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Desentralisasi dan Otonomi Daerah Kasus: Tiga Kabupaten di Sulawesi Utara dan Gorontalo Download Full
Report Tim Studi: RINGKASAN Propinsi Sulut dan Gorontalo merupakan daerah sampel kedua yang dikunjungi Tim SMERU dalam rangka melihat pelaksanaan desentralisasi dan otonomi daerah, yang dilakukan pada 8 Mei sampai dengan 27 Mei 2001. Responden meliputi aparat pemerintah daerah (pemda), DPRD, dan masyarakat (pengusaha, petani, LSM, pers, akademisi) yang ada di tingkat propinsi dan di tiga kabupaten sampel yaitu: Minahasa, Bolaang Mangondow, dan Gorontalo. Sulut memiliki keunggulan geografis strategis yang memberikan peluang ekonomi mengingat terbukanya akses langsung ke pusat pergadangan Asia Pasifik bahkan dunia. Hal ini didukung oleh potensi sumber daya alam serta produksi sektor pertanian dan perikanan yang besar. Dari segi sumber daya manusia, penduduk Sulut juga dikenal memiliki tingkat pendidikan rata-rata tinggi. Pemda di Sulut menyadari bahwa peluang di atas harus diprioritaskan untuk segera dikelola secara baik. Secara umum masyarakat berpendapat bahwa lambatnya penyelesaian berbagai peraturan pendukung menjadi penghambat utama pelaksanaan otonomi di daerah. Pemerintah pusat dinilai masih bersikap setengah hati, sementara pemda dianggap selalu menunggu arahan pusat, tidak memiliki inisiatif. Terlepas dari berbagai hambatan yang ada, baik Pemda Sulut maupun pemda di tiga kabupaten sampel telah berupaya melaksanakan otonomi daerah terutama menyangkut urusan internalnya. Mereka telah mempersiapkan struktur organisasi pemda baru serta memperkirakan jumlah jabatan dan pegawai yang dibutuhkan. Pada Nopember-Desember 2000, pemda propinsi dan pemda di tiga kabupaten telah mengeluarkan perda tentang organisasi perangkat daerah dengan tetap mempertimbangkan aspek ketertampungan pegawai. Struktur organisasi tersebut sifatnya masih terbuka, bisa berubah sesuai perkembangan. Pada Januari-Februari 2001, pemda propinsi dan di tiga kabupaten telah melantik pimpinan organisasi baru tersebut. Dengan adanya pelimpahan pegawai instansi vertikal sebanyak 3.183 pegawai (di luar BPN, BKKBN, dan Kantor Statistik), maka jumlah pegawai pemda propinsi menjadi dua kali lipat. Dibandingkan dengan kewenangan yang ada, jumlah pegawai telah melebihi kebutuhan. Dalam hal ini pemda propinsi menghadapi dilema, jika dilakukan rasionalisasi pegawai maka akan berdampak besar. Sementara itu jika mereka ditransfer ke kabupaten/kota tidak mudah, umumnya kabupaten/kota cenderung menolak, karena alasan gaji pegawai sudah masuk ke dalam DAU propinsi. Dengan dibentuknya Propinsi Gorontalo sangat menolong Pemda Sulut dalam mengalokasikan sebagian pegawainya. Isu putra daerah yang sempat dikhawatirkan dalam proses relokasi pegawai, tidak terjadi. Sementara itu pemda kabupaten justru merasa kekurangan pegawai, terutama untuk dinas teknis yang memerlukan pegawai dengan kemampuan khusus. Daerah tidak keberatan menerima transfer pegawai dari propinsi/pusat asalkan gajinya tetap dibayar pusat/propinsi. Penempatan posisi wakil kepala dinas tergantung pertimbangan masing-masing pemda kabupaten, di Kabupaten Minahasa dimaksudkan sebagai upaya kaderisasi kepemimpinan. Sementara di Kabupaten Bolmong, dinas-dinas yang memiliki kewenangan besar saja yang mempunyai wakil kepala. Permasalahan lain yang dihadapi pemda kabupaten saat ini adalah menyangkut status pegawai Kantor Pertanahan yang kewenangannya ditarik kembali ke pusat. Banyaknya produk hukum yang dibuat oleh pemda saat ini, di satu pihak merupakan konsekwensi dari pelaksanaan otonomi daerah, namun di lain pihak, dianggap sebagai ekses pelaksanaan otonomi daerah, karena sebagian besar produk hukum yang dihasilkan berupa perda yang memungkinkan pemda menarik sebanyak mungkin pungutan untuk meningkatkan PAD. Timbul kesan, otonomi daerah sebagai legitimasi untuk meningkatkan PAD, sehingga ekonomi biaya tinggi tidak dapat dihindari. Jika kondisi seperti ini terjadi, maka penciptaan iklim usaha yang kondusif sebagai prasyarat masuknya investor tidak akan pernah terjadi. Namun langkah pemda untuk membuat kebijakan itu juga mempunyai dasar pembenaran. Di tingkat propinsi, DAU TA 2001 yang diterima Rp75,6 milyar, sementara untuk kebutuhan belanja pegawai dan belanja rutin non-pegawai dibutuhkan Rp229,0 milyar, sehingga terjadi defisit sebesar Rp153,4 milyar. Hal ini terjadi karena pusat dan propinsi tidak memperhitungkan kebutuhan gaji pegawai di 9 eks kanwil (di luar 6 eks kanwil yang telah dilimpahkan ke daerah). Menyangkut dana dekonsentrasi juga masih terjadi kesimpangsiuran karena tidak tersosialisasi dengan baik. Untuk memperkuat basis keuangannya, selain minta tambahan dana ke pusat, ditempuh upaya peningkatan PAD, walaupun untuk itu pemda tidak memiliki banyak ruang. Sementara Kabupaten Minahasa akan menerima DAU Rp260,0 milyar, meningkat sangat signifikan dibandingkan dengan realisasi APBD TA 2000 (setara Rp181,3 milyar). Kondisi demikian tidak mengendurkan semangat pemda dalam menggali sumber PAD-nya. Pada tahun 2000, Pemda Kabupaten Minahasa telah memberlakukan 16 perda retribusi daerah termasuk sumbangan pihak ketiga. Selain itu, pemda memperkirakan ada sekitar 89 jenis potensi sumber PAD yang bisa dikembangkan. Pemda Kabupaten Bolmong juga optimis dapat melaksanakan otonomi daerah dengan baik. Dari DAU sebesar Rp140,8 milyar, setelah dialokasikan untuk belanja rutin ada surplus Rp29,6 milyar. Saat ini upaya peningkatan PAD, masih mengacu pada UU No. 18, 1997. Meskipun demikian pemda telah menyiapkan sebanyak 23 raperda tentang retribusi, yang pembahasannya akan dipercepat agar dapat diberlakukan pada TA 2001. DAU yang diterima Pemda Kabupaten Gorontalo juga cukup besar, yakni Rp148,6 milyar, namun sekitar Rp128,2 milyar dialokasikan untuk belanja rutin, sehingga surplus DAU lebih kecil dari perolehan Dana Pembangunan Daerah (DPD) pada TA sebelumnya. Dengan demikian, beban keuangannya menjadi berat. Pemda membuat usulan ke pusat meminta dana kontingensi sebesar Rp30 milyar. Di samping itu dilakukan upaya peningkatan PAD melalui insentifikasi dan ekstensikasi pungutan daerah, walaupun potensi penerimaan yang ada kecil. Peningkatan PAD ditempuh dengan membuat sebanyak mungkin jenis pungutan. Pada tahun 2000, telah disahkan 37 perda pungutan dan tahun ini akan ditambah lagi 75 raperda tentang pungutan. Orientasi pemda lebih ditekankan pada aspek penerimaan. Dinas-dinas teknis yang diserahi tugas untuk memungut pajak dan retribusi dihadapkan pada dilema antara peningkatan pelayanan versus sebagai 'mesin penghasil PAD'. Dinas lebih memilih sebagai mesin penghasil PAD, untuk menghindari konsekwensi berupa: lepasnya jabatan, dikuranginya alokasi anggaran rutin dinas, atau dinas digabung dengan instansi, dinas, atau bagian lain. Secara umum masyarakat berpendapat bahwa dalam merumuskan berbagai kebijakan publiknya, pemda dihadapkan pada berbagai kelemahan, antara lain: 1) kesulitan dalam menjabarkan kebijakan otonomi daerah terutama menyangkut kewenangannya, hubungan kerja dengan DPRD, jumlah pegawai yang berlebih, DPRD yang arogan, serta praktek korupsi, kolusi dan nepotisme yang terus berlangsung; 2) kebijakan pemda terfokus pada upaya meningkatkan sumber PAD; 3) perumusan kebijakan publik tidak transparan dan tidak disosialisasikan; 4) belum didukung oleh pelaku ekonomi lokal yang mapan, malahan pengusaha daerah cenderung minta diproteksi. Secara umum penilaian berbagai kalangan terhadap pelaksanaan pelayanan pubik masih jauh dari memuaskan, antara lain bahwa: 1) petani belum memperoleh pelayanan tentang informasi pasar komoditi pertanian, 2) pungutan liar masih berlangsung, 3) iklim usaha menjadi tidak jelas, 4) terjadi pungutan yang tumpang tindih, 5) persyaratan tender yang memberatkan, 6) fasilitas pelayanan tidak diperhatikan. Aspek yang dinilai telah mengalami perbaikan antara lain di sektor perikanan dan kontruksi khususnya, proses pengurusan dokumen perizinan berlangsung lebih lancar dan transparan dan keberadaan pungutan liar juga sudah mulai berkurang. Di sektor pendidikan, ada usaha untuk terus meningkatkan kualitas pelayanannya, misalnya di Gorontalo, diselenggarakan siswa binaan khusus dan penyelenggaraan sekolah terbuka. Namun demikian pelayanan di sektor ini secara umum masih dihadapkan pada permasalahan klasik menyangkut minimnya dana, tidak lengkapnya fasilitas sekolah, kekurangan guru (kuantitas dan kualitasnya), serta minimnya partisipasi dari orang tua murid. Persoalan yang paling dikhawatirkan adalah turunnya apresiasi masyarakat terhadap tujuan pendidikan karena tidak ada jaminan untuk segera memperoleh pekerjaan dan makin menurunnya tingkat kesejahteraan masyarakat. SMERU visited North Sulawesi Province and Kabupaten Gorontalo for three weeks in May 2001 as part of an ongoing assessment of the implementation of regional autonomy in selected kabupaten and kota across Indonesia. Respondents included government officials, parliament members, businesspeople, farmers, NGOs, the press and academics. SMERU investigated the implementation of regional autonomy at the provincial level in North Sulawesi and in Kabupaten Minahasa, Kabupaten Bolaang Mangondow (Bolmong) and in Kabupaten Gorontalo of Gorontalo Province. North Sulawesi is strategically located near the Asia Pacific trade centers of Singapore and Hong Kong and this province is rich in natural resources and has strong agriculture and fisheries sectors. This province is also well known for its above average education standards. Government officials are aware of the above strengths of North Sulawesi and the government aims to utilize these strengths to develop the economy. In general, civil society groups in North Sulawesi view the lack of supporting and guiding regulations as the greatest obstacle to implementing regional autonomy. The central government is considered to be making only a half-hearted effort to grant autonomy to North Sulawesi and the provincial government is making only limited efforts to implement regional autonomy because of the absence of instructions from the central government. This lack of initiative by the provincial government is typical of many regional governments across Indonesia. Despite the obstacles to implementing regional autonomy, the provincial and the kabupaten level administrations which SMERU visited had made some preparations for implementing regional autonomy. These preparations include drafting the organizational structures of departments using estimates of the number of positions and personnel that will be needed. The kabupaten level administrations which SMERU visited produced regional regulations between November and December 2000 on the absorption of central government employees into regional government offices. The structure of these organizations however is not yet fixed and may be changed in line with developments in particular regions. One problem with streamlining the structures of government offices is that there are no new provisions for firing or retiring excess government officials, therefore regional governments face the difficult task of having to streamline offices, without reducing the total number of personnel. The merger of central government offices with the provincial government offices means that the provincial government is now responsible for twice as many public servants as last year. There are 3183 central government employees which have been transferred to the provincial level administration1. The provincial government of North Sulawesi now has an excess of staff which presents the administration with a dilemma because reducing the number of public servants is a legally difficult and culturally undesirable step. The option of transferring excess staff to the kabupaten and kota within North Sulawesi is difficult because these administrations have a tendency to reject excess employees. At the core of the issue is "who pays the salaries of additional personnel" with kabupaten and kota governments pointing out that the provincial government has already received an allocation from the central government for the salaries of all the transferred personnel. The Provincial Government of North Sulawesi has however successfully transferred some excess personnel to the new neighboring province of Gorontalo. This cooperation between the two provinces was a great help for North Sulawesi Province. Many, including SMERU, have commented that regional autonomy might allow regional governments to favour their own people in government positions. The issue is known as putra daerah and it is encouraging that this issue did not emerge between North Sulawesi and Gorontalo during the course of the transfer of personnel between these provinces. Although the kabupaten which SMERU visited have a tendency to refuse excess government personnel from the provincial level, there is in fact a shortage of personnel at the kabupaten level. This shortage is particularly apparent in the technical offices of the government where personnel with highly specialized skills are required. The kabupaten have proposed to the province that they will accept provincial level employees, with the condition that the salaries of these employees are paid by the central government or the province. The issue of whether the merged offices will appoint a deputy head or not is being dealt with differently by different kabupaten. In Kabupaten Minahasa, the position of deputy head has been installed to allow officials to gain experience before becoming the head of the office. In Kabupaten Bolmong, only important offices such as the education office and the health office have appointed a deputy head. A problem facing Kabupaten Minahasa, Kabupaten Bolmong is the issue of the status of land office officials. The central government recently took back the authority of regions over land matters and further instructions are needed from the central government on how to deal with the regional land office employees. Most of the legislation from the provincial level parliament concerns increasing regionally generated revenues. Some view this phenomenon as a natural consequence of regional autonomy while others view this obsession with increasing regionally generated revenues as one of the excesses of regional autonomy. There is the impression among government officials that they are justified in increasing regional levies and taxes, despite the fact that this will create a high cost economy. SMERU is concerned that the appearance of new taxes and levies will dampen the business climate and deter investors from North Sulawesi. The criticism that increasing regionally generated revenues is likely to create a high cost economy must be understood in the context of the provincial government having limited financial resources. The provincial government's 2001 budget included a general allocation fund (DAU) amount of Rp75.6 billion. The routine expenses of staff salaries and the delivery of services is Rp229 billion meaning that North Sulawesi province has a deficit of Rp153.4 billion. This discrepancy resulted from the central government's preclusion of salaries for the staff of nine regionally located central government offices which have merged with the provincial level offices. Therefore, the provincial government is asking the central government for additional funding and pursing the limited avenues available for raising regionally generated revenues. The central government provided Kabupaten Minahasa with a 2001 DAU of Rp260 billion which is represents a significant increase from the 2000 DAU of Rp 181.3 billion. Despite the increase in the DAU, enthusiasm amongst the government for increasing regionally generated revenues is high. Sixteen regional regulations on fees for service have already been passed including regulations on private 'voluntary' contributions. The kabupaten level government estimates that there are 89 potential sources of local revenues which can be exploited. The government of Kabupaten Bolmong is optimistic that it can implement regional autonomy successfully. Part of this optimism is caused by a 2001 budget surplus from the central government's DAU of Rp 29.6. The total of the DAU for this kabupaten for 2001 is Rp140.8 billion. Presently the government claims to still defer to Law 18, 1997 which abolished many regional levies and taxes. However the government has prepared no less than 23 draft regional regulations on fees for services and discussions are underway to speed to passing of these laws to allow them to be implemented during the 2001 fiscal year. Kabupaten Gorontalo, within Gorontalo province, also has a surplus in its 2001 DAU. The allocation of Rp148.6 billion from the central government for the DAU is for routine expenditures which are estimated at Rp128.2 billion. The surplus of around Rp20.4 billion in this fund however is less than the total of the regional development funds in this kabupaten's 2000 budget. Because of the absence of development funds from the central government, this surplus in the DAU will be insufficient to maintain development projects in the kabupaten. The kabupaten has therefore requested a contingency fund of Rp30 billion from the central government. Kabupaten Gorontalo has also intensified its efforts to raise regionally generated revenues, despite the limited potential in this area. The kabupaten is attempting to raise regionally generated levies by creating as many levies as possible. In 2000 there were 37 regional regulations regarding levies in Kabupaten Gorontalo. The government plans to pass 75 new laws regarding levies in 2001. The kabupaten governments of Minahasa, Bolmong and Gorontalo seem more concerned with raising revenue than delivering public services. This tendency towards raising revenues is believed to be motivated by the desire of government officials to avoid the negative consequences of: losing their jobs, having the routine budget allocation for their office decreased, or being forced to merge with another office. Civil society groups in the provinces of North Sulawesi and Gorontalo feel that the provincial and kabupaten level governments have several weaknesses which are hindering the efforts of the parliaments at drafting effective public policies. The weaknesses of the provincial and kabupaten level governments are: 1) failure to implement the central government's regional autonomy policy. In particular: issues concerning new authority, the relationship between the administrative government and the parliament, the issue of excess employees, the arrogance of the regional parliaments towards their constituents and the continuing practice of corruption, collusion and nepotism; 2) regional government policies are too focussed on raising regionally generated revenues; 3) The process of making public policy is not transparent and public policies are not accompanied with efforts to inform the public about these policies; and 4) players in the local economy do not yet support the government and some businesspeople have asked for increased security protection for their businesses. Civil society groups believe the delivery of public services by the provincial administrations of North Sulawesi and Gorontalo and the kabupaten administrations of Minahasa, Bolmong and Gorontalo is thought to be far from satisfactory. Some of the main complaints from include: 1) the government is not providing farmers with commodity prices and relevant market information; 2) illegal levies are still common; 3) uncertainty in the business climate; 4) overlapping levies 5) tendering for government projects has been made cumbersome by new conditions; 6) public service delivery points have become neglected. Service delivery in the fisheries and construction sector is thought to have improved. This is evidenced by improvements in the transparency and the speed of processing permission and licensing applications in these sectors and in the decreasing incidence of illegal levies. Efforts are being made to increase the standards of service provided in the education sector. In Kabupaten Gorontalo for example, distance learning services are available for students who live in remote areas. This initiative is operating despite schools facing the classic problems which schools throughout Indonesia face of; insufficient funding, insufficient facilities, shortage of teachers, poorly trained teachers, low participation by the parents of students. A concern is that society will lose appreciation for the value of education. Some already question the value of education because of the number of people with formal qualifications who are unemployed. Sentiments such as these could undermine the welfare of the community. -------- DAFTAR ISI I. PENDAHULUAN
II. KEWENANGAN, KELEMBAGAAN, DAN KEPEGAWAIAN
III. ANALISIS KEUANGAN DAERAH: Dana
Alokasi Umum (DAU)
IV. KEBIJAKAN DAN PELAYANAN PUBLIK
V. KESIMPULAN LAMPIRAN DAFTAR BACAAN |
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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