The findings were published in the Formosa Journal of Multidisciplinary Research (FJMR) and provide an in-depth look at how local government agencies enforce public order regulations while attempting to address the social and economic conditions that drive people to the streets. The study is significant because many major cities across Indonesia face similar challenges related to urban poverty, homelessness, and public welfare.
Homelessness and Begging Remain Persistent Urban Issues
As the economic center of East Java Province, Surabaya attracts migrants seeking employment and better living conditions. Yet not everyone succeeds in securing stable work, housing, or social support.
According to data cited in the study, Surabaya recorded a poverty rate of 3.56 percent. In 2024, the city's Civil Service Police Unit (Satpol PP) identified 61 homeless individuals and 155 beggars during enforcement operations. Meanwhile, the number of residents accommodated at UPTD Liponsos Keputih, a social rehabilitation facility, increased from 708 people in 2023 to 925 in 2024.
The growing number of individuals requiring assistance suggests that homelessness and begging remain recurring social issues despite ongoing enforcement efforts.
To address the problem, the Surabaya City Government implemented Regional Regulation Number 2 of 2020 concerning Public Order and Community Peace. The regulation prohibits begging, homelessness in public spaces, recruiting others to beg, and giving money or goods to beggars in public areas.
How the Research Was Conducted
The researchers used a qualitative descriptive approach to evaluate how the regulation is implemented in practice.
Data were collected through interviews, field observations, and document analysis involving officials from Surabaya’s Satpol PP, staff at UPTD Liponsos Keputih, and homeless people and beggars who were directly affected by the policy.
The analysis examined four key dimensions of policy implementation:
- Policy accuracy
- Implementation accuracy
- Target accuracy
- Environmental accuracy
This framework allowed the researchers to assess whether the regulation was appropriately designed, effectively implemented, directed toward the right target groups, and supported by the surrounding social environment.
Regulation Provides a Comprehensive Framework
The study found that Regional Regulation Number 2 of 2020 contains policy provisions that are relevant to the realities faced by Surabaya.
Rather than focusing exclusively on punishment, the regulation combines enforcement measures with social rehabilitation and guidance programs. It also addresses public behavior that indirectly sustains street begging by prohibiting the giving of money or goods to beggars in public spaces.
According to Bahtera Enjelina and Singgih Manggalou of UPN Veteran Jawa Timur, the regulation reflects a comprehensive approach that integrates both preventive and corrective measures.
The researchers noted that the legal framework was developed by the Surabaya City Government and the local legislative council, providing a clear institutional foundation for implementation.
Strong Coordination Supports Enforcement
One of the study’s most notable findings is the level of coordination among government agencies involved in implementing the policy.
Enforcement operations are conducted through the “Asuhan Rembulan” program, a joint initiative involving Satpol PP, the Social Services Office, the Transportation Agency, and the Police.
During patrols, homeless individuals and beggars found in public areas are transported to UPTD Liponsos Keputih, where they undergo assessment and receive support tailored to their individual circumstances.
Programs at the facility include rehabilitation services and skills training designed to help participants achieve greater independence and improve their future employment prospects.
The researchers concluded that inter-agency cooperation has become one of the policy’s strongest implementation assets.
Poverty Continues to Drive People Back to the Streets
Despite improvements in enforcement and rehabilitation, the study highlights a deeper challenge: poverty remains the primary factor behind homelessness and begging.
Interviews conducted during the research revealed that many individuals entered street-based activities because of family breakdown, unemployment, or a lack of economic opportunities.
One participant explained that she had been forced to earn a living through street performances and begging after being abandoned by her husband while pregnant and without access to stable employment.
These findings suggest that homelessness and begging are not simply behavioral issues. Instead, they are closely connected to broader structural problems such as poverty, social vulnerability, and limited access to economic resources.
As a result, some individuals return to the streets even after receiving assistance and rehabilitation services.
Public Giving Habits Reduce Policy Effectiveness
The study also identified community behavior as a major obstacle to policy success.
Many residents continue to give money directly to beggars, particularly during religious periods such as Ramadan. While these actions are often motivated by compassion, they unintentionally encourage the continuation of street begging activities.
To address this issue, Surabaya authorities have expanded public outreach through social media platforms, community engagement programs, and the Kampung Pancasila initiative.
However, the researchers found that these efforts have not yet significantly changed public behavior.
According to the study, long-term success will depend not only on law enforcement but also on greater public awareness regarding the broader impact of direct street donations.
Implications for Urban Social Policy
The findings offer valuable lessons for policymakers across Indonesia and other developing urban centers.
The research suggests that homelessness and begging cannot be resolved solely through enforcement operations. Sustainable solutions require broader social protection measures, including employment opportunities, vocational training, economic empowerment programs, and accessible social assistance.
Bahtera Enjelina and Singgih Manggalou argue that addressing the root causes of poverty is essential if cities hope to reduce the recurring cycle of homelessness and begging.
The study also highlights the importance of public participation. Without changes in community behavior and stronger support for rehabilitation efforts, policy effectiveness may remain limited despite improvements in enforcement systems.
Author Profiles
Bahtera Enjelina is a researcher in the Public Administration Study Program, Faculty of Social, Cultural, and Political Sciences, Universitas Pembangunan Nasional “Veteran” Jawa Timur. Her research interests include public policy implementation, local governance, and public administration.
Singgih Manggalou is a lecturer and researcher in the Public Administration Study Program, Faculty of Social, Cultural, and Political Sciences, Universitas Pembangunan Nasional “Veteran” Jawa Timur. His expertise focuses on public policy, government administration, and public sector governance.
Source
Article Title: Implementation of Surabaya City Regional Regulation Number 2 of 2020 in Handling Homeless People and Beggars in Surabaya City
Journal: Formosa Journal of Multidisciplinary Research (FJMR)
Year: 2026
0 Komentar