Analysis of the Issues on Bengawan Solo River Basin Management

Policies

ABSORI ABSORI1, TRIAS HERNANDA2, AIDUL FITRICIADA1, KELIK WARDIONO1,

ARIEF BUDIONO1

1Doctoral Program in Legal Studies, Universitas Muhammadiyah Surakarta, Surakarta, Central Java,

INDONESIA

2Faculty of Law, Universitas Muhammadiyah Kudus, Kudus, Central Java, INDONESIA

Abstract: -The Bengawan Solo river basin in Central Java Province, Indonesia, has a great history from era to

era. But there are still issues with its current management system. Because of that, this paper aims to analyze

issues in the management policies of the Bengawan Solo river basin. This is empirical legal research with

qualitative analysis. The data were collected through interviews with informants who manage the Bengawan

Solo river basin, from the Bengawan Solo River Management Office (RMO), the Environmental Service of

Sukoharjo, Surakarta, and Karanganyar Regencies, as well as people who live around the Bengawan Solo river.

Research showed that issues that concern the Bengawan Solo river basin are: (1) river basin pollution due to

textile waste that is illegally disposed of in the river, and (2) there is a lack of regional regulations that are

specially made to manage river basins. Based on the issues faced by the Bengawan Solo river basin, there needs

to be a change in the policies on river basin management. There should be a special regulation on the

Bengawan Solo river basin area. Apart from that, the Bengawan Solo river basin management should be

changed into more effective management patterns.

Key-Words: - River basin, Management, policy, Bengawan Solo river, Environment, Indonesia.

Received: June 27, 2022. Revised: September 12, 2022. Accepted: October 13, 2022. Available online: November 29, 2022.

1 Introduction

Indonesia is a country with mega biodiversity, [1],

beautiful nature, [2] and panorma, [3].

Unfortunately, it is threatened by issues such as

environmental destruction, [4], such as

deforestation, [5], in some of its large islands, [6],

air pollution, [7], and river pollution, [8]. Indonesia

is a developing country that is prone to river

pollution, [9]. Most river pollution is caused by

industrial waste, [10], and plastic, [11]. Due to these

activities, Indonesian rivers have the status

unfriendly and unhealthy, for instance, the Citarum

river in West Java, [12], the Brantas River in East

Java, [13], and the Bengawan Solo River in Central

Java. These phenomena contradict the Indonesian

constitution, where the state has an obligation to

manage the environment, [14].

The issues of river damage in developing countries

such as Indonesia are caused by the weak

enforcement of environmental law and the

ineffective legal protection of those rivers. Some

indicators of the damage to watersheds include the

decreasing river water quality as well as the change

in river water color and odor. These things are

caused by changes in land and excessive industrial

activities, [15]. The Indonesian Ministry of Forestry

declared 108 critical river basins in Decree No.

328/Menhut-II/2009 and one of which was the

Bengawan Solo river basin. According to AZS from

the non-governmental organization (NGO) that

carried out an expedition through the Bengawan

Solo river basin in 2021, it was found that the

condition of this river was already bad. It has

brought serious impacts on the nearby society as

well as those who depend on the Bengawan Solo

river for a living. This condition was caused by

some companies who violated the regulations by

directly disposing of the industrial production waste

in the river without going through the Waste Water

Management Installation (WWMI).

The Bengawan Solo river basin has a great history

and is the longest river on Java island. Its length

reaches 600 kilometers,[16]. It passes through ten

regencies in two provinces. With such a predicate,

the Bengawan Solo river is always inflicted by

problems in every regency it passes that affect this

river’s quality, such as pollution due to fabric waste,

alcohol waste, and trash. Such issues may also cause

a flood, [17].

Indonesia is a legal state, [18], that upholds the

equality of rights, [19]. The regulations on

watershed management and protection are (1) Law

No. 32 of 2009 on Environmental Protection and

Management, (2) Law No. 17 on Water Resources,

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and (3) the Governmental Decree No. 37 of 2012 on

Watersheds. The constitutional regulations on

watersheds in Indonesia are good enough to protect

the environment, including rivers. But seeing the

rampant problems of the Bengawan Solo river

watershed, something must be wrong.

Environmental conflicts will lead to limited natural

resources, [20]. This also applies to the conflicts in

the Bengawan Solo river watershed. Thus, this

research aims to analyze the issues faced by the

Bengawan Solo river watershed in the aspects of

pollution and management. The researchers will

then provide a solution to these issues for better

management of the Bengawan Solo river watershed

in the future.

The Bengawan Solo River watershed has a long

history and is one of the oldest river basins in

Indonesia. Even during the Dutch colonial era in

1931, 11 fossil skulls of primordial men were found

on the river banks of this river, [21]. These

primordial men fossils were then named after their

origin, namely Homo (Javanthropus) Soloensis. The

Bengawan Solo river watershed was also crucial to

the introduction of Islam in Indonesia, as it was used

as a transportation facility. It was also a trade route

between Indonesian kingdoms, [22]. The upstream

of the ancient Bengawan Solo river watershed

originated from the Wonogiri regency that flowed in

the direction of the Pacitan Regency and

Yogyakarta Special Region. Unfortunately, due to

the split of the great Asia and Australia plates, the

flow of the ancient Bengawan Solo river stopped,

[21]. This led to a change in the Bengawan Solo

river’s direction. Before, it flowed to the south

towards Pacitan Regency and Yogyakarta Special

Region. Then, it shifted to the north to Sukoharjo

Regency, Surakarta City, and even to Lamongan

Regency in East Java Province.

The Bengawan Solo river watershed passes through

two large provinces in Indonesia, namely Central

Java and East Java. The authority and management

of this river are in the hands of the Ministry of

Public Works and Public Housing, and it is

bestowed to the hands of the Bengawan Solo River

Management Office (RMO). During an interview,

ABR from the Bengawan Solo RMO stated that the

Bengawan solo RMO currently manages the

Bengawan Solo river watershed. The management is

carried out by undergoing supervision, checking the

river water quality, and giving permit

recommendations to activities that will lead to

changes in the Bengawan Solo River watershed

area.

2 Methodology

This is empirical legal research that compares issued

policies to manage an object as a result of the

issuing of those policies, [23]. In this research, the

researchers used primary and secondary data. The

primary data in this research were obtained from

parties who carried out interviews with the people

who were responsible for managing the Bengawan

Solo river basin, namely the RMO Bengawan Solo,

and supporting managers, namely the

Environmental Service of Sukoharjo, Surakarta, and

Karanganyar Regencies. Primary data were also

obtained from focus group discussions with non-

governmental organizations and people who were

impacted by issues of the Bengawan Solo river.

Then, the secondary data were obtained through

data identification of Indonesian laws, supported by

books and articles. In this research, the data were

analyzed using the qualitative technique of analysis.

3 Result and Discussion

3.1 The Policies on Watershed Management

in Indonesia

Indonesia must also become a country with

environmental awareness, [24]. The characteristic of

a legal state is that it actively issues regulations to

run a policy. Watersheds are one of the subjects of

Indonesian policies. Its management is regulated by

the law. As aforementioned, Indonesia has 108 river

watersheds with critical status.

The watershed management in Indonesia must be

according to the issued laws. This is to preserve

their sustainability. The legal protection of

watershed management in Indonesia is the

Governmental Decree No. 37 of 2012 on

Watersheds. Article 2 of that Decree states that

watershed management in Indonesia is implemented

through several stages, namely: (1) planning, (2)

management, (3) monitoring and evaluation, and (4)

guiding and supervision. The qualifications for the

recovery status of damaged river watersheds are

also determined and regulated in Governmental

Decree No. 37 of 2012 Article 18.

Another legal basis of the river watersheds is Law

No. 17 of 2019 on Water Resources. This law is

general legal protection as it regulates policies

concerning water resources. Article 15 of this law

explains the authorities of the regional government,

namely the authority to create water resource

management policies and facilitate dispute

resolution in the Regency in the case of water

resource management. Apart from regulating the

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regional government’s authorities in managing

water resources, Law No. 17 of 2019 also regulates

the authority to manage water resources at the

village level.

Law No. 32 of 2009 on Environmental Protection

and Management also has a role in managing river

watersheds. Article 30, clause 3 states that anyone

who disposed of waste to environmental media must

have environmental permits. This law is a very

useful legal basis to protect river watersheds as it

focuses on all environmental aspects in Indonesia,

[25].

The river watershed management in Indonesia

principally follows integrated watershed

management, as stated by a Bengawan Solo RMO

manager, ABR. She said that the integrated

management principle is still applied in managing

river watersheds. This method is carried out by

managing the river watersheds from the upstream to

the downstream through monitoring, evaluation,

guiding, and supervising. This principle was first

introduced in 1992 in the Dublin Principle, [26], and

it was called the Integrated Water Resource

Management (IWRM) or the Integrated River Basin

Management (IRBM). In other countries such as

Turkey, [27], China, [28], Morocco, [29] and

Canada, [30]. The integrated river basin

management has been applied well with various

evaluations and supervisions. Unfortunately,

integrated river basin management in Indonesia is

faced with some challenges. For instance, there is a

lack of real support from various regions as it was

inhibited by the applicable regulations.

3.2 The Condition and Issues of the

Bengawan Solo River Watershed

Table 1. The Bengawan Solo River Watershed

Pollution Index

River Location

Pollution

Index

Jurang Gempal

(Wonogiri)

4.99

Nguter (Sukoharjo)

9.12

Peren (Sukoharjo)

13.82

Bacem (Sukoharjo)

16.28

Jurug (Surakarta)

11.04

Kemiri (Sragen)

19.22

Source: Bengawan Solo RMO,[31]

The above table shows the pollution index at each

regency in Central Java that is flowed by the

Bengawan Solo river. Every regency has its own

problems. In Wonogiri Regency, the river is

relatively unpolluted. Then, in Sukoharjo City

(Nguter, Peren), the pollution index starts to

increase. This is caused by the activities of textile

industries that violate the regulations in the Decree

of the Minister of Environment No. 3 of 2010 on the

Standard Quality of Waste Water in Industrial

Areas.

The Decree of the Minister of Environment No. 3 of

2010 on the Standard Quality of Waste Water in

Industrial Areas obliges all industries that produce

liquid waste to have WWMI. But in Sukoharjo

Regency, most of the textile Micro, Small, to

Medium Enterprises (MSMEs) that produce beach

fabric and batik in “X” village, Mojolaban District,

do not have WWMI. The wastewater disposal from

the beach fabric MSMEs directly flows to the river

that flows to Bengawan Solo river. Then, in Nguter

District, pollution happens due to an illegal pipe that

acts as the source of pollution.

Fig. 1: An illegal pipe in Nguter Village, Sukoharjo

Regency

This pipe originates from PT “X”, one of the largest

factories that produce raw textile materials. This

pollution disturbs the health of the surrounding

communities. People have reported suffering from

shortness of breath and itchiness when in contact

with polluted river water.

TMO as a coordinator of the resistance action

against that textile factory, stated that the

malfunctioning WWMI of the factory resulted in an

unpleasant odor. It led some Gupit Village

inhabitants to suffer from shortness of breath and

were hospitalized. Some people whose source of

living was fishing at the Bengawan Solo watershed

explained that since the pollution from that factory,

it is harder and harder to find fish.

The illegal status of that pipe was agreed upon by

SGT from the Sukoharjo Environmental Service. He

said that the pipe is a source of pollution in the

Bengawan Solo watershed. It has threatened the

health of society. This conflict started in 2018 up to

now and has caused hazards to society.

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Some other issues happened in Surakarta City.

Some home industries that produce batik in “X”

Village and “X” Village have issues with WWMI.

Most home industries dispose of the water waste

from washing batik fabric to a small river that leads

to the Bengawan Solo river basin.

ED from the Environmental Service of Surakarta

City also stated that apart from originating from

nature, the issues of the pollution in Bengawan Solo

were also caused by human activities, namely the

home industries that create batik fabric. Further, ED

stated that of the 50 home industries in “X” Village

and “X” Village, only six have WWMI drainage.

SRO from “X” Village stated that the river that is

polluted by batik fabric waste in his village does

flow to the Bengawan Solo river basin. This

condition has long happened. Some people actually

feel bothered by the stench that comes from the

small river that becomes the place of waste disposal.

But they do not have other places to dispose of the

waste. Some of the people also work in those batik

home industries. The stench causes people to suffer

from health issues such as headaches.

River issues are common issues. Thus, all areas in

which the river passes suffer the consequences.

Surakarta City is a very crowded city that requires a

supply of clean water for its inhabitants daily lives.

Unfortunately, this water supply is often inhibited

due to the pollution of the Bengawan Solo river

watershed.

AGN as a manager of the Municipal Waterworks of

Surakarta City, stated that the Bengawan Solo is one

of the suppliers of clean water in Surakarta City.

Unfortunately, the supply is often disturbed due to

the polluted river water. This river flows from

Sukoharjo and Wonogiri Regencies.

The consequences of the river pollution have also

started to be felt by the people whose areas are

passed through by the Bengawan Solo river in other

regencies, such as Sragen and Karanganyar

Regencies. Based on the observation, apart from

suffering from the consequences, Karanganyar

Regency is also a source of pollution and waste.

SYN from the Karanganyar Environmental Service

said that Karanganyar Regency is impacted by

pollution as well as a source of it. This is because

some chemical, animal husbandry, and textile

companies dispose of their waste directly to the

river without functioning the WWMI well. This

causes the river that flows through Karanganyar

Regency to be polluted. It emits a stench, and it

disturbs people’s health.

Sragen Regency is the last regency that is flowed by

the Bengawan Solo river in Central Java Province.

The pollution condition in this regency is highly

concerning. According to MHU, a citizen of Sragen

Regency, the Bengawan Solo river that flows in this

regency is often black in color. It causes people who

take water for daily needs to suffer from itchiness in

their legs. The stench that it produces is unpleasant

and disturbing. The issues in the Bengawan Solo

river basin are similar to the river issues in other

areas in Indonesia, as rivers act as the last disposal

of human activity. According to Trias, the issues on

the river watershed require strict regulation

implementation and a good pattern of awareness,

[31].

3.3 Strengthening the Policies on Bengawan

Solo River Watershed Management

The policies on the Bengawan Solo river watershed

management are so far in the hands of the Ministry

of Public Works and Public Housing, and it is

bestowed to the Bengawan Solo RMO and the

Ministry of Environment and Forestry. The legal

protections used to manage the Bengawan Solo river

watershed are Law No. 17 on Water Resource and

the Governmental Decree No. 37 of 2012 on

Watershed. But seeing the facts in the field, the

application of these regulations is still suboptimum

in managing and protecting the river from pollution

and ecological damage. According to AZS from

NGO, the water along the Bengawan Solo river

basin in 2022 contains microplastic. The results of

Yusron and Jaza’s research in 2021 showed that the

water in the Bengawan Solo river basin contained

microplastic, [32]. The guarantee for a good

environment is stipulated in the Indonesian

constitution, [33] where the state is obliged to

protect its citizens from environmental damage and

provide a clean and healthy environment.

The Bengawan Solo river basin is currently in a bad

condition. As stated by ABP from the RMO, “There

are obstacles to the management of the Bengawan

Solo river basin due to the limited members of the

Bengawan Solo RMO that is not proportional with

the length of the river that flows through two

provinces in Java Island.” The management of the

Bengawan Solo river basin also has obstacles in its

law enforcement. According to Law No. 11 of 2020

on Job Creation, if there is river pollution, the

authority to act upon polluters is in the hands of the

Ministry rather than the regional-level governments.

This causes new obstacles and issues. One of them

is the ongoing operation of PT X in Sukoharjo

Regency, although it has been given sanctions and

warnings.

River management does involve various responsible

institutions and interests in the case of planning,

[34]. Regulations and interests that synergize both

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vertically and horizontally are one of the ways to

good river management. A conflict will be born

from the lack of synergy, [35]. The policies that are

arranged by written management will function to

characterize the structure and usability. This highly

helps in formally supporting the integration of

regulations, the law, and authority [36]. Even so, the

integration must be analyzed profoundly and

carefully, [37]..

Indonesia is a state that has applied the

decentralization system, where regions are given

top-down democracy, [38]. It means that each

region has the authority to manage its own area,

[39]. The strengthening of the decentralization

system also comes from the regulatory hierarchy in

Indonesia that is stipulated in Article 7 of Law No.

11 on Constitutional Regulations: The Constitution,

The decision of the People’s Consultative

Assembly, Laws, Governmental Decrees,

Presidential Decrees, Decrees of Provincial

Governments, Decrees of Regency Governments.

Based on the results of the focus group discussions

in several regencies in Central Java Province, there

is not yet any regional legal product that is specially

integrated with the legal regulations that manage the

Bengawan Solo river. Also, the Decree of the

Regional Government No. 23 of 2014 on Regional

Governments does not stipulate the authority to

manage river basins, [40]. Plus, neither does it

regulate anything about the Bengawan Solo water

resources.

The solutions that can be applied in the policy of the

good Bengawan Solo river basin management in the

future are as follows:

First, strengthening the concept of the integrated

river basin area that is already applied in Indonesia

by developing people’s mindset on the future of the

river basin area. This is to change their mindset on

the watershed, which they regard merely as a place

of waste disposal. The concept of the integrated

river basin can be integrated with the sustainable

development concept, considering that Indonesia is

ranked the 82nd, [41], in the rank of sustainable

development goals released by the United Nations.

The concept of the integrated river basin encourages

the harmonization of the thought of the watershed

functions from the upstream up to the downstream.

The strengthening of this river watershed is very

good as it contains intersectoral approaches and

rearrangement, [42] as well as the ecosystem

approach, [43].

Second, integrating policies or regulations. Every

area that is passed through by the Bengawan Solo

river must have regional legal products that are

integrated with the regulations on the Bengawan

Solo river basin. The formation of these regional

regulations can minimize the legal void in every

region. The decentralization system in the

Indonesian legal system obliges every region to

manage its own areas. This can be utilized in

managing the Bengawan Solo river basin. Apart

from that, by integrating regulations, it will be easier

to enforce the law and monitor the policies in

general, [44].

Third, combining the integrated river basin area

concept with the ecosystemic approach and

environmental management. Changes in the river

basin area from time to time are marked by the

abundant chemicals from industries, agricultural

pesticides, and urban waste that flow directly into

the river basin area,. The ecosystemic approach and

environmental management work are based on an

empirical framework. They explore the theoretical

basis of trans-disciplinary sciences that aim to

improve the relationship between humans and the

environment, [45]. With the keyword of trans-

disciplinary sciences, this approach is very good to

be used as a supportive approach to the integrated

river basin area concept that is not too specific in

terms of the approach as it uses trans-disciplinary

sciences. The cases that threaten the Bengawan Solo

river basin area are mostly caused by the violation

of environmental laws. But seeing the weak law

enforcement and the weak legal awareness of

polluters around the Bengawan Solo river basin

area, the systemic approach and environmental

management can become the basic foundations in

learning how to manage the watershed before

focusing on the concept of the integrated watershed.

Indonesia has a universal plan for clean sanitation

and clean water program from 2020-2024. The

benefits of this program should be felt if it is

seriously applied. Clean water can be obtained from

the river basins that flow through several regencies,

and the Bengawan Solo river basin area is one of

them. The future of the Bengawan Solo river basin

area is the future of Indonesia, as in the program of

sustainable development that has been integrated

into Law No. 32 of 2009 on Environmental

Protection and Management. The good management

of the Bengawan Solo river basin area can bring

good impacts to the areas around this river.

4 Conclusion

The condition of the Bengawan Solo river basin

currently highly depends on applicable management

policies. Unfortunately, several issues inhibit the

application of these policies, namely: (1) there is a

lack of special regulations in the regions that are

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integrated with the existing laws, (2) actors of small

and large industries lack the awareness to preserve

the sustainability of the Bengawan Solo river basin,

(3) the integrated river basin management system is

not yet applied as expected due to a lack of

socialization. Thus, to resolve these issues, there

needs to be a new policy on river basin

management. This new policy must integrate with

the regulations in each regency in which the

Bengawan Solo river flows. Then, the new

management policy must also strengthen the

applicable concept of integrated river basin

management.

Acknowledgement:

I would like to thank DRPM of the Directorate of

Higher Education, Indonesian Ministry of

Education, for funding this research with Master

Contract Number 158/E5/PG.02.00.PT/2022,

Advanced Contract Number

005/LL6/PB/AK.04/2022; 135.5/A.3-

III/LRI/V/2022 I would also like to Universitas

Muhammadiyah Surakarta for the support that gave

us to finish this project.

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DOI: 10.37394/232015.2023.19.3

Absori Absori, Trias Hernanda,

Aidul Fitriciada, Kelik Wardiono, Arief Budiono

E-ISSN: 2224-3496

Volume 19, 2023

Contribution of Individual Authors to the

Creation of a Scientific Article (Ghostwriting

Policy)

The authors equally contributed in the present

research, at all stages from the formulation of the

problem to the final findings and solution.

Sources of Funding for Research Presented in a

Scientific Article or Scientific Article Itself

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