Land Certification Program in Mojokerto Shows Strong Participation but Faces Mapping and Bureaucratic Challenges

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FORMOSA NEWS - Mojokerto - A 2026 study by Andre Eka Prastyo, Agus Sukristyanto, and Rachmawati Novaria from the Master of Public Administration Program at Universitas 17 Agustus 1945 Surabaya examines how Indonesia’s Complete Systematic Land Registration Program (PTSL) operates at the village level. Conducted using 2025 field data from Pugeran Village in Mojokerto Regency, East Java, the research highlights how the national land certification initiative improves legal certainty for citizens while revealing persistent administrative and technical obstacles. The findings matter because land legality directly affects social stability, property value, and access to financial services for millions of Indonesians. 

Why Land Registration Matters

Land ownership remains one of the most sensitive economic and legal issues in Indonesia. Unregistered land often leads to disputes, unclear inheritance rights, and barriers to credit access. To address this, the government introduced PTSL as a nationwide program designed to register all land parcels in a village simultaneously rather than relying on individual applications.

Pugeran Village offers a representative case. The area reflects common rural dynamics in Indonesia: agricultural land gradually converted into housing, inherited land without clear documentation, and overlapping ownership claims. By 2025, the village still had hundreds of uncertified plots, making it a suitable testing ground for evaluating whether the national program works in practice.

How the Study Was Conducted

The researchers used a qualitative descriptive approach to understand how the program functions on the ground. They conducted in-depth interviews with land office officials, village committee members, and residents applying for certificates. Field observations during land measurement and document verification were combined with analysis of official records and regulations.

Data were interpreted using an interactive analysis model that emphasizes continuous comparison between field evidence and administrative procedures. This approach allowed the researchers to capture both policy structure and social behavior within the implementation process. 

Key Findings

The study reveals that the PTSL program in Pugeran Village produced tangible benefits but also exposed systemic weaknesses.

Strong public participation
Community response was exceptionally high. Applications exceeded the quota set by the National Land Agency, indicating strong demand for legal recognition of land assets.

Full certification quota achieved
The program successfully registered 248 land plots, including both private property and village-owned land. This achievement demonstrates that coordinated village-level implementation can meet national targets.

Combination of top-down policy and local involvement worked well
Central regulations provided clear procedures, while village officials played a crucial role in outreach, verification, and dispute mediation. This combination helped translate national policy into local results.

Land disputes were resolved through mediation
Instead of escalating into legal conflicts, several boundary disputes were settled through community discussions facilitated by officials. The program therefore contributed not only to administrative order but also to social cohesion.

Challenges Identified

Despite the successes, the research highlights several structural problems that slowed implementation.

Outdated base maps
Surveyors relied on mapping data that no longer reflected current land use. Areas previously categorized as plantations had become dense residential zones, forcing repeated re-measurement and slowing verification.

Staff rotation disrupted certificate issuance
Transfers of land office personnel in Mojokerto interrupted document processing between May and November 2025. New officers required time to review files, creating delays in distributing certificates.

Limited administrative capacity at the village level
The surge in applicants overwhelmed the local adjudication committee. Semi-manual document handling caused long queues and increased the risk of clerical errors.

Low legal literacy among residents
Some applicants were unaware that their land had already been registered in the name of parents or ancestors. This lack of documentation awareness led to duplicate applications and slowed verification.

Real-World Implications

The findings show that PTSL delivers clear benefits when implementation is coordinated and community support is strong. Land certificates increase legal certainty, enable property to be used as collateral, and strengthen household financial security. For policymakers, the study highlights the need for more than just regulatory design.

Improving digital land databases, ensuring continuity during staff rotations, and encouraging village-level archival systems could significantly improve efficiency. The research also suggests that community education about land documentation is as important as technical surveying.

As Andre Eka Prastyo and colleagues from Universitas 17 Agustus 1945 Surabaya emphasize, successful public policy implementation depends on the interaction between institutional structures and social participation. Their findings indicate that local social capital can compensate for bureaucratic limitations but cannot fully replace stable administrative systems. 

Author Profiles

Andre Eka Prastyo
Public administration researcher at Universitas 17 Agustus 1945 Surabaya, specializing in governance and land policy implementation.

Agus Sukristyanto
Senior academic in public administration at Universitas 17 Agustus 1945 Surabaya with expertise in government management and institutional policy.

Rachmawati Novaria
Lecturer and researcher focusing on public service delivery and regional governance at Universitas 17 Agustus 1945 Surabaya.

Source

Implementation of the Complete Systematic Land Registration Program in Pugeran Village, Gondang District, Mojokerto Regency
Asian Journal of Applied Business and Management, 2026

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