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Desentralisasi dan Otonomi Daerah Kasus: Kabupaten Kudus, Jawa Tengah Download Full Report Research Team: SUMMARY The Province of Central Java and Kabupaten Kudus represent the seventh area visited by SMERU during the course of a year 2000 regional autonomy study. Kabupaten Kudus is a relatively 'rich' kabupaten in terms of regional GDP per capita. The kabupaten is a center for cigarette production and taxes from this industry are the largest form of regionally generated revenues for the central government. Kabupaten Kudus is a well known destination for religious tourism within Indonesia because it is the site of an historic mosque. The kabupaten is also famous for a traditional jelly-like sweet known as jenang. The villages of Jatikulon and Tumpangkrasak in the Sub-District (or Kecamatan) Jati were included in the investigation. The villages may be said to be 'urban' because of the density of the population and because the village centers offer several facilities including modern shops. The Provincial Government of Central Java and the Kabupaten Government of Kudus have taken several steps to prepare for regional autonomy including drafting and implementing new policies. One factor slowing preparations for regional autonomy is the lack of clear supporting regulations and directives from the central government. There is also a continuing debate over the benefits of regional autonomy at both the provincial and the kabupaten and kota level. Despite varying opinions regarding the benefits of regional autonomy, both the provincial and kabupaten and kota levels of government in Central Java are in agreement that regional autonomy should start on January 1, 2001. However there is also a common perception among all levels of government that not all the preparations for regional autonomy need to be completed by January 1, 2001. Some education and awareness campaigns of regional autonomy have been conducted within the government. However for those groups outside the government and the general public there remains a strong need for public awareness campaigns. Some public awareness campaigns about regional autonomy have been conducted by NGOs and the press, however these campaigns have been limited. Organizational Restructuring and the Transfer of Public Servants. When Law No. 22, 1999 was passed the Provincial Government of Central Java began preparations for regional autonomy by setting up a team composed of various working groups to concentrate on autonomy issues. This team has drafted three possible organizational structures which the provincial government might take after regional autonomy begins. The draft structures include the number and the rank of the public servants within the organizational structure which will be required to form the administrative government. The team has tried to re-structure the government as efficiently as possible without reducing the present number of public servants. Kabupaten Kudus has produced four draft regional institutional regulations which are based on a circular from the Ministry of Home Affairs No. 061/58/BOR. However the Government Regulation No. 84, 2000 which abolished the public service rank of 'Eschelon V' made a revision of the four draft regional institutional regulations necessary. The revision of these draft regulations is currently being discussed by the kabupaten parliament. The abolition of the rank of Eschalon V will make the process of restructuring the kabupaten level government and the placement of government officials into new offices more difficult. The budget for Kabupaten Kudus presently covers funds for the 1.184 kabupaten level public servants. There are concerns that when regional autonomy begins the regional budget will not be sufficient to cover the 8.875 public servants that will fall under the administration of the kabupaten government. Autonomy and Regional Finances. There is the concern that regional autonomy will lead to greater disparities in wealth between kabupaten and kota within one province. This is because of the disparities in the potential for natural resource exploitation and the quality of human resources between various kabupaten and kota within the Province of Central Java. Provincial and kabupaten and kota governments are also concerned that the size of the annual budget from the central government has not been decided and that the Law No. 18, 1997 on domestic trade has not been revised. (At the time of the survey the central government was discussing a revision of Law No. 18, 1997). The Kabupaten Government of Kudus is confident that regional autonomy can be implemented if funding from the central government is sufficient. Presently Kabupaten Kudus relies on the central government for 79-86% of its budget. The Kabupaten Government of Kudus is also exploring alternative sources of revenue such as a 10% excise duty on all cigarette production. There are also Kabupaten Government efforts underway to intensify the collection of fees for services as a means of increasing regional revenues. There is a concern at the provincial as well as the kabupaten and kota levels of government in Central Java that after regional autonomy begins the central government's budget allocation for some sectors will not be sufficient to continue programs which are already in place. Regional Parliaments. In general the administrative and legislative branches of government are working well together at both the provincial level in Central Java and in Kabupaten Kudus. However both the administrative and the legislative branches of government are in the process of learning to practice democracy and the quality of some of the human resources, especially in the parliament, could be improved. Problems include arrogance on the part of some members of parliament as well as a lack of initiative on the part of policy and lawmakers. There have been some efforts to build the capacity of the parliament. A forum for interactive discussions between parliamentarians has been held as well as the hiring of expert advisors and efforts to increase the level of education of parliament members. The parliament has been more proactive in listening to the aspirations of the people than in the past and these aspirations have influenced policymaking. Furthermore, when draft regional regulations are being discussed, members of parliament have been vocal in expressing the aspirations of the people. It appears that members of the provincial level parliament in Central Java are far more vocal and ready to express the views of their constituents than in the past. The Kabupaten Kudus Parliament has passed several regional regulations. Those regulations which relate to regional autonomy include twelve regulations on village government and four draft regulations on local government structures. There are also several draft regulations which have been prepared on generating regional revenues. Autonomy and the Delivery of Public Services. The civil society and NGO groups in the capital city of Central Java and in Kabupaten Kudus were generally optimistic that regional autonomy would bring benefits to broader society. Despite this optimism, these civil society and NGO groups raised several questions including: 1) Is the central government serious about implementing regional autonomy? 2) Would regional autonomy be more successful if it was implemented at the provincial level instead of at the kabupaten and kota level? 3) Will regional autonomy lead to 'small kingdoms' of corruption, collusion and nepotism at the kabupaten and kota level? Civil society and NGO groups in Kabupaten Kudus perceive that the kabupaten government interprets regional autonomy as being inextricably linked with raising regional revenues. There is therefore a concern that regional autonomy will lead to increases in government charges for services which will overly burden the population. Civil society and NGO groups feel that the quality of the administrative government as well as the quality of the members of parliament could be improved. An example of where improvement is considered to be needed is in the delivery of public services in several sectors. The level of service delivery in some sectors is considered to be low. Some corruption and the charging of illegal levies still exist in the public sector. Further, some members of parliament have been criticized as not having all the skills required of parliamentarians but rather only possessing oratory skills. Propinsi Jawa Tengah (Jateng) dan Kabupaten Kudus merupakan daerah sampel ketujuh yang dikunjungi Tim SMERU. Kabupaten Kudus dipilih mewakili kategori kabupaten dengan tingkat pendapatan domestik regional bruto (PDRB) per-kapita tinggi. Kabupaten ini dikenal sebagai pusat industri rokok ---yang memberikan kontribusi terbesar pada PDRB---, dikenal pula dengan makanan khas jenang Kudus, serta daerah wisata religius. Desa Jatikulon dan Desa Tumpangkrasak di Kecamatan Jati dipilih sebagai desa dan kecamatan sampel. Kedua desa itu dari segi jumlah penduduk dan beberapa fisilitas kehidupan, seperti pertokoan, sudah bercirikan urban. Pemda Propinsi Jateng dan Kabupaten Kudus telah melakukan persiapan nyata dalam menghadapi otonomi daerah, baik menyangkut kebijakan maupun teknis pelaksanaannya. Namun karena lambat dan masih sangat sedikitnya peraturan pendukung yang dikeluarkan pusat membuat persiapan otonomi di daerah terhambat. Di samping itu perdebatan mengenai pro-kontra tentang wilayah otonomi masih terus berlangsung, apakah sebaiknya di tingkat propinsi atau kabupaten/kota. Namun demikian, baik di Propinsi Jateng maupun Kabupaten Kudus berkembang satu persepsi bahwa, 1 Januari 2001 adalah titik dimulainya proses pelaksanaan otonomi daerah. Dengan demikian, pada saat itu tidak berarti segala sesuatu harus telah siap. Upaya sosialisasi otonomi daerah sendiri, sejauh ini baru dilaksanakan dalam jajaran aparat pemerintah melalui pendekatan hierarki birokrasi. Pada tingkat masyarakat umum dan kelompok lain di luar pemerintah masih kurang. Prakarsa dan usaha pihak LSM dan pers dalam mensosialisasikan otonomi daerah juga masih sangat terbatas. Organisasi dan Administrasi Kepegawaian. Pemda Jateng sudah mulai mempersiapkan otonomi daerah sejak Undang-undang (UU) No. 22, 1999 disyahkan dengan membentuk suatu tim yang dilengkapi dengan beberapa kelompok kerja (pokja). Tim ini berhasil merumuskan tiga alternatif organisasi pemda berdasarkan jumlah posisi dan pegawai yang diperlukan. Tim ini berusaha merampingkan organisasi pemda, tetapi dengan tetap mempertimbangkan jumlah pegawai yang ada sekarang, agar tidak terlalu banyak menimbulkan gejolak. Kabupaten Kudus pada mulanya sudah mempunyai empat raperda kelembagaan yang disusun berdasarkan SE Mendagri No. 061/58/BOR. Belakangan keluar PP No. 84, 2000 yang menghapus eselon V, sehingga empat rapeda itu terpaksa harus dirombak lagi. Sekarang konsep raperda ini sedang dibahas DPRD. Penghapusan eselon V membuat pemda semakin sulit menyusun organisasinya karena dihadapkan pada semakin rumitnya mengatur penempatan pegawainya nanti. Dari segi keuangan, sebelum pelaksanaan kebijakan otonomi daerah, Pemda Kabupaten Kudus harus mengurus gaji 1.184 pegawai, sekarang yang harus diurus sebanyak 8.875 pegawai. Otonomi dan Keuangan Daerah. Dalam hal keuangan daerah, muncul kekhawatiran bahwa disparitas pendapatan antar propinsi dan antar kabupaten dan kota dalam satu propinsi akan makin lebar, mengingat beragamnya potensi sumber daya alam (SDA) dan kualitas sumber daya manusia (SDM). Selain hal itu, daerah masih dihadapkan pada kendala belum pastinya pencairan dana alokasi umum (DAU), dan belum direvisinya UU No. 18, 1997 (pada saat survei dilakukan revisi UU No. 18, 1997 tengah dibahas). Pemda Kabupaten Kudus optimis dapat melakukan otonomi daerah dengan baik jika dana yang dibutuhkan cukup. Sampai sekarang sebanyak 79% - 86% penerimaan daerah masih tergantung pada pemerintah pusat. Selain berharap dari pendapatan yang sudah pasti diterima, pemda juga sedang memperjuangkan kontribusi dari sumber penerimaan lain, yaitu cukai rokok yang besarnya minimal setara 10% dari hasil yang diperoleh. Untuk meningkatkan penerimaannya pemda juga melakukan upaya intensifikasi beberapa retribusi daerah. Berkenaan dengan alokasi anggaran di masa otonomi daerah nanti, baik di Propinsi Jateng maupun Kabupaten Kudus, muncul kekhawatiran sektroral yaitu berupa tidak terpenuhinya kebutuhan dana sesuai dengan program yang selama ini mereka lakukan. Gambaran tentang DPRD. Secara umum hubungan kerja antara pihak eksekutif dengan legislatif di Propinsi Jateng dan juga Kabupaten Kudus berlangsung baik. Kedua pihak masih dalam tarap belajar mempraktekkan demokrasi dan disadari bahwa kualitas SDM di kedua lembaga tersebut, belum sepenuhnya memadai. Arogansi anggota dewan masih sering muncul, sementara hak inisiatifnya belum diwujudkan secara konseptual. Upaya peningkatan kapabilitas anggota dewan antara lain dilakukan melalui forum 'diskusi interaktif,' mengangkat staf ahli, dan peningkatan jenjang pendidikan anggotanya. Penjaringan aspirasi masyarakat juga dilakukan lebih proaktif, demikian pula pelibatan masyarakat dalam perumusan kebijakan daerah sudah mulai dilakukan. Dalam proses pembahasan raperda, anggota dewan telah aktif menyuarakan kepentingan masyarakat. Penampilan anggota DPRD saat ini dinilai banyak responden tergolong lebih berani dan vokal. DPRD Kabupaten Kudus cukup produktif apabila dilihat dari banyaknya perda yang disyahkan. Berkenaan dengan pelaksanaan otonomi daerah, telah disyahkan 12 perda tentang pemerintahan desa, serta telah dipersiapkan empat raperda tentang kelembagaan perangkat daerah. Di samping itu Kabupaten Kudus telah mempersiapkan beberapa perda tentang pengelolaan PAD. Otonomi dan Pelayanan Publik. Masyarakat pada umumnya optimis bahwa otonomi daerah akan bermanfaat bagi masyarakat, tetapi banyak kendala yang membuat mereka khawatir. Apakah pusat benar-benar serius melaksanakan kebijakan otonomi daerah? Apakah pelaksanaanya lebih baik di tingkat propinsi atau kabupaten/kota? Masyarakat khawatir otonomi akan memunculkan "raja-raja kecil," khawatir akan membuka peluang terjadinya KKN di daerah, dan sebagainya. Masyarakat juga melihat adanya persepsi di lingkungan aparat pemda bahwa otonomi daerah identik dengan PAD. Oleh karena itu, mereka mengkhawatirkan otonomi daerah akan membebani rakyat. Masyarakat menilai bahwa kualitas aparat pemda maupun anggota dewan saat ini belum memadai. Indikator yang ada menunjukkan bahwa pelaksanaan pelayanan publik oleh aparat pemda di beberapa sektor yang diamati dinilai masih rendah. Penyimpangan dan praktek pungli yang menyertai beberapa penyelenggaraan pelayanan tersebut masih tetap ada. Anggota dewan terpilih juga dinilai merupakan "orang kagetan" yang hanya memiliki keberanian berbicara. DAFTAR ISI I. PENDAHULUAN
II. PERSIAPAN DAN HARAPAN DAERAH
III. KESIMPULAN LAMPIRAN |
The findings, views, and interpretations published in this report are those of
the authors and should not be attributed to the SMERU Research Institute
or any of the agencies providing financial support to SMERU.
For further information, please contact SMERU, Phone: 62-21-3193 6336;
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