Reorientasi Kebijakan Himpunan Pramuwisata Indonesia (HPI) dalam Penataan Pemandu Wisata Informal Berbasis Co-Governance di Kawasan Bromo Tengger Semeru

The presence of informal tour guides (unlicensed/without official KTPP) in the extreme volcanic landscape of Bromo Tengger Semeru National Park (TNBTS) creates a conflict between formal tourism regulation enforcement and the subsistence economic needs of the local Tenggerese community. This study aims to analyze the policy effectiveness of the Indonesian Tour Guide Association (HPI) East Java Regional Board and formulate a reorientation strategy for inclusive and sustainable tour guide management. This study employed a descriptive qualitative approach integrated with SWOT Matrix Analysis. Primary data were gathered through in-depth interviews with the Chairman of DPD HPI East Java, licensed tour guides, and local informal guides, complemented by field observations and document analysis following the joint enforcement sweep in 2025. The findings reveal a paradigm shift within HPI, reframing the term "illegal" not as a lack of technical capability, but as administrative alienation that leaves local guides vulnerable to exploitation by irresponsible tour operators through predatory pricing. Repressive enforcement sweeps proved ineffective due to minor fines (IDR 50,000) and the emergence of social camouflage tactics by locals. This study recommends a Co-Governance framework built on three pillars: (1) Implementation of a subsidized Tiered Licensing System (Special Bromo/Local License); (2) Shift of legal enforcement to non-compliant tour operators upstream; and (3) Integration of certified guide services into TNBTS's Digital Ticketing Bundling System.