Land Issues in Forest Areas of Yogyakarta Special Region and The Dynamic of Decision Making Process

There is a forest land identified as Ab Gronden, located in Gunung Kidul Regency, Yogyakarta Special Region. Ab Gronden occupation has led to prolonged conflict over land until today. Environment and Forestry Service (EFS) of Yogyakarta Special Region has made a decision of “do nothing” from the policy set by central government to solve the problem. This study intends to examine factors underlying the decision of “do nothing". This type of research is a case study, that is a study on a policy in the context of real life and uses historical approach holistic single case study through the procedures of data collection and analysis systematically. The sources of data in this study consisted of both primary and secondary sources of data and were analyzed qualitatively. The results of this study found the following conclusion factors underlying of why decision of “do nothing” choosed by EFS is because of there is no policy agenda of forest land statue yet. EFS has experience a dilemma and conflict to make a decision relate to: a) the differences in the ab gronden perception among actors, b) multy level hierarchy of decision making, c) there is no initiation of dialogue between related actors. The Organizational Politics Model has not been able to work in decision making of government organizations that are grounded in legal provisions. The do nothing decision was made because the bargaining process between the actors was not running.


Introduction
The problem of this research arises from the existence of community occupation in state forest areas and no resolution has been taken by the local government to resolve the issue. The local government policy that does not act in resolving land issues in forest areas is a choice of several alternative options available, and the policy will certainly have Soraya Isfandiari BPKH Region XI, Regional Office of the Directorate General of Forestry and Environmental Planning, the Ministry of Environment and Forestry. Email: soraya.isfandiari@mail.ugm.ac.id Ambar Widaningrum Departement  an impact later on. Do nothing is a form of the policy choice "not to do" something by leaving the problem on one side is a possible condition as an alternative policy. Even though a policy of not doing anything is an option, a policy of delaying or neglecting land tenure in forest areas will lead to greater problems in the future (Kartodihardjo, 2017). The number of land problems in forest areas has increased with the stigma of the process of policy to resolve which requires a very long time (Awang, 2003;Ekawati et al., 2014).
Some research results in Indonesia show the phenomenon of "do nothing" by omitting. Omission done because there are no effective instruments from the Government to resolve cases in the field (Kartodihardjo, 2016); as the impact of unresolved conflicts (WALHI, 1999); as a form of continuity that has occurred in the field (Kartodihardjo, 2017); and as one model of conflict resolution in the hope that the conflict will be resolved by itself (Bappenas, 2009).
Government policy has actually been established at the national level, but many local governments have not implemented it due to various obstacles and causes. The government has discussed several efforts to overcome the problem of omitting land issues, including the Ministry of Agrarian Affairs and Spatial Planning / National Land Agency discussed a time limit for resolving land issues less than 5-10 years. Another policy was issued by the Central Government in an effort to resolve land issues in forest areas through Presidential Regulation No. 88/2017, which provides legal protection for the rights of communities who control land in forest areas. The policy as the country's priority in reducing land tenure problems in forest areas that have not yet been resolved.
Land occupation of state forest areas in Yogyakarta is one of problems that represent occupational issues that almost occur in all forest areas both in Indonesia and other countries. The specific thing about the occupation case in Gunung Kidul Regency is the special privileges owned by the Special Region of Yogyakarta. Of all the provinces in Indonesia, only the Special Region of Yogyakarta has special features in the land sector, so that land administration in the Yogyakarta Special Region has special policies that are not shared by other regions in Indonesia. This special policy in the field of land will certainly have an impact on the policy of solving land problems in it.
Land issues in the Yogyakarta Special Region have different characteristics from other regions in Indonesia. This is related to the condition that Yogyakarta is one of the provincies that gets special privileges from the Central Government, including with the privileges in land and spatial planning. Another peculiarity of this problem is that most people recognize that the land they use is state forest land and they are occupying consciously. Land occupation occurs with unlicensed

Research Question and Aims
The do nothing policy is a unique policy because it is not documented, but the impact of the policy will cause problems to become more This study will analize the policy issue and the process of decision making by the use of the Organizational Politics Model, how the process of bargaining among actors during the decision making process to make the compromise. Through the perspective of organization / bureaucratic politics, it is hoped that this research will have an element of novelty and be able to capture the "gap" that exists between theory and practice.
The do nothing decision was initially stated by Bachrach and Baratz (1962) who defined "non- Some literature that conducts a review of "not to do", do nothing or inaction decisions has a connection in providing an explanation of the factors that are the background of decision making. From some of these studies, it can be explained the background of the policy of "not to do" is that it can be done through omission (Bernstein, 2014), policy delays (Steunenberg, 2006); (Berger et al., 2015), avoidance (Moss & Tubbs, 1996) and neglect (Kay, 2006).
Neglect is done as a choice of several alternatives which are predicted to make a problem worse if an action is taken (Kay, 2006). Delay is one of the typologies of policy implementation as conveyed by Goggins et al (1990) in Purwanto & Sulistyastuti, (2012) who formulated a typology of policy implementation classified as deviations, delays, strategic delays and compliance. Steunenberg (2006) concludes that the delay arises in the decision making process between top-level actors which results in a deadlock. This deadlock situation will further lead to a delay in implementation. Deadlock issues emerge at the level of multi-level policy stakeholders and do not appear in the single actor coordination model. Differences in national (central) and regional policies will provide an opportunity for delay if there is a deadlock situation between policy makers.
The act of omission often arises in a prolonged conflict process. Sillars et al (1982) and Hocker and Wilmot (1991) in Moss & Tubbs (1996)

Methods
This study is a single case study (holisticsingle case study) where this research puts a case as the focus of research. The selected case is a case that has uniqueness and characteristics not found in other regions, so that it is feasible to be investigated as a case (Yin, 2009). This research is in accordance with Creswell (2005) is an indepth case study because it places the case as an object of research that needs to be investigated to explain the deepest value behind the case. The

case of occupation in forest land in Gunung Kidul
Regency is a unique case because the status of the land only exists in Yogyakarta Special Region. The uniqueness of this land status is in accordance with the special status of Yogyakarta Special Region, which is not given to other regions in Indonesia.
The research design focuses on the decisionmaking activities of omission over land tenure issues in forest areas. This research applies a case study, which aims to thoroughly understand the object of research, namely the policy of solving land problems in forest areas in Yogyakarta.
Through case studies, this research is expected to be able to explain how the existence and why such cases could occur (Flyvberg, 2006;Yin, 2009).
The research is planned to be carried out  Special Region has specificity in regional head elections, local government institutions, culture, land and spatial planning. Privileges in field of land, set out in the land policy: "lands that do not have ownership rights to become Sultan's lands" (Poerwokoesoemo, 1985).

Forest Land Occupation
Specific problems were encountered with   (Allison & Zelikow, 1999) and is actually not known in the bureaucracy that refers to the provisions of the law (Rostow & Friedmann, 1972 allow for a policy which is a "bargaining" between the Central Government and the Special Region of Yogyakarta. It is realized that without compromise between government organizations, the problems that occur will not be solved because of differences in perspective. The process arises at the level of multi-level-policy stakeholders (Steunenberg, 2006) and because of there is no instruments from government to resolve cases in the field  (Moss and Tobbs, 1996;Steunenberg, 2006, Berger, 2015.

Policy Agenda
Occupational issues in the forest area  Forestry Law No. 5/1967jo No. 41/1999 policies that have the same legal position and the Head of Office does not have the authority to make policies in it (Cohen et al., 2007). This condition give an result the Head of the EFS in choosing a do nothing policy is the existence of multilevel decision making on the policies of the central government and regional governments. This multi-level hierarchy of decision making resulted in a deadlock situation for the Head of the Office of EFS (Steunenberg, 2006).  (Cohen, et al, 2007;Moss and Tubbs, 1996;Kay, 2006). As Dye, (1978)