Three Pillars Partnership in The Tourism Destinations Management in Order to Actualize Good Tourism Governance (Study on a Rafting Tour in Probolinggo Regency)

Three pillars partnership in the tourism destinations management in orderto actualize Good Tourism Governance has been studied with a special case on a rafting tour in Probolinggo Regency. In tourism development, the synergy of the three pillars (state, private companies, and society)is necessary. Probolinggo Regency Government in the management of the rafting tour services conducts a partnership with private sectors and society. According to the objectives of the study that have been set, the type of this research is descriptive research with a qualitative approach. In data collection, the data were collected from observations, interviews, and documents of agreement. The method of data analysis used the analysis of Miles and Huberman. The result of this research showed that Probolinggo Regency Government has conducted a partnership with the private companies and the society in managing the tourism destinations. In this case, the three pillars have their responsibility to manage the rafting tour. However, the partnership of those three pillars has to be conducted continuously to actualize Good Tourism Governance.


INTRODUCTION 
Indonesia as a developing country should emphasize that development is a significant mechanism to increase the society life quality. One of the important development sectors to be expanded is Tourism. Indonesia as an archipelago country which has natural wealth makes Indonesia as a tourism destination that has ahuge contribution for increasing economy aspect. It can be shown from the Ministry of Tourism and Creative Economy datainformed that the tourism sector contributes foreign exchange of US$ 10.69 billion, equivalent to Rp.136 trillion [1]. Thus it proved that the tourism sector is a potential sector which is enthused by all levels not only local but also international tourists.
Indonesia is as a country which has natural wealth and becomes the area for tourism development. Probolinggo Regency is one of the regencies in East Java has tourism wealth. One of the famous tourism in Probolinggo is rafting. The rafting tourism is located at Pekalen River that is originated from springs of Mount Argopuro [2].
However, Probolinggo still needs to increase the service management in terms of tourism destination so that it can give a positive effect on the tourist inflow in Probolinggo and on the economy increase of the surrounding society. Therefore, with the existence of tourism objects in Probolinggo, society can be more empowered.
Consequently, upon all efforts of the tourism destination service improvement, Probolinggo needs good cooperation among the three pillars of Governance. They are State, Private Companies, and Society to reach their common goal of a good tourism destination service.
The objective of this study was to analyze the performance and the partnership between the three pillars of Governance in Probolinggo Regency. In the case of Probolinggo Regency of Tourism and Culture Department regarding the private parties and the societies about the management of tourism destination service to actualize good tourism government.

Good Governance
Public administration is a process where the resources and public personnel are organized and coordinated to formulate, implement, and manage public decision and policy [3]. According to the World Conference on Governance, UNDP in module 1. C, D, E on Education and Leadership Training level II of State Administrative Agency (LAN) Study Paradigm (SPIMNAS) in Education and Training Centre in Leadership sector, Jakarta, 2012, Good Governance is a process of a good government system management, involving stakeholders toward various economic, social, and politic activities and the utilization of various natural, financial, and human resources for society interest that is conducted based on the principles: justice, equalization, equity, efficiency, transparency, and accountability [4]. Eight Good Governance Principles according to The United Nations Development Program's (UNDP) are as follows: Participation, Rule of Law, Transparency, Responsiveness, Consensus Orientation, Equity, Efficiency and Effectiveness, and Accountability. Sjamsuddin [5] explained the elements of Governance stakeholder consist of three sectors, as follows.

State
The definition of the state generally covers all political agency and public sectors. The state or government's role and responsibility involve public service performance, power enforcement to rule/government duty, and creating a conducive situation to reach the development goals either in local, national, or international level.

Private sectors
Private sectors, in this case, involve some companies in market system interaction, such as manufacture, trading, banking, cooperatives, and also the other informal sectors. The role of private sectors is very important for the government and development since their duty is as an opportunity to fix productivity, employment/job provider, income source, public investment, business expansion and, economic growth.

Civil Society
Civil society is an individual or a group of society who interacts and socializes socially, politically, and economically. Civil society does not only do check and balances toward the government authority and the private sectors but also gives a contribution to strengthen the other elements.

Good Tourism Governance
Good Tourism Governance is a coordination and synchronization program among the stakeholders and the actively synergic involvement (integrated and mutually reinforcing) among the government, private sectors/tourism industry and the related surrounding society [6]. In Good Tourism Governance, public sector needs a change in the way of thinking or acting, especially leaving the old centralistic government paradigm (Constitution No. 32/2004). In Tourism Governance, there are some performance principles.

Participation of Related Society
In this case, society should be involved in deciding the vision, the mission, and the purpose of tourism development.

Involvement of All Stakeholders
The stakeholders should involve actively and productively in tourism development. The stakeholders here include the Non-Governmental Organization (LSM), volunteers, Local Government, Tourism Industry Association, Business Association, and the other related parties.

Partnership of Local Ownership
Tourism development should be able to give a contribution to the society that is the local people who live in the surrounding area.

Continuously Resources Utilization
Continuously Utilization means that tourism development should avoid the use of irreversible resources excessively.

Society Aspiration Accommodation
Society suggestion and aspiration should be able to be accommodated in the tourism activities program to generate harmonic relationship among the tourists, the business people, and the surrounding society.

Environment Support Capacity
Environment support society should be adjusted in developing various tourism facilities and activities.

Monitoring and Evaluation Program
Program of monitoring and evaluation in tourism development covers from guidelines creation, tourism activities effect evaluation, indicators development in measuring tourism effect, up to monitoring and evaluation.

Environment Accountability
Tourism development program strategy should pay attention to the job opportunity, the income and the health of the surrounding society, which are listed in the tourism development policy, program, and strategy.

Training for the Related Society
Society needs to be empowered. The society empowerment through education and training programs in order to give knowledge and skill for the society and to improve their business skill vocationally and professionally.

Promotion and Advocacy of Local Culture Value
Good tourism development and management need promotion and advocacy of its local culture value. It means maintaining and conserving the cultural identity of the local society very well for visitors and tourist's satisfaction.

Public Services
Public service is an endeavor that is done by a community or an individual or a bureaucracy to give help to society in reaching a certain goal [7]. Public service principles [8]  duties fulfillment between the service provider and the service receiver, in this term, they are the government and the society.

Partnership
Public-Private Partnership is a work unit of government service provider or government business unit, such as Indonesian State-Owned Enterprise (BUMN) or Regional Owned Enterprise (BUMD) which cooperate with the private sectors and the third sector [9]. Public-Private Partnership is a cooperation of half government authority allocation toward the private sectors to conduct half or whole development activities and infrastructure operation [10].

Tourism
Tourism is various tour activities which are supported by various facilities and services provided by society, entrepreneurs, government, and local government [11]. Tourists in tourism can be divided into five classifications [

Tourism Development Partnership
According to Medium-Term Regional Development Plan of Probolinggo Regency period 2013-2018, tourism partnership is listed in point C in the program of Regional Work Units (SKPD) Culture and Tourism Department, on the other hand, the terms of tourism development is based on point C that is listed in Medium-Term Regional Development Plan program.

MATERIAL AND METHOD
In this research, the researcher used a descriptive type of research with a qualitative approach [14]. The focuses of this research are (1) Tourism destination in Probolinggo Regency and (2) Partnership form among the three pillars of Governance in the rafting tour service management as an effort to actualize Good Tourism Governance.
The data source of this research was obtained through primary and secondary data.Data collection was obtained from the results of observations, interviews, and document of agreement. Data collectionwas carried out for four monthswith detailed observations; interviews with five informants (head of the department, marketing staff, tourists) also document of agreement.
Next, in data analysis, the researcher used data analysis steps based on Miles and Huberman in Sugiyono they are: data reduction, data display, and conclusion drawing/verification [15].

RESULT AND DISCUSSION Tourism Destination in Probolinggo Regency
Probolinggo is a region which has excellent natural resources. It makes Probolinggo Regency as a region which has national and international level tourism potency [16]. Probolinggo also has the other tourism destination in other sectors, such as beaches, lakes, and water sport, such as rafting which pumps adrenaline. The work units program in Medium-Term Regional Development Plan (RPJMD) of Probolinggo Regency listed in some points: The tourism destinations above are managed by Probolinggo Regency Government through Culture and Tourism Department. It means that the income goes to Local Own-source Revenue (PAD). However, among all seven tourism destinations mentioned, there is only one that is managed by the government, private sectors, and society, it is Rafting. For the other five tourism destinations, they are managed fully by Probolinggo Regency Government. On the other hand, Mount Bromo is managed together with Bromo Tengger Semeru National Park (TNBTS) [17].

Rafting Tour in Probolinggo Regency
According to Head of Tourism Division of Culture and Tourism Department of Probolinggo Regency, rafting in Probolinggo Regency is located in Ranu Gedang Village, Tiris District, Probolinggo. It is located at Pekalen River that is originated from springs of Mount Argopuro and Mount Lamongan [2]. The width of the river is about 5-20 meters and the depth is about 1-3 meters. The rafting distance of the river is more or less than 12 km that takes three and a half hours with the rafting difficulty level is on grade II and grade III+.
The rafting tourism of Probolinggo Regency Government via Culture and Tourism Department conducts a partnership with the private sectors and society. The private sectors or the operators of the rafting that is trusted to conduct the partnership are: 1. PT. Condong Pandawa Nusantara (NOARS) 2. PT. Songa Alam Lestari 3. PT. Regulo Lintas Nusantara Next, the society party consists of Tourism Awareness Community and Tourism Care Citizens who take a part in cooperating, maintaining, and conserving the beauty of tourism objects and giving tourism education toward the local and international tourists [18]. [144]

Partnership Form among the Three Pillars of Governance in Managing the Rafting Tourism Object in Probolinggo Regency
The partnership form among the three pillars of Governance in managing the rafting tourism object in Probolinggo Regency has been set in the cooperation agreement between Probolinggo Regency Government as the first party and the three operators of Rafting service provider by involving the society role as stated in the agreement number 181/87/428. 12 such as path, bridge, and the other public facilities in order to accelerate the management of rafting attractiveness [18]. 3. Giving support in the form of promotion of rafting attractiveness in order to increase the number of tourist visits in Probolinggo Regency [19].

The Three Operators of Rafting Service Provider
In this case are PT. Condong Pandawa Nusantara (NOARS), PT. Songa Alam Lestari, and PT. Regulo Lintas Nusantara. In managing and developing the rafting service, the three operators as the second party have some responsibilities, they are: 1. Paying contribution for Local Own-source Revenue (PAD) toward the first party, in this case, is Probolinggo Regency Government. 2. Ensuring the first party to stay maintaining the river characteristics and will not change or build the other building facilities at the river and will maintain the aesthetics in the river environment.

Making reports periodically toward Probolinggo Regency Government through
Culture and Tourism Department about the tourism activities and visit flow. 4. Empowering the potency of the society around the rafting location in every rafting activity in line with the capacity needed by the second party. 5. Guaranteeing the visitors safety and comfort at the rafting location. 6. Providing rafting facilities and infrastructure, safety tools, and insuring every rafting participant [18]. 7. Obeying the rules related to the flow/route that has been set.

Society
The society role in managing and developing rafting tourism service is very important [19]. It is known that society consists of various components; they are Tourism Awareness Community, Tourism Care Citizens, and the local society. The roles of the society components to support rafting tourism service are: 1. Participating in maintaining the environment and the rafting site. 2. In the document agreement, it is stated to empower the potency of the society around the rafting site in every activity. 3. Maintaining security around the site and becoming the direction indicator for the tourists. 4. Taking a part in monitoring the implementation of the rafting tourism service.
From the discussion above, the three pillars have strategic roles in managing rafting destinations. Government, private sectors, and society have a sustainable relationship (Fig. 1). In this case, the government is as the authorized party in monitoring the rafting tourism activities. On the other hand, private sectors, in this case, are the three operators as the rafting service provider. It also involves society as a form of society empowerment [19].
The partnership between government, private sectors, and society should be continuous. It means that it does not stop and keeps trying to improve the tourism service especially the rafting, because with the continuous tourism service management, the related parties, in this case, are government, private sectors, and society can actualize Good Tourism Governance [19].

CONCLUSIONS
The three pillars partnership in managing the rafting tourism service in Probolinggo Regency has worked well. It can be proven by the roles and the responsibilities of each three pillars; they are government, private sectors, and society. In this case, government is as the party that provides tourism access to support the rafting tourism, provides license facilities, and monitors tourism service activities that are conducted by the private parties. The private sectors play role as tourism service provider, including the facilities and the infrastructure to support the rafting tourism service. They also take a part in empowering the local society, and also the participation of the other society components. All roles and responsibilities which are conducted among the three pillars need to be continued in order to actualize Good Tourism Governance.