Indonesia as an agricultural country has the potential to compete in the agricultural market in the international market, in line with the existence of the ASEAN / ASEAN Free Trade Area (AFTA) Free Market. Ngawi Regency is a fertile area and is one of the buffer zones of the agricultural sector in East Java. Horticulture commodities are one of the main sources in the agricultural sector, because they have high potential and can contribute to the economy of a region. Horticultural commodities in the form of fruits and vegetables are an important food source to meet the nutritional needs of the community. Agriculture with a focus on horticultural crops in Ngawi Regency was developed with a cluster system based on the level of progress, harvest area and by considering agro-climate to map the superior horticultural commodities. The purpose of this study was to map the conditions of horticultural agriculture and analyze problems in the cluster of horticulture plants in Ngawi Regency. The research method is a mixed method using descriptive analysis, Geographic Information System (GIS), and using the Analysis Hierarchy Process (AHP). The conclusion of this study is that the potential development of horticultural clusters in Ngawi Regency requires structuring and developing the location of base commodities in accordance with the conditions of the agro-ecosystem. The development of existing commodities at these base points will make the commodity superior and support the creation of horticultural cluster centers and the development of existing agribusiness in an area. Development of horticulture base commodities for seasonal vegetables and fruits can be adjusted to the LQ results for each sub-district in Ngawi Regency. The results of the Indepth interview processed using AHP obtained results that in fact there were three main factors in the development of clusters, namely production consisting of four derivative factors namely research and development, superior seeds, fertilizers and anti-pest drugs and then marketing with derivative factors namely product standardization, packaging , traditional markets and modern markets. Then the third factor of the institution consists of training, networking, government support and assistance.