll roads, and integrated railway lines.This initiative is further supported by the development of tourism-related road infrastructure, facilitating connectivity between Key Tourism Area (KTA) centers and sub-centers, as well as among different KTAs.The focus on improving internal connections is anticipated to be accompanied by the implementation of integrated public transportation modes, aiming to enhance service quality, encompassing factors such as security, safety, and comfort.

Social and disaster impact mitigation strategy.
Mitigation involves the identification of potential impacts stemming from tourism development initiatives and collaborating with stakeholders to foresee and alleviate these consequences.It encompasses not only disaster preparedness and control of the effects of physical growth but also the anticipation of social unrest related to issues such as land acquisition, employment, economic prospects, and alignment with local values and cultural norms.
3.1.9.Strategy for increasing linkages with the agricultural sector.The integration of agricultural activities with tourism and agro-tourism development offers opportunities for tourists to participate in various stages of the production process, from cultivation to maintenance, harvesting, and consumption of the final products.The concept of "farm to table" is a widely recognized idea that can deliver significant added value.In the Lake Toba Region, potential commodities such as coffee, native flora (andaliman and gambier), durian, citrus, ornamental plants, and even frankincense in Pakpak Bharat can serve as special attractions for tourists.

Protection strategy for batak culture and geopark.
The commitment to fostering unity and preserving the cultural heritage of the Batak ethnic group, essential for promoting and advancing the tourism industry, must be accompanied by efforts to protect and restore cultural elements.Activities geared towards protection and restoration can serve as a valuable resource for packaging cultural, historical, and geological knowledge, enriching the experience of tourists exploring the area.This undertaking necessitates collaboration with landowners surrounding the site, aiding them in responsible utilization to ensure direct benefits to the community in the Lake Toba Area as a whole.

Amenity quality improvement strategy through compliance with international standards.
To serve as a model for implementing sustainable tourism in the accommodation sector, it is essential to establish a Green Hotel pilot project adhering to the ASEAN Green Hotel Standard.The Ministry of Tourism and Creative Economy, or the Tourism and Creative Economy Agency, in collaboration with universities, oversees the advancement towards sustainable and eco-friendly tourism through the Sustainable Tourism Observatory (STO) project.To ensure comprehensive monitoring, it is recommended to expand STO coverage to encompass all eight areas around Lake Toba.

Implementation of Lake Toba tourism priority destination master plan aspects
The development plan for the Lake Toba Region is formulated considering criteria for tourist expansion, and the spatial distribution of tourists within Key Tourism Areas (KTA), and is aligned with the 2020 Presidential Regulation of the Republic of Indonesia concerning the Master Plan for Priority Tourism Destinations for Lake Toba spanning 2020-2045.The execution of the LTPTMP can be observed through various perspectives, including the following: 3.2.1.Tourism.Within the tourism sector, this encompasses facilitating convenient access to Key Tourism Areas (KTA), enhancing visitor experiences, creating value for potential tourist attractions beyond KTAs, generating economic benefits for the government, contributing to the economic growth of the tourism industry, and fostering economic advantages for the local community.The Tourism Office, in collaboration with the Regency Government, is actively working towards enhancing access to tourist sites and elevating the quality of tour guide services in the Lake Toba region.These initiatives are funded through contributions from the 2020 State Budget and Regional Budget allocated for the Lake Toba area.

Infrastructure aspect.
In summary, the development of Lake Toba as a tourist destination is structured into three distinct phases, outlined in the diagram below: a) Initial phase (2020-2025): Referred to as the awakening phase or Toba Reborn, this phase commences after the tourism development in the Lake Toba area experienced fluctuations between 2013 and 2018.The key success factor during this phase lies in changing the mindset of stakeholders, fostering increased commitment, and engagement within an enabling environment.b) Second phase (2026-2035): Known as the accelerated phase, it starts when the Lake Toba area has recovered and stakeholders are better equipped to collaborate intensively in development efforts.
The acceleration plan can only be effectively initiated after successfully accomplishing the objectives of the first stage.c) Third phase (2036-2045): This phase commences by capitalizing on the successful diversification of tourism products and market growth in the preceding stages, ensuring that the Lake Toba Region attains the status of a mature and competitive destination.This is achieved through further product and market diversification, along with increased integration with Key Tourism Areas (KTA) beyond the eight districts in the Lake Toba Region.

Environment.
The Regency Government endeavors to establish a pleasant and aesthetically pleasing environment by incorporating the "going green" concept throughout the Lake Toba Area.Areas identified as not aligning with the "going green" concept will undergo revitalization efforts to enhance environmental comfort and enhance the appeal for tourists.Beyond these activities, the district government prioritizes environmental considerations by forming an analysis team tasked with evaluating the environmental impact of LTPTMP development.This delegation includes representatives from the Central Government and academia, deliberately invited to assess the progress of development.

Forestry.
The forestry component is a crucial factor contributing to the effective execution of LTPTMP in the Lake Toba area.It emphasizes the necessity of maintaining existing forests by the "go green" policy advocated by the District Government.The conservation of forests is imperative for the survival of several native (endemic) species within the Lake Toba Forest Area.The district government assures the full preservation of forests situated in hilly areas and far from community settlements, ensuring the survival and establishment of Lake Toba conservation zones.

Maritime.
Efforts are being undertaken to manage the declining quality and pollution of lake water in Lake Toba, aiming to repurpose its potential as a life source for the surrounding community.Measures include the installation of waste treatment facilities near sources of pollution, such as the agricultural, residential, and industrial sectors.The maritime potential of Lake Toba enhances its appeal to tourists.The joint plan of the District Government and the Central Government to implement Lake Toba LTPTMP incorporates the maritime aspect.Various maritime competitions are planned for the Lake Toba Region, intending to attract both local and international tourists and boost the Lake Toba Regional Revenue.An example is the Lake Toba F1 H20 World Championship competition in North Sumatra, scheduled for February 24-26, 2023.
3.2.6.Spatial.Regarding spatial planning, the Regency Government, in collaboration with the Tourism Office, intends to allocate a dedicated space for Micro, Small, and Medium Enterprises (MSME) actors who currently operate without proper organization or placement.The District Government, along with the Tourism Office, is committed to offering education and establishing a platform for new MSMEs interested in starting their businesses in the vicinity of Lake Toba.
3.2.7.Investment.Investors participating in the LTPTMP include both domestic and international entities, with foreign companies, specifically Swiss companies, involved in the development sector, contributing to projects such as the improvement of sanitation in the Lake Toba tourist area.The infusion of funds from these investors is intended to expedite the LTPTMP process, ensuring its timely completion according to the established schedule.This approach aims to enhance stakeholder engagement and collaboration, expanding integrated tourism development from the initial six Key Tourism Areas (KTA) to encompass all 31 districts in the Lake Toba Region.

Barriers to the Implementation of the Lake Toba tourism priority destination master plan
The Lake Toba Priority Tourism Master Plan (LTPTMP) is anticipated to offer resolutions to the challenges and obstacles related to the expansion of tourism in the Lake Toba region, including: Deterioration in macro-environmental conditions as indicated by lake water pollution and deforestation which creates a negative image for prospective tourists and limits tourism activities.The water quality of Lake Toba is continually degrading, primarily due to pollution from residential waste, resulting in the Moderately Polluted category being dominant at monitoring locations.The Water Quality Index (WQI), based on the Environmental Quality Index (EQI), categorizes water quality as Good, Lightly Polluted, Moderately Polluted, and Heavily Polluted.Overall, the water in Lake Toba, particularly in the Tobasa Regency area, does not meet the standard quality required for drinking water and water tourism [13].Efforts to address Lake Toba pollution from household waste date back to 1996, marked by the establishment of a Domestic Wastewater Treatment Plant (DWTP) in Sijambur Village, Ajibata District, Toba Samosir Regency, operational since 2000.Funded with 7.3% of a billion rupiahs from Japan, the DWTP has a treatment capacity of 2,000 m3/day, equivalent to 3,000 residential connections.However, only 300 connections (10% of the system capacity) are utilized due to a lack of public knowledge, particularly among hotels and restaurants, regarding the proper channeling of wastewater into existing treatment systems instead of direct disposal into Lake Toba.

Deterioration of microenvironmental conditions indicated by piles of waste, including at viewpoints which are generally tourist stop locations. The neglectful behavior of the Toba Samosir
Regency Government in North Sumatra regarding the management of waste from residents around the largest lake in Indonesia, Lake Toba, is evident.Along the lake's edge, particularly in the Lumban Silintong area of Balige District, accumulations of garbage are still visible at several points not far from the lakeshore, persisting for an extended period.Residents acknowledge that people living near the beach still dispose of waste close to the lake due to the absence of Garbage Disposal Geosites (GDG) along the beach.Consequently, residents, including business operators on the beach, accumulate and burn their trash in the following days.The lack of socialization from the local government regarding beach cleanliness and the availability of Temporary Disposal Sites (TPS) further contributes to this issue.Currently, the community does not perceive a sense of responsibility for maintaining the cleanliness of Lake Toba.The absence of a formed perception regarding lake cleanliness may hinder the attraction of tourists to the area and impede regional economic growth.

3.3.3.
Low knowledge and awareness of the community to maintain regional resources.The challenges faced in the tourism development of Lake Toba, North Sumatra, particularly concerning community involvement, have been acknowledged by the Tourism Marketing Director of the Lake Toba Authority Agency.The task of unifying the eight districts and four sub-ethnicities around Lake Toba is perceived as a challenging endeavor.Although Lake Toba tourism has experienced a decline, current conditions indicate improvement.To ensure the long-term sustainability of this tourist destination, mechanisms for preserving local culture and wisdom must be established.This system often involves a "belief system" from the surrounding community and requires support from the local government.The preservation of Toba's culture or local heritage is a formidable task due to the diverse nature of the people residing along the shores of Lake Toba.Effective cooperation between the local community and the local government is crucial to positioning Lake Toba as a united and globally recognized tourist destination.

3.3.4.
Lack of understanding of the regional government to manage the area properly.There are specific areas within the Lake Toba region that require heightened attention from the Regional Government to attract more tourists, leveraging the existing conditions to enhance the economic wellbeing of the community.Through collaborative efforts among government entities, the local community, and private stakeholders, the tourism industry, particularly in Lake Toba, can be developed.This collaborative approach is anticipated to yield economic benefits for the surrounding region.
3.3.5.Limited network of connecting infrastructure that limits the accessibility of tourists to visit various geosites that are spread out.To achieve the goal of positioning Lake Toba as a global tourist destination, two distinct strategies are proposed to enhance its image and uniqueness.The first strategy is targeted at the outer periphery of the lake, considered a support zone, while the second strategy primarily concentrates on the Samosir Island area as the core zone.The buffer zone along the lake's edge requires infrastructure development to enable the appreciation of Lake Toba's beauty from all perspectives.Although there is existing road access around Lake Toba, it is still narrow and incomplete in certain areas.Due to the undulating terrain, enlarging and connecting the roads at various points is essential for safety.A project akin to the Southern Cross Line (SCL) in Java is suggested for Lake Toba, known as the Lake Toba Circle Line (LTCL).

Conclusion
Various factors serve as indicators for evaluating the Lake Toba LTPTMP implementation, encompassing tourism, infrastructure, environmental, forestry, marine, spatial planning, and investment aspects.The study findings reveal that stakeholders, particularly local governments and ministries, exhibit a good understanding and execution of the LTPTMP.However, there is a lack of awareness and understanding among the community and Micro, Small, and Medium Enterprises (MSMEs) in the Lake Toba area regarding the LTPTMP.Additionally, obstacles in the implementation process include lake water pollution, deforestation, accumulation of waste at tourist attractions, insufficient public understanding of resource conservation, shortcomings in regional government management, and an imperfect connecting infrastructure network, limiting visitors' access to various sites dispersed across the area.