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Public Space As Development Control Element In Coastal Settlements:


Comparison Of Urban Design Guidelines Concepts

Article  in  International Journal of Scientific & Technology Research · October 2019

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INTERNATIONAL JOURNAL OF SCIENTIFIC & TECHNOLOGY RESEARCH VOLUME 8, ISSUE 10, OCTOBER 2019 ISSN 2277-8616

Public Space As Development Control Element In


Coastal Settlements: Comparison Of Urban
Design Guidelines Concepts
Nurhikmah Budi Hartanti, Achmad Hadi Prabowo, Arief Fadhilah, Dwi Rosnarti

Abstract: The objective of the study is to identify the appropriate typology of a public space design concept that effectively encourages the vitality of the
area. The growth of coastal settlements requires special attention due to the dynamic characteristics of resources as well as the natural system. Coastal
settlements in Indonesia experience problems of vitality. Public space has become a significant key element of many development schemes to solve the
problem of vitality. It plays as a catalyst for urban renewal and arena for community participatory. It is a generator of urban vitality, which offers great
social, economic as well as environmental benefits to the communities. The study was a comparative analysis of urban design guidelines in three
different coastal settlements emphasizing on public space design policy. A qualitative assessment by the expert judgment was employed to assess the
contribution of existing public space characteristics to the vitality of the area and the formulation of public space design concept in the urban design
guidelines. The result shows that as a development control, public space can function as a balancer of activities, as a generator of activities, as well as
reducer and distributor of activities.

Index Terms: coastal settlement, design concepts, development control, public space, urban design guidelines, element
————————————————————

1 INTRODUCTION visual quality, and infrastructure systems. This paper focuses


The coastal area has been an attractive place for settlements on the open space systems, especially public open space
since the beginning of human civilization because of the since it plays an important role as a development control
availability of resources, the defense advantages, and ease of element in the coastal settlement. Coastal settlement
access especially for trading activities [1], [2]. However, the characteristic that is often a problem is the privatization of the
growth of coastal settlements requires special attention due to waterfront area, which should be a common space accessible
the dynamic characteristic of the resources as well as the for all people [6],[7]. Coastal areas are used for various
natural system. Human habitation in the coastal area has a activities and social interactions so that the functioning of a
considerable challenge in facing the dynamic and even space order will be determined by its components, which are
hazardous nature. Coastal hazard can occur in a quick hit but also the manifestations of community's activity.
cause fatal damages, or slowly develops over a while like tidal Public space has a more active meaning than open space.
flood and sea erosion or abrasion [1],[3]. To the other hand, Its definition encompasses all spaces, in a built or natural
the growth of coastal settlement also threatens the quality of environment, where people of all status can access it freely to
the coastal environment. The concentration of population in a carry out shared activities [8],[9]. The form of public space in
coastal area can be a burden to the aquatic systems. the built environment range from merely spaces between
Economic activities often followed by uncontrolled growth. The buildings or street corners that incidentally used by public, up
lack of infrastructure availability in a high-intensity to formal squares where public life, activities, and events take
development such as clean water provision and sanitation place; whereas in the natural environment the scope is even
system is the main cause of the environmental problem of broader including woods, beaches and waterfronts [10], [11],
coastal settlement [4],[5]. Therefore, the need for development [12]. Public space has become a significant and pervasive tool
control instrument for the coastal settlement is a priority. There of urban development policy, as a catalyst for urban renewal
are various development control instruments in Indonesia, one and arena for community participatory. It is a key element of
of which is Rencana Tata Bangunan dan Lingkungan (RTBL) many development schemes, a generator of urban vitality,
or urban design guidelines (UDGL), which cover the which offer great social, economic as well as environmental
arrangement of the 3-dimensional physical form of buildings benefits to the communities [13],[14],[15]. Urban vitality is not
and urban space. The UDGL elements include: land uses a new concept and widely applied in many policy documents
structure and intensity, building arrangement, circulation and of urban design and planning. The definition of vitality in this
linkage system, open space and green systems, signage and paper refers to the term described by Montgomery back to
1998 [16] to address a quality of urban space that socially
———————————————— successful. Vitality means the existence of people and
 Nurhikmah Budi Hartanti, is currently a lecturer of urban studies in activities in urban spaces. It refers to the variety of activities
undergraduate and master program, Architecture Department,
Universitas Trisakti, Indonesia, PH +6281519977167. Corresponding
and the number of people involved in an urban space. Vitality
Author E-mail: nurhikmah@trisakti.ac.id is an important quality of a public realm that indicates
 Achmad Hadi Prabowo, is currently a lecturer of urban design in economic viability, social interaction and reduces crimes, so
undergraduate and master program, Architecture Department, the more human presence in urban space will make it more
Universitas Trisakti, Indonesia, PH +628121804562. E-mail: pleasant [12],[17]. Vitality is commonly employed as a
hadi@trisakti.ac.id consideration of public space quality. It is a criterion used in
 Arief Fadilla, is currently a lecturer of architectural design in the
undergraduate program, Architecture Department, Universitas Trisakti,
guiding urban design and development to ensure urban
Indonesia, PH +6285265361225. E-mail: arief.fadhilah@trisakti.ac.id. competitiveness, and many works emphasize the importance
 Dwi Rosnarti, is currently a lecturer of housing and settlement in the of public space in enhancing urban vitality [10], [12],[17].
undergraduate program, Architecture Department, Universitas Trisakti, Vitality concerned with four features, i.e.: levels of activity
Indonesia, PH +6287878649020. E-mail: dwi.r@trisakti.ac.id. variety; levels of public participation; levels of interaction,
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communication and transaction; and level of representation, is a recreational area known as Talise Beach. The design site
that is how all that features make the place unique and well is a combination of in the form of open land, which was an old
known [17]. Regarding that, the parameter of vitality can be unproductive salting field, and some commercial buildings.
grouped four categories: (1) diversity; (2) density; (3) livability; The main problems in this area are the un-optimal recreational
and (4) accessibility [18], [19]. The concept has been broadly activities with un-organized street vendors and the growth of
employed in the urban design guidelines of coastal commercial buildings in the tsunami-prone areas. For the
settlements in several regions in Indonesia with different record, the design guideline was prepared in 2014, four years
characters and problems related to the use of public space, before the tsunami struck on September 2018.
especially those that experiencing a decrease in vitality
[13],[14],[15]. This paper discusses the spatial planning
concept of coastal settlements in Indonesia with a focus on
public spaces design as a development control element, by
comparing three coastal settlements with different
characteristics and problems in Sulawesi and Kalimantan. The
aim is to identify the typology of the public space design
concept that is appropriate for the existing characteristics and
effectively encourages the vitality of the area.

2 RESEARCH METHODOLOGY
2.1 Method
The approach applied in this study is mixed-method, which
involves collecting, integrating, and analyzing both quantitative
and qualitative data, to obtain a better understanding of a
research problem [20]. The method was a documents review
with the subjects was Urban Design Guideline (UDGL) Fig. 1. Palu bay location and visual condition
documents of three different locations that compiled as a guide
for area development. UDGL documents are prepared with Urban Design Guideline of Lasusua City Square, North Kolaka
standard procedures and substances that regulated in Regency, South East Sulawesi
Ministerial Regulation number PU No. 06 / PRT / M / 2007 Lasusua is a small capital town of North Kolaka district,
regarding "Urban Design Guideline Preparation Direction" [21]. located at the edge of Bone Bay, with a population less than
Thus, each document has the same content and comparable 50.000. Figure 2 shows that the design area is mostly vacant
materials. This study compares the document material on the site of reclaimed land, and rowing sports natural pool.
subject of (a) the description of the existing condition; (b) the Between the site and the coast, there is a highway that
description of potential and problems, and (c) the design connects Lasusua with Tobaku town. The main problem of the
concept of public space as a solution offered. The study was study area is the need to develop vacant land as a public
conducted in the following stages. The first stage was space to increase the vitality of the city.
reviewing the existing condition of the area and assessing its
contribution to vitality. This includes the components that are
indicators of vitality according to Zeng [18], that is: land uses
as indicator of diversity; building and traffic density as indicator
of density; building functions and public space activities as
indicators of livability; as well as traffic characteristic,
pedestrian ways as accessibility indicators. Each component
assessed its contribution to vitality through expert judgment. In
this case, the qualitative approach allows the researcher as an
assessment instrument. The second stage was analysis of the
relationship between the vitality contribution with the concept
of spatial structure and public space design, based on
contribution score of each component to the vitality and the
components of the design concept. The third stage is to
classify the spatial design and public space concepts into a
typology, based on the level of contribution of each
component, as well as identifying design factors that must be
considered.
Fig. 2. Lasusua Square location and visual condition
2.2 Research Cases and Design Area
Urban Design Guideline of Palu Bay Tourism Area, Palu City, Urban Design Guideline of Benua Baru Village, Sangkulirang,
Central Sulawesi Palu is the capital city of Central Sulawesi East Kutai Regency, East Kalimantan
Province with a population of 350.000. The city is called as a Benua Baru village is a capital town of Sangkulirang district,
five-dimensional city because its geography consists of East Kutai Regency, in East Kalimantan province. It is located
valleys, oceans, rivers, mountains, and bays. The study area, in a small island at Sangkulirang Bay on the northern coast of
as shown in Figure 1, is located at the corner of Palu Bay and East Kalimantan. The design site is the city center of Benua

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Baru village, which is a small populated area, at the southeast development in Benua Baru is primarily determined by forces
part of the Island. The study area is about 90 hectare or only of attraction, which is the market, circulation routes and driven
2,3 % of the entire island (see figure 3.), with a population of by economic motivation.
less than 10.000. However, this village serves as the activity
center for all Sangkulirang sub-district (kecamatan), as well as Circulation and accessibility character: Street network, Traffic,
other areas around it within a radius of more than 10 Parking, and Pedestrian Ways
kilometers. The main problem of the design area is the The ease of circulation and accessibility will determine the
blocking of waterfront area by the fishermen settlements that vitality of the area [16],[17]. As shown in Figure 4, Palu Bay
grow along the shoreline, so the public access to the water is recreation area is relatively easy to access, because there are
somehow restricted. As a result, public activities are arterial and collector roads pass through it. The absence of a
concentrated around the great market and occupy the narrow parking lot has not a problem since the traffic tends to be
road spaces. infrequent during the day, and the light crowds at night are still
manageable with on-street parking system. However, this area
is not pedestrian-friendly because there are no special lanes
nor supporting activities for pedestrians. Located in a new un-
built reclaimed site, Lasusua Square does not yet have
adequate road network within the area, but is accessible
through arterial roads from the southern end of the area, and
soon there will be two new access point from the center and
northern end. This is a very good potential for the area to draw
visitors, as long as it provides good accessibility and facility,
especially for pedestrians. Benua Baru village has a steady
and hierarchical street network. Historically, there are three
main street lines in Benua Baru Village. Two parallel lanes,
called the sea-lane and the land-lane, heading north-south
connecting the upstream to downstream area. Another lane is
heading east-west from the market to the small jetty at the
west side of the island that links to the mainland. All of those
lanes classified as local streets. Parking problems occurred
around the market during peak days or market days. Although
Fig. 3. Benua Baru Village location and visual condition it has not become a massive problem, it will make a heedless
parking culture that will eventually undermine the urban spatial
3 RESULTS AND DISCUSSION order. As a small town, most facilities are at a walkable
This paper focuses on the role of public space on regional distance, but there is no pedestrian path along the street
vitality, so the discussion covers physical, social and functional except in the fishing settlements as a means to get to the
aspects. The data used includes the existing conditions, the dock.
vision of development, the concept of spatial structure and
public space.

3.1 Existing Character of the Study Area

Land Use Character


Land use will determine the characteristics of activities that
shape the vitality of the area [17]. Land use in the three study
locations is quite diverse, as well as the characteristics of
vitality and problems that arise (Figure 4.). Land use in Palu
Bay consists of open space, salting field, and a mix of
residential and commercial. Tourism activities attract the street
vendors, sporadically occupying the open space from
afternoon until midnight. During the day, the beach is quite
empty because of the hot atmosphere. This needs to be
anticipated in order not to become more un-organized and
slummy. Therefore, it is necessary to restructure the beach by
creating an organized and visually attractive non-permanent
commercial site. Meanwhile, as a newly reclaimed area, land
use in Lasusua Square is mostly vacant wetland area. The
active sites are a rowing sports pool and a few scattered
housing, the other are ponds and open land covered by
shrubs. With the potential of beautiful coastal scenery, the
area will be developed as a public space to attract tourism
activities and social interaction. On the contrary, Benua Baru
coast is a densely populated area with fishing settlements
block up almost along the coastline. The process of land use Fig. 4. Land use character and circulation network of study areas

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Building Form and Functional Characteristic contribution or influence to vitality. Table 1. shows the
The shape and mass of existing buildings create grains and components of existing characteristics and their contribution to
visual character of the area as well as open spaces between vitality.
them. Building function provides the types of activities that will
support vitality [15]. The building condition around Palu Bay Diversity
recreation area is generally well-maintained, but there is no Land use in Palu Bay Area only has a mediocre contribution to
special character that can be a feature or identity. Likewise, the urban vitality, because the recreational activities are limited
the building functions do not have mutual support with and passive, and there is no direct interaction between the
recreational activities. Whereas in Lasusua Square, there is no existing commercial activities and recreational activities.
permanent building inside the area, but there are relatively However, it is better than land use in the area of Lasusua City
new and well-designed government's buildings, especially the Square, which is dominated by vacant land, so it does not
iconic waterfront mosque. Although all those buildings are support vitality at all. On the contrary, land use in Benua Baru
located outside the area, they can be a landmark leads to the Village has a very significant contribution to its vitality,
design area. Among the three cases, Benua Baru has quite especially commercial activities that are concentrated in the
different building characters. The buildings function are mostly grand market and its surroundings. This vitality even attracts
residential or mixed with commercial. The buildings form are visitors from outside the island. From these conditions, it can
quite specific, represent a typology of local vernacular be said that commercial land use has the potential to
architecture in timber structure and raised floor as an contribute to vitality.
adaptation to the swampy land and to anticipate sea tides.
Buildings lined up along the street and coast, facing the street TABLE 1
with zero building lines. When the front line is full, new EXISTING CHARACTERISTIC AND CONTRIBUTION TO
buildings grow toward the water on timber docks structure. VITALITY
Consequently, public access to water is closed and the PALU BAY LASUSUA BENUA
waterfronts become uncontrolled private space. CHARACTERISTIC TOURISM CITY BARU,
BEACH SQUARE, VILLAGE
Public Space Activity DIVERSITY
Recreation, Brown land,
Public space activities indicate the vitality of the area, it refers Residential, Rowing pool, Residential,
to the variety of activities and numbers of people involved in Land use
Commercial, Ponds, Commercial,
urban space [14]. In Palu bay recreation area, public activities Old salt field Residential,
mostly start from afternoon to evening, especially on Dominant land use Recreation, Brown land Residential
weekends and holidays night. The form of activities is more of Contribution to vitality
Medium (2) None (0) Very High (4)
passive engagement enjoying the atmosphere and view of the (0-4)
DENSITY
beach, which is then supported by food and drink stalls. In
Building density 20-50% 20-40% 40-60%
Lasusua, rowing sports can be a generator of public activities Medium to
on a wider scale, in addition to the potential of an attractive Traffic density low to medium low
high
beach view. Whereas public activities in Benua Baru occur at Contribution to vitality
Medium (2) Low (1) High (3)
the soccer field, mosque yard, and open spaces around the (0-4)
market. Residents also use fishing piers that are usually found LIVABILITY
among fisherman's houses, as places of interaction. It shows Public Space activity
that waterfront remains as preferred public space, though the Dominant public Social,
recreation recreation
space activity commercial
accesses closed by private houses. It is a critical situation Medium to
because when a public space is privatized it ceases the public Activity intensity in Medium to
high at a Low
realm [9]. public space high
certain time
Contribution to vitality
Very High (4) Medium (2) Very High (4)
3.2 Contribution of the Existing Characteristics to the (0-4)
Vitality Building Function
Commercial- Government Residential
The existing character of the area is a potential that can
Building function residential office, and facilities,
contribute to the urban vitality. Tabel 1 is a summary of the (shop houses) residential commercial
extent to which these characteristics contribute to vitality. The Dominant Residential Residential Residential
characteristic considered as the parameter of vitality, Contribution to vitality
High (3) Medium (2) Very High (4)
according to Zeng [18] are categorized: (1) diversity, which (0-4)
refers to variation of land uses; (2) density, which is Building condition
characterized by building and traffic density; (3) livability, which Visual condition Moderate Good Good
is reflected by building function, condition and public space Common- Unique- Unique -
Uniqueness
modern modern vernacular
activities; and (4) accessibility, which is measured by Contribution to vitality
availability of circulation facilities for both vehicles and None (0) Medium (2) High (3)
(0-4)
pedestrians [18], [19]. Using an expert judgment, the level of ACCESSIBILITY
contributions classified into four levels, which are: (0) None, Pedestrian way
means no contribution or influence to vitality at all; (1) Low, Availability (wide)
Limited Available Limited
means very limited contribution or influence to vitality; (2) Availability (2m) Availability
Medium, means there is a small contribution or influence to Consistency inconsistence Consistence inconsistence
Contribution to vitality
vitality; (3) High, means there is a significant contribution to (0-4)
Low (1) Very High (4) Medium (2)
vitality; and (4) Very high, means there is very significant

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Walkability to the Very intensity is quite different. Public activity in Lasusua is low on
walkable walkable
urban center walkable average, while in Palu Bay is medium during day time and
Public transport Limited
Not available Not available increasing at afternoon. Recreation activities supported by
availability availability
Contribution to vitality Low (1) Low (1) Very High (4) culinary activities along the beach in the afternoon can arouse
Traffic characteristic attraction and has a significant contribution to its vitality. In the
Arterial, meantime, activity in the public space of Benua Baru Village is
Collector, Collector,
Road function Collector,
Local Local
concentrated at the grand market and its surroundings, as well
Local as in the mosque's yard. The types of activities that make the
On biggest contribution to vitality are recreational and commercial.
Parking On-street On-street
-street-
Contribution to vitality
High (3) Medium (2) High (3) Accessibility
(0-4)
Public transportation and the pedestrian facility has a
Source: Observation and Expert Judgment
significant contribution to vitality [19]. In Palu bay, the
component of accessibility that contributes to vitality in public
Contribution to vitality:
space is the movement of vehicles, because accessibility in
0- None: No contribution or influence to vitality at all
and around the area uses more vehicles than walking. The
1-Low: Very Limited contribution or influence to the vitality
ease of vehicle circulation and availability of public
2-Medium: Small contribution or influence to the vitality
transportation will attract people to visit. In contrast, the limited
3-High: Significant contribution or influence to the vitality
availability of pedestrian paths in this area makes walking
4-Very high: Very significant contribution or influence to the
accessibility is low. While in Lasusua, the accessibility is
vitality
formed by the presence of pedestrian promenade along the
Density
coast, but not yet supported by street network and
transportation. Its vitality is supported by the accessibility to
Building density in Palu Bay area is an average of 20-50%,
the region through a well-planned area and interesting
with uneven distribution of buildings. Buildings are more
landmarks. Accessibility in Benua Baru Village has a very
concentrated in the southeast part of the area, due to the
significant contribution to its vitality due to its walkability to
regulation of a 100-meter beach borderline, while the traffic
activity centers, even though there are no pedestrian paths
density is between low during the day to medium in the
provided. Quantitative analysis of the contribution of vitality
afternoon. That condition gives a moderate contribution to the
assessment shows that among the three study cases,
vitality. In Lasusua, building density is an average of 20-40%,
Lasusua City Square has the lowest potential for vitality
but actually, it refers to the government buildings outside the
because the existing conditions do not support the vitality. It is
design area, and the traffic is even lower, so as its contribution
shown in Figure 5, that the diversity parameters formed by
to vitality. On the contrary, Benua Baru has a higher building
land-use components in Lasusua is the lowest among the
density with a more even distribution of buildings. The specific
other locations, while Benua Baru Village has the highest
characteristic of this area is that the building growth starts from
potential of vitality, especially on the diversity and livability
the water edge and leads to the water. After the waterfront is
parameters.
full, then the buildings grow in the land area. The buildings
density and distribution character, with a mix of residential and
commercial functions, affects traffic density, especially around
the market, and it contributes quite high to the vitality.

Livability
Livability characters are supported by building function,
condition, and public space activities. Building function in Palu
bay is dominated by residential and shop-houses with a
common-modern style and moderate physical condition. The
condition of a well-maintained building will contribute to visual
quality. Meanwhile, the assessment of buildings in Lasusua is
referring to buildings near to the area since there are no
buildings inside. Lasusua City Square design area is part of
the new city center development, with the initial construction of
government office complexes and city mosques. Those
buildings are well designed and have unique characters that Fig. 5. Assessment of vitality parameters in three study cases
can become landmarks of the city and support the vitality of
the area. Quite different characters are found in Benua Baru
3.3 Vision of Development and Concept of Spatial
village, where most of the buildings are residential houses with
Structure and Public Space
very strong local characters. Besides, there is a grand market,
which functionally plays as the main generator of activity, as
Palu Bay Tourism Area, Central Sulawesi
well as physically as the landmark of the village. These
The vision of developing the Palu Bay recreational Area is as
conditions show that commercial buildings and buildings with
inclusive beach tourism, educational tourism, and culinary
uniqueness contribute to greater vitality [18]. Nevertheless, the
center. The vision is based on the function that contributes
biggest contribution to urban vitality is from activities in the
most to vitality, which is recreation activities. The design
public space [12],[17]. Both in Palu Bay and Lasusua Square,
concept is to increase the diversity of public activities and
the dominant public space activity is recreation, but the
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create a linkage system among those activities. Spatially, As an activity


As activity As city center
public space consists of primary and secondary spaces center or vitality
generator connected by a
factor that
connected by pedestrian paths. The concept of spatial Concept of connected by
and great street and
structure is to create open spaces that serve as centers of Development a pedestrian
public pedestrian paths
activity (nodes). These open spaces are generators of public control of the promenades as
space to maintain the
surrounding a growth barrier
activities in the form of educational tourism activities, active continuity of
area of waterfront
recreation, and culinary centers. The nodes are connected space and
settlement.
activities.
with a linkage system in the form of pedestrian paths, vehicle
lanes and parking lots to maintain continuity of space and
activities. 4 CONCLUSION
To formulate the concept of public space as a development
Lasusua City Square, South East Sulawesi control should consider physical, social and functional aspects.
Based on the existing potential, development vision of Public spaces that have good urban vitality can become a
Lasusua City Square is as a water sports tourism, folks generator and at once a controlling growth. To increase the
culinary center, hotels, and housings. Public space as a driving vitality of the public space, a linkage system must be created
force of vitality is manifested in recreational activities, both between the centers of activity, especially activities that can
active (sport) and passive. Public activities play as growth support urban vitality. From the discussion of the three cases,
control by placing the right type and intensity of activities that there are three types of conditions and the concept of public
fit the carrying capacity. Public space also serves as a linkage space as a development control. First, public space as
between existing commercial activities, settlements, and development controls with balancing function, which is
offices as well as development control by stimulating the balancing the existing activities that contribute to vitality. This
development of the surrounding area. Since it was a new concept can be applied in public spaces with low intensity
vacant area, it needs to create poles of activities that are existing activities. Second, public space as development
interconnected with pedestrian paths to stimulate the growth of controls with a generator function, which is generating
activities between these poles. activities in the public space and its surroundings. New
activities are inserted into the existing public space evenly.
Benua Baru Village, East Kalimantan This concept can be employed in areas with a lack of activities
The development vision for Benua Baru Village is as a coastal that contribute to vitality. Third, public space as development
settlement and regional trade center. The spatial structure controls with the function of reducing and distributing the
concept is to strengthen the character of the city center and existing activities to locations with relatively low vitality. The
maintaining local character by limiting the growth of buildings concept is suitable for areas that already have a high vitality
towards the waters and creating a linkage system in the form which needs to be controlled in order not to accumulate in one
of pedestrian paths. Existing activity centers, which are the location and leading to over-vitality.
market and the city square, are developed as the main nodes
connected by a main street as a "great street". The waterfront ACKNOWLEDGMENT
area is reclaimed to its function as a public space by creating Greatest gratitude directed to Department of Architecture,
pedestrian promenades as a link as well as limiting the growth Faculty of Civil Engineering and Planning, Universitas Trisakti
of fisherman settlement buildings. Table 2 shows the vision of for supporting this work; Directorate of Building and
development and the concept of spatial structure and public Environment Plan, Indonesian Ministry of Public Works and
space in the three study cases. Housing as well as Government of East Kutai Regency for giving
the opportunity to be involved in the process of preparing UDGL
TABLE 2 documents of Palu Bay, Lasusua Square and Benua Baru Village.
VISION OF DEVELOPMENT AND CONCEPT
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