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Desentralisasi dan Otonomi Daerah Kasus: Kabupaten Magetan, Jawa Timur Download Full Report Research Team: SUMMARY Preparation for regional autonomy in the province of East Java is proceeding in fits and starts. There appears to be the perception among government officials that the process of implementing of regional autonomy will be a long one and that the government will handle problems with implementation when they arise. This approach to policy implementation is known as 'learning by doing'. While there does not appear to be an atmosphere of urgency regarding preparations for regional autonomy in government offices, many civil society groups in East Java are demanding that the implementation of regional autonomy be hastened. Difficulties with the process of implementing regional autonomy were found concerning the authorities that are being transferred from the central government to the provincial level government and those authorities that are being transferred from the provincial level government to the kabupaten and kota level government. There is a need for the central government to clarify the definition of 'authority' in the Government Regulation No. 25, 2000. Presently the government regulation reads more like a central government instruction of duties and responsibilities for the provincial and kabupaten and kota governments rather than a document, which grants authority over any new functions. One of the implications of this lack of clarity in the Government Regulation No. 25, 2000 is the slowing of preparations for regional autonomy at the provincial level and at the kabupaten and kota level. One problem the administrative branch of the provincial level East Java government is that there are more public servants than there are public service positions. A similar situation exists at the kabupaten and kota level of government which means that it is unlikely that this level of government can absorb any excess of provincial level public servants. Besides this structural problem, SMERU became aware of a willingness amongst provincial level government officials to fill the government offices (dinas) with heads who are from East Java. The problem of prioritizing local people could become an obstacle to solving the problem of reorganizing staff within the public service in East Java. This issue is particularly worrying for (non-East Javanese) former central government staff whose offices have been merged with kabupaten and kota level offices. Although East Java is not considered to be rich in human resources, it is classified as a 'rich' province using a classification based on GDP per capita. The concentration of industry in the industrial estates around the capital of Surabaya is the second largest in the country. There is a high level of economic activity in East Java and the economy is considered dynamic and robust. The benefits of the strong economy in the province of East Java however are not shared evenly amongst all the kabupaten and kota. Because of the wealth of the province of East Java some have suggested that the kabupaten and kota will benefit greatly from their own regionally generated revenues. This certainly is not the case for all kabupaten and kota in the province. Indeed, many kabupaten and kota are presently panicking about how they will implement regional autonomy with low levels of regionally generated revenues. The provincial level government shares this concern that kabupaten and kota with small regional revenues will have difficulty implementing regional autonomy. The provincial level government has therefore suggested that responsibility for implementing regional autonomy be handed over to the provincial level. The provincial level government has two main reasons for this: 1) There is the possibility that the kabupaten and kota level governments will raise taxes and levies as a means of increasing their regionally generated revenues but this will have a negative effect on the local and provincial economy; 2) The potential for conflict between kabupaten or kota, which share access to a taxable income source. Despite provincial level concerns at the about dangers associated with the process of implementing regional autonomy, Kabupaten Magetan believes it can manage the process. Kabupaten Magetan is a relatively poor kabupaten in Indonesia in terms of GDP per capita but there is substantial enthusiasm for regional autonomy among the kabupaten level government. There is a certain level of confidence among the kabupaten government that the regional budget, which is largely from the central government, can be increased through generating local revenues. Potential sources of local revenues include tourism, leather products, commercially grown fruits and organically grown produce. Members of the kabupaten level administrative government expressed the belief that human resources are the key to achieving economic development. There is a plan to build a tertiary education institution to assist the process of raising the level of human resources in Kabupaten Magetan. Regional autonomy grants more powers to all kabupaten and kota level parliaments (DPRD) in Indonesia. The people of Kabupaten Magetan hope that the DPRD will use their new powers to ensure that the administrative branch of government is clean and raises the quality and quantity of public services. Recently some members of the parliament of East Java province have questioned regarding cases of corruption. In one case some members of parliament are being investigated of misappropriating around Rp200 billion from funds remaining from the year 2000 development budget. Some civil society groups, which SMERU met, expressed doubts that the provincial and kabupaten level parliaments will succeed in bringing themselves and the administrative branch of government into line with the aspirations of the people. Concerns about the capacity of the DPRD were on the basis of the low level of education and the lack of experience of many members. In general, the level of education and experience of the members of parliament has dropped since the general election in 1999. Civil society groups have raised concerns over the parliament's new powers to decide expenditure budgets. There is also a tendency for the members of parliament at the provincial and at the kabupaten and kota level to prioritize raising local revenues at the expense of ideas for revenue rising from the center through development proposals. The budget for the salaries of members of parliament comes from locally generated revenues causing some to suggest that this is why members of parliament favor increasing local revenues. Some local revenue raising strategies may cause imbalances and inefficiencies in the local economy however new regional regulations on the collection of taxes and fees for services have not been criticized by the parliament. It appears that civil society groups want to assist the kabupaten level government with the implementation of regional autonomy, however there is the impression that the kabupaten level government has not changed significantly since the New Order government. Some civil society groups pointed out that the kabupaten level government is still inclined to be waiting for directions from above rather than approaching broader society to become aware of the needs of the people. This central focus of the kabupaten level government and the lack of government participation at the level of civil society is making it difficult for civil society groups to become involved in the implementation of regional autonomy. Persiapan otonomi daerah di Propinsi Jawa Timur (Jatim) yang kurang lancar bukan disebabkan adanya hambatan, tetapi ada pengertian di daerah bahwa pelaksanaan otonomi daerah adalah suatu proses berjangka panjang yang akan berkembang melalui learning by doing. Meskipun demikian, masyarakat Jatim menghendaki agar pelaksanaan otonomi daerah dipercepat. Dalam proses persiapan otonomi daerah yang agak pelik diselesaikan adalah menyangkut kewenangan pusat yang dilimpahkan ke propinsi (tugas dekonsentrasi) dan kewenangan kabupaten yang dilimpahkan ke propinsi. Selain itu, definisi kewenangan juga masih harus diperjelas karena kewenangan yang diotonomikan melalui PP No. 25, 2000, sebenarnya lebih bersifat tugas. Kewenangan yang belum jelas itu berimplikasi pada keterlambatan pemda dalam penyusunan struktur organisasi baik di tingkat propinsi maupun di tingkat kabupaten/kota. Persoalan lain yang dihadapi Pemda Propinsi Jatim adalah jumlah jabatan struktural yang ada jauh melebihi jumlah jabatan yang tersedia. Mengalokasikan kelebihan pegawai ke kabupaten/kota hampir tidak mungkin karena kondisi yang hampir sama juga dihadapi oleh kabupaten/kota. Selain itu, untuk mengisi posisi puncak di setiap dinas, ada misi terselubung di lingkungan pemda yang bertujuan memprioritaskan orang daerah. Oleh karena itu, persoalan kepegawaian menjadi lebih rumit dan merisaukan banyak pihak, terutama eks pegawai pusat yang telah menjadi aparat daerah. Propinsi Jatim tergolong kaya, walaupun bukan karena SDA, konsentrasi industri terbanyak kedua di Indonesia terdapat di kawasan industri sekitar Surabaya. Kondisi ini membuat aktivitas ekonomi masyarakat cukup tinggi dan dinamis. Walaupun demikian, tidak berarti bahwa setiap kabupaten/kota di wilayah ini bisa mandiri melalui penerimaan PAD. Sebaliknya, bahkan ada kabupaten/kota yang panik menghadapi otonomi daerah karena sumber PAD-nya kecil. Oleh karena itu, ada kekhawatiran di tingkat propinsi bahwa beberapa kabupaten/kota di Jatim akan kesulitan dalam mengimplementasikan otonomi daerah. Berdasarkan kenyataan itu, maka diusulkan agar otonomi daerah dilakukan di tingkat propinsi. Paling tidak ada dua alasan yang mendukung usul ini, yaitu: (1) adanya kemungkinan kabupaten/kota berlomba-lomba meningkatkan PAD melalui intensifikasi dan ekstensifikasi pajak dan retribusi yang bisa mematikan aktivitas perekonomian masyarakat; dan (2) adanya kemungkinan konflik antar kabupaten/kota yang berdekatan dalam memperebutkan obyek pajak atau retribusi yang sama. Meskipun kekhawatiran itu menjadi pembicaraan hangat di tingkat propinsi, tetapi Kabupaten Magetan yang relatif miskin di Jatim tidak akan menyerah untuk melaksanakan kebijakan otonomi. Nampaknya, semangat berotonomi cukup tinggi, karena yakin bahwa selain adanya DAU dari pusat, pemda juga melihat adanya potensi yang bisa dikembangkan menjadi andalan sumber penghidupan penduduk dan pada gilirannya akan meningkatkan pendapatan Pemda Kabupaten Magetan, misalnya pariwisata, industri kulit, budi daya buah-buahan, dan usaha pertanian bio organik. SDM yang handal disadari merupakan kunci dari upaya pengembangan itu. Oleh karenanya masyarakat mengharapkan agar di daerah ini didirikan perguruan tinggi. Posisi DPRD propinsi dan kabupaten/kota menjadi lebih kuat dengan adanya kebijakan otonomi daerah. Harapan masyarakat Jatim makin tinggi terhadap DPRD dalam mengawasi jalannya pemerintahan agar bisa lebih bersih dan lebih memperhatikan peningkatan kuantitas dan kualitas pelayanan publik. Akhir-akhir ini, DPRD Propinsi Jatim cukup gencar mempertanyakan berbagai kasus korupsi yang dilakukan aparat eksekutif termasuk menyangkut sisa anggaran pembangunan TA 2000 yang berjumlah sekitar Rp200 miliar yang disinyalir diselewengkan oleh aparat eksekutif. Meskipun begitu, beberapa kalangan masih meragukan bahwa harapan masyarakat itu dapat diwujudkan oleh anggota DPRD (propinsi dan kabupaten). Keraguan itu terkait dengan tingkat pendidikan dan pengalaman anggota dewan yang rata-rata lebih rendah dibanding dengan anggota DPRD di masa sebelumnya. Keraguan itu makin menguat dengan adanya wewenang DPRD menentukan anggarannya sendiri. Sekarang ada indikasi bahwa anggota dewan berkepentingan atas kenaikan PAD yang memang merupakan sumber anggaran mereka. Keadaan ini dapat membuat DPRD tidak kritis terhadap berbagai perda tentang pajak dan retribusi yang bertujuan meningkatkan PAD. Masyarakat pada dasarnya ingin terlibat membantu pemda mensukseskan pelaksanaan otonomi daerah, masalahnya aparat pemda belum banyak berobah. Aparat pemda masih cenderung bertumpu kepada pusat (melihat ke atas) dan sangat kurang melakukan pendekatan kepada masyarakat (melihat ke bawah). Akibatnya, pengetahuan publik atas proses pelaksanaan otonomi daerah masih terbatas, sehingga masyarakat sulit mencari ruang untuk melibatkan diri. 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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