An overview of slum upgrading programs in developing countries: Case study in Indonesia

Abstract Many slum upgrading programs have been conducted globally, including in Indonesia. However, the research of those interventions is quite rare. The purpose of this paper is to evaluate slum upgrading programs, which has already had 10 editions in Indonesia since 1969. This evaluation was conducted to propose new guidelines to improve the Indonesia’s slum upgrading programs. The research uses a qualitative review narrative approach. The results show that the slum upgrading program has been modified throughout the 10 editions, which has contributed to better performance on the seven aspects, namely: (1) Locus, (2) Perspective of the programs’ object, (3) Unit of intervention, (4) Strategy, (5) Actors involved, (6) Qualification of the area, and (7) Paradigm of the program’s object subject. Based on the findings, a of new guidelines was proposed for the slum upgrading programs. This study’s have theoretical and practical implications, which provide empirical evidence of slum improvement programs such as progressive urban planning and can be implemented by adopting the principles of sustainable urban development that meet the needs of the present without jeopardizing the capabilities of future generations. This principle aligns the three economic, socio-cultural, and environmental aspects with the foundation of urban governance.


Introduction
The root of housing and slum settlement policies are closely related to urbanization phenomenon that has changed the characteristics of urban areas, including through population mobilization from villages to cities, development failure, low-income communities (Sururi et al., 2022) and high population density (Thomson et al., 2021).Another reason why people live in urban areas is because it makes it easier to reach workplaces for those who work in the city center as in the Central Business District (Bag & Seth, 2018).
The challenges that arise as implications for urbanization must be able to be answered by governments to be able to make urban settlements livable, one of which is by providing settlement infrastructure that meets the Minimum Service Standards (Kshetrimayum et al., 2020;Kwanda, 2003) and must also be able to be balanced with the provision of infrastructure, appropriate settlement facilities, and utilities (Geest et al., 2019;Sastanti & Fibriani, 2019;Takyi et al., 2021).The incompetence of the Government can trigger the creation of slum settlements in urban areas (Almansi, 2009).
The availability of complete facilities and infrastructure in the city center is that attracts people to live in the area (Alves, 2021).Therefore, there need to be more residential areas around the city's commercial areas.This is also possible because they approach trade centers to open businesses in order to take advantage of the bustling and hectic visitors who come to shopping centers in the city (Takyi et al., 2021).In addition, another reason people are attracted to living around the downtown area is because it is easier to reach workplaces for those who work in the city center, as well as meeting the housing needs of people who work a lot in the city center or the city's Central Business District (CBD) (Bag & Seth, 2018).With the level of income and the people's economy that is not so high, decent housing is difficult to accommodate (Agestika et al., 2022;Leonita et al., 2018;Rahma et al., 2021).
Meanwhile, the government's inability to provide good facilities and infrastructure can trigger the creation of urban slums areas which are formed due to poor sanitation, the presence of disorderly buildings, and lack of availability of clean water (Zubaidah et al., 2023).This happens in big cities in Indonesia, the cities are spread across the islands of Sumatra, Java, and Sulawesi (Abdillah et al., 2023;Widianingsih et al., 2023).On the island of Sumatra, First, the Belawan Medan area of North Sumatra, is included in the list of areas that have the most slums.Second, the Ciliwung watershed in Jakarta, the government overcame this problem by building more decent housing for people living in the area.Third, Bandung, West Java, precisely in the Taman Sari area (Agestika et al., 2022).In the area there is a very dense slum area, therefore it received the attention of the government to provide adequate facilities and infrastructure such as utilities, clean water, and good sanitation.Fourth, Surabaya City, East Java, especially in the Bozem Moro Krembangan area.Fifth, is Makassar City (Malik et al., 2021;Surya et al., 2020).
Based on law surrounding slum upgrading programs that is located in Indonesia Number 1 of 2011 concerning Housing and Settlement Areas, Minister of Public Works, and Public Housing Regulation Number 02/PRT/M/2016 concerning Improving the Quality of Slum Housing and Slums.However, due to the limitation of the literature of slum upgrading program in Global South, especially in Indonesia.The Indonesian government has initiated a slum handling program from 1969 to 2020.During that period there were at least 39 policies & 10 slum handling programs, therefore this research will answer the following research questions: RQ1.What are the primary transformations of the slum upgrading program in Indonesia since 1969?
RQ2.What are the lessons learned from the previous slum upgrading programs to improve the future slum upgrading program?
This research was conducted to contribute the current empirical knowledge of slum upgrading programs to make them more effective and efficient.Besides, this research aims to propose a guideline that could help the slum upgrading program.After this introduction, a short theoretical discussion is presented of the slum upgrading program.The section three details the research approach.The next part presents and discusses the findings obtained.The final part offers the research main conclusion, implication, limitation and suggesting for the future research.To answer the questions above, the authors divide this research into five sections, namely: 1).introduction; 2).method; 3).findings; 4).discussions and 5).conclusion

Slum area
Cities were initially small-scale settlements, then continued to develop as a result of population growth, socio-economic and cultural changes as well as interactions with other cities and the surrounding area (Surya et al., 2020(Surya et al., , 2020(Surya et al., , 2021) ) As for slum settlements, there are TWO meanings, namely: Slum settlements that are "Slum's" as a whole or also commonly referred to as the sewage area.However, in this term, slums are considered as places where the majority of urban community members have low incomes by forming settlements where they live in minimal conditions (Sheikh Dawood & Geraghty, 2018).Slums are an environment occupied by people with average housing conditions dilapidated, crowded and tend not to meet the elements of health, vulnerable to fire and prone to crime (Kwanda, 2003).Slum settlements have "Squatters", squatters live in a part of an area or part of a building that is disturbed/occupied without permission from the owner (Wihardyanto & Ikaputra, 2019).Slums are open spaces occupied by illegal settlements.In general, this slum area is located on state land, individual land, legal entities, or foundation land that has not been built by the owner (Bennett & Satterfield, 2018).According to UN-HABITAT (2015) the characteristics of slum settlements are as follows: (1) Facilities and infrastructure that are in poor or inadequate condition, (2) The conditions of residence and settlements, as well as the use of their space, reflect the poor or poor population, (3) There is a high level of frequency and high density of population volume in the use of space in poor neighborhoods, which reflects the chaos of spatial planning and the economic powerlessness of the population, (4) Poor areas are community units that live independently with clear cultural and social boundaries, which manifests as: (1) A single community owned by the state, and thus can be classified as illegal housing, (2) A community unit that is part of the community unit, (3) Community units do not live illegally, (4) The surrounding population is not socially and economically homogeneous, and their residents have different lifestyles and densities, as well as different origins, (5) In poor neighborhoods, which are also known to have social coverage because of various economic skills, (6) Most of the residents of poor neighborhoods are those who work in the formal sector or in the informal sector and have additional livelihoods.
Settlement areas are areas that function as residential areas as well as places for residents' activities equipped with environmental facilities and infrastructure to support life processes in the area (Smit et al., 2017).In determining the location of settlements, there are influencing factors, so it is expected that in determining the location of settlements not to damage the environment (Celhay & Gil, 2020).According to the Directorate General of Cipta Karya Indonesia, the location of residential areas should be: (a) Not affected by pollution (water, air, noise), (b) Clean water is available.(c) Has the possibility for further development, (d) Have good accessibility, (e) Easily and safely reach the workplace, (f) Not below the local water level, (g) Has an average slope.
Causes of the Emergence of Slums settlements occur due to development inequality and the economy is centered on urban areas, causing an increase in migration flows from rural to urban areas (Beguy et al., 2010).Other problems include the large number of low-income people in urban areas who cannot afford to own a house due to high land and building prices (Chiodelli, 2016).This is due to the transfer of concentration of land that was originally used for settlements and then used as a fulfillment of city needs, so that urgent residential areas become concentrated in certain areas and are spatially concentrated (Samuel & Nisar, 2021).Finally, those who cannot afford to buy or rent housing available in urban areas start to occupy slum areas (Wang et al., 2017).The causes of the emergence of a slum and unhealthy wild environment include the consequences of urbanization, high migration, the city as a trading center, narrower settlement land, increasingly expensive land prices, and lack of supervision from regional government officials (Badmos et al., 2018).The slum environment is getting more squalid because the residents have very low incomes, the unavailability of public facilities such as electricity and clean water due to the unofficial status of the land (Akoteyon et al., 2021;Soma et al., 2022).
The emergence of slum settlements in urban areas was triggered by: (1) Migration from villages to cities, (2) Natural growth, (3) Combination of natural and seasonal development, (4) Population displacement, for example due to armed conflict, internal conflict, and military aggression (Debnath et al., 2016(Debnath et al., , 2019)).Increasing the population in an area requires meeting the needs for clothing, food, and shelter.The urbanization process both physically and because of the mobility of residents from outside the city has resulted in a housing crisis (Bardhan et al., 2015;Kshetrimayum et al., 2020).If the growth of slum areas is allowed to continue, then the public's health status will remain low, fires and floods might happen more often because these areas are prone to disasters, and provide opportunities for crime (Belur et al., 2017;Karakayacı & Agayi, 2020;Mike Erick, 2019).According to Sadyohutomo (2008) the emergence of slum settlements is caused by several factors, including: (1) The high growth of urban population is not matched by sufficient levels of income.This high urban population growth was triggered by in-migration, and most migrants are of productive age.(2) Delays by the city government in planning and building infrastructure (especially roads) in new settlement development areas.The problem in the old slum settlement management program is that the space for its implementation is limited by the physical condition of the building layout and the socio-economic conditions of the community (Ezeh et al., 2017;Nekoei-Moghadam et al., 2019;Srivastava & Singh, 1996).The existence of dense buildings causes settlement arrangement to be hampered, therefore a slum settlement management program is needed which must be supported by the community through the principle of empowerment (Mehrolhasani et al., 2021;Surya et al., 2020).Based on the literature, the handling of slum areas (Debnath et al., 2016)caused by soap company waste, made the regional government build a network as an intermediary pattern in handling urban slums and social conflicts that occur in urban areas in the Nairobi area of Latin America (de Antuñano, 2019) has shaped people's attitudes to not care about the environment.A serious problem in some of these studies reveals the problem of urban slum areas is formed as a result of complex social problems resulting from urban slum settlements such as poor sanitation, lack of clean water, lack of provision of infrastructure and is a high risk place for crime (Chimankar, 2016;Mukhopadhyay et al., 2021).Research by Atia (2022), regarding Cities Without Slums in Morocco, tells of community rejection of uninhabitable settlements and crime and security in sums.Xian's (2007) analysis of impacts of urban land use and land cover on air quality in the Las Vegas region using remote sensing information and ground observations, reveals that urban development in the Las Vegas Valley of Nevada (USA) has grown rapidly in cities resulting in low environmental quality.

Pattern of slums upgrading program in Indonesia
Based on an understanding and appreciation of the upgrading of slum settlements, which includes procurement patterns, upgrading patterns (redefinition and restructuring) and the typology of slum rejuvenation along with aspects of the information needed to differentiate the pattern of upgrading, it can be seen that the important role of inventory activities is to obtain data as an information base.Appropriate inventory activities will produce a typology of slums and a priority scale of slum settlements within the city scope, so the analysis and studies carried out for the results of the inventory and typology of slums will be used as a direction to indicate the pattern of upgrading.Providing the right direction for the priority scale of upgrading associated with city management will result in upgrading slums that are in line with the city's development strategy.
In general, slums are carried out with reference to programs set by the central or regional government.By using a general pattern, upgrading is applied to certain slum settlements, which have been determined by the Government.In the pattern of upgrading settlements with an inventory, the slums that are handled are slums that have been selected or agreed upon after the inventory activities are carried out with a variety of methods (Zubaidah et al., 2023).

Method
The method in this study uses qualitative methods with a narrative approach (Russell & Norvig, 2010).The research objectives were to evaluate the Slum upgrading program (SCP) and identify which improvement should be conducted, so a review approach was adopted to answer the research question.Review articles comprise numerical (meta-analytic and systematic reviews) and historical or qualitative elements presenting modernized model conceptual frameworks, showing discrepancy in current study, and synthesizing comprehensive findings (Palmatier et al., 2018;Putera et al., 2022) For data collection techniques in research, we applied a systematic literature review of the articles which discussing slum upgrading program in Indonesia.The data collection strategy is through library research of the documents comprise on history of the slum upgrading program in Indonesia to display a broad perspective of the transformation of the slum upgrading program in Indonesia.Data analysis techniques in this study use data reduction techniques, data presentation, and data verification (Dionne et al., 2018), then the conclusion of this research will provide the history of Indonesia's slum upgrading program.This part will show several slum upgrading programs that have been implemented in Indonesia.Second, based on the literature, we evaluate those slum upgrading programs, which has already had 10 iterations in Indonesia.This research method can be seen in the research steps in Figure 2.
The qualitative approach helped the understanding of the evidence collected and production of academic generalization (Flick, 2004;Yin, 2018).Based on the evaluation, we propose new guidelines to improve the Indonesia's slum upgrading programs.

Kampoeng improvements program
Based on the world habitat awards report (World Habitat, 1992).The Kampoeng Improvements Program (KIP) is one of the modeling programs for dealing with slum areas in Jakarta and Surabaya which began in 1969.In Jakarta, KIP is better known as the Muhammad Husni Thamrin Project, while in Surabaya it is called the W.R Supratman Project.Previously, the concept of the KIP program had existed since 1917 the government gave the first letter to the Semarang and Surabaya City Councils to make improvements to the village (village verbetering) and this was realized in 1925 with KIP in the City of Surabaya.The success of the KIP application in Jakarta on the improvement of the residential environment is an innovative program which focuses more on improving the environment of urban settlements where the majority of the inhabitants are poor people.The basic objective of KIP implementation is to improve the physical condition of village housing through the construction and improvement of footpaths, drainage, sanitation, several health facilities, and education infrastructure.In Indonesia, this program can be said to have proven effective in providing infrastructure and improving environmental quality in slum areas (Bahauddin et al., 2016).
There are five lessons learned in implementing the KIP program in Indonesia, including: first, being a pilot project for other cities and even becoming a national program in more than 500 other cities, as well as being a recommendation in the international world and even getting attention from World Bank as in Thailand.Second, provision of facilities and infrastructure in villages or suburban towns at low cost and right on target.Third, this program proves that the regional government can collaborate with slum communities as well as a form of empowerment program.Fourth, the regional government acts as a facilitator for the poor, which stimulates and enforces cross-subsidy programs from various activities development in urban areas.Fifth, as a forum for the poor to participate in improving the environment (Dunn, 2010).

Urban poverty reduction program
This program began in 1999 during the Reformation Order, referring to the legal basis of Law No. 04 of 1992 concerning Housing and Settlements.This program is one of the national programs to tackle various problems of poverty that occur in the community, especially in urban areas (Nyári & Joseph, 2011).This program is a government program that substantially seeks to reduce poverty through the concept of community empowerment and other local development actors, including regional governments and local care groups so that an independent movement for poverty reduction and sustainable development can be built, which is based on noble values and universal principles.This program considers poverty as a structural and multidimensional problem, which includes social politics, economics, assets, and so on (Srinivasan et al., 2013).
In other words, the poor as a society are in a situation of vulnerability, marginalization, powerlessness, isolation, and inability to convey their aspirations.This program has the concept of facilitating the community and regional government so that they are able to deal with the root causes of poverty in an independent and sustainable manner, through an empowerment, education, and capacity building approach to prioritize the role of regional governments in poverty alleviation interventions (Ogun, 2010).This approach is intended to encourage an accelerated process development of a solid foundation for the realization of independence reducing poverty and also institutionalizing sustainable development.Based on the paradigm of poverty, the implementation of this program incorporates universal human values, universal societal principles, and tri principles (Guggenheim et al., 2004).In supporting the success of this program, a local level institution called the Community Self-Reliance Agency was created.This clearly shows that this program is not only a program for upgrading slum areas but also a form of creating civil society, especially for the poor (Patel, 2012).

Group-based housing development program
The self-help housing program was launched from 1989 to 2000 through the Group-Based Housing Development Program (Turner et al., 2008).The initial goal of this program is that 10% of the proportion of low-income people will be able to build self-help houses through the provision of group assistance or stimulants.In this program, people who need houses are invited to form groups together, discuss expected plans, suitability for housing needs, increase income, save money, manage credit, and build together.This group needed assistance from the private sector which can be represented by developers or Non-Governmental Organizations (NGOs) as well as the government, both central and regional.Arrangement of buildings and the environment, land, and financing is carried out in line with the development of the city (DeHaven et al., 2004).
Based on the results of program implementation, there are still many programs whose goal is not to build livable houses through a complete and sustainable self-help system (Menachemi & Collum, 2011).This program aims to help and encourage low-income communities to be empowered and active in overcoming housing and settlement problems.This community group has received assistance from the government with several facilities (Gordon|Gordon|kruse, 2017).

Community-based initiatives for housing and local development program
This program was initiated in 2001, by the Director General of Housing and Settlements, this program was a pilot project between the Netherlands, UNCHS (Habitat)/UNDP, and the Government of Indonesia to build housing for low-income people (Stiles et al., 2010).This program is designed to test the feasibility of the housing mechanism finance based on market interest rates with the aim of meeting the demand for livable housing for the poor who have the power to save through lowering the cost of providing housing or supporting sequential loan provision.The mechanism in implementing this program is to provide loan funds for housing improvements (Greenwood, 2008).(c) Institutional programs formed by the community based on democratic principles and representation of community representatives concerned with housing and settlements.A financing mechanism that distributes rotating loan funds to groups according to the abilities of its members.
There are several findings in the results of this program.First, out of the 12 activity locations, it turned out that only a few cities were capable and qualified to manage revolving funds.The failure of this program was due to competition between administrators which lead to them not paying attention to the conditions of the housing and local settlement sector, political will, and the profile of the advisory group.Second, there are no experienced institutions or organizations (HR) in supporting and facilitating the program due to the limited capacity of the actors (Mutolo & Jl, 2011).

Neighborhood upgrading and shelter sector project
This program is created by the Ministry of Public Works in 2006.This program is aimed at developing pro-poor, independent and sustainable development, and settlements (Slade & Wissow, 2007).Against the background of the phenomenon of the expansion of slum areas in Indonesia, especially urban areas, the MDGs targets, and the direction of the President of the Republic of Indonesia to realize the Slum Free Cities agenda in 2020.
In fact, the program has been implemented twice because the first period was assessed to be a success.However, in order to become an area that receives the program, there is a competition in the selection process.Therefore, only selected cities will be handled by their slum problems (Vaidya et al., 2006).This program is a home repair and construction program along with settlement facilities and infrastructure (Go & Quijada, 2012).Basically, the essence of this program is as an activity agenda to bring about changes in perspectives, economic improvement, as well as housing and environmental improvements.In addition, this program applies the principles of community empowerment seen as a process, method, and a movement so that it becomes a series of gradual and sustainable activities for local communities (Hasan et al., 2005).
There are three approaches used in the implementation of this program, namely: (1) support for community needs-based service fulfillment, (2) support for community participation-based activity implementation, and (3) support for community management-based program implementation, The focuses of this program are: (4) Services for Low-Income Communities by providing grants in the form of no-cost recovery housing infrastructure.
(5) Loan assistance facilities for housing construction and repairs as well as housing land certification through housing micro credit.
(6) The activities carried out are based on increasing the capacity of regional governments in synergy with the community and the business world in a sustainable manner.
(7) Strengthening the capacity of local community institutions to increase accessibility to development potential and resources.

Slum alleviation policy and action plan
Slum Alleviation Policy and Action Plan is a national policy and action plan of 2008 developed by the National Planning Agency in order to solve the problems of the poor living in urban slum areas, especially related to land tenure, access to housing finance, and housing stock.This policy focuses on roles central government in empowering regional governments in programs to improve the quality of life of urban slum communities by transforming the status of land to become illegal and recognized.The approach used in this program is participatory decision making.
This means that it requires the participation of related institutions at the central level.The objectives of this program are: (1) to develop policies and strategies for repairing and preventing slums nationwide, (2) to increase the capacity of regional governments to promote slum upgrading, and (3) to develop policies and programs to meet housing development needs.This program uses three main strategies: (1) integrated management of slum areas by inter-sectoral intervention at the national level through a consensus mechanism, (2) decentralized collaboration between cities and regions and parties, and (3) partnerships and organizational networks such as national working groups, local working groups, networks between NGOs and CBOs, as well as networks between research institutions and universities.

Upgrading of housing and slum-based neighborhoods area
Management of Area-Based Housing and Slum Environments which was carried out in 2010 aims to create a proper housing and settlement environment through the effectiveness and efficiency of planning and upgrading as well as synergizing actions between the central government, regional governments, communities, and other stakeholders within a predetermined period of time (Krieger & Higgins, 2002).Management of area-based slums in principle is an effort to organize and improve the quality of housing and slum settlements in a sustainable manner through three approach: 1).Economic Empowerment; 2).Environmental Empowerment; and 3).Empowerment.
The characteristics of this program are: (a) Develop integrated housing and settlement areas with urban planning and systems.
(b) Using the concept of tri approach.
(c) Complementing the needs of the PSU so that a decent residential environment is met.
(d) Integrate sector approaches with other actors.
Management of area-based slums is principally an effort to organize and improve the quality of housing and slum settlements in a sustainable manner.Regions wishing to obtain facilities from this program must first meet general, mandatory, and competitive criteria.The policies implemented in this program are City winners or only as nominations for the Adiusaha Puritama award and have proposed this program or the like to the Ministry of Public Housing (Shepherd, 2007).

National program for the empowerment of urban independent communities
National Program for The Empowerment of Urban Independent Communities is an effort made by the Ministry of Public Works to overcome poverty in the housing and settlement sector (Akpan et al., 2015).This program is the transformation of the Urban Poverty Program in 2008.This program has the aims of: (1) assisting the acceleration of poverty alleviation in the fulfillment of livable and affordable housing as well as a healthy and safe environment, (2) increasing integrated housing and settlement development and synergy of various community empowerment programs, (3) reducing the number of uninhabitable houses and reducing the area slum area as well fulfillment of housing needs, and (4) adjusting the specifications of housing and settlement programs and activities that exist in the regional government with minimum standards in the housing sector.
The weakness of this program is that there are several areas where fraud is committed due to the emergence of fictitious groups (borrowing the names of other people who are recorded as members of the borrowing group) (Mahgoub & Khalfani, 2012).This is due to the lack of regional government intervention in the implementation of this program.In addition, there is still a lack of public awareness to participate in upholding the values and principles of the program even though the basic concept of implementing the program is community development (Felzemburgh et al., 2014).

Green city program
The green city program focuses on creating a city that is characterized as environmentally friendly which can effectively utilize natural resources in a balanced manner in order to ensure the sustainability of the quality and carrying capacity of its natural resources by referring to the City Spatial Plan in order to realize eight attributes of the Green City: (1) Planning and designing cities that are environmentally friendly; (2) Availability of green open space; (3) Efficient energy consumption; (4) Effective water management; (5) Waste management with the principle of reduce, reuse, recycle; (6) Energy-efficient buildings; (7) Implementation of a sustainable transportation system; and (8) Increasing the role of society as a green community.
The green city program is focused on realizing three attributes, namely: planning and designing cities that are environmentally friendly; availability of green open space; and increasing the role of the community through green communities, but in the next stage it is hoped that this will be further expanded so as to achieve the eight attributes that have been defined as green city characteristics (Hartini et al., 2017).
It is realized that this program is a long-term program carried out consistently by all actors, both the central government and regional governments.In addition, it is also realized that the conditions of cities/regencies can vary from one to another, so a national movement is needed to encourage regional governments to be able to realize the attributes of a green city (Hendrickson, 2004).
In 2011, this program began with the launching of the preparation of the Green City Action Plan for 60 P2KH participating cities/districts by the Minister of Public Works, as well as the signing of the Green City Commitment Charter by the Mayors/Regents on 7 November 2011 in Jakarta.The declaration of the start of this program was carried out in conjunction with the climax of the commemoration of Spatial Planning Day 2011, with the theme "Empowerment for Green Cities: From Planning to Action" on 7 November 2011 in Jakarta." The concept of a green city is a development concept urban area that adopt progressive urban planning principles, implementable, and sustainable (Sari & Karmilah, 2017).A green city is a reflection of an eco-friendly city designed by considering its impact on the environment, inhabited by people who are conscious of saving energy and water.To realize a green city, each city is expected to implement green city environmental standards with the attributes of green planning and design, green open space, green waste, green transportation, green water, green energy, green building, and green community (Goswami, 2014).In order to solve the problem of slum settlements, namely with the following strategies: 4.1.9.1.A. From the location aspect.Green planning and design (GPD) will solve the problem irregularity of buildings and high density of buildings.The city must have a Regional Spatial Plan and detailed plans.This serves as a reference in housing/settlement development and as one of the design bases for preparing action plans.GPD for settlements preceded by green open spaces will improve the quality of the environment in slum areas and provide space for community interaction.
4.1.9.2.From the aspect of community quality.Green community focuses on the process of making people aware that by improving the quality of the environment it will have an impact on welfare, improving the quality of housing, and the economy.Therefore, people will be moved to change their behavior to be greener (people will care more about environmental sustainability through implementing zero waste, saving energy and water, and getting used to living clean and comfortably.
4.1.9.3.From a residential/house aspect.The implementation of green building, green water, green energy, and green waste on a household scale will limit the problem of poor physical quality of housing/houses, making the housing environment quality and comfortable.An example is the application of technology that can save energy and water, zero waste, and support clean and comfortable living habits.
4.1.9.4.From the aspect of facilities and infrastructure.The minimum quantity of coaching and the poor quality of facilities and infrastructure in slum areas can be overcome by implementing green water, green waste, green energy and green transportation on a regional scale.An example is the provision of drainage, clean water, sanitation, as well as adequate waste disposal and management.

The kotaku program
The Kotaku Program is a government intervention, through the Ministry of Public Works and Public Housing, to accelerate the upgrading of urban slums and support the "100-0-100 Movement", namely 100 percent access to proper drinking water, 0 percent slums, and 100 percent access to proper sanitation.The Kotaku Program in its implementation uses a collaborative platform between the central government, provincial governments, city/regency, communities and other stakeholders by positioning the community and city government as the main actors (Malik et al., 2021).This program was implemented in all 34 provinces in Indonesia, spread across 269 cities, in 11,067 villages.
As an implementation of accelerated upgrading of slums, the Kotaku Program carries out quality improvement, management, and prevention of the emergence of new slum settlements through the policy network approach, with activities in village entities, as well as areas and cities.Slum upgrading activities include infrastructure development as well as social and economic assistance for better community livelihood sustainability in slum settlement locations (Christianingrum & Djumiarti, 2019).

The transformation of the Indonesia slum upgrading program (ISCP)
Based on the findings above, there are some transformation and proposed intervention of the Indonesia slum upgrading programs throughout its 10 iterations in its: (1) Locus, (2) Perspective of the programs' object, (3) Unit of intervention, (4) Strategy, (5) Actors involved, (6) Qualification of the area, and (7) Paradigm of the program's object-subject, as shown in the Table 1 below:

Discussion
According to Indonesia Law Number 1 of 2011 concerning Housing and Settlements, slums are settlements that are unfit for habitation due to irregular building developments, high building density, and inadequate buildings and facilities and market quality.Settlement problematic areas include multi-dwelling environments, including infrastructure, public facilities, and activities that support other functions in urban or rural areas.Built-up area is an area that meets the urban planning criteria set out in the city spatial plan, as explained in the previous discussion.
By combining the definition of slum settlements contained in Indonesia Law Number 1 of 2011 and the definition of urban areas according to the Spatial Planning Law Number 26 of 2007 and Regional Spatial Planning Regulation Number 15 of 2012, the definition of urban slum areas can be obtained, as follows: (1) Residential areas that are uninhabitable because building disorder.
(2) High density of buildings and quality of residential environment has experienced degradation.
(3) Urban residential areas that comply with related policies and urban development directions; Based on the findings collected, it is possible to answer the research question of this article.In the case of the first research question, then it was possible to conclude that the slum upgrading programs have been enhanced through 10 iterations by the seven area of transformation, namely: (1) a larger locus: urban and village area, (2) larger perspective of the programs' object, (3) broader unit of intervention, (4) larger and more comprehensive strategy, (5) numerous actors involved, (6) greater area qualification, and (7) transformation of the program's object-subject paradigm.Urban areas will grow to spread to surrounding areas, therefore conventional urban planning must be changed into progressive and implementable urban planning (Atia, 2022;Nkrumah Agyabeng & Preko, 2021).Progressive in the sense that it is responsive to the rapid development of cities and to the issue of climate change (Cobbinah et al., 2021;Malik et al., 2021).The trick is to adopt the principles of sustainable urban development (Jones, 2017).Sustainable development is a development plan that meets the needs of the present without jeopardizing the ability of future generations to meet their needs (Akbar et al., 2020) This principle harmonizes the three economic, socio-cultural and environmental aspects with the foundations of urban governance (Liu et al., 2021;Ndugwa & Zulu, 2008) while it is implementable in the sense of being able to transform theory into real systematic action (Octavia et al., 2019)  Regarding the second research question, this research proposes a guideline of the slum upgrading program.The guidelines are based on the (1) locus of slum upgrading program: urban and village area as the slum existed in those area (Fadli & Sarofah, 2021;Kolhe & Dhote, 2019;Supriyatno, 2020); (2) perspective of physical and human to be intervened (Astuti et al., 2021); (3) individual, groups and community as the intervention perspectives as the unit of intervention have their each uniqueness (Ahsan et al., 2017;Subbaraman et al., 2014); (4) physical and empowerment (Surya et al., 2020), education (Ajlouni, 2016;Mehra et al., 2021;Smit et al., 2017), capacity building (Musoke et al., 2018;Semugabo et al., 2020;Surya et al., 2020), environment and green area strategy (Birtchnell et al., 2019;Cobbinah et al., 2021;Doshi, 2019); (5) penta helix collaboration (Abdillah et al., 2022;Muharam et al., 2021); (6) empowerment of the slum area to be qualified to intervened (Mehrolhasani et al., 2021); (7) facilitate the low income people and regional government as the main actors (center) (Natakun, 2015;Yaesin et al., 2022).

Conclusion
It is the belief of many experts that there is no uniform approach about how to treat slum settlements (Lilford et al., 2019).Thus, the slum upgrading program should be evaluated in order to become more successful (Musoke et al., 2018;Rahmasary et al., 2019).This present research sought to evaluate the slum upgrading program and determined what and how improvement can be made in the future (Jaitman & Brakarz, 2013).This research proposes a guideline of the slum upgrading program based on the transformation conducted in Indonesia.
This research result provides empirical evidence that strengthens the current literature based on the transformation of the Indonesia slum upgrading programs which have been implemented in 10 editions.Besides, this study helps meet the requirement to identify program guidelines so that more comprehensive can be conducted towards building a model of successful slum upgrading program.
This research findings further contribute to practical implications, provide policy maker the value of the slum upgrading program.The result additionally comprises evidence that program involving all national stakeholders can be instrumental in regional and national intervention.Other slum upgrading programs may also be inspired to do evaluation and to be more effective and efficient.This study's findings should provide an incentive for an eleventh or conducting the slum upgrading program in other region or country.During this research, some limitations were identified that need to be considered when analyzing the results and conducting future research.The first limitation is related to this research is library-based data.Future research should be conducted using in depth interviews with the actors involved in those 10 programs to get more insight.The second limitation has to do with the subjectivity due to the studies commonly having some subjectivity in the analysis of the findings and modification strategy.Thus, future research could analyse the slum upgrading program of other countries to give a broader view of slum upgrading programs.Another suggestion is to compare the slum upgrading program in other areas to find similarities.Finally, further research could apply the proposed guidelines developed for this research to know the quality of the program.
In the Ministerial Regulation of the Ministry of Public Works and Public Housing Number 2 of 2016 concerning patterns of upgrading slum settlements which include: restoration, rejuvenation, and resettlement adapted to the slum area and must be in accordance with their authority, namely involving the role of the community by carrying out several stages, so the importance of community involvement in upgrading slum settlements has started from the process of preparation, planning, implementation, and sustainability as shown in Figure 1.Pattern of slums upgrading program based on Ministerial Regulation of Public Works and Public housing number 2 of 2016 (Zubaidah et al., 2023).

Figure
Figure 1.Pattern of slums upgrading program based on Ministerial Regulation of Public Works and Public housing number 2 of 2016.Source: Processed by the Author, 2023.

Figure 2 .
Figure 2. Stages in the research method.Source: Processed by the Author, 2023.
There are three pillars of this program, namely:(a) Group-based development support, where the community is the main actor in planning, implementing, and developing the program.(b)Institutional programs formed by the community based on democratic principles and representation of community representatives concerned with housing and settlements.

( 4 )
Located in a strategic area and a growth center that has an economic function in the urban sector In determining the verification area for slums in Indonesia, tools are used to determine the classification of slums, namely in accordance with the Regulation of the Minister of Public Works and Public Housing of the Republic of Indonesia Number 02/PRT/M/2016 concerning Improving the Quality of Slum Housing and Slums, which can determine the classification of slums and upgrading to be carried out.In determining the slum verification area, there are several physical aspects or indicators, namely: 1. Buildings 2. Environmental Roads 3. Provision of Drinking Water 4. Environmental Drainage 5. Wastewater Management 6.Waste Management 7. Fire Protection, 8. Land Legality and 9. Other factors, which include: a. Strategic Value, b.Locus of Population, and c.Social, Economic and Cultural Conditions.