Critical Factors and Institutional Role in Strengthening Capacity of National Parks: Analysis of Meru Betiri National Park, Indonesia Using Interpretative Structural Modeling

There are several factors suspected of ineffective rehabilitation and conservation of the Meru Betiri National Park. These important factors need to be identified to improve the management of the park. The purpose of this study was to identify and examine the relationship between the factors that influence the achievement of rehabilitation and conservation of the park. The method of this research used a systematic approach to be identified, analyzed, and explained the influential critical factors. Data and information collection was carried out through interviews with experts, management of Meru Betiri National Park, Jember Regency Government and then Focus Group Discussions with stakeholders and farmers. The information and data obtained were analyzed using Interpretative Structural Modeling (ISM). The results showed the three critical factors in achieving the purpose of the programs, such as the synergy between the management of the park and Jember district government; availability of appropriate technology; and the development of institutional capacity for local communities, then the three critical factors of institutional role are Meru Betiri National Park; and Development Planning Agency of Jember Regency; and Higher Education. The implication of this study is a policy intervention is needed to improve the management of Meru Betiri National Park in the future.


Introduction
. Therefore, the park adopted a strategic policy by making the villages around Meru Betiri National Park a conservation and ecotourism village by involving local communities to maintain security and rehabilitate the area.
In 2003, the management policy of the Meru Betiri National Park was started as a regional rehabilitation partnership program. In the initial stage, the program involved and empowered 5,500 people living around the park to rehabilitate the area. The program aims to reduce the number of poor people in the area so that they do not become a trigger for security disturbances in the Meru Betiri area. The villagers around the park who participated in this program were empowered through a partnership program called the Center for Rural Forestry Expansion (CRFE). The CRFE generated the villagers by capital assistance, training, and other production facilities which funding by the management of Meru Betiri National Park.
The community empowerment program has been running for more than twelve years, but the economic development of the communities around Meru Betiri Several models of national park management in several places in the world can be used as a comparative study to improve national park management (Braasch et al., 2018). Based on some experiences in managing national parks, involving local communities to preserve national parks can be done through several alternative approaches, including adaptive management (Birgé et al., 2016), collaborative management (Ansell & Gash, 2008), and adaptive comanagement (Fabricius & Currie, 2015).
General concepts management of national parks are based on ecological and social systems in the region (McGinnis & Ostrom, 2014;Mathevet et al., 2016) although ecological dynamics and social dynamics are difficult to predict (Dewulf et al., 2005;Brugnach et al., 2008;Allen & Gunderson, 2011).
Meanwhile, the network among small business in villages of the Meru Betiri National Park area is not going well. In rural areas, the important role of small businesses is providing additional income. The low networking inhibits the achievement of community empowerment so that so that business opportunities cannot be utilized optimally. As a result, the utilization of business opportunities is not One of the problems is the lack of strengthening the institutional capacity of the local communities in the villages due to the low awareness of the community to participate in empowerment programs. The community is not allowed to design an empowerment program, so that it happens a lack of initiative and participation of citizens in the program. Institutional aspect is one of the most important aspects of community empowerment. Others issues in the institutional aspects of local communities were lack of role and synergy among stakeholders (Rydin & Holman, 2004), lack of synergy between sectors, lack of synergy with government, lack of public access to capital (financial and production input), lack of marketing knowledge (Rydin & Pennington, 2000), lack of science and technology, the policymaking process, and lack of social capital (trust, togetherness, and networking) by (Nath et al., 2011). National Park has not changed significantly. The frequency of disruption to Meru Betiri forests in the form of illegal logging has the same from year to year (Rujito, 2016). Meanwhile, the growth of rehabilitation plants in Meru Betiri National Park growing slowly, even though it had been planted for more than thirteen years. These indicate that community empowerment and the effectiveness of the rehabilitation program were not in line with the targets. For this reason, the program needs to be improved through increasing the effectiveness of the collaboration which will have a positive impact on the security and conservation of natural resources and increasing the capacity of local communities in the area.
There are several causes of the conflict of interest between the communities surrounding the national park and the national park management. For solving the problem, there are several models of collaboration between the stakeholders related to the national park (Braasch et al., 2018). Many problems in the program so that the program is ineffective based on research and preliminary observations by (Hall, 1999;Stringer et al., 2006;Idrissou et al., 2013).

Methods
The research method used a systematic approach to identify the key factors based on Interpretative Structural Modeling (ISM). This method is excellent for identifying relationships between specific element factors that cause problems in a system. This model is widely used by researchers to study the relationship between various kinds of elements causing problems in a system. The ISM method involves qualitative and interpretative data to solve complex problems based on the mapping of the structure of relationships between attributes (elements or factors) followed by transformation into a multi-level structure model (Lim et al., 2017).
The basic idea to identify the elements factors of the system is based on the practical experience of competent practitioners and experts who know how to spell out a complex system into several elements and to build subelements on which a multi-level structure model (Mathiyazhagan et al., 2013). The ISM method identifies the elements and explains the direction of the relationship between the sub-elements of a system by describing the relationship between the specific elements of the system and the hierarchical sequence that cause the problems of the system through dependencies and the driving power in other elements (Mangla et al., 2014).
There are several steps to implementing the ISM method, such as: identifying the elements in the system that are relevant to the problem, developing contextual relationships between elements for modeling purposes, and preparing a single Structural Self-Interaction Matrix (SSIM) which is intended to represent the perception of respondent perceptions for the relationship between elements. The relationship can be explained by the symbols as follows: V= if factor I will help to achieve factor J or to influence factor J, A = if factor J will help to achieve factor I or to influence factor I, X = if factors J help to achieve or to optimal, declining value-added and low sales of production. This condition hinders the achievement of community empowerment. The purpose of this research was to evaluate the relationship of critical factors for the effectiveness of rehabilitation and securing conservation areas by the strengthening of local communities. The result of this research can be used as a basis for formulating policies for management to improve the management of Meru Betiri National Park.
Participants in this study were stakeholders related to the Meru Betiri National Park area, including the management of Meru Betiri National Park, the District Development Planning Agency of Jember Regency, the heads of local community groups, the heads of the villages in the Meru Betiri area, Department of Food Security and Animal Husbandry of Jember Regency, the Forestry and Plantation Service of Jember Regency, tourism agency and several regional university experts. Each stakeholder group is assigned as the representative expert to represent the group by interviews, focus group discussions and filling out the questionnaires which are relevant to the problems or issues and continue with the group's problem solving (Attri et al., 2013).

Results and Discussion
The next step is to classify system elements into a mapping consist of four levels, namely: utonomous, s a d l i The c the ependent, inkage and ndependent.
lassification of elements in the ISM structure is distinguished based on the level of partitions At this st the two devices are associated . ep, with the Ei elements of the system. A set of reachability (Ri) is a set of all elements obtained from the elements Ei, and the other obtained from the elements of Ai. Canonical matrices have done by grouping elements into the same level in a matrix development diagrams. he chart for preparing of T illustrates the relationship between the elements directly and the level of hierarchy.
reparation stage for policy the The p strategies based on interpretive structural models (Lamatinulu & Dahlan, 2017), n the context of this research i , is the management of Meru Betiri National Park.
The first step is to study the contextual relationship in the form of a SSIM-VAXO matrix (Figure 1). The second phase carried out the transformation of the SSIM-VAXO into the reachability matrix (RM) of binary numbers (Figure 2). Further identification of 12 sub-elements that can be grouped based on the level of driver power and the level of dependency using the ISM method to determine the hierarchical structure model (Figure 3). elements based on the characteristics expressed in the level of driving power and the level of dependence on other sub elements. The sub-elements are classified into four sectors. The sector one is weak driver-weak dependent variables (autonomous), the relationship between these sectors is relatively small or not related. The sector two (weak driverstrongly dependent variables), the variable in this sector is very dependent on the input and actions of the system, especially on the linkage variables. The sector three is strong driver-strongly dependent variables (linkage), the relationship between variables in this sector is not stable and every action on the variable will affect the other variables. Sector Four is a powerful driver with dependent variables, the variables in this sector are called free variables whose sub elements are considered as key factors of the system. Figure 3 showed that there are three key sub-elements of success in achieving rehabilitation and conservation goals, namely T8 (Synergy between Meru Betiri National Park with Development Planning Agency of Jember District and Higher Education); T9 (Strengthening the institutional capacity of the Meru Betiri National Park local community); and T10 (Availability of supporting technology for regional potential development). The sub-elements T8, T9, and T10 which have the highest driving force and the lowest dependency value. The importance of synergy between institutions (T8) as a key sub-element of success in achieving rehabilitation and conservation goals is consistent with the results of the research of (Venter   T2 T3 T4 T5 T6 T7 T8 T9 T10 T11 T12  T1  A

Structural model of sub elements in critical factors
The key sub-element to success in achieving the system goals requires the existence of T9 (Strengthening the institutional capacity of local communities). This is due to the interaction between the community and the forest area that cannot be separated because the existence of the community around the forest is part of the forest itself. In order for local communities to contribute positively, a strong institutional capacity is needed (Moswete & Thapa, 2018). The reality on the ground now shows that in general, the institutional capacity of local communities in Meru Betiri National Park is still lacking.
Based on an analysis of the level of driver power and the level of dependency (Figure 3) showed that there is the lack of attention to the sub-elements will affect to conservation goal. Sub-elements T3 (conservation of Meru Betiri National Park conservation area), T1 (the development of ecotourism in the Meru Betiri National Park area), and T4 (the achievement of the Meru Betiri National Park Rehabilitation Targets) are in sector two. The variable in this sector is very dependent on the input and actions of the system. The third key sub-element in the critical purpose factor is T10 (i.e. the availability of supporting technology for the development of potential areas). Based on the FGD conducted by the local community in the area, guided by a facilitator from the Meru Betiri National Park Center, the information technology needed by the community in the area are technology for processing agricultural products to increase the added value of products, and technology to improve access to information and communication in the area's community which has been rather isolated due to its remote location. Further identification of the need for technology for processing agricultural products in the Meru Betiri National Park area by experienced field practitioners and also by the heads of partner farmer groups shows that it needs tools and machines for processing fruit such as jackfruit, bananas, soursop, wood mushrooms, and medicinal plants. Other technological needs are information technology for developing smart village model areas to open villagers' access to capital (financial, land, production facilities), markets, science and technology, and to assist in the process of policymaking for local communities importance of synergy in handling national parks. Synergy will improve coordination, common perception, complementarity (there is no overlapping of activities), so that the efficiency and effectiveness of activities that focus on goals can be realized.

Structural model of sub elements in the critical factor of institutional role
The results of the identification of the second critical factor (Institutional role elements in the system) obtained sub-elements as follows: L1 = Meru Betiri National Park, L2 = Regional Offices of Plant and Forestry, L3 = Regional Offices of Food Security and Animal Husbandry, L4 = Regional Offices of Industry and Trade, Based on the results of the contextual relationship in the form of a SSIM-VAXO matrix (Figure 5), the reachability matrix (RM) of binary numbers ( Figure 6) and the level of driver power and the level of dependency using the ISM method (Figure 7) to determine the hierarchical structure model (Figure 8). Based on Figure 5 and Figure 6 that in order to create an independent and empowered farmer group, there must be an institutional local community with a large or strong capacity (Figure 7). There are three institutions that are the key sub-elements that act as a motivator for other institutions to participate in the rehabilitation and strengthening of local communities and Meru Betiri National Park conservation, namely L1 (Meru Betiri National Park Office); L6 (Development Planning Agency of Jember Regency); L11 (Higher Education). These three institutions have the same relative driving force so they need to coordinate and cooperate with each other in order to be able to further encourage the participation of related agencies in order to participate in developing Meru Betiri National Park. The ultimate goal of this structural In the final stage is to arrange a hierarchy of sub-elements based on the value of drive power and dependence on the purpose system (Figure 4). Nowadays coordination and perceptual similarities between institutions such as the Meru Betiri National Park and the offices in Jember District have not been as expected. Roles and synergy among stakeholders are felt to be still lacking, as well as synergy between sectors and between levels of government. This is because the related agencies are still under the control of the Jember and Banyuwangi District Governments, while the Meru Betiri National Park is under the control of the central government. L5 = Regional Offices of Tourism, L6 = Jember Regency Planning and Development Agency, L7 = Regional Offices of Agriculture, L8 = Regional Offices of Community and Village Empowerment, L9 = Non-governmental organization, L10 = Local Community Institutions Rural Forestry Counseling Center, L11 = Higher Education, L12 = Independent Rehabilitation Partner Farmers Group. Scientific Article ISSN: 2087-0469 Figure 2 Reachability matrix elements of purpose system. Figure 3 Strategic grouping of purpose system.

Recommendation Conclusion
Based on a review of the academic literature and information from the conclusions of this study, the following are recommended: (1) Strengthening the synergy and coordination between Meru Betiri National Park, the Jember Regency Development Planning Agency and Higher Education, (2) Provision of facilities and intensive assistance to increase the institutional capacity of local communities, and (3) Appropriate technology to increase the added value of agricultural products that are abundant in the region but are easily damaged. Also, access to capital in the form of financial loans, production facilities, market provision, business networks and information technology is provided for residents in the Meru Betiri National Park area.
There are two important factors that affect the rehabilitation, conservation and strengthening of the institutional capacity of local communities in the Meru Betiri National Park are the purpose of the system and the role of institutions in the system. The key sub-elements on the purpose of the system such as synergy between related institutions, strong institutional capacity of local communities, and availability of technology for development area. The achieving the purpose of rehabilitation and conservation is largely determined by the development of local institutional capacity and the three main institutions that have an important role are Meru Betiri National Park, Development Planning Agency of Jember Regency, and Higher Education.  1 .