Advances in Social Science, Education and Humanities Research, volume 510

6th International Conference on Social and Political Sciences (ICOSAPS 2020)

Penta Helix Model for Sustainable Coastal Area

Management in Bangka Islands
Kismartini1* Hartuti Purnaweni2 Bulan Prabawani3 Irfan Murtadho Yusuf4
1,2,3
Department of Public Administration, Diponegoro University, Semarang, Indonesia
4
Ghazalie Safie Graduate School of Government, University Utara Malaysia, Malaysia
*
Corresponding author. Email: kismartini@live.undip.ac.id

ABSTRACT
Coastal environment degradation in Bangka Island was closely associated with irresponsible stakeholders to
respond the issue. This study aimed to analyze the role of stakeholders using Penta Helix model with
descriptive qualitative approaches. The results showed the mapping of stakeholders’ role based on Penta
Helix model. The actors consisting of government, private, mass media, academician, and NGO have an
important role to enforce sustainable coastal management. The government has indicated an inconsistency
behavior due to poor policy and private sectors do not obey toward preservation of coastal areas. This study
suggested the government to review its policy recently published for sustainable coastal development and also
to crack down violating business actors
Keywords: Penta helix model, sustainable coastal management, Bangka islands

1. INTRODUCTION
Indonesia is one of the biggest archipelago countries with
over 99.093 km coastline [1]. There are abundant natural
resources with a large area of coastal dominance. Bangka
Belitung Island is one of the islands with a large potential
marine resource. The geographical condition of Bangka
Belitung Island shows that the sea area is four times wider
than the land area, i.e. 65,301 km or 79 percent of the total
Bangka islands. Besides the potential of fisheries, the
Bangka islands also rich in tin mining of which tin also
contributes greatly in the regional economic resources.
The abundant variety of potential natural resources in coastal
areas has led to a large number of stakeholders whose Figure 1. Situation Map on the Utilization and Use of Forest
interests in coastal areas management [2] [3]. Such large Area and Land (Forestwatchindonesia, 2013)
number of stakeholders involved in utilizing the coastal area
has created conflict of interests which consequently causes This situation map describing the utilization and the
loss or damage to the natural resources [4]. use of forest and land in which the use of land illustrated by
Environmental damage which occurs in the coastal purple squares in the Bangka Belitung islands is dominated
areas of Bangka Belitung is massive and uncontrolled; by mining concession activities and the rest in green is
unconventional tin mining activities both on land and in sea designated for timber permit management. The area of forest
are just an instance. The high activity of tin mining proves cover in Bangka Belitung province which was not
that tin still becomes high value commodity [5]. These encumbered with permits and was located in the concession
unconventional tin mining activities are mostly carried out area in 2013 was 83.872 hectares and there was a
on land, upstream of rivers, and even on the coast of the deforestation area in Bangka Belitung province that was
ocean not far from the offshore [6]. subject to permits in 2013 which covered 44,636Ha.
Since the enactment of Law Number 23 Year 2014, the
provincial government imposes restrictions on regional

Copyright © 2020 The Authors. Published by Atlantis Press SARL.

This is an open access article distributed under the CC BY-NC 4.0 license -http://creativecommons.org/licenses/by-nc/4.0/. 383
 Advances in Social Science, Education and Humanities Research, volume 510

governments for coastal areas management which causes

overlapping in handling and management. Moreover, this
caused the biggest effect on coastal areas management by
regional governments such as law enforcement in their
region. Illegal mining has been increasing every year,
according to WALHI in Tribunnews [7], there are many
critical area covering 810,059 hectares or 79.91 percent of
the whole Bangka islands, and 243,193 hectares or 23.9
percent of the whole Belitung islands. On the other hand, the
Central Government of Indonesia through the Ministry of
Energy and Mineral Resources also maintains a Mining
Business License (IUP- local abbreviated term for Izin
Usaha Pertambangan [Mining Business License]) for tin
mining even though the area is situated in the Coastal and
Small Islands Zoning Plan (local abbreviated term:
RZWP3K).
The case in Bangka Belitung implied that the condition
of the coast is threatened by increasingly widespread illegal Pentahelix Scheme
mining activities in the coastal waters. The core of the
problems is ineffective management of coastal areas in the
planning and implementation of coastal areas and so far it 2.2 Penta Helix Based Sustainable Coastal
seems to be sectoral and disaggregated. Therefore, the Areas Management
problem of multi sectoral governance issues ought to be
analyzed by multi-actor involvement by using the Penta Coastal areas development in practical sustainable
Helix Model. perspective may refer to a combination of the principles of
sustainable development in an area. Serageldin (1993) [11]
argued that sustainable development has three main
2. LITERATURE REVIEW pillars/dimensions: economic, ecological and social pillars.
Economic pillar emphasizes on earning income based on
efficient use of resources. Ecological approach emphasizes
the importance of protecting biodiversity which will
2.1 Collaboration on Penta Helix
contribute to the balance of the world's ecosystems.
Collaborative governance, based on Emerson and Nabatchi Meanwhile, social approach emphasizes on maintaining the
(2012) [7], is defined as collaboration process constituting a stability of socio-cultural system including handling
dynamic element of interaction consisting of: first, principle conflicts both among generations and within one generation.
attachment, i.e. the process of several things such as face-to- Serageldin also explained that the sustainability of
face dialogue, or through technological connection which economic aspects include economic growth, capital
form the unification of common principles in an maintenance and efficient use of resources and capital.
achievement; second, mutual motivation, i.e. the uniformity Ecological sustainability includes ecosystem integrity,
of commitment in a process such as feeling of having carrying capacity, and protection for species diversity and
interests and caring for the group and seeing the natural resources. Meanwhile, the social aspect of
collaboration process as a process of legitimacy; and third, sustainability covers the existence of justice (equity),
the capacity to take a role together which requires planning empowerment, participation and institutional aspects.
and the necessary resources to support the actions such as Penta helix becomes a required significant aspect to
facilities, leadership, and study of related literature. support sustainable development where this concept initially
Meanwhile, according to Ansell and Gash (2008) [8], evolved from the triple helix and quadruple helix. This
collaborative governance has four main variables consisting theory is a refinement of many previous ones. Stakeholders
of initial conditions, institutional design, leadership, and in coastal areas management in Bangka have collaboration
collaborative processes. Most of the collaborative leadership as a joint-working action. This fits the theory of John-Wanna
emerges from business and public groups to overcome (2008) [12] stating that the collaboration process involves
regulatory uncertainties. This is the result of a cultural various actors, individuals, and stakeholders who work
mindset rather than legalistic approach in doing business together to achieve their goals. Penta helix concept involves
practices [9]. Brink [10] stated in his study that collaborative a new actor, i.e. mass media. Thus, these actors include the
governance is used to create a concept occurring during government, the business world, academicians, non-
adaptation interactions and how collective thinking can be governmental organizations, and mass media.
channeled to be applied to organizational or group To answer the challenges of multi-stakeholder needs,
participation. according to I. Calzada [13], it is necessary to focus on the
fulfillment of complex inter-stakeholder problems through
experimental research, and alternative policies in cities or
regions. The Penta helix model is very suitable for

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answering multi-actor problems where stakeholders 4. RESULTS AND DISCUSSIONS

represent multiple interests at one location [14].
There are five elements of stakeholders involved: the It has been previously stated that the problems on integrated
Government, Private, Academics (Academicians), Non- environmental management in Bangka Island is a complex
Governmental Organizations (NGOs), and Mass Media, problem requiring the involvement of multi stakeholders to
which can directly influence policy planning thus they could handle it. With the enactment of Law No. 23/2014, the
interact with one another. Sustainable coastal area provincial government has imposed restrictions on local
management in the perspective of multi-stakeholder (regency) governments on coastal areas management which
collaboration is indicated by implementing an integrated caused overlapping in the handling and management. This
coastal area management policy supporting three dimensions has an eventually direct effect on the governance of coastal
of sustainability, i.e. economic, social, and ecological areas by local (regency) governments such as law
dimensions [3] enforcement in its region. This actually reflected the sectoral
egos of each stakeholder in handling any decision and
commitment for developing sustainable environmental
Table 1. Dimension and Factors Affecting Sustainable governance. By using Penta helix model, the researcher
Coastal Areas Management would analyze various interests involving five elements of
stakeholders: government, private sectors, non-governmental
organizations, academicians, and mass media.
Dimension Factors

Economy - Increasing public’s 4.1 Collaborative Governance to Create

income Sustainable Coastal Areas
- Employment
opportunities Sustainable coastal area management in the perspective of
- Contribution to PAD multi-stakeholders collaboration is characterized by
(Local implementing integrated coastal area management policies
[Regional/Provincial] which support three dimensions of sustainability: economic,
Own Source Revenue social and ecological dimensions.
- Infrastructure
Improvement
- Stability on Productivity 4.1.1 Government
Social - Social Justice
The stakeholders involved were the governments, i.e. the
- Community
Governor of Bangka Belitung Province, the Office of
Empowerment Industry and Trade of Bangka Belitung, Planning and
- Institutional Development Agency of Bangka Belitung, Central Bureau
Empowerment of Statistics (BPS) of Bangka Belitung Province, Health
- Community Office, Social and Manpower Office, Public Works Office.
Involvement The government in 2018 has mining permits covering an
- Concern to local culture area of 62,068 hectares and an area of 21,845 hectares in
Ecology - Conservation Efforts Belitung Island. The yield from the tin mining reached 20 to
- Concern to carrying 25 percent of the total Local Own-Source Revenue (PAD)
capacity of the [15].
environment This high tin production has affected the economic
- Biodiversity protection activity in Bangka Belitung Islands Province. Furthermore,
this was reflected in the Gross Regional Product (GRDP)
recorded in the five year period (2011-2016) contributing
around 12 percent. This result exceeded the national average
with only 7 percent per year (BPS, 2016, Percentage
3. METHODS contribution of mining and quarrying industry total GDRP).
This study used a descriptive qualitative approach to explain In the three-year period, 2015-2017, it recorded the profit
the responses of stakeholders to the policies of coastal areas sharing funds from Mineral and Coal Mining for Bangka
management in the Bangka Belitung Islands through a Belitung Province reaching IDR 383,87 billion with an
collaborative governance approach in order to create a annual average calculation of IDR 39,23 billion.
sustainable coastal area. The informants in this study were Such sweet contribution of tin to the government was
from the provincial government, regency governments, inseparable from the bitterness of the problems of illegal
mining business actors, the community and the academic mining which have not yet been resolved. This was
elements. evidenced by the difference in the data recorded in BPS and
in the Ministry of Trade in 2004-2013. There was a sales

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difference amounted 301,800 tons of exported tin which was consisting of four superior programs: improving the quality
worth selling for US$ 231,9 million. This indicated that law of education in the form of vocational school program
enforcement on Unconventional Mining (local term: facilities with specific specialties, improving households’
Tambang Inkonvensional/TI) activities was very unclear. health which focus on providing sanitation for the
Poor control from the government has caused the loss of community’s houses, increasing community income in the
potential state revenue generated from tin mining. Over the form of assistance for fishing boats with 1-5 GT capacity,
span of 10 years since 2004, Indonesia Corruption Watch and improving some supporting infrastructures such as
(ICW) revealed that there was a loss of 68 trillion rupiah realizing biogas energy, fishing docks, and building healthy
from taxes, reclamation costs, royalties, and non-tax houses [17].
revenues [16] (kupasonline). Moreover, this was due to
downstream law enforcement without looking at the main
actors in unconventional mining activities which eventually 4.1.4 NGO
worsen the existing environmental damage.
Non-governmental organizations involved in sustainable
coastal management included fishermen communities,
4.1.2 Private Sector coastal pond farmers, and tin mining communities. For
example, people from communities who were members of
PT Timah Tbk is the largest tin operator and is owned by the marine tin mining rejection alliance in Matras, Sungailiat as
Government under BUMN (State Owned Enterprises) a form of maintaining the sustainability of the marine
operating in Bangka. There are two types of tin mining, i.e. ecosystem rejected the tin mining operation [21] (Putra,
by digging the ground and vacuuming it with a streamed 2019) This also happened in Toboali, South Bangka, the
spray pump, and marine mining which is done by suctioning community from Perhimpunan Batu Perahu (Batu Perahu
tin ore from the seabed by using a ship. In the post-land Association), South Bangka, was again threatened as their
mining process, there is usually an area under the soil as a territory was used as tin mining concession due to the
result of the excavation. As a form of PT Timah's validation of RZWP3K (Zoning Design for Coastal Areas
responsibility, it was stated in the 2015-2019 reclamation and Small Islands) stating that the sea waters around Toboali
planning document mentioning a reclamation program of are included into three management zones: tourism, mining
400 hectares has been launched with a total budget of IDR and fisheries zones. The existence of mining is very clearly
60 billion [17] Babelreview (Siahaan, 2019) as a form of threatening the sustainability of marine and coastal ecology
empowerment for the affected communities. Thus, PT and is not in accordance with the principle of the dimensions
Timah and the government collaborated to accelerate of environmental management sustainability [22]. On the
reclamation by planting a variety of horticultural/fruit crops other hand, viewed from economic point of view, the
targeted to be completed in 2020 [18]. The total area of land prevalence of mining without permits from the community
which has been reclaimed from 1992 to 2018 is 14.593 was caused by welfare and economic factors. This is
hectares spreading across Bangka and Belitung areas. In inseparable from the policies of decentralization and
details, it covered 4.671 hectares in Kabupaten Bangka regional autonomy providing opportunities for the provincial
(Bangka Regency), 2.295 hectares in Bangka Barat (West and regency regions to manage their own territories with the
Bangka), 1.412 hectares in Bangka Tengah (Central Bangka), approval of the governor. However, in general,
489 hectares in Bangka Selatan (South Bangka), 749 unconventional mining activities do not have permits from
hectares in Belitung, 2.139 in Belitung Timur (East Belitung) local governments, and there is only minimal supervision
and the other 2.840 hectares in across regencies [26]. PT from the local governments [23]
Timah also did some innovations in the use of marine
mining with borehole mining method technology, which is
environmental friendly and minimizes the impact of the 4.1.5 Academicians
damage it may cause [19].
The University of Bangka Belitung is one of the largest
universities in Bangka Belitung Province. The objectives of
4.1.3 Civil Society this university are in line with sustainable development, one
of which is to focus on natural improvement and sustainable
The government of Pangkalpinang City in accelerating environmental management. It is in accordance with the
poverty alleviation has implemented Kotaku program by collaboration among the entities at the Rio +20 Conference
involving various stakeholders. This program is an extension whose achievement of galvanizing commitments from
of the PNPM Mandiri program which has been a part of the higher education institutions to teach and encourage research
central government's efforts to reduce poverty since 2007 on sustainable development, greening campuses and support
[20]. local efforts [24].
On the other hand, for community empowerment and Even though the mining economy era is still ongoing,
to support the government in poverty alleviation, PT Timah academicians at the University of Bangka Belitung have
has a master plan on community empowerment and successfully made a collaboration with the community to
development (RIPPM) for the period of 2019-2029, explore the tourism sector in Bangka Belitung, one of which

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is in Pasirputih region, as well as to encourage the a strengthening aspect for the sustainability of coastal areas;
community to participate in One Village One Product however, it can also weaken the sustainability of coastal
(OVOP) program in Kabupaten Bangka Tengah (Bangka areas. Therefore, it is necessary to have better collaboration
Tengah Regency) and later to be developed as areas of among all elements by establishing more intense cooperation
edutourism [13] [25]. This activity was in line with the and communication.
Regional Long-Term Development Plan (local abbreviated
term:RPJMN) for 2005-2025. One of its goals is to focus on ACKNOWLEDGMENT
developing economic potential which is owned apart from
mining. In addition, to campaign for sustainable We would like to thank Universitas Diponegoro (UNDIP)
environmental management this educational institution also for funding this research with contract number 225-
encouraged academicians to be actively involved in 130/UN7.6.1/PP/2020 dated 20 March 2020. Also thank to
expressing their thoughts in conferences, journal writing, or Universiti Utara Malaysia (UUM) for supporting this
community empowerment activities to support community publication and increasing the collaboration between UNDIP
welfare programs initiated by the Government [26]. and UUM. The researchers hereby state that there is not any
Furthermore, UGM academicians’ community in conflict of interest during this research
collaboration with the Government of Bangka Belitung
Province held such activities as Thematic KKN (KKN is
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