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The Role of Mass Local Media in the Socialization of Public Policy in Yogyakarta Ane Permatasari Lecturer of Governmental Studies Department at Faculty of Social and Political Sciences, Universitas Muhammadiyah Yogyakarta. Email: [email protected]

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ABSTRACT The objective research make certain concerning the role of mass local media in the socialization of legal action in public policy. The media motive has the prosperity to set an agenda for a particularly issues that is considered necessary by the public. How the media can observe the issues simultaneously with providing space of time for the public to consume, with yield lest the public conscious or aware of these issues, and the public mull important and belief. The method in this research is a qualitative phenomenological. It can be expressed due to a qualitative approach to this characteristics of studies such as having an actual setting, researcher is the key instrument, the data are regularly descriptive, the research aimed at acquiring data delineation that is able to describe the composition and characteristics of the units studied. The results of this study indicate that public policies on gender mainstreaming as stipulated in Decree No. 9/2000 seems on Gender Mainstreaming, in any case, according to the 5 (five) sampled media research - reputed have no requisites that the frequency of mass media rare vicinity virtually non-existent. KEYWORDS: public policy, mass media, Socialization, Gender ABSTRAK Tujuan penelitian adalah untuk mengetahui peran media massa lokal dalam proses sosialisasi kebijakan public. Sebab media memiliki kemampuan untuk menata (mensetting) sebuah agenda terhadap peristiwa ataupun isu tertentu sehingga dianggap penting

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oleh publik. Caranya, media dapat menampilkan isu-isu itu secara terus menerus dengan memberikan ruang dan waktu bagi publik untuk mengkonsumsinya, sehingga publik sadar atau tahu akan isu-isu tersebut, kemudian publik menganggapnya penting dan meyakininya. Metode dalam peneltian ini adala kualitatif fenomenologis. Dikatakan demikian karena pendekatan kualitatif pada penelitian ini mempunyai ciri-ciri antara lain mempunyai setting yang aktual, peneliti adalah instrumen kunci, data biasanya bersifat deskriptif, yaitu penelitian yang bertujuan memeroleh deskripsi data yang mampu menggambarkan komposisi dan karakteristik dari unit yang diteliti. Hasil peneelitian ini menunjukkan bahwa Kebijakan publik tentang pengarusutamaan gender yang tertuang dalam Inpres No. 9/2000 tentang Pengarusutamaan Gender kelihatannya, paling tidak menurut 5 (lima) media yang dijadikan sample penelitian ini – dianggap tidak memenuhi syarat-syarat tersebut sehingga frekuensi pemberitaan di media massa menjadi sangat jarang kalau tidak bisa dikatakan hampir tidak ada sama sekali. KATA KUNCI: Kebijakan publik, Media massa, Sosialisasi, Gender

INTRODUCTION Frequent errors information dissemination of government policies due

to lack of socialization policies on society, the public perception of the guilt impact in the application of government policy. It is necessary for management of the government’s policy agenda setting in management of public information. Communication of public policy, it rarely insane or covered area, not withstanding topics as though these are infrequently obtrusive in an academic research. However, if observed communicate a public policy is not easy along with required strategy by the right communication program. One case of public policy in this country that is less successful communicated policy of energy conversion to LPG fuel. A policy fathom to LPG fuel conversion was greeted with a cold by the public and most resist using alternative energy. The main motive for the rejection was the safety issue in using LPG gas, the level of concern for safety is still excessively high with the number of cases of a gas stove exploded, and this is due to ignorance or lack of information and knowledge to use of gas. The issue of gas prices in order that are considered expensive and not affordable by most people ought grievances under which the product will be created that gas cylinders weighing 3 pounds to the constraints in the implementation of government policy. Compared with the success of family planning program in the Suharto era, the program is communicated with slogan; two children are enough,

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advertising slogan concerted family and contraceptives are extremely popular. The success of this program is to make Indonesia qua a venue for learning other countries to develop their planning programs in the country due to the family planning program is able to suppress the growth rate of population. On other side, the government is required to be more proactive and creative in formulating the strategy of communication with labels governance agenda setting policy. It is strongly associated with the effectiveness of management information related to the management of strategic issues at the local and central in the firing line demanded accuracy of information, completeness and dis-illusory. Alongside the government is also required to realize the important role of public relations and the media in information management policy. Public relation and mass media in the dissemination of government policies need to work together to educate, enlighten and empower. The mass media has terribly important role in the socialization process of public policy. Media has competently to set an agenda for a particular issue that is considered important to public. How the media can show the issues simultaneously with providing space and time for the public to consume, so the public conscious or aware of these issues, and the public consider important and believe. In other words, the issues that are considered important to the public because the media think are basically important. Problems emerge when the facts do not entire think the mass media public policy an important issue newsworthy. When public policy is not socialized properly, it is almost certain that its implementation in government, let alone the general public will not be optimal. For it is necessary to study the role of the media in disseminating public policy to answer the question why a public policy “interesting” for the media while others are not, and how to create a public policy “interesting” for the media. This study focused on the Presidential Instruction No. 9/2000 on Gender Mainstreaming, as a public policy that seems less attractive as an issue for the media message. Several studies have been conducted regarding the use of the mass media, particularly newspapers in informing public policy. One is what is done by Eko Kurniawan in studies analyzing the contents Study of Mass

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Media Coverage About environment Implications of Life and Environmental Management Policy in Bangka regency in 2006. Other content analysis study is ever conducted by Nuryadi (2003). In these studies, Nuryadi more look at the characteristics of the three newspapers namely capital, Kompas, Koran Tempo, and Sinar Harapan in presenting environmental information. Until now there has been no research done to know for sure how the preaching of the gender mainstreaming policy conducted mass media especially newspapers. It becomes its own motivation for researchers to conduct a content analysis of studies reporting studies gender mainstreaming made the local newspaper in the province of Yogyakarta. 1. THEORETICAL FRAMEWORK Media is merely a disseminator of information. The media have a re-

sponsibility to participate actively engage in social interaction and sometimes indicates the direction or lead, and participate in creating relationships and integration. In society, the media moves marked by the spread of power, which is given to individuals, groups, and social classes unevenly. McQuail (1989) mention the media is often seen as an effective tool of power because of its ability to perform one or more of several things such as: attract and direct attention, persuade opinions and assumptions, attitudes affect choices, provide status and legitimacy, define and shape perception reality. One of the commonly used media in shaping perceptions of reality as mentioned above is the newspaper. Newspapers have been used for the dissemination of information. Along with the passage of time, the newspapers not only serve as an information tool, but many of the functions that can be provided by the newspaper. Suwardi (1993: 79) explains that the functions of the newspapers are as follows: a. Functions broadcast information, a variety of information quickly and accurately conveyed by the newspaper. Readers into buyers or subscribe to newspapers because they want to know what information is going on in many places in the world. b. Educational function, newspapers indirectly provide educational func-

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tion on the reader. It can be seen from the material content such as articles, feature and editorial. The content material in addition to providing information also adds weight to the treasury of knowledge the reader though the reader an understanding of each is different. c. Function affects, news in the newspaper indirectly affect their readers, while the editorial and articles can give direct effect to the reader. This effect was originally arising from the reader’s perception of a problem and then forms an opinion on the reader. According Suwardi (1993), generally the content of a newspaper consists of headlines are located on the front page, regular news, opinions rubric, reportage, interviews, features, commercials, short stories, comic strips, and others. All components were mixed together in such a way that the reader interested in reading and a subscriber to the paper. Communication is a process of delivering a message from the communicator to the communicant. Communication process will take place with the involvement of the following elements: source, message, channel, and receiver effects. The roles of the mass media proclaim the required information set forth in Law No. 40/1999 about Press. In Chapter 6 point (a) of the Act declared the public has a right to know what is required and in this case the press agency is obliged to fulfill it. According to Effendi (1993: 33), the newspaper is printed sheets containing statements that occurs in people with these characteristics; publicity (newspaper content is disseminated to the public), periodicity (newspapers published regularly every day, once a week or two weekly), universality (fill in the newspaper of a general nature relating to all aspects of life) and actuality (which published a newspaper about the actual problem). 1. Role of Mass Media For Media and Public Policy Information Spreader The function of the mass media is also regulated in Law No. 40/1999 about Press. Article 3, paragraph (1) of the Act reads: “The national press has a function as a medium of information, education, entertainment and social control”. While the role of the national press as a medium for developing public opinion based on accurate information, accurate, cor-

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rect and control, criticism, corrections, and suggestions on issues related to the public interest and fight for justice and truth stated in section 6 (point c, d, e) of the Act. The depiction of the media function more clearly expressed in Jahi Schramm (1993: 145), he put forward the three functions of the mass media in development: a. Informing about national development, focused their attention on the need for change, the opportunity to bring about change, methods and ways of causing alteration and if possible increase aspirations. b. Helping people participate in the decision-making process, expand the dialogue and keep the information flowing both upwards and downwards. c. Educating people to have the skills. As an agent of social change, according to Rachmadi (1989: 67) newspaper has several tasks that can be done to support the development, namely: a. Expanding the horizon views. In this case a newspaper people know the events that occurred in other countries. b. Focusing public attention with the messages by written. In modern society, the idea of a neighborhood away from those obtained from newspapers and other mass media. In this case the knowledge society began to rely on newspapers and other mass media. c. Growing aspirations. With control of the media, a society can change their lives by imitating what is conveyed by the media. d. Establishing an atmosphere building, through newspapers and other mass media to disseminate information to the public. Newspapers can broaden horizons and build sympathy thinking, concentrating development goals that create an atmosphere of harmony and effective development. Appropriate role, the newspaper can be used to convey information about public policy. Dissemination of information on public policy is urgently needed given the public policy need socialization before implementation so that more people understand that the implementation later becomes optimal. Socialization public policy will also reduce the level of

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resistance in the implementation of the policy, as it is known in the socialization process of the level of public acceptance of the public policy. The newspaper with other mass media proved instrumental to build public awareness of. According Assegaff (1996: 89), writing about the policy in the newspapers is usually in the form of news, features and editorial. According to him, in the news lately is developing a new form of journalism known as the journalistic process. Forms of journalism is not merely preach the facts of an event occurring, but also photographed in depth process that takes place before the events that have been created. 2. Definition of Public Policy Thomas R. Dye (in Thoha 1989: 89), interpret as any public policy chosen by the government to enforce or vice versa (whatever government choose do or don’t). In this understanding, the focus of public policy not only on what is being done by the government, but including also all that is not done by the government. Meanwhile, according to the Winarno Anderson (2005: 76), the policy is a clear course of action and determined by an actor or actors in addressing the problem. The concept is more emphasis on what you do rather than on what is being proposed. Further according to Anderson, the nature of public policy as a course of action can be broken down into several categories, such as: demand charges policy (policy demands), policy decisions (policy decisions), policy statements (policy statements), the results of the policy (policy outputs), and policy impacts (outcomes). The demands of the policy (policy demands), are the demands made by private actors or the state, goes to government officials within a political system. These are demands in order to be urging government officials to take action or not take action on any particular issue. Usually these demands rose by various groups in the community and may range from general insistence that the government should “do something” to the proposal that the government take specific action on an issue. Policy decisions (policy decisions), understood as the decisions made by government officials who authorize or give direction and substance to courses of action public policy. Included in this activity include setting rules, giving executive orders or official statements, announced regula-

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tory rules administrative or judicial interpretation to make laws. Policy statements (policy statements), are official statements or public policy articulations. To this category is the legislative law, commands and presidential decrees, administrative regulations and the courts, as well as statements or speeches by government officials that show the intent and purpose of government, and what to do to achieve those goals. The results of the policy (policy outputs), is a visible manifestation of public policies, the things that actually do (action) according to the decision-making and policy statements. Meanwhile, the policy impact (outcomes) refers to the consequences for the community, whether desirable or undesirable from the action or lack of action by the government. The presence of the media in relation to the policy becomes very important. One of the essential elements of the media are increasingly free and its relation to good governance is the availability of information that is open to the public to show what kind of performance shown by the officials in carrying out their mandate as local governments. Meanwhile, Cunningham said there are several stages in the creation of a policy. He mentions it as a policy cycle. Starting from the stage of the policy cycle to identify problems (identify problems), determine the agenda (agenda set), formulation (develop proposals), support (build support), established a policy in the form of rules (enact law or rule), policy implementation (implement policy), evaluation (evaluate result), and suggested changes (suggest change). According to Cunningham to submit claims within the policy cycle can sometimes be done in a way to pressure through the media. RESEARCH METHODS The approach used in this study is a qualitative phenomenological approach. It is mention that due to a qualitative approach to this study

has characteristics such as having an actual setting, the researcher is the key instrument, the data are usually descriptive, the research aimed at acquiring data description that is able to describe the composition and characteristics of the studied units (Kuncoro, 2003 ). Emphasis on process, data analysis is inductive, and the meaning (interpretation) per event is an essential concern in qualitative research (Bogdan and Biklen, 1998).

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Told phenomenological, because according to the purpose of the study is to describe social events (Dimiyati, 1997), other than that it can reveal the real events in the field, it can also reveal hidden values (hidden value), more sensitive to the information descriptive and trying to maintain the integrity of the object studied (Strauss and Corbin, 1987). This study will examine the role of the five local print media contained in Yogyakarta, namely the People’s Sovereignty, Tribun Jogja, radar Yogya, Bernas and Harjo, particularly in disseminating public policy Instruction. 9/2000 on Gender Mainstreaming is during 2010. RESULTS AND ANALYSIS The mass media are believed to describe the social realities in sharing

aspects of life. Mentation of information or messages (message) of the display, as can be read in newspapers or magazines, heard on radio, seen on television or the Internet has been through a performance-sieve (filter) and a selection of media management for a variety of interests. In presenting the news, the media cannot be separated from its vision and mission. The presence of mass media in social theory cannot be separated from social interaction. This means that the freedom of the press is responsible, want of prudence; intelligence media managers in the market anticipate the reader or audience. In democratic life, the mass media is an important pillar supporting the establishment of democracy. The mass media is a tool or instrument the most effective way to convey the message and form public opinion to build a branding image; it is also the most effective media to oversee the running of the government. Afterward makes the reality of the media are unnatural, mass media serves as a channel of communication is often an extension of interest, both in the interest of the media and outside the media. Basically the media reality and social reality is different, so the news is made in different media also. It’s hard for the media to be neutral because of the interests of various parties. Society itself was not quite understood how to distinguish the reality of what happened. What was aired on television or published in the press often - almost always - regarded as the real events. Independent and objective are two key words that should be the

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“Mecca” every journalist that exist throughout the world, including in Indonesia. A journalist has always maintained that objective acted, balanced and impartial to any interest, but concern over the public’s right to know the truth. Although is independent and objective attitude to reference every journalist, in fact, often there is news of a different display of the same event. The mass media is a manifestation from two institutional forms, namely business organizations and social institutions. The media as an institution is said when the media puts revenue business as one of the main factors to support the mass media, but the media said qua social media when the media acts as an agent that always visionary of public interest as the primary benefit of the original purpose in setting up media. Dualism of institutional orientation seize by the mass media can make media on the side of the road between business and social. The media can not necessarily choose one and leave the other because both of these are substantial of the media itself. The role of public policy preach one in the media is a very important role to bridge and socialize taken by the will government it at the local level and central regions. But other than that, the media also has the authority to proclaim a policy that has been taken by the government. The media have the freedom to choose and which policy you select will be perceived byword or at least will cause polemics in the wider community. This is where the role of the mass media as social institutions and agencies tested. They should be able to position ourselves as a social institution that promotes the interests of the public rather than the interests of others. The media should be a bridge between the government and the wider community, especially regarding public policy isolation with not only relies on the measures considered important or not important because of be in virtually no policy is not important, especially when it comes to the lives of many people. However, ironically nowadays media over public policy preach the polemic in the community alone, especially in case of expressive behaviors by people such as demonstrations or riots, the media will preach about the event.

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Nevertheless, regardless of the interests underlying the appearance of an information or message presented by the mass media may not be denied that at the meeting today with the mass media is not inevitable. Not excessive if the 21st century is called the century of mass communication. The rapid development of information and media communication, both hardware (hardware) and software (software) will bring changes to the role of mere messenger / information. Socialization realizes proactive community in public policy-making process; in this case the role of the mass media is crucial in the development of public policy information to the public, especially in rural communities. Through the mass media, both print and electronic, people get regarding various phenomena of social life and the state, ranging from information about the social, criminal, culture, economic, till with information on politics. The media is also to be an effective means of communication between the government as policy makers and the community. In various stale, mass media is a conduit of information to the public first. The function of education is a function performed by the mass media in providing education to the community, including the development of moral and character education. The information provided to the public gives insight to the community, both the values and norms that can provide awareness to the public about the economic, political, legal, social, cultural and other aspects that essentially information given an empowerment to the community . The media now has developed into a very influential agent of socialization. The factors that led to the selection of the mass media as a medium of socialization among others are: First, the mass media has been so popular in the community and have a range of extraordinary. Secondly, mass media influences of in the formation of public opinion. Third, people rely more on information from the mass media rather than from other sources. It is therefore interesting to observe how a public policy that should be disseminated to the public so that implementation can run optimally, receiving a share in the mass media. These studies are observations of public policy instruction. 9 of 2000 on Gender Mainstreaming and how the policy is socialized through the preaching at five daily newspapers in

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the province of Yogyakarta, the Daily Jogja, Tribune, Radar Jogja, Sovereignty of the People and Bernas 1. Gugon Tuhon News related specifically also mentions instruction. 9/2000 on Gender Mainstreaming as an entire phrase is not found at all in the news at the Daily Jogja during 2010. But when the news related to gender issues, Daily Jogja has a page and a special column associated with the reports. For example, the page style that many women tell inspires, family sheets published pressing, and creative parenting published every Monday. Daily Jogja also formed a partnership with an NGO in Yogyakarta are keen to voice issues of human rights and gender, the NGO Rifka Annisa Women’s Crisis Center to be a partner in the issue. TABLE1. TABULATION COVERAGE OF WOMEN AND GENDER ISSUES IN THE DAILY JOGJA DURING 2011

Sources: Daily Dioleh of Jogja, 2011

The interviewed with Adi Prabowo (Daily Wapemred Jogja, February 15, 2012), submitted that the Daily Jogja Able to lift news are popular among people. Specimen is news about RUUK in DIY. So the Daily Jogja can provide information and a forum of public opinion placehold-

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ers available in rubric aspirations and canopy. Daily news about Jogja is not Contain Instruction. 9/2000 on Gender Mainstreaming, as the Daily Jogja implemented and the policy has so far not led to controversy. Therefore, in preaching Daily Jogja never mentioned or quoted phrase Instruction. 9/2000 on Gender Mainstreaming is qua fraught. Despite news to the issue of gender and women’s is contained in this media coverage during the period of 2010. Daily Jogja always try to stand up and not co-opted by balance the interests of certain political groups, considering the people behind no practical politics and the average businessman and professional backgrounds. Therefore it is not pro to Daily Jogja either party but rather try to get closer to each element of society. Thus is not surprising when the Daily Jogja in 2009 was named by one of the survey related to news, Yogyakarta State University 2009 election, as the independent media terms of reporting about the 2009 elections. Related media framing, daily has Jogja trying to pack / frame according to reporting in the media of empirical facts and try to avoid the tug interests of specific groups. Public policy related cases in Yogyakarta; Yogyakarta Daily trying to be a guard dog (watch dog) issued public policy related to local government in Yogyakarta. For example, the case of budget allocation for Persiba Bantul, which amount to exceed its education budget, always in the spotlight, and many other cases. Besides make the daily portion of news Jogja public policy issues of regionalism in Yogyakarta greater coverage than national issues. So it is not surprising that there is a division in the Daily Jogja Jogja is a special page for news Politian district town in the province of Yogyakarta. In the selection of the news to be published, Daily Jogja is trying to remain neutral, and in favor of the public interest. Daily Jogja is often referred to as the Anti-government newspaper; Daily Jogja is often criticized because of any policies issued by the government. All issues such as politics, economics, sports, education, events, all in accordance with the Jogja Daily realm each rubric. But the Daily Jogja is more widely published interesting event, especially events in the province of Yogyakarta. Daily Jogja managed business, because the press should be able to support them. This is what makes the press must be supported by good management. And that is what The Daily Jogja.

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2. TRIBUN JOGJA The frequency of appearances that has includes news about instruction. 9/2000 on Gender Mainstreaming does not appear explicitly, because the Tribune more preaching women in general. This newspaper is more feminine and women are taste. News about women has having a large enough portion. Supply Tribune published a special section column once a week is smart women, while for column published each day is a byword, tribune’s, and Jogja life. TABLE 2 TABULATION COVERAGE OF WOMEN AND GENDER ISSUES IN TRIBUN JOGJA 2011

Sumber: Dioleh dari Tribun Jogja, 2011

Exposure data in the table above, it can be seen that the words Inpres. 9 of 2000 on Gender Mainstreaming does not exist, or never even appear in full in the news at the Tribune, though the words are related to public policies such as gender, women, and other women did often appear in the news in the daily this. According Febby Mahendra’s son (Interview Editor Tribune, February 8, 2012) in their coverage does not need to include the word instruction. 9/2000 on Gender Mainstreaming of the most important news in the Tribune scented feminist and polite. Comments like that make social-

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ization instruction. 9/2000 on Gender Mainstreaming in the media to be not optimal, because of the notion of public policy is not necessary shown intact as a public issue. SKH Tribune has Media Politics Jogja. Tribun Jogja the only daily in Yogyakarta who has diversities with newspapers in anticipation which further highlight of masculinizes. Tribune offers a distinction that further highlight the themes are more feminine. Products Tribun Jogja more women serving tested, and reviews are Tribun Jogja was more referring to the human interest. Then Tribun Jogja has a target market targeting of areas of profit oriented/business is more focused on the reader in the category they are upper middle class. This is consistent with the purpose of Tribun Jogja itself that they suggest a conceptual and contextual Tribun Jogja serve more easy and simple to understand. SKH Tribun Jogja is one of the media families. Politics Tribun Jogja media oriented slogan or line of text that reads “New Spirit DIY-Central Java.” With the new spirit is then directly Tribun Jogja required developing actual news well. Tribun Jogja is one of the many papers that discuss women, because Tribun Jogja claims as one of the feminist newspaper. In connection has the lack of news - even nonexistent - about instruction. 9/2000 on Gender Mainstreaming, make it a goal to establish Tribun Jogja image as the newspaper in favor of women into something that seems contradictory. Based on the interviewed with Mahendra Febby Son (Chief Editor of the Tribune, February 8, 2012), it can be concluded that the media is considered in a news media, usually there is a public policy that is often raised or interesting and always preached. But there is also the possible public policy had never preached or uninteresting. In this regard, given that there is also pulling a public policy for the media, often because the policy did not touch the interests of many people. Typically, public policy relating to the public interest would be of interest to the media spotlight, for example about health insurance for the poor. A policy can be popular and unpopular depending on how the policy was published. In order for public policies that can be popular then there are several aspects that must be considered, among other policy manu-

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facturing aspects, in terms of the substance of policy making and policy delivery to the community. With these three aspects of the DAPT concluded that a third fill policy aspects will be a popular. Apart from these three aspects, the policy should be touching the interests of many popular people or society at large. Because public policies related to the public will be in focus for the media and get high coverage value to be loaded. For Tribun Jogja, a policy which is not attractive materials is still no solution to become the media spotlight, with packaging socialization unique and creative. Then the needs to be coordinate between the government and the mass media to disseminate public policies such. And this is what the government should do Instruction. 9/2000 on Gender Mainstreaming is a one or a public policy that is not popular. Instruction 9/2000 on Gender Mainstreaming is a public policy that is not popular and rarely published in the media because the media Assume that the new policy is good in theory and discourse stage, and cannot be optimal in the implementation stage. Popularity of a policy is not only seen from stage theory and how the policy was developed in the discourse, because it is not limited to the capacity of the mass media disseminate the articles or a polemic about the policy, but rather to criticize public policies as a form of control over the implementation of a policy (Interview with Febby Mahendra’s son (Editor Tribune, February 8, 2012). 3. RADAR JOGJA Frequency Coverage has Instruction 9/2000 on Gender Mainstreaming in Radar Jogja. Based on the analysis of the issue of Radar Jogja during 2010, never even ran a story on Radar Jogja Instruction 9/2000 on Gender Mainstreaming as a whole. During 2010, these words never appeared as a whole phrase. Nevertheless, in a cluster, Radar Jogja for issue in 2010 is sometimes raised issues concerning women and gender issues. This can be shown by the data listed in the table below. (see Table 3) Tabulation of the data in the table above, it appears that the preaching Radar Jogja less interested in gender issues. This is indicated by the very rare news related to gender issues. ‘This study does not describe whether there is a significant effect or not, but the facts obtained in the field of

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TABLE 3 TABULATION COVERAGE OF WOMEN AND GENDER ISSUES IN TRIBUN JOGJA 2011

Source: Adapted from Radar Jogja, 2010

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human resources in SKH Radar Jogja most are male. From the number of employees is 66 people, 50 people were male and the remaining 16 people were women. Is this then affects the published news and making the news in the newspaper is a masculine, more research is needed on gender perspective employees Radar Jogja. SKH Media Political Radar Jogja. According to Law no. 40/1999 on the press that upholds transparency, the public policy set to be presented to the public so that they know will be a policy that has been issued by the government. And the media in this case has a big hand to deliver the policy publicly. For example: on budget, in this case the media highlighting every policy implementation and the use of state funds to prevent fraud. But in this case SKH Radar Jogja continues to consider any policy decisions for government socialized or not, by looking at the impact of public policy has on people’s lives. And for public policy that was presented to the audience, each development will continue to be monitored to detect fraud or not. Government has a significant role in disseminating a public policy because the media cannot possibly know the policy if there is no notice of the government. If the media too did not know the policy in detail and this can lead to confusion in the news. For now, that role is carried out by the government, because the government often invited journalists at a predetermined policy through press conferences and so forth. Usually the government is socialized the public policy through the electronic media in the form of advertising. Then the media reported the issue public. According to the Chief Editor of Radar Jogja Abdi D. Noor (Interview, March 25, 2012), as a public policy instruction 9 of 2000 on Gender Mainstreaming is actually pretty good because it gives the opportunity for men and women to have the same opportunity to participate, control and gain access to all development activities. However, the implementation of this policy as discourse only, not implemented optimally by existing governments and stakeholders, and the lack of real socialization of government so that only a few among the first to know. Therefore, the policy should be implemented optimally, so it looks real and the media can view the resulting changes to further preach the changes that happened.

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Political media used by SKH Radar Jogja is spreading the news that more emphasis on the impact that the addition of a story by looking at other considerations. In this way is expected to attract audiences to read the news in SKH Radar Jogja. In the use of any language SKH Radar Jogja more utilized the language of the educated were at least high school graduates. This is because the main target of the target readership is people, and the educated upper middle class economy. In terms of carrying out its role in the dissemination of a public policy, SKH Radar Jogja will socialize if it matters and have a broad impact for the audience. Having socialized so in this case SKH Radar Jogja will escort him and see how this develops in the community, taking into account whether there deviation the implementation of the policy. If something like this happens the media will expose and criticize the policy of the government in the implementation process and government accountability. This is done as a function of control-owned media. Relation to the news, SKH Radar Jogja always considering that some of the criteria in exposing viable news disseminated to the public, namely: a. Magnitude, namely how widespread the effect of an event for the audience. Example: The news of rising fuel prices affects the wider community throughout Indonesia rather than the news about the earthquake in Central Java. Or news about the conversion from kerosene to gas greater influence than flash floods in Papua. b. Significance, i.e. how important the sense of an event for the audience. Example: news for the citizens of Yogyakarta cold lava is more important than the news of a corruption case Nazaruddin. c. Actuality, the actuality of an event level. Example: the news of the defeat of the Indonesian national team very interesting read on 21 November 2011, but a week later will not pull anymore and already stale. d. Proximity, the closeness of the events to the audience. Example: for the people of Yogyakarta, the news about the earthquake in Yogyakarta more interesting than the news of the earthquake in Bali. e. Prominence, the familiar story with audiences. Example: the news of Indonesian Idol will be more familiar to teens Indonesia rather than news on the crease crease-luxury hotels in Jakarta. f. Human Interest: the ability to touch the audience the feeling of human-

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ity. Example: news Nirmala Bonet, who abused maids in Malaysia, the demand by the general public because it contains a high value of human interest. Or news of the beheading of Indonesian maids in Saudi Arabia. The foregoing is what being a consideration of SKH Radar Jogja to issue or not to display a message. The above considerations are also a basic reference SKH Radar Jogja important in determining whether or not a message. Important point here is whether the news or do not have a significant impact on the community. A word is not considered important by the media especially SKH Radar Jogja because less have a significant impact on the audience (Interview with Arif Syukron Muttaqien, 2 April 2012). Related to the issue of Presidential Instruction No. 9/2000 on Gender Mainstreaming, SKH Radar Jogja had never expose public policy because it less attractive and do not have a significant impact on society. But the news about the gender and women’s issues actually still get their share in the mass media, for example the provision of special carriages for women in order to reduce sexual harassment. Things like - according to the editors of SKH Radar Jogja - more attractive for distribution to the public. 4. KEDAULATAN RAKYAT Frequency has Coverage instruction 9/2000 on Gender Mainstreaming in the Sovereignty of the People. Based on Table 4 below presented data on how often the Sovereignty of the People’s Daily or socialize includes matters relating to Presidential Decree No.. 9/2000 on Gender Mainstreaming and other matters related to gender and women’s issues. (see table 4) Tabulation of the data above shows that Presidential Decree No. 9/ 2000 on Gender Mainstreaming is not a popular issue in the Sovereignty of the People’s Daily. This is evident from the lack of news about the public policy. Even as a complete phrase, instruction 9/2000 on Gender Mainstreaming never appeared even in the Sovereignty of the People in 2010. Sovereignty of the People’s Daily just preaching the things concerning

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TABLE 4 TABULATION COVERAGE OF WOMEN AND GENDER ISSUES IN THE PEOPLE’S

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Source: Adapted from the Sovereignty of the People, 2010

gender is when the problems of interest to the public related to gender mainstreaming. According to the Sovereignty of the People themselves, they will preach the things that are considered interesting and important, especially when it comes to the lives of many people. It is also the underlying reporting about gender in the People’s Sovereignty. Sovereignty of the People’s Daily will proclaim gender issues if at the time it is occurring cases or issues related to gender. Daily and People’s Sovereignty claim no gender bias. Independent attitudes have preached anything about gender. No gender differences or alignments indicated by the People’s Sovereignty in any preaching (Interview with the Saints, PR SKH Sovereignty of the People, December 19, 2011). SKH Media Political Sovereignty of the People. Political Sovereignty of the People-oriented media bias people / large society, according to the People’s Sovereignty itself slogan is “People’s Conscience”. Based on all forms

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of government policies doesn’t favor the society constantly criticized by the People’s Sovereignty. Media framing associated with the People’s Sovereignty instruction 9/2000 on Gender Mainstreaming, Sovereignty of the People always try to avoid gender discrimination in social, economic and cultural. Based on the interview with one of the managing editor at the People’s Sovereignty, Hudono (Interview, December 19, 2011), revealed that the mass media is one most effective means to communicate or publish a public policy issued by the government in order to know, understand and can be implemented by the people. In this case the mass fork has a strategic role that the media is one source of information accessible to the people / communities, especially in modern times like these people must expect to access information easily, efficiently and affordably. In this case the People’s Sovereignty is neutral and it is not politicized by anyone. The processed of delivering news in terms of benefits to the community. At the time the government issued a policy, the People’s Sovereignty will filter prior to be delivered to the public. In the People’s Sovereignty News Room where there is also a place of deliberation People’s Sovereignty media crew consulted to determine the news to be published to the public. 5. DAILY MORNING OF BERNAS JOGJA Frequency has Coverage instruction 9/2000 on Gender Mainstreaming in the Daily Morning Bernas Jogja. In Tabel5 below will be presented data on how often Daily Morning Bernas Jogja containing or disseminating matters pertaining to Presidential Decree No. 9/2000 on Gender Mainstreaming and other matters related to gender and women’s issues. The lack of coverage of Presidential Decree No. 9/2000 on Gender Mainstreaming in the Daily Morning Jogja Bernas during 2010 indicates that this newspaper argued, public policy issue was not considered sexy enough to be displayed in the message. In the submission of new information by the mass media, should have a uniqueness contained in such information and have a benefit to the community. However, this principle is not owned by Presidential Decree No. 9/2000 on Gender Mainstreaming gender equality is not an issue

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TABLE 5 TABULATION COVERAGE OF WOMEN AND GENDER ISSUES IN THE DAILY MORNING OF BERNAS JOGJA DURING 2010

Source: Adapted from The Harian Bernas, 2010

because the public are popular, and most people do not seem to care about this issue of equality. Actually there is nothing for the media to proclaim something popular and selective in reporting an event or a policy. However, the media reported in accordance with the capacity of community benefits either. In the preaching of an event, the media also have to filter all the information obtained by Journalists in accordance with the principle of screaming, that is interesting, clear and efficient. After that there is a process that determines the siding editorial roommate’s news should be published by the media. For public policy is already unpopular, the media did a news with a new perspective. The context is different but with the same content. To achieve this, the media should have the sensitivity to variables related to public policy in order to preach well. Daily Morning Bernas Yogyakarta as one of the print media in Yogyakarta has and implements a series of policies in relation to media politics and media framing. Daily Morning policies issued Bernas Jogja incriminating policies that have such a policy because the existing portions respectively. Daily Morning Jogja example Bernas never dared to hide the events that have occurred. However, if the news is still to be processed will be published in advance and also refers to the journalistic procedures, with reference to the principles of media law, namely: a. The principle of freedom of media. The principle of freedom of the

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c. d. e.

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media is related to the function of the media is to inform, to educate, and to influence. The principle of anti-censorship. On this principle if the news is out, should not be censored by outsiders. Media should not be issued news without relying on facts and data. The principle of social responsibility. In principle, there are restrictions on the social responsibility and responsibility to the community The principle of professional protection. In principle, all the people in the media as journalists are protected professions. The principle of the protection of individual rights. In principle this happen pad sources. Informant protected rights of individuals and the media should not bring personal matters disclosed to the public.

CONCLUSION Socializing a public policy is not easy because they have to cover so

much so that the audience needs help from others. In this case are the media - print and electronic - roommates having wide coverage and the closeness to the audience has the remarkable ability to help the process of socialization. But in the process, the media has called the media framing of how to package the news media based on interest and political coverage in the media. This then raises the fact that there are times when judging a news media was very popular for those that will be preached continuously, but there is also less popular news they said that did not enter into the category of news that deserves to be appointed or reported. Preaching popular public policy concerning the public policy is usually defined because it is interesting and has a significant impact on people’s lives so that in practice bring new things that have never been experienced by the positive or negative, so the media needs to be proclaimed with a view of the development . A public policy is also interesting media to publish them when public policy was a way out of a problem. Things like this is interesting enough to be published and be popular especially those policies effectively and efficiently. Another thing that makes a public policy have a high news value is when the policy is causing controversy in the community.

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Public policy on gender mainstreaming as stipulated in Decree No. 9/ 2000 on Gender Mainstreaming seems - at least according to the 5 (five) sampled media research - they do not meet the requirements so that the frequency of mass media to be very rare if not virtually nonexistent. Based on research in the sampled media research, there are at least 5 (five) reasons were found to be the cause: 1. Instruction 9/2000 on Gender Mainstreaming is not a public policy interest. 2. Public policy is not considered to have a significant impact on society 3. Public policy has no value to society 4. Have not seen a real implementation of the government and relevant stakeholders 5. If possible it is implemented; the implementation runs mediocre without causing more impact to the community so that the media are less interested to preach. In disseminating a public policy in the media should pay attention to some things that public policy has a high value so that the news media interested in news lifted them, namely: 1. Ensure that the policy has added value to the community 2. The policy should have a significant impact on society 3. The policy has been implemented by the government as well as significantly relevant stakeholders 4. The policy has closeness with the community and became a public issue. 5. When a public policy had already become an issue that is not interesting, it should be able to make it interesting is to pack the unique socialization and creative. REFFERENCE Assegaff, D.H. 1996.Jurnalistik Masa Kini: Pengantar ke Praktek

Kewartawanan Indonesia. Jakarta, Ghalia Indonesia. Badjuri,Abdulkahar.,Yuwono,Teguh.,2003.Kebijakan Publik Konsep dan Strategi. Semarang, Universitas Diponegoro. Devito,Joseph. 1996. Komunikasi Antar Manusia, Edisi 5 (alih bahasa

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Maulana A). New York. Harper Collin Publisher. Effendi, O.U. 1993. Dinamika Komunikasi.Remaja. Bandung, Rosdakarya. Jahi, Amri. 1993. Komunikasi Massa dan Pembangunan Pedesaan di Negaranegara Dunia Ketiga. Jakarta, Gramedia. McQuail, Denis. 1989. Teori Komunikasi Massa. Jakarta, Erlangga. Rachmadi, F. 1989.Perbandingan Sistem Pers.Jakarta, Gramedia. Suwardi,H. 1993. Peranan Pers dalam Politik di Indonesia, Jakarta, Pustaka Sinar Harapan, Thoha, Miftah. 2002, Dimensi-dimensi Prima Ilmu Administrasi Negara. Jakarta, PT. RajaGrafindo Persada. Winarno, Budi. 2005. Teori dan Proses Kebijakan Publik.Jakarta, Media Pressindo.

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The New District of East Belitung: the Review Poliferation Process Hendri Yani Secretary Regency Staff of East Belitung, Bangka Belitung Province. Email: [email protected]

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ABSTRACT The regional autonomy conducted in many functions of government. One of its forms is proliferation of region. The aim of this study was to overview the proceed of proliferation in East Belitung District. This research was a qualitative research consisted of two main techniques to collect the data; they were interview and secondary data from documentations. The findings show that there were ten steps to create the new East Belitung District. The steps started from the preparations of local’s planning and administration to the final steps in the hand of national parliaments. This study found that the number of local government in Indonesia has increases, and the process at the central government level seem relatively easy. But, the eligibility criteria being compromised. Then, the political will from communities were not clear mention. Also there was a conflict interest between local government and central government in the feasibility study for proliferation in Belitung District. It concluded that we could not deny that political intervention in the bureaucracy has facilitated the formation of East Belitung districts. Keywords: proliferation, East Belitung ABSTRAK Otonomi daerah dilaksanakan dalam berbagai fungsi pemerintah. Salah satu bentuk nya adalah pemekaran daerah. Studi ini bertujuan untuk mengetahui proses dari pemekaran daerah baru yaitu Kabupaten Belitung Timur. Penelitian ini merupakan penelitian kualitatif yang teridiri dari dua teknik dalam pengumpulan data, yakni interviem dan data sekunder dokumentasi. Beberapa temuan dalam studi ini menjelaskan bahwa ada sepuluh langkah

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dalam pembuatan Kabupaten Belitung Timur. Hal itu dimulai dari persiapan atas perencanaan dan administrasi di ranah lokal sampai pada proses terakhir yakni pengambilan keputusan parlemen tingkat nasional. Studi ini menemukan bahwa pembentukan daerah baru di Indonesia meningkat, dan proses yang terjadi di pemerintah pusat terlihat relatif mudah. Tetapi kriteria persyaratannya dapat dikompromikan. Kemudian, keinginan politik dari masyarakat tidak disebut secara jelas dalam proses tersebut. Ditemukan juga bahwa terdapat konflik kepentingan antara pemerintah lokal dan pemerintah pusat terkait dengan studi kelayakan pemekaran Kabupaten Belitung. Penelitian ini menyimpulkan bahwa kita tidak dapat menyangkal adanya intervensi politik dalam birokrasi yang memudahkan pembentukan Kabupaten Belitung Timur. Kata Kunci : Pemekaran, Belitung Timur

INTRODUCTION Decentralization, a set of policies that includes financial, political, and

administrative changes, can affect virtually all aspects of development. It is the delegation of authority and responsibility to perform government functions, i.e. from the central government to lower level, quasi-independent government organizations, or the private sector. Therefore, according to Iwan J Azis (2008), decentralization is not about weakening central authority. The primary goal is to make local government become more responsive to the needs of local people. Indonesia has used decentralization as one way to reduce the extent of the disparity in development between regions and to promote regional development (Suahasil Nazara, 2007). These efforts were in improving public services in order to stimulate regional economic development, including management of potential growth areas, the realization of social welfare, and the provision of public education at the local level. The intention was to accelerate the growth of democracy by the creation of regions. The Indonesian government enacted two key laws, Law no. 22/1999 on Regional Government and Law no. 25/1999 on Central-Local Fiscal Balance, and put in place the technical regulations stipulated in Government Regulation (Peraturan Pemerintah, also known is PP) No. 129/ 2000 concerning Establishment and Criteria for Division, Dissolution and Merging of Regions. Implemented in 2001, Indonesian decentralization policies were characterized by proliferation (also known as pemekaran), the rapid creation of new jurisdictions across the various levels of subnational governments. Before execution of the policy, there were 249

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districts, 65 cities and 27 provinces. At the end of December 2007, the numbers had risen to 370 districts, 95 cities and 33 provinces. The implementation of decentralization is not without its problems, as some obstacles appear to follow along with local practices of decentralization. Decentralization in Indonesia is commonly known as ‘regional autonomy’ (otonomi daerah). The arguments that attack its poor design and preparation of the laws causing serious flaws of the decentralization laws were the primary causes of the emerging problems. Amongst others, that said that the decentralization laws did not take into account the inequality of regions’ capacity, so they cannot be imposed effectively, and conversely it creates perverse effects, especially for poor and less developed regions. The pro and contra the division and creation of new autonomous administrative regions increased with the rapid increase in the number of autonomous regions each year. For the group pro then proliferation is the best way to address a range of government authority for improving public services. The contra considers that the proliferation does not carry change significantly to the welfare of society and is the “euphoria” decentralization and purely political. Brodjonegoro (2009), the proliferation of territories was causing harm, so if this trend was not stopped, the decline of community service would take place instead. FIGURE 1: NUMBER OF PROVINCE, DISTRICTS AND CITIES 1998-2007

Note: A reduction in the number of provinces in 1999 due to East Timor Independence, and the Law on Papua proliferation into three provinces (stipulated in year 2000) were abolished in 2001 Source: Research Result (base on DSF, 2007, BAPPENAS-UNDP, 2008 and BPS)

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Issues arising from resultant proliferation of regions have been examined in several studies, including the Institute of Public Administration (2004). This study explained that a regional development strategy should be conducted with early studies not only about the feasibility of an area that will be established, but also the impact that will be generated in the parent district. These things need to be considered in order to avoid the increasingly obvious differences between the main areas and the new areas. The Indonesian National Development Planning Board (Badan Perencanaan Pembangunan Nasional, BAPPENAS) in cooperation with United Nations Development Program (UNDP), explained that in the five years that the policy has been implemented, the first or “parent” regions consistently showed better results in all areas of concern compared to the new autonomous regions. Then the group suggested the need for a preparatory period for transfer of personnel and for local economic and governance infrastructure to be established before proceeding with administrative division. Poverty was also relatively high in the new autonomous regions despite the trend of decline elsewhere in the country. Moreover, as measured by GDP per capita, the new regions were left behind compared to the level of welfare in the parent district. Qibthiyah Studied (2008) reported that the education and health outcomes estimations provide mixed results within the treatment group. The findings shed light on the current practice of administrative or political decentralization, specifically on the competing local-central preferences within each sector on measured service delivery outcomes. The research showed improvements in education outcome in new local governments, represented by a reduction in the dropout rate. However, there was no positive change in the quality of education in terms of students’ tests scores even though there are relatively higher conditional grants allocated to the proliferated local governments. Meanwhile, in terms of the infant mortality rate, the evidence of improvement in the infant mortality was found on the originating local governments but not on the new local governments. Several previous studies were conducted to assess the effect of the proliferation of regional policy itself, but this study will investigate and enhance previous research by examining the process of proliferation with

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the focusing study in East Belitung District. The East Belitung districts was inaugurated in 20031, in accordance with Law number 22/1999 and PP number 129/2000. THEORITICAL FRAMEWORK As part of the practical implementation of Law no. 22/1999 Decem-

ber 2000, the Government of Indonesia issued Government Regulation no. 129/2000 on Establishment and Criteria for Division, Dissolution and Merging of Regions, which gives local governments the right to apply for the creation of new regions. Since 2001, the National Parliament (Dewan Perwakilan Rakyat, DPR) has approved the creation of 115 new districts and cities, thereby increasing the total number regions in the country from 366 to 484 in the span of just six years (DSF, 2007). A. Definition of Proliferation Proliferation is a division of one administrative area into two or more areas. The division involves regions all over the country and the subsequent regional population becomes much smaller. At the province level, this produced a pattern of one province dividing into a new province and a mother province. While, at the district level there were several patterns. First is from one district to one new district (new autonomous district) and a mother district; second, from one district into a new city and mother district; and third, from one district to two new districts and one mother district. The purpose of local government institutions is to provide efficiency service delivery by incorporating heterogeneous preferences to better suit the local needs, while eliminating or by reducing any geographical constraints. As revealed by McGuire (1991) and Oates (1972, 1999) in Qibtiyyah (2008), this point is largely based on a theory of fiscal decentralization that posits that smaller governments have more effective and more efficient administration. The definition of local government formation in Indonesia follows Government Regulations no. 129/2000. Jurisdiction formation is defined as any change in political administration status that involves changes in the structure of one’s jurisdiction. Government Regulation no. 129/ 2000 states the creation of new sub national governments (i.e., district/

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city or province) can take the following forms: (1) Districts/Cities secede from one province to form a new province; (2) division of one district/ city into several new districts/cities; (3) creation of one district/city from two or more existing districts/cities. Still according to Qibtiyyah (2008), the formation of new sub national governments was typically a result of the division of an existing province, district, or city, as in type (2) from one district into a new city and mother district. No amalgamations occurred at the district/city or province levels of government as in the type (3) from one district to two new districts and one mother district. Amalgamation, which is defined as the merging of two or more local governments, only occurred at the lowest level of government (i.e., the village). The creation of a new region has two steps (DSF, 2007) 1. Proliferation (pemekaran): an area splits off from an existing region (parent region) 2. Creation (pembentukan): the split-off area gains the status of regional government. Furthermore, in practice, it is not possible to construct a new region government without first splitting off an area from an existing region. In other words, the creation of the new area always requires that both steps be taken. B. Objective of Proliferation Based on Article 2 Chapter 2 of Government Regulation no. 129/ 2000, the overall objective of administrative restructuring of regions (including pemekaran) is to increase public welfare. To achieve this goal, there must be the following: 1. Improvement of public service delivery 2. Acceleration of the growth in democratic life 3. Acceleration of regional economic development 4. Acceleration of the management of regional resources 5. Improvement of security and discipline 6. Improvement relations between the central government and the regions

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C. Present State of Proliferation in Indonesia The creation of a new autonomous region began to grow rapidly since Law no. 22/1999 on Regional Government and Law no. 25/1999 on Fiscal Balance between Central and Local Governments. Before these two laws were applied, number of autonomous regions was 249 districts, 65 cities and 27 provinces. At the end of December 2007, the numbers were 370 districts, 95 cities and 33 provinces. This rapid development related to the impact of decentralization on the devolution of authority from the central government to local government. The creation of a new autonomous region prior to 1999 was decided by the central government with a long preparatory phase. According to Tarigan (2010), the planning stage includes the complete development of all government infrastructures and the reallocation of human resources from the central government. The emergence of regional economic growth and a politically dynamic society go into the assessment before the area was determined to be eligible for autonomy. The authority of the central government did not allow for many social or political upheavals in the region. Since 2001, the first year of implementation of Government Regulation no. 129/2000 and Law no. 22/1999 and Law no. 25/1999, the creation of a new region should be initiated by the local government (province and district/city) from which the region would be split off. Law, no. 22/1999 allows for the division of an area providing it meets the criteria for economic capacity, regional potential, population, area, and other considerations that enable the implementation of regional autonomy. Further criteria stipulated in Government Regulation no. 129/ 2000 detailed 7 criteria, 19 indicators and 43 sub-indicators of eligibility for autonomy. An area is said to “graduate” into an autonomous region if the parent district and the candidate district have a total score equal to or greater than the minimum passing score; and it is said to “fail” if more than half of sub-indicators score value 1 (lowest score). Based on studies by as Fitriani (2005) in Tarigan (2010), proliferation occurs for various reasons. First, historical ethnic ties create social bonds. Second, there are fiscal incentives to form a new automonous region. Local governments have greater authority to control their budget, and

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the creation of the new districts results in larger transfer of funds from the central government to serve the same population. This includes financing from the central government in the allocation of funds for local civil servants and employment opportunities through the increased number of staff positions for local government. Third, bureaucratic and political rent seeking. Fourth, newly created local governments may be closer situated to the population that they serve resulting in better service delivery. For the reasons mentioned above and according to a study by Decentralization Support Facilities (DCF, 2007), the process of proliferation can be categorized in the following manner: 1. Before 1999, new regions were created at the initiative of the central government in order to increase administrative efficiency. The majority of new regions were created for ‘functional’ reasons, mainly by splitting off a city from a district which was based on assumption that an urban district requires a different mechanism than rural area; 2. After the downfall of the Soeharto regime (1999-2000), at the peak of the monetary crisis, the Government approved the creation of 4 new provinces and 41 new districts. Almost regions were in resource-rich parts of country that were seeking a larger share of revenues from the exploitation of natural resources (mainly oil, gas and forestry). However, many other new districts and cities were formed in the relatively resources poor provinces of Sulawesi, Papua and Maluku. Unlike Java and Bali, where very few new districts have been created since 2001, these regions are culturally and ethically diverse. So, political factors have driven the creation of these regions; 3. Since 2000, the Government has also created seven new provinces, three of which were formed since 2001. There were Maluku Utara Province split off from Maluku Province; Banten Province split off from Jawa Barat Province; Kepulauan Bangka Belitung Province split off from Sumatera Selatan; Gorontalo Province split off from Sulawesi Utara Province; Irian Jaya Barat Province split off from Papua Province; Kepulauan Riau Province split off from Riau Province; and Sulawesi Barat Province split from Sulawesi Selatan Province; 4. From 2001 to the present, the creation of a new region was initiated

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by local government. During the 2001-2003 periods, the National Parliament approved the creation of 98 new districts and cities. By contrast, only 15 new districts were created during 1990-1998. FIGURE 2: NUMBER OF NEWLY CREATED DISTRICT GOVERNMENT, 1999-2007

Source: DSF, 2007 FIGURE 3: NUMBER OF NEWLY CREATED PROVINCIAL GOVERNMENT, 1999-2007

Source: DSF, 2007 TABLE 1: GEOGRAPHICAL DISTRIBUTION OF NEWLY CREATED DISTRICTS, 1990-2005

source: DSF, 2007

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RESEARCH METHODS The research will consist of two approaches. First, a conceptual frame-

work of proliferation based on existing literature. This framework will help to analyze the proliferation process in Indonesia. Second, to generate empirical data from the field, interviews were done with local government officials and former members of creation committee to prepare East Belitung District. The author used secondary data which come from such as the National Planning and Development Board (Badan Perencanaan Pembangunan Nasional - BAPPENAS), Decentralization Support Facility (DCF), the State Administration Bodies (Lembaga Administrasi Negara-LAN), the Regional Planning and Development Board (Badan Perencanaan Pembangunan Daerah – BAPPEDA), and Central Bureau of Statistics of Belitung District (Badan Pusat Statistik – BPS). RESULT AND ANALYSIS A. Local Conditions

Law no. 22/1999, Article 5 Paragraph (1) states, “Local government forms the basis for consideration of economic capability, regional potency, society, culture, politics, population, area, etc that enables the implementation of regional autonomy.” The central government also has set Government Regulation no. 129/2000 regarding Establishment and Criteria for Division, Dissolution and Merging of Regions. Such regulations stimulate the spirit and aspirations of the communities of the Belitung Islands that are represented by religious leaders, traditional leaders, education and youth organizations, and NGOs to expand Belitung District into two districts. There was hope that they could improve the welfare of their society through their own efforts. Before proliferation, Belitung District was one of the districts in Bangka Belitung Islands Province with an area 4,800.600 Km². As an archipelago region, Belitung District consists of 189 big and small islands. In terms of administration, Belitung District consists of nine sub-districts (known as kecamatan), Tanjungpandan, Membalong, Badau, Sijuk, Selat Nasik, Manggar, Gantung, Kelapa Kampit, and Dendang. Through division into two districts, Belitung district would split thus: 1. The mother district (Belitung District) would consist of five sub-dis-

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tricts with 40 villages and the area 2,293.69 km². The sub-districts of Belitung District are Tanjungpandan, Membalong, Badau, Sijuk and Selat Nasik with the district capital in Tanjungpandan. 2. The candidate district (East Belitung) District would consist of four sub-districts with 29 villages and the area 2,506.91 km². The sub-districts of the candidate of East Belitung Districts are Manggar, Gantung, Kelapa Kampit, and Dendang with the district capital in Manggar. Based on the results of population registration at the end of the year 2000 (Central Bureau of Statistics, Biro Pusat Statististik, BPS of Belitung District, 2001), the number of residents in Belitung District is 126,948 (64,543 males and 62,405 females). The total population was divided into 30,088 households with an average of 4 people per household. For the candidate East Belitung Districts, the population at the end of 2000 was 84,169 people (43,292 males 40,887 females). The population was divided into 19,948 households with an average of 4 people per household. Concerning the availability of educational facilities, Belitung District has facilities for elementary and secondary school level (junior high school and senior high school). At the basic education level, there are 131 primary schools (Sekolah Dasar, SD). At the junior high school level (Sekolah Menengah Pertama, SMP), there are 19 schools, and at the senior high school level (Sekolah Menengah Atas, SMA), there are 12 schools (Table 2). TABLE 2. THE NUMBER OF SCHOOLS IN BELITUNG DISTRICT (MOTHER DISTRICT) IN 2001

Source: BPS of Belitung District, 2002

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The health care facilities are available free to the public in Belitung District. There is one hospital, seven-community health centers (Pusat Kesehatan Masyarakat, Puskesmas), two clinics, and six dispensaries (Table 4.2). There are 152 medical personnel and paramedics, consisting of eight doctors, 44 midwives, 50 nurses and 50 other health workers supporting the health facilities. TABLE 3. THE HEALTH FASICILITIES OF BELITUNG DISTRICT (MOTHER DISTRICT), 2001

Source: Regional Planning and Development Board of Belitung District, 2001

Meanwhile within the candidate of East Belitung District, there are also educational support facilities ranging from elementary to junior high school and senior high school. At the basic education level, there are 107 primary schools (Sekolah Dasar, SD). At the secondary school level, there are 13 junior high schools (Sekolah Menengah Pertama, SMP) and 9 senior high schools (Sekolah Menengah Atas, SMA) (Table 4). TABLE 4. THE NUMBER OF SCHOOLS IN THE CANDIDATE OF EAST BELITUNG DISTRICT, 2001

Source: BPS of Belitung District, 2002

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Of the health care facilities available to the public in the candidate district, there are five of community health centers (Pusat Kesehatan Masyarakat, Puskesmas), and two dispensaries (Table 4.4). 139 medical personnel and paramedics, consisting of 6 doctors, 37 midwives, 49 nurses and 47 other health workers, support the health facilities. TABLE 5. THE HEALTH FASICILITIES OF THE CANDIDATE OF EAST BELITUNG DISTRICT, 2001

Source: Regional Planning and Development Board of Belitung District, 2001

Until 1996, the economy of Belitung District was still stable and had consistent growth. Whereas in 1997 the real growth rate (based on 1993 constant prices) decreased by around 2.14 percent and in 1998 was down to -4.30 percent. In 1999, the economy of Belitung District began to rise again, with a growth rate of 1.89 percent. TABLE 6. THE ECONOMIC GROWTH OF BELITUNG DISTRICT (MOTHER DISTRICT) (IN PERCENTAGE)

Source: Regional Planning and Development Board of Belitung District, 2002

Until 1996, the economy of the candidate of East Belitung District was also growing stably and consistently. In 1997, however, the economy

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suffered a decline of 1.72 percent. Because of the crisis in 1998, the economy fell to -3.77 percent. In 1999, the economy experienced a revival, so the growth rate increased to 1.56 percent. TABLE 7. THE ECONOMIC GROWTH OF THE CANDIDATE OF EAST BELITUNG DISTRICT (IN PERCENTAGE)

Source: Regional Planning and Development Board of Belitung District, 2002

B. Political Willingness The desire of the residents of Manggar, Gantung, Kelapa Kampit and Dendang sub-districts to form a new autonomous region, East Belitung District, was very strong. There were various reasons that underlined the desire for a new region in the proposal by Formation Committee to Form East Belitung District. They included the following: 1. The enactment of Law no. 22/1999 provided ample opportunity for the formation of new regions; 2. The demand of the people to obtain better service from the local government through local control of the bureaucracy; 3. The desires of the community and local governments to manage their own natural resources; and 4. To increase the sources of local government revenue. The steps for the creation of East Belitung District (Figure 4.1.) were as follows: 1. Step 1 The Participatory Meeting and Seminar As mentioned in Government Regulation no. 129/2000, the society’s political will regarding the establishment of new regions has not been clearly mentioned by any previous regulations. The idea of forming a new autonomous East Belitung District was inspired by the prolifera-

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tion of Bangka Belitung Island Province in 2000. The wishes of the people in the area of Bangka and Belitung to separate themselves from South Sumatra Province had existed for a long time. This was finally realized in 2000 after the collapse of Suharto regime. To follow up on these ideas, the Union of Scholars of East Belitung conducted a seminar entitled ‘The Formation of East Belitung District’, which took place in Manggar, Belitung District, on November 12, 2001. The seminar committee invited the Head of Belitung District, Regent H. Ishak Zainudin, B.Sc; the Head of the Regional Planning and Development Board of Belitung District, Drs. Abdul Hadi Adjin; and Prof. Dr. Yusril Ihza Mahendra. However, two speakers of the three did not attend namely the Regent and Prof. Dr. Yusril Ihza Mahendra. The seminar was attended by heads of villages, religious leaders, and members of community organizations. The most important result was the formation of an organization to raise people’s aspirations to create the East Belitung District (Zahari, 2005). 2. Step 2 Formation Committee to Form East Belitung District Hence, according to Jafri, on December 9, 2001 (interviewed by author on February 8, 2010) the Formation Committee to Form East Belitung District was established to fight for the aspirations of the community. Its membership consisted of individuals from the four sub-districts in the proposed area of East Belitung District. In addition to fighting for the community and socializing extensively, the committee was also tasked to prepare a proposal for the formation of East Belitung District. Once the area that would become East Belitung District was determined, and the capital city was chosen, a land preparation office was established to set up infrastructure facilities and government offices. The committee then proposed candidates to be the Acting Regent to East Belitung District based on suggestions from the Regent of Belitung and the Governor of Bangka Belitung Island Province.

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FIGURE 4: THE STAGE FOR THE CREATION OF NEW REGION CASE EAST BELITUNG DISTRICT

3. Step 3 Socialization As mentioned by Jafri (interviewed by author on February 8, 2010) – a former secretary of the Formation Committee to Form East Belitung District – the Formation Committee to Form East Belitung District held meetings to socialize with the community at the four sub-districts with of proposed East Belitung District, as follows: a. On December 19, 2001, meeting in sub-district of Dendang; b. On December 20, 2001, meeting in sub-district of Gantung; c. On December 21, 2001, meeting in sub-district of Kelapa Kampit; and d. On December 22, 2001, meeting in sub-district of Manggar. These meeting were later broadcast on the local television stations. A. Regional Preparation (District and Province) There are a variety of documents required to propose the formation of a new district at the provincial level. Some documents include the following:

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MEMBERS OF FORMATION OF COMMITTEE TO FORM EAST BELITUNG DISTRICT

Sources: Record of the struggle to form East Belitung Districts by Zahari, unpublished

a. b. c. d. e. f.

District Parliament Approval; Provincial Parliament Approval; Map of the Proposed Region; Data on the Region; Preliminary viability study; Proposal by Regent of Mother District.

4. Step 4 Preliminary Viability Study The government of Belitung District conducted the preliminary viability study or feasibility study for proliferation in Belitung District with the cooperation of the Research and Development Agency of the Ministry of Home Affairs. This was done at the request of the Regent of Belitung District, according to the letter of Belitung Regent no. 0016/I/2002 on April 2, 2002 regarding the requirement to re-

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search/study the proliferation of Belitung District. As revealed by the former Head of Regional Planning and Development Board of Belitung District (interviewed by author on February 17, 2010), the decision was made to collaborate with Research and Development Agency of Ministry of Home Affairs in order to justify the proliferation of Belitung District. However, it was also done to simplify the process of validation for the proliferation proposal of Belitung District by the Central government. On March 9, 2002, the Regent of Belitung District decided to establish a team to study the feasibility of proliferation in Belitung District (No. 001605/KPTS/I/2002). The feasibility study made reference to Government Regulation no. 129/2000, by the considering seven criteria with 19 indicators and 43 sub-indicators. However, there were no data available concerning financial institutions and economic infrastructure. The team covered up the fact that the data was not available by falsifying data in order to improve the outcome of the study to (interview on February 17, 2010). B. Regional Administrative Procedure The entire administrative process is conducted at the district and provincial levels. Each step in the process is inter-related and supports the formation of a new district. This chain begins with emergence of the desire of society for a new district, the delivery of the aspiration to Local Parliament of the Belitung District, and the approval of Provincial Parliament for the creation of the new autonomous district. 1. Step 5 Endorsement by the Local Parliament The Formation Committee to Form East Belitung District conveyed the community’s aspiration to create a new region to the Belitung District Parliament (DPRD Kabupaten) on December 31, 2001. The aspiration articulated by the Formation Committee had a letter of recommendation from various community members. On January 2, 2002, 22 of the 30 Belitung District Parliament members held a plenary session that addressed the community’s aspiration to develop East Belitung District. Then the local parliament of Belitung District held a plenary session to reach agreement regarding the prolif-

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eration of East Belitung District. As mentioned, Zahari (2005), the results of the plenary session conducted by Local Parliament of Belitung District on January 28, 2002 were as follows: a. The Military/Police Representatives (Fraksi Angkatan Bersenjata Republik Indonesia/Polisi), with Sauji as a spokesperson, fully supported the creation of a new autonomous East Belitung District; b. The Mandate for the Renewal of the Nation (Fraksi Amanat Pembaharuan Bangsa, FAPB), whose spokesperson was Harpan Effendi, SH, did not fully support the creation of the new autonomous of East Belitung District. Instead, they wanted to establish a team and research the issue further; c. The Official Political Party (Fraksi Partai Golongan Karya, Golkar), with spokesperson H Iswarin Yusuf, did not support proliferation in East Belitung District, and also recommended conducting a feasibility study; d. The Indonesian Democratic Party for Struggle (Fraksi Partai Demokrasi Indonesia Perjuangan, PDI-P), Rustam Efendi, B.Sc, as spokesperson, did not clearly state their position, in terms of politics but in economic terms they were doubtful, because of the danger in disturbing the mother district; e. The Star-Moon Party (Fraksi Partai Bulan Bintang, PBB), whose spokesperson was Sawaluddin, fully supported proliferation of East Belitung District. Then after the plenary session, the local parliament of Belitung District issued the Decree of Local Parliament of Belitung District no. 06/ 2002 concerning Local Proliferation on January 28, 2002. This decree only acknowledged the expressed opinion and recommended forming the feasibility study team. There was no firm support to approve proliferation from the government of Belitung District or the local parliament. The Acting Governor of Bangka Belitung Islands Province, Amur Muchasim, SH, M.Si, spoke with the local parliament and the Regent of Belitung District regarding the problems. One of the problems was that there were elites in the government who were against the proliferation of East Belitung Districts.

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Therefore, the local parliament issued the Memorandum of Local Parliament of Belitung District no. 061/2002 concerning the Proliferation of Belitung District on March 7, 2002. In the memorandum, the members of the local parliament declared: a. Support for the local proliferation plan and approval for the formation of East Belitung District; b. The local parliament request that the proliferation of East Belitung District be processed in accordance with relevant rules and regulations. The memorandum was signed by the leadership of local parliament of Belitung District, namely Anwar DM, as Chairman; H. Abubakar, as Vice Chairman; H. Iswarin Y Said, as Vice Chairman. However, Rustam Effendi, B.Sc, the other Vice Chairman did not sign. Among the party leadership who signed were the leader of Indonesian Democratic Party for Struggle, Rozaly; the leader of Official Political Party, Zamhar Mukti, BA; the leader of Star-Moon, Syawaluddin; the leader of the Mandate for the Renewal of the Nation, Suhari, and the leader of Military/Police, Sudjak. 2. Step 6 Proposal Submission by the District Regent to the Governor The Belitung District Regent sent the proposal to establish a new autonomous region in Belitung District to the Governor of Bangka Belitung Islands Province on March 9, 2002. According to Government Regulation no. 129/2000, the letter from the Regent contained an application for expansion, including a map of the new region, data on the region, and the decree of the local parliament concerning approval for the proliferation in Belitung District. 3. Step 7 Endorsement by the Provincial Parliament The Parliament of Bangka Belitung Islands Province gave its full support to form the new autonomous district of East Belitung District. It was reflected by the recommendations and decisions, as follows: a. The Letter of Recommendation of the Parliament of Bangka Belitung Province No. 166/345/DPRD/2002 on March 13, 2002 concerning Support and Approval for Proliferation in East Belitung District;

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b. The decree of the Parliament of Bangka Belitung Province No. 37 Year 2002 on March 9, 2002 concerning Proliferation in Bangka and Belitung Districts. 4. Step 8 Governor Submits Proposal to the Minister of Home Affairs Then the Acting Governor of Bangka Belitung Islands Province sent the proposal to the Minister of Home Affairs and Regional Autonomy regarding the proliferation in Belitung District on March 13, 2002. The Governor’s proposal for expansion of Belitung District contained a map for new region, data on Belitung District, and the decree of the Parliament of Bangka Belitung Islands Province concerning proliferation in Belitung District. C. Central Government Process The process discussed on proliferation was applied in various regions through two main phases, namely a technocratic process (technical and administrative feasibility studies) and the political process. This was because in addition to meeting the technocratic requirements which are stipulated Law no. 22/1999 and the Government Regulation on 129/ 2000, the proposed extension should be supported politically by the National Parliament. 1. Step 9 Evaluation of the Proposal by the Minister of Home Affairs and the DPOD It is the Ministry of Home Affairs that assesses the feasibility studies and evaluates the proposal for the proposed new local governments. To clarify the data as submitted by the local government, DPOD undertook a field survey from July 25 to 27, 2002 in the candidate district. In the field survey, the team met with all levels of local government, the Chairman and the Members of the Local Parliament of Belitung District, and community members. The team’s task was to observe the true conditions in the district. The team consisted of the following members: 1. Ir. Suwarno P. Rahardjo, from the Directorate General of General Administration Department of Home Affairs, as Chairman; 2. Drs. Suparman, from the Directorate General of Ministry of Home Affairs, as secretary;

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3. Suminto Martono, SH, from Commission II of the National Parliament (DPR); 4. Letkol. CKU. Idris Mahidin, from Ministry of Defense and Security; 5. Drs. Aca Tresnarasa, from Secretariat General of the Ministry of Home Affairs; 6. Drs. Lukmal Nul Hakim, MSi, from Directorate General of Regional Development Department of the Home Affairs; 7. Ir. Tri Patmasari MSi, from National Land Survey Coordinating Agency; 8. Asri Ernawati, SH, from State Secretariat; 9. Nugroho Iman Santoso, from Ministry of Finance; 10. Ir. Edison Silaen Dipl. Ph, From Directorate General of Regional Autonomy Department of the Home Affairs; and 11. Drs. Pudji Wahono from the Center For Regional Autonomy and Information Studies (CRISE). a. The DPOD findings The DPOD findings were as follows: 1) Economic Potential The potential of the candidate district is in agriculture, forestry, fishery, tourism and mining, especially mining Type C (quartz and kaolin). To explore and manage the economic potential, strategic measures need to be taken such as improving human resource capacity and encouraging foreign and domestic investment. 2) Finance Resources and Financing Capabilities In general, the statistics of regional revenue and expenditure of Belitung District in 2000 and 2001 and the 2002 draft show the share of the total local revenue against the GRDP decreased from 12.08% in 2000 (realization) to 10.78% in 2002 (provisional). The proportion of central government transfers to total region revenue has increased from 67.96% in fiscal year 2000 to 80.31% in 2002. To increase local autonomy while reducing dependence on the central government, the region is be expected to optimize the financial resources through more effective taxation and levies. 3) Institutional Development The government of Belitung District must prepare to coach, guide

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and facilitate the candidate district on the issue of government structure. The new government should be streamlined, multi-functional, and cost-effective. 4) Regional Development Strategy Considering the potential in agriculture, there needs to be development of the agriculture infrastructure such as irrigation (dam), wetland. For marine and fisheries, there is a need to establish a marine industry development center. Meanwhile, with respect to mining, particularly mining Type C, it is necessary to improve services related to port and related industrial area. 5) Security Although the crime rates are still low, for future needs, a new police force should be established, including a water police station equipped with patrol boats. 6) Land Registration and Zoning Laws For the orderly administration of government and to avoid any possibility of future disputes, local regulations should be issue on the expansion of settlement areas at the sub-district and village levels. 7) Facilities and Infrastructure There is an immediate need for the candidate district to prepare and set the center of government. A location of about 500 hectares then needs to be decided by the Regent. 8) Location of Capital The prospective location of the capital is in the sub-district of Manggar that has received the support of people from all four sub-districts and is in accordance with the decree of the local parliament of Belitung District. 9) Boundaries In anticipation of the future boundary disputes, the actual boundary line needs to be clearly defined. 10) Distribution and Asset Status Regulations to determine land and asset distribution should be enacted. An inventory of local assets should be conducted and submitted to the candidate district. Division of assets between the new East Belitung0District and the mother district should be carefully consid-

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ered so as not to reduce the viability of either district. 11) Socio-political Conditions In general, the socio-political conditions in the candidate of district are safe, orderly, and controlled. Therefore, these conditions should be maintained, especially in anticipation of parliamentary elections. b. DPOD Approval Based on the findings and recommendation from the survey team, the DPOD approved the creation of a new autonomous region. On November 19, 2002, the Minister of Home Affairs, as Chairman of the DPOD, prepared a draft bill to authorize the establishment of East Belitung District, and submitted it to the President (Zakaria interviewed by author on February 16, 2010). 2. Step 10 Submission of Draft Law by the President to the National Parliament The bill of creation for East Belitung District, in the Bangka Belitung Islands Province submitted by the President to National Parliament. The National Parliament discussed the bill of creation of East Belitung District at the National Parliament plenary session IV on January 27, 2003. Subsequently, Law no. 5 / 2003 was enacted on February 25, 2003. The East Belitung District was established on May 24, 2003. At the same time the Minister of Home Affairs, on behalf of the President of Republic of Indonesia, inaugurated the Acting Regent of East Belitung District. CONCLUSION Given the empirical focus, the proliferation process was reviewed in

the case of the new district of East Belitung in accordance with Law no. 22/1999 and Government Regulation No.129/2000. From the study, authors found as following: 1. The findings show that as the number of local governments in Indonesia has increases, the processes at the central government level seem relatively easy. The eligibility criteria are being compromised and manipulated, such as finance institutions that are not yet available, and failing to present the data of local revenue;

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2. There was a lack of existing regulations such as political will from communities it’s not clear mention; 3. In the feasibility study for proliferation in Belitung District, the Government of Belitung District conducted with the cooperation of Research and Development Agency of the Ministry of Home Affairs. There was conflict interest; 4. The Acting Governor of Bangka Belitung Islands Province, Amur Muchasim, SH, M.Si, intervened to process in Local Parliament of Belitung District and the Regent of Belitung District regarding the problem at that time. With his influence, therefore, the local parliament issued the Memorandum of Local Parliament of Belitung District regarding support for the local proliferation plan and approval for the formation of East Belitung District; 5. It cannot be denied, that political intervention in the bureaucracy has facilitated the formation of East Belitung districts.

1.

2.

3.

4.

Based on the above matters, the author recommends as following: It needed clarity in formulating the support or political will of the community. Based on the process of proliferation in East Belitung District, a process that occurs in certain aspects such as determine of public aspiration, optimal public organization, it does not involve the community as a whole. The political will should be followed by the desire to improve public services that are supported by the ability to stand alone for the welfare of the community. Because of that, the community leaders should understand the overall policy of decentralization. It is not only about the political aspect, but also the political influences economic life. For a community to make a detailed proposal, it must consist of the history of region, its culture, politics, economy, including natural resources, etc. In addition, the proposal should have outlined plans for regional economic that describe the capabilities that allow themselves in development. Other than administrative requirements to include the following: Preparing the physical requirements related to spatial planning and boundaries. also formulating spatial planning documents;

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5. Identifying possible location of new autonomous regions as well as the Capital city of new region; 6. Preparing the institutional requirements and related organizations office needs, identification of assets, staff functions, organizational structure, or process planning and budgeting. 7. To form a Special Committee (panitia khusus), which will conduct the discussion about the expansion plan of the area. The members of parliament should necessarily have an understanding that the establishment or expansion of new areas is not only for political purposes but also is a strategic move to increase overall development. 8. Issuing consent by local government and supporting the expansion territories, and decisions about the capital city and supporting financing in the preparation period until the establishment of legislative and electoral processes Head of the Region. 9. It is mentioned in Article 16 of Government Regulation no. 129/ 2000 that in conducting feasibility study, the local governments can cooperate with any institutions that can support the new region. However, to avoid conflicts of interest, it should be mentioned clearly that this cooperation can be done at the institute and will not affect the process of forming the new district. 10.The results of a study must be contains data on overall regional sustainability projections include the ability to run the government itself in the future. Therefore, the document in initial research can be included spatial plan, economics and region, economic capabilities and the potential own revenue, population, population growth rate. As needed, the Liaison Officer as a representative of Mother Districts who can perform intensive communication with various stakeholders both at the local level, provincial and Central government. REFERENCE Azis, I.J. 2008. “Institutional Constraints and Multiple Equilibriums in

Decentralization”. RURDS 20 (1) : 22-33. Bappenas-UNDP. 2008. “Evaluation of the Proliferation of Administrative Region in Indonesia 2001-2007”. BRIDGE (Building and Reinventing Decentralized Governance. http://www.undp.or.id/pubs/docs/

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pemekaran_EN.pdf (accessed October 3, 2009) BPS (Central Bureau of Statistics) of Belitung District Belitung (2000 to 2003), Belitung in Number. Brodjonero, B.P.S. 2000. “Regional Autonomy and Fiscal Decentralization in Democratic Indonesia”. Hitotsubashi Journal of Economics 41 (2000): 111-122. DCF, 2007. Cost and Benefits of New Creation in Indonesia. Final Report, Jakarta: Decentralization Support Facilities (DSF). Decree of the President of the Republic of Indonesia Number 49/2000 on the Council for Assessment of Regional Autonomy. www.indonesia.go.id (accessed April 1, 2010) Executive Summary. 2002. Study of Proliferation/ Region Formation of Belitung District. Cooperation Government of Belitung District with Research and Development Agency of Department of Home Affairs of Republic of Indonesia. Unpublished. Formation Committee to Form East Belitung District, “Proposal Pembentukan Kabupaten Belitung Timur Menuju Kesejahteraan Rakyat (The Proposal of Creation of a New Region: East Belitung District towards the welfare of the people)”, April 1, 2002. Government Regulation Number 129/2000 on Establishment and Criteria for Division, Dissolution and Merging of Regions. www.indonesia.go.id (accessed October 1, 2009) Hadi, A, A, interview by Author, Mentok, Bangka Belitung, February 17, 2010. Hasan, Umar, interview by author, Manggar, Belitung Timur, Bangka Belitung, Indonesia, February 10, 2010. Husaini, Rasyid, interview by author, Manggar, Belitung Timur, Bangka Belitung, Indonesia, February 9, 2010. Jafri, interview by author, Manggar, Belitung Timur, Bangka Belitung, Indonesia, February 8, 2010. Law Number 22 Year 1999 on Regional Government. www.indonesia.go.id (accessed October 1, 2009) Law Number 25 Year 1999 on Financial Balance Between Central and Local Government www.indonesia.go.id (accessed October 1, 2009) Law Number 5 Year 2003 on Establishment of District South Bangka,

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Central Bangka, West Bangka, and East Belitung in the Bangka Belitung Islands Province www.indonesia.go.id (accessed October 1, 2009) Lembaga Administrasi Negara (LAN) 2004. Final Report: Development of Performance Evaluation of Pre and Post-Proliferation Region (Tasikmalaya district case studies). Nazara, S., and Nurkholis. 2007. “Ukuran Optimal Pemerintah Daerah Di Indonesia: Studi Kasus Pemekaran Wilayah Kabupaten/Kota Dalam Era Desentralisasi” (The Optimum Size of Local Government in Indonesia: Case Study Proliferation District/City in Decentralization Era). Jurnal Ekonomi dan Pembangunan Indonesia 7 (02): 1-30. Qibthiyyah, RM. 2008. Essay on Political dan Fiscal Decentralizaion. PhD Dissertation. George State University. Subkhan. 2004. “The Optimal Size of Local Government and Fiscal Decentralization.” Journal Keuangan Public 2 (1): 69-87 Tarigan, A. 2010. “Dampak Pemekaran” (the Impact of Proliferation). Perencanaan Pembangunan: Majalah Triwulan 1/XVI: 22-26. Zahari, June, 2005. “Perjuangan Pembentukan Kabupaten Belitung Timur (Record on the Struggle to the Establishment of District East Belitung). The Formation Committee to Form East Belitung District. Zakiria, M, interview by author, Mentok, Bangka Belitung, Indonesia, February 16, 2010. __________, “Kelengkapan Administrasi dan Data Pemekaran Kabupaten Belitung (The Letter on the completeness of the administration and data of proliferation in Belitung District)”, number 125/165/I/02, June 12, 2002.

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Capacity Building in Local Government Rochyati Wahyuni Triana Lecturer of Public Administration at the Faculty of Social and Political Sciences, Airlangga University, Surabaya. Email: [email protected]

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ABSTRACT The aim of this research was to examine the concept of developing a theoretical capacity of local governments and the implementation of regional autonomy, especially as relates to local regions in Indonesia. This research is basic research (fundamental research) with the types of research libraries. Data retrieval technique uses data sourced from a variety of secondary sources, as it should be; books, journals, and rules related legislation. While the data analysis techniques used dates back to descriptive analysis, namely: the Koran data sources to analyze the condition of Indonesia since regional autonomy to draw conclusions connected to the expansion of capacity of regional autonomy in Indonesia since enforced. The conclusion of this study is that the Capacity Building for the government of the autonomous region is a big job, especially for a system of government that further be visible self-serving than serving the public, but it is decent and imperative acts. Reins of the various stakeholders (other a Council) imperative it is always doing will that all efforts fixes and performance improvements it provides exemplary results in line with expectations that be in mutual accord on regional autonomy. Keywords: Institutional development, local government ABSTRAK Tujuan penelitian ini adalah untuk mengkaji konsep pengembangan kapasitas pemerintah daerah secara teoritik dan implementasi setelah otonomi daerah terutama terkait dengan kelembagaan daerah di Indonesia. Peneltian ini merupakan penelitian dasar (fundamental research) dengan jenis penelitian pustaka. Teknik pengambilan data menggunakan

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teknik data sekunder yang bersumber dari berbagai sumber, yaitu: buku, jurnal dan aturan perundang-undangan yang terkait. Sedangkan teknik analisis data yang digunakan adalag deskriptif analisis, yaitu: mengaji sumber data sekender untuk dianalisis dengan kondisi Indonesia sejak adanya otonomi daerah untuk menarik kesimpulan yang terkait dengan pengembangan kapsitas daerah sejak otonomi daerah di Indonesia diberlakukan. Kesimpulan dari penelitian ini adalah bahwa Capacity Building bagi pemerintah daerah otonom adalah pekerjaan besar, terutama bagi sistem pemerintahan yang selama ini terkesan lebih melayani diri sendiri daripada melayani publik, namun layak dan harus diperjuangkan. Kontrol dari berbagai stakeholders yang lain (selain DPRD) harus selalu dilakukan agar segala upaya perbaikan dan peningkatan kinerja tersebut memberikan hasil sesuai dengan harapan besar yang disandarkan pada pemberian otonomi daerah Kata kunci: Pengembangan kelembagaan, Pemerintah daerah

INTRODUCTION Institutional development discusses the alteration plan to the lives of

the people done and over with government agencies, at least through initiation by a government agency. This topic has been vehement popular in the early days of independence in countries that are just emerging and developing countries, including in Indonesia. Why does? Because ought the country’s fledgling or belonging to “Developing”, efforts to improve the communities are more effective if carried out by and through government agencies. Therefore, study and effort in this area to bloom when the government developed countries consider it necessary administrative and technical assistance to developing countries Change is a necessity; it is not excessive if the wise man said: “Everything in the world is always changing not except change itself”. Therefore, both at the beginning of independence, because there is a need to organize their own government, and afterwards, there is always a need to make changes or adjustments to the changes that have occurred in the first community. At first the government is acting as the initiator of change for the community, but on the subsequent development sometimes change comes from the people and the government was forced to change with the current situation that developed in order to remain able to serve the community effectively. Either to initiate change, encouraging the occurrence of change, alteration with the demands of the times, the government agencies must first be internal changes in the structure, systems and behavior. This is what is meant by institutional development. Therefore, studies that discuss and study these topics have also changed the title and perspective. If the was

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studied originally referred to be that of “institutional development” (institutional building), the next development to be “institutional development” (institutional development). Changes in the system, the structure and behavior usually begins with a change in values is better. In the early days the main value being pursued are effective governance by modernizing the welfare of its people through a system of government, the structure and behavior of the administration. Along with the development of the value is then shifted or rise, not only of effective governance but also efficient, and need for adjustments to structures, systems and behaviors. In Indonesia, notwithstanding the government bureaucracy is adjusted to the demands of changing, but the nature of the inert bureaucracy (inertia) making change more slowly than the changes taking place in society. To stay can be change agents and service providers, as a function of government, it is increasingly necessary institutional development, especially after the reform era that brought new values that were not previously recognized: freedom of expression, the demands for better government services, equal rights the values of the development and distribution of development results from the central government and the regions, and so forth. The governments no longer play a single role as agents of change and development, because of the age and society is faster changing. Yet the government still expected to play a central role in facilitating change and development. Therefore, the government must be more sensitive to recognize and cooperate with agencies or institutions that have been there and lived in the community. Thus, the function of these institutions as agents of change and providers of effective and efficient development can still happen without causing turmoil due to the difference in value between the government and the people they represent. The institutional study development will always guard track of the values that grow in the community. The reform era has forced the government to move more quickly to adjust to the changes demanded by society. Autonomy as a result of the growth of democracy requires the adjustment of institutional governance is not a bit and far from easy. Unresolved institutional adjustments for regional autonomy, the demand for

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clean governance, honestly, the performance is measured effectively and efficiently (good governance) has surfaced as well. Institutional adjustment (structures, systems and behavior) in both the central and regional levels with the new values of the above, requiring deep thought, long time, and techniques that may be used to accelerate the process of institutional change is good at the governmental level (internal) as well as at the community level. Innovation is the key to organizational development, governance systems that are not entangled in a state of inertia that government except his duty to society. Innovation has always been associated with novelty or in this case new ways. What’s new in the way of our government? Governance procedures are not the same age as the creation of a government? Government is already classical system, spoken the rule it is always undergoing a process of change from time by time, will procedures for government itself. Indonesia in classic known archipelago has many systems of government as much the number of kingdoms that existed at that time. The same is the government recognized (King and apparatus) and the presence of the governed, as well as a system of royal government. However, the procedure may vary according to the culture of government him adopted by each kingdom. The system of government since he was named the archipelago, and independence Republic of Indonesia form has undergone various changes. Since 1945 when Indonesia was established known as the Old Order system that, through 1966 known as the New Order, and since 1998 known as the Reform Order which is still used today. Orders of shows differences initially planned and desired. The reform era that began after the fall of the New Order, in addition to bringing new values, also voiced demands for a change in governance. Change is at the heart of all struggles childbirth reform era. Society has been saturated with an almost absolute power of the bureaucracy so that instead of serving but instead shackled and made them servants to the bureaucracy, so the government bureaucracy should be returned to nature to serve the community and be a tool for the welfare of society, not the welfare of himself and his cronies. The first step taken is to realize autonomy. This affair is constrains

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affair, during which the new order only promised pass through PP. 5/ 1974 but never actually implemented. Areas, especially away from the center or Java - feeling very neglected in the pace of development. The area was only exploited their wealth by the central government, in the manner as happened when the Dutch colonial era. Government believes that the owners of the abundant natural resources that are used for development costs in Indonesia are concentrated on the island of Java, are areas outside Java. Therefore, autonomy is an absolute requirement in the new order which is then replaced by an era of reform. The objectives of the regional autonomy is to make balance the needs of development, leveling of development and care of each area in order to accelerate the achievement of the welfare of the people by giving local governments the flexibility level II which interacts directly with the community. However, regional autonomy is not necessarily caused immediate development can be perceived by the public, especially outside Java. No matter how well intentioned it was when the struggle for reform began, but the barriers to starting and running autonomy in these areas is quite heavy. These barriers include the following: 1). the lack of preparation for the local government assumed autonomy in the true sense. It is possible they are ready with the budget increase development but are not ready to work, 2). Diversities of concept and paradigm is apprehending of regional autonomy. THEORETICAL FRAMEWORK 1. Local Institutional Development

Changes in local governance have been enacted since 1999 through Law no. 22 on Regional Government and strengthened by Law no. 32/ 2004 as a revision of the earlier law. By some means, the implementation of regional autonomy in various regions in Indonesia has also shown encouraging results. Regional development which is expected to touch the life of the community directly, it does not reduce the level of poverty and underdevelopment. Even abuses in the region have not diminished, even increasingly spreading. Local government officials, who should be a human resources option with the head of the chosen people directly, it should be able to sow more equitable development in the regions and

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prosperity of its people, but it turns out that hope is far from the truth. There are several questions in this regard: What is wrong with autonomy? Does not the ideal of regional autonomy have even pioneered decades ago since the PP. 5/1974? Does not demand then autonomy become stronger since the reform era? Should not the government is ready with the promulgation of the financial balance between the areas striving? Not after waiting so long, at least they have the shadow on the right programs for the region? But why that looks exactly stuttering on the meaning of autonomy? Some pronouncement it seems that validated by reality, such as the selection of members of Legislative Assembly (parliament) and local elections often become political circus arena because actually they’re after is power, as well as access to the regional economy that has gained autonomy. Meanwhile, local bureaucrats normatively not involved in the bustle of politics and should be a solid pillar of development in the area, as they are always there while political officials come and go; it was not able to carry out the task properly. The pattern of centralized government that has lasted for decades and affect ingrained bureaucratic practices, even though the reform has come and grant autonomy to the regions. Secluded reliance on the ‘instructions’ Center is blunted the power of initiative and creativity of local bureaucrats who switched from demand of “guidance center” to ask’ guidance of head and parliament “. Indeed heads and local parliament is entitled to control the course of the local government, but if the people in the area often cannot expect much in the area of political officials often busy fighting over pieces of cake over development among others. Therefore, the success of regional autonomy often include changes in local governance becomes questionable. This paper seeks to peel briefly about their problems and what measures can be taken in order to improve the capability of local government institutions to enable them to become cogs in realizing the development of good governance, especially in the presence of regional autonomy. This is based on the real role of bureaucracy is much more strategic role in achieving good governance in the region compared to the role of regional head and parliament. Bureaucracy is a career position herewith relatively long, while the regional heads and legislators is a political position that

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herewith relatively short. In addition, in many studies related to regional autonomy, governance changes were not followed bureaucratic institutional capacity significantly, the success painstakingly pursued by regional heads will not impact (long lasting). 2. Capacity Building Capacity Building and Good Governance is a series of words that often attach to and follow Autonomy. In short it can be said that the purpose of regional autonomy is to achieve Good Governed or good governance, governance that can be realized with a prosperous and equitable society. Good Governed But this will only be achieved when efforts to enhance the capacity and capability of the local government through Capacity Building efforts are structured and planned. Capacity building concept by Brown (2001), understood as the process of improving the ability of people, organizations and systems to achieve organizational objectives that have been set. Although this definition is very simple, actually contains a vast and very important. Specifically, according Milen, (2001), the capacity can be seen as something that is specific to a particular task and capacity constraints as related to specific factors within an organization or system in a certain period. Capacity building can be seen as a process. Capacity building is an activity implementation, and or changes in multi-level promotional activities at the level of individuals, groups, organizations, and systems as well as to try to improve the adjustment capabilities of the people and organizations that can respond to environmental changes continuously (Morison, 2001; UNDP, 1998). Meanwhile, in the view of ACBF (2001), capacity development as a process certain aimed at efforts to improve the ability of individuals, groups, organizations or communities in various ways, namely: 1) to analyze their environment, 2) identify issues, needs, issues, and opportunities, 3) formulate a strategy to address the problems, issues, and needs and relevant use chance, 4) design a plan of action, 5) collect and use effectively, and on the basis of sustainable resources to implement, monitor and evaluated plan action, and 6) using the feedback to the learning process. These notions will his opinions Berry (1990), which affirmed capacity

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of how much staff were able to show a significant contribution to the development of personal, organizational and community (The extent to roommates there (staff) demonstrate concrete Contributions to personal, organization and community development). Meanwhile, according to Valentine Udoh James (1998) definition has been expanded and linked to the role of institutional countries / regions, where more capacity development interpreted as an effort to improve the ability of people in nations emerging to develop management skills and policies needed to build essential cultural structures, social political, economic and human resources so that they are able to exist in the global arena. Capacity Building is really a series of strategies aimed at improving the efficiency, effectiveness and responsiveness of the government’s performance by focusing on the dimension 1). Human Resource Development (HRD), (2). Strengthen organization, (3). Institutional reforms (Grindle, 1997: I-28). On the dimension of human resource development, attention is given to the procurement or provision of professional personnel, and technically correct. In the context of procurement (recruiting) since the beginning should be based on need, not based on political considerations, so that civil servants, especially bureaucrats, no longer stigmatized because of unprofessional and become the scorn as deemed unproductive and only exhaust the state budget. Activities undertaken including through training, preparation system to be more performance-based remuneration, working conditions and environment settings, etc... Called into being and develop a good work culture among civil servants, the government through the Ministry of Administrative Reform has issued Ministerial Decree No. Administration Reforms is. 25/KEP/ M.PAN/4/2002, 25 April 2002 on Guidelines for Cultural Development and Reform Work Letter No. 170/M.PAN/6/2002, June 17, 2002 on Implementation Work Culture Development’s Reform. Decision Letter of the Minister of PAN RI and is intended as a reference for the development of the work culture in government departments. On Strengthening the Organization dimension, the center of attention is given to the management system to improve the performance of their functions and duties of available existing and microstructure control system. Activities conducted include managing the system of incen-

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tives, utilization of existing personnel, organize leadership, managerial structure and the communication flow, etc. on behalf strengthen the organization and to maximize organizational performance in serving the local community, then issued PP. 41/2007 on the Organization of the regional. On the dimension of Institutional Reform, the main concern is aimed at system changes and the existing institutions and the influence of the macro-structure. Activities are done is to change the ‘rules’ of the economic system and the political, policy changes and the rule of law, as well as the institutional system reforms that encourage the development of civil society and the market / civil society (Grindle, 1997). What are the dimensions developed in Capacity Building also described by many other experts, including A. Fizbein (1977), who called it an effort to improve skills that are focused on dimensions: 1). Workforce skills, 2). The ability of technology embodied in the organization or institution; 3). Capital capability embodied in the form of support resources, facilities and infrastructure. While D. Eade (1988) stated that capacity building is an increased ability on dimension 1). Individual, 2). Organizations, 3). Network, but that is the primary key or strategic point in performance improvement is the development dimension of individual and organizational dimensions. Amount with opinion above, but more broadly, cast about the dimensions according to the World Bank Capacity Building. According to the World Bank, in order to achieve the expected performance, then Capacity building needs to be focused on: 1) Development of human resources, especially in the recruitment, training, utilization and termination of labor professional, managerial and technical; 2). Increasing the capacity of the organization, the setting up of structures, processes, resources, and management style, 3). Organization of interaction networks, the coordination of the activities of the organization, networking functions, as well as formal and informal interactions, 4). Environmental organizations, the rules and regulations governing the public service, responsibility and power among institutions, policies that hinder development tasks, along with financial and budgetary support; 5). Extensive environmental activities that include political factors, economic, and conditions that affect performance.

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All dimensions above upgrades basically developed as a strategy to realize the values of good governance. Human resource development as can be seen as a strategy to improve the efficiency, effectiveness, and maintain moral values and work ethic. Medium institutional development is an important strategy that government agencies are able 1). Develop a strategic plan that the organization has a clear vision, 2). Formulate policy with respect to the values of efficiency, effectiveness, transparency, responsiveness, equity, participation, and sustainability; 3). Designing organizations to ensure efficiency, effectiveness, level of decentralization and autonomy are more precise, 4). Carry out managerial tasks to be more efficient, effective, flexible, and adaptive and, more thrive. Medium Development Network, instance can be seen as a strategy to improve cooperation or collaboration with external parties with the principle of mutual benefit. Capacity building in an approach analogous to the system, it can be seen as a strategy: 1). how to set the inputs and processes to achieve the expected outputs and outcomes, as well as 2). How to organize gives feedback in order to make improvements in the later stages. Strategy set input regarding the capacity of local government to provide various types, quantity and quality of human and non-human resources to be ready for use when needed. Strategy setting is process, with regard to the ability of local government to design, process and policy development, organization and management. Medium organize feedback strategies related to continuous improvement skills by learning outcomes, the limitations of input and process, and to take corrective action after making adjustments to the environment. RESEARCH METHODS ‘This research is basic research (fundamental research) with the type

of research literature that examines various theories associated with an increased capacity of local governments and their implementation at the regional autonomy in Indonesia. Data retrieval technique uses data sourced from a variety of secondary sources, such as: books, journals, and rules related legislation. While the data analysis techniques used dates back to descriptive analysis, namely: the Koran sekendur data sources to

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analyze the condition of Indonesia since regional autonomy to draw conclusions related to the development of capacity of regional autonomy in Indonesia since enforced. RESULTS AND ANALYSIS 1. Good Governance: Local Government Performance Indicators

Demand for good governance more prominent lately values. This shows the increasing political awareness and state of society. Therefore, these demands must be accommodated in the standard assessment of the performance of government, let alone the World Bank sets the adoption of the values of good governance as a prerequisite for obtaining financial aid. Good Governance is a terminology that is used to replace the term Government, which describes the change of the role of government than just a service provider (provider) to be an enabler or facilitator of public services, and from state ownership into ownership of the people. The main focus is on improving good governance, performance or improving the quality of public services. Indicators of good governance promoted by several multilateral and bilateral agencies (e.g., JICA; OECD, GTZ) are: a. Democracy, decentralization, and improving the government’s ability; b. Respect for human rights and compliance with applicable laws; c. Community participation; d. Efficiency, accountability, and transparency in governance and public administration; e. Reduction of military budgets and f. Orientation market of economic order. Meanwhile, the World Bank suggests six indicators of good governance, namely: a. Political accountability, i.e., above the level of public acceptance of an executive leadership through the implementation of the election system and time limits positions; b. The freedom to gather and participate in religious organizations, profession, etc.; c. Guarantees equal legal treatment, protection from exploitation and

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interference from outsiders and exploitation of the environment; d. Bureaucratic accountability, to create a system to monitor and control the performance in connection with quality, inefficiency and destruction of resources, and transparency in financial management, logistics, and accounting; e. Availability, validity and analysis of information; f. Effective public sector management and efficient. All values are expressed as the Good Governance represents the value of universal governance idealized by all nations, although not necessarily easily accessible; especially for Indonesia’s many times in the most corrupt country in the world category. For that a stronger emphasis on some values Good Governance instance accountability and transparency of financial management and a basis for taking decisions, fairness and equality of treatment under the law, as well as the ability of public sector management seems to be very important. Related with it, the values of good governance, which is important as an indicator of performance evaluation of government bureaucracy and autonomous regions, among others include: a. The existence of a clear vision of where the direction of development is addressed and a clear mission to make it happen. b. Transparency so that people can control and monitor public institutions and their working process; c. Responsively, the responsiveness of the local government in serving the interests of the public and stakeholders. d. There is justice that is reflected in the attitude and policy of member governments to equal opportunities for all citizens; e. Accountability, etc., The formulation of the other associated with the development of governance indicators, namely: The First, the size of a results-oriented, which consisted of five indicators: 1). Efficacy The ability to achieve its intended purpose, be it in the form of targeted, long-term goals and mission of the organization, and should refer to the organization’s vision. 2). Productivity, is a measure of

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the ability of the organization to produce output needed by the community. 3) Efficiency is the best ratio between output and input. Ideally the organization should be Able to hold a certain type of service inputs (cost and time) as little as possible. 4). Satisfaction is how far the organization can meet the employees and the community. 5). Justice is the scope or range of activities and services provided by the organization must work with the widest possible distribution of the rate and treated fairly. The Second, the size of a process-oriented. There are seven processoriented measures are: 1). Responsiveness is the ability of providers to recognize the needs of the community or in other words, measuring the responsiveness of the provider of the hopes, desires and aspirations and demands of the customer. 2). Responsibility is a measure that indicates the extent of agreement between the implementation of organizational rules and procedures that have been established. 3). Accountability is a measure to indicate the extent of correspondence between the implementation of the organization with external measures that exist in the community and owned by stakeholders, such as the values and norms that develop in society. 4). the adaptation is demonstrating responsiveness to the demands of organizational changes in its environment. 5). Survival is how far the service program can demonstrate the ability to continue to grow and survive in competition with other programs. 6). Openness / transparency are the procedures / protocols are in connection with the public service shall be informed openly known to be easily understood by the public, whether requested or not requested. 7). Empathy is the treatment or care providers of services to the current issues emerging in society. 2. Capacity Building Strategies for Autonomous Regional Government To achieve the goal of good governance for local government autonomous, then the strategy of capacity building focused on five development capabilities, namely: a. Strategy development vision and mission of autonomous regions; b. Strategic human resource capacity building c. Institutional capacity building strategy; d. Strategic network development / networking;

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e. Strategy utilization and development of conducive of environment. The five main strategies are developed, translated into multiple target capability development activities of the City / District (PKPK) that must be implemented, among others, the following: a. Development Strategic Plan (Strategic Plan) city / county. This Strategic Plan contains the vision and mission of the autonomous regional government, which would serve as guidelines for the preparation of strategic programs for the agency and non-agency and for all agencies of government including parliament. Government Performance will be assessed on the extent to which the area is able to meet the strategic plan. b. Strategic Development Department, non-Office and Parliament. c. Insight and knowledge development for all human resources, including insights into autonomy and good governance. d. Improved skills and technical expertise in accordance with the demands of strategic areas developed by the region. e. The development of human resources through the development of talent and personality that the placement of HR areas can be done optimally, Youth Motivation through the Fit and Proper test in staffing; Development intelligentsia. f. Quality Improvement policies to be more in favor of the interests of the community at large and in accordance with the priority areas in the Strategic Plan. g. The development dimension of the organization so that the number and types of government organizations in accordance with the demands of the needs of the strategic areas in the Strategic Plan. h. Development Dimensions of management, especially in the field of public management. i. Public Management Accountability System Development. j. Developments of organizational culture that can be achieved through the development of systems and organizational mechanisms that can make the entire organization comply. k. Development of vertical networks with agencies, other governments, and other institutions. l. Creation of Security and Order.

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3. Problems in the Development of Regional Institutions In the context of the development of regional institutions in accordance with the provisions of Law No. 22/1999 on Local Government which local authority to establish the organization in accordance with the needs and characteristics of the area itself, the number of organizations formed, and its characteristics are not the same from region to another region. The diversity of the number and characteristics of the organization is often precisely because it raises new problems for the affairs of the same, may differ nomenclature implementing organizations. Similarly to the numbers of office are handling the affairs of the local authority to swell in accordance’s with the state reason of each region. Freedom is ultimately limited by the issuance of Government Regulation. 8/2003, February 17, 2003 on Guidelines for the regional organization, which regulates and limits the number of organizational characteristics for units set up by the local work. Discrepancies Republic of Indonesia Act 1999 on Local Government revised the development of the state, political subdivision, and the implementation of regional autonomy demands, prompting the central government to issue a revision of the Local Government Law 32/2004. With the publication of the Act are expected blood governments can implement programs and activities with measurable outcomes and benefits. However, the Act has yet to set the size of the regions according to the needs of each region. Even the rules that had been approved previously, the PP. 25/2000, as well as PP. 8/2003 is still more manifest bureaucratic desire to exist in different forms and levels of organization of the large number of positions, not based on the perceived need to provide the best service for the community. Therefore more weeks to maximize the performance of the organization in serving the local community, then issued PP. 41/2007. With the issuance of PP. 41/2007 is expected to be more effective governance, so that the service to be better because it contains several grains of changes that have dimensions very strict standards. Standardization itself emerged for several reasons: (1) mismatch nomenclature local institutions with the central agency which often lead to difficult budget process and lead to inefficiency of governance in the region, (2) the orga-

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nizational structure of local government in Indonesia, which tend to be very fat, so the potential suck most of the budget allocations for personnel expenditures and not for items other more productive activities for the benefit of society. However, PP is also still show weakness and not show partiality to the values of good governance, because according to Abdul Syani in papers entitled “Impact Analysis Application PP. 41/2007 On the regional organization “voiced that” ... it is more pro-PP to the bureaucracy than public services. Issues of efficiency and public services seem to be the order of the next. “. The indication is further evidenced by the growing number of institutions in the region as a result of the implementation of PP. 41/ 2007. The table below shows a comparison of bunion organization: TABLE 1. COMPARISON OF THE REGIONAL ORGANIZATION IN ACCORDANCE WITH PP. 8/2003 AND GOVERNMENT REGULATION NO. 41/2007

The condition can occur if local governments choose to impose the maximum area of the organizational structure, as described in the PP. 41/2007 to Article 28, 29, 30, 31, 32 and Article 33, which contains rules about the amount of sections, fields, sub-section or sections in areas ranging from the organization of the Secretariat, regional offices, regional technical institutions, districts and villages. The product range policies governing the organization of the regions mentioned above, coupled with No. domestic government publishing. 52/2007 which contains the Technical Guidelines for structuring the regional organization raises complexity and inefficiency due to ambigu-

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ities and unclear standards desired by the central government. domestic government confirms that there are several agencies and technical institutions should be owned by the county but that number also expressed office / technical institutions in accordance with the characteristics, potential, needs and abilities of each area. As a result, each region may create their own business or technical institute required, provided in accordance with the criteria defined in paragraph 2 of the magnitude of the regional organization. Desire to accommodate the diversity, uniqueness and strategic needs of each Autonomous Region, as well as to accommodate the need for setting the size and uniformity of nomenclature of regional institutions, is what actually lead to confusion and hassle. On the other hand, the middle path chosen by the county to utilize the maximum amount of institutional constraints, it can result in swelling of the institutional structure that has implications for areas of swelling staffing budget, contrary to the values of efficiency and effectiveness in the Good Governance to be achieved. CONCLUSION Capacity building for local government autonomy is a big job, espe-

cially for a system of government that has tended to be more self-serving than serving the public. However, capacity building is necessary to always priority and carried out by local governments. Control of a variety of stakeholders other than Parliament, must be done so that any attempt at improving and enhancing the performance of the bureaucracy in local government can deliver results in line with the expectations that were based on regional autonomy. ENDNOTES 1 East Belitung District is part of Districts Belitung in Bangka Belitung Islands Province in Republic of Indonesia. Before separated from

Belitung District, East Belitung region there were four sub-districts and thirty villages’ government. in 2003, East Belitung District established by Law no. 5/2003 and on May 24, 2003 inaugurated by Central Government.

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REFERENCES Agus Dwiyanto, dkk (2003), Reformasi Tata Pemerintahan dan Otonomi

Daerah, Pusat Studi Kepedudukan dan Kebijakan Universitas Gadjah Mada, yogyakarta. Eade, D. 1998. Capacity Building: An Approach to People-Centered development. Oxford, UK, Oxfam. Fisxzein, A. 1997, The Emergence of Local Capacity: Lesson from Columbia” an artikel in World Development Vol 25. Grindle, M.S. (editor), 1997, Getting Good Government: Capacity building in the public Sectors of Developing Countries; Boston, Harvard Institute. Hasrul Hanif & Ucu Martanto (eds) (2005), Terobosan dan Inovasi Manajemen Pelayanan Publik, Kumpulan Makalah Workshop, Seri Pembaharuan manajemen Publik, FISIPOL UGM, Yogyakarta. James AF Stoner, dkk (1996), Manajemen, edisi Indonesia, PT. Prehallindo, Jakarta Ratminto & Atik Septi Winarsih (2005), Manajemen Pelayanan, Pustaka Pelajar, Yogyakarta Milton J. Esman, eds. (1969). Pengembangan Lembaga : Dari Konsep dampai Aplikasinya, UI Press, Jakarta Taufiq Effendy (2005) Arah Pembaharuan Pelayanan Publik, Makalah, Makalah dalam Workshop Forum Nasional Pemerintah Daerah Terobosan dan Inovasi Manajemen Pelayanan Publik yang diselenggarakan oleh FISIPOL Gadjah Mada, 28 September 2005. Pengembangan Kemampuan Pemerintah Kabupaten/Kota. 2000, diterbitkan oleh kerjasama Depdagri OTDA dan BAPPENAS. Berbagai UU dan PP yang terkait.

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Media Construction of Gender: Framing Analysis of Rape Cases in the Mass Media Ali Imron State University of Surabaya, Email: [email protected]

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ABSTRACT Construction of the print media order totends to stage-manageand did blow up the cases turned out to discredit rape victims, causing gender bias. This is due to media showing the content of the news is not balanced between the victim and the perpetrator, by showing the other side more victims. This paper analyzes the print media coverage in cases of rape by using framing analysis. The analysis exhibited that the print media was not only uncovering cases of rape just yet often reveal the identity of the victim and the photos of the incident. The use of visual images (photos of victims) can be interpreted to give the reader an overview of the facts or the truth by the media. This raises the boundaries between factual reality and reality becomes blurred is a fictional character that would lead to a different interpretation of the reader. Besides, it makes learning about the modus operandi for the community by doing imitations so that they do not know to knowing. Visual image will only lead to the second rape (rape second) by the media to the victim yet again because of the stereotypes that developed in the community, giving rise to the psychological impact for the victims and their families. This is called the third rape (rape third). Keywords: Patriarchy, Gender, Rape, Framing Analysis ABSTRAK Konstruksi media cetak yang cenderung mendramatisir dan melakukan blow up terhadap kasus-kasus pemerkosaan ternyata memojokkan korban sehingga menimbulkan bias

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gender. Hal ini disebabkan media menampilkan isi berita yang tidak seimbang antara korban dan pelaku, yakni dengan menampilkan lebih banyak sisi lain korban. Tulisan ini menganalisis pemberitaan media cetak dalam kasus pemerkosaan dengan menggunakan analisis framing. Hasil analisis menunjukkan bahwa media cetak ternyata tidak hanya mengungkap kasus pemerkosaan saja namun seringkali memunculkan identitas korban dan foto-foto kejadian. Penggunaan visual image (foto korban) dapat dimaknai untuk memberikan gambaran kepada pembaca mengenai fakta atau kebenaran menurut media. Hal ini menimbulkan batas-batas antara realitas yang bersifat factual dan kenyataan yang bersifat watak fiksional menjadi kabur sehingga akan menimbulkan interprestasi yang berbeda dari pembaca. Disamping itu menjadikan pembelajaran bagi masyarakat tentang modus operandi dengan melakukan imitasi sehingga mereka yang tidak tahu menjadi tahu. Visual image justru akan menimbulkan the second rape (pemerkosaan kedua) oleh media terhadap korban belum lagi karena stereotipe yang berkembang di masyarakat, sehingga menimbulkan dampak psikologis bagi korban dan keluarga. Hal inilah yang disebut the third rape (pemerkosaan ketiga). Kata kunci :Patriarki, Gender, Pemerkosaan, Analisis Framing

INTRODUCTION Since the first hithertopeople still overshadowed by the norms of Victorian era (Foucault, 1997: 202) the position of women in a weak posi-

tion. At that time women were the property (complement) with the result thatthey are positioned as objects of sexual exploitation. Public perception is so violent that women tend to occur repeatedly. Hesti Armiwulan (2004), a woman activist, considers that the violence in the physical form especially in women is a crime, although it occurs in the home. Ironically, in the Criminal Code sanction given to criminals is still too light. For example, in the case of rape, the offender fined just compensation in the amount of tens of thousands. Although the Penal Code also states that criminals could be sentenced to a maximum of 20 years in prison, but in executing rarely or almost ne’er occur an offender a crime of violence against women was sentenced to 20 years in prison. Though suffering insufficient replaced with all that, especially the psychological impact suffered by victims. Punishment given to crimes of violence against women is not in accordance with the humanist values. Judicial decisions in cases of rape are always detrimental to the position of women. This is due to our society still adheres to a patriarchal culture. They construct the position of women under men and women slightlyare property. Such perceptions often lead to violence against women (Siregar, 1999: 370). Plus limits showed that violence against

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women has been increasingly blurred. Consequently patriarchycultures give legitimacy to a man to commit violence against women. Construction of the community who regard sex as a taboo resulted in sexual violence against women. On the other hand, ashamed to tell rape victims experienced fear of talked about, so it is difficult rape case came to light. Especially if rape case was revealed in the media, the victim will suffer more from such news. Under these conditions the second rape victim by the media. The second rape by the media through news cause tremendous psychological impact for the victim, so the victim loses the sympathy of the public. These conditions resulted in many cases of sexual violence experienced by women closed. Often in cases of rape, the victim and her family to cover up what they have experienced. The stereotype slightly women are sexual objects is clearly a form of discrimination and injustice. Veritable stereotypes have limited freedom, complicate and harm women (Fakih, 2003: 74). As a result, women are thick exposed to violence (violence), both physically and psychologically. Violence against men is basically derived from a variety of sources. One of the violence against women is in part caused by the incorrect gender assumption. Violence caused by gender bias is well-known gender related violence (Fakih, 2003: 17). Hitherto, people still think that women below men. Women are still regarded by most people qua the properties that are the object of sexual violence. Many forms of crime that can be denominated as gender violence. The First, the form of raped against women, including rape in marriage. Rape can happen if someone is forced to obtain sexual services without compliance is concerned, including those who have become husband and wife. This is due to partly factors, among others, fear, cultural and economic compulsion. The Second, the act of beating with a physical attack in the household (domestic violence), including the rape of children. Many cases of rape were not revealed and likely closed because people still considered taboo, thereby offering more reticent and do not want to be the gossip in community (Fakih, 2003: 18). The Third, the form of torture that leads to organ (genital mutilation), for example circumcision occurs in girls. Although circumcision of women have a rational reason enough though, but could be categorized qua genital mutilation. The Fourth, violence’s in the form of prostitution. Prostitution is a

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form of organized violence by an economic mechanism with the result thatharms women. Every society always uses double standards against sex a worker is. Alongside the government ban, but on the other hand the government has exciting entertainment tax.The Fifthis the types of covertsviolence(molestation), the holding or touching the female body in various ways and opportunities without the willingness of the owner of the body itself. Type of violence is common in the work place or in public places such as on the bus. The sixth, crimes against women are common in today’s society known as sexual harassment (sexual and emotional harassment). The notion sexual is violence has waned now, when seen from the quantitative expansion of the discourse as a symptom. Howsoever, when seen from a qualitative aspect (meaning), sexual violence continues. Coverage of rape in various print media became an attraction that is sold by a variety of media, such as Surabaya and Daily Radar Daily Memorandum. Coverage of rape in various print media is pertinent for analysis because it involves issues of conscience. How the media considerate to the families of victims of rape that could potentially convey gender bias, especially news discrediting victims. Media coverage tends to contradict this Code Journalists Indonesia since she was named Journalist Code of Ethics Indonesia. In Article 3, paragraph 6 (Patmono, 1996: 139), described the boundaries of a proclamation that is not contrary to moral norms, especially for victims of rape. Should the print media in reporting a rape victim holding on to the Code of Conduct by using a pseudonym or used initials. But those boundaries disappear when cases of rape were reported offender name, parents’ names, addresses, ages; especially the language used tends to lead to gender bias and cornering victims. Coverage of raped as dignity rape victim’sside and their families. Media coverage is often unsatisfied with the identity of the victim, even complete with photographs that illustrate the state of the victim. The media is always trying to dramatize the news coverage both in terms of language and an image of real victims of the meaning of the photo wascrueler than the rape itself. Reality is interesting to watch and then

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analyze media constructions of gender on rape in the mass media and other forms of injustice and impact experienced by victims of rape. THEORETICAL FRAMEWORK · Gender and Stereotypes Gender is the inherent nature of men and women who are socially

and culturally constructed (Fakih, 2003: 8). In general stereotype is labeling or tagging of a particular group. Stereotypes are always detrimental to the women that lead to injustice. One form derived from the view of gender stereotyping is wrong, so many injustices against a particular gender, usually against women. For example, marking the beginning of the assumption that women are preening in order to lure the attention of the opposite sex, then every case of violence or sexual abuse has always been associated with the stereotype. People assume that women’s main duty is to serve her husband so it does not need to be educated. The stereotype of women’s education results in diminished (Fakih, 2003: 17). Many regulate ofgovernment, the rules of religion, culture and customs of the people who developed the legitimacy of these stereotypes. · Gender and Symbolic Violence Violence is an attack or invasion of a person’s psychological mental integrity. Violence against a particular genders due to the assumption that one gender (gender bias). Violence caused by gender bias called related gender violence (Fakih, 2003: 17). · Typology of Violence Galtung Violence can be physical or psychological dimension of personal and structural. Violence personal dimension (right) occurs when there are subjects (humans). Conversely, if there has no known structural culprit which power has become part of the structure unrecognizable without concreted actor. Typology of violence Galtung emphasizes personal-structural violence. Personal violence has subject-object relations and personal concern for the subject and the object is a human being. The difference between personal and structural violence are not too sharp. Both have a causal relationship and the dialectical relationship and can be physical or

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psychological harm, but structural violence is often seen as psychological violence (Marsana, 2000: 72). Structural violence can occur in all sectors of politics, economy and culture. Authoritarian political system that robs the individual political rights, discrimination law and facilitates the exploitation of the elite of the society is politically structural violence. Besides distinguishing perpetrators of violence based on the presence or absence (personal-structural) and its consequences (physical and psychological),Galtungeke developed typologies of violence by some other dimensions; intentional or not, latent or manifest, and there is or is not an object. · Symbolic Violence Bourdieu Symbolic violence is violence discourse is more a condition of intellectual activity for the process to think of others so many forms of violence to be legitimate and even necessary. Because if it works at the level of thought, the victim does not feel so abused physically and psychologically abuse a legitimate and accepted voluntarily (Marsana, 2000: 15). According to Bourdieu, symbolic violence is violence that is “forced” to get compliance is not perceived as a constraint by relying on the collective expectations of the beliefs that are socially embedded. The theory of symbolic violence based on the theory of production belief, derived from the socialization process necessary to produce social actors equipped with schemes of perception and appreciation which enables them to receive commands given in a situation or a discourse and compliance (Rusdiarti, 2003: 38). Social actors to accept violence as a natural symbolic as symbolic violence using cognitive structure that has been held by social actors from birth, with the objective structures that exist within the social world. Mechanisms of symbolic violence go two ways, namely euphemized and censorship. Euphemized usually makes symbolic violence invisible, run smoother, cannot be recognized, and is selected by “unconscious”. The shape can be a trust, duty, loyalty, courtesy, gift, loan, reward or mercy. Meanwhile, make the violence symbolic censorshipmechanism appears as a form of preservation of all forms of value that are considered the “norm honor” (Rusdiarti, 2003: 39).

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· Simulacra Reality Rape cases can be studied with the theory of agenda setting Maxwell E. Maccombs and Donald L. Shaw (1992), the choice of media to disclose, publish or not a fact. However, when analyzed more deeply, the actual coverage by the media is to establish what is called simulacra of reality by Baudrillard (1995), the disappearance of boundaries between factual reality and reality is a fictional character. That is because the media slender do blow up and dramatize actual fact that it is difficult to distinguish between the real conversely. What is called to the fact the truth is replaced by the fact that packaged by the media to dramatize that fact. This resulted in a second rape (the second rape) because the news media will make a tremendous psychological burden for the victims and their families. And mass media pose new era in which the old forms of production and consumption has given way to the new world of communications. Unlike the old world, the new world order is basing itself on the pattern of feedback liaison and interacting; processes are narcissistic and always involve a change in the surface. Along with the disappearance of public space, news invaded up to the private sphere. The loss of public space is followed by the disappearance of the private sphere. Public space is short term a spectacle and private space is no longer a secret. Even before there is a clear distinction between public and private spaces, now the distinction has been erased in the form of obscenity information in the most intimate of our lives and has become a media spotlight (Sarup, 2008: 299). There is an interesting relationship between writing Marshall McLuhan and Baudrillard writing. According to McLuhan, the medium is the message and the importance of that message and not the content but the form of media. While the view of Baudrilard, TV and media functions are blocking the response, privatize individual, put them in a private space and cause the simulacra of reality. This means that a real watch and May no longer be distinguished. Society has now reached a stage called hyperrealists, the state where the state between reality and illusion become blurred, the reality as it is and reality as it should be gone. In the world of Baudrillard, all “hyper” than the reality. Being hyper means defrosting, not exceeded or separates their reality. When the boundary line

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between the real and the result of reality eroded mangier more “real than real” and has become the only existence. REASEARCH METHODS This study used a qualitative approach to spectrum the depth of social phenomena. Rape cases that had been reported by the media tend to

lead to gender bias. Media coverage is a fact that creates a multi-interpretation. This is seen in the use of written language in the news media that tend to marginalize women. Collected data is done by prioritizing search cases of rape were reported in the press. Rape cases analyzed in this study came from Surabaya and Daily Radar Daily Memorandum. The reason for using the media source contains as many cases of rape and can be used as a comparison in the news media, especially loading photos and text language used so bring up the subject. This study uses framing analysis. A method has reveals the politics of mass media. Eriyanto (2002), William A. Gamson and Andre Modigiani (1989) and Robert Entman (1993), saw the news media qua a fact that that is the problem framing analysis is how the media constructed reality or event. More specifically how the media framed the events in a particular construction. Framing a focal point is not whether the media gives a negative or positive interpretation but how to frame developed by the media. Analysis framing, according to George Aditjondro (1992) is a method of presenting the reality of where the truth about an event not avoided completely, but gently deflected by giving attention to certain aspects only using certain terms connote, aided photographs, caricatures and tools illustration involving all workers editorial section of print media. Reporter in the field to determine who interviewed and whether the report will be posted on the reporter or not and to determine what titles will be awarded. Advance planning officer with or without consultation with the editor to determine whether the text should be accentual news with photos, cartoons or other illustrations or not accompanied by photographs, caricatures or even illustrations are selected. Even framing the analysis involves not only media workers, but also

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parties to the dispute in certain cases, each trying to show the sides of the information you’ll want it while actualize validity of his views with reference to knowledge, ignorance and feelings of the reader. Analysis of the mass media as framing makes an arena where information about certain issues contested in a symbolic battle between the various parties who are both wanted his views supported readers. Framing analysis as a method of text analysis much influenced by sociological theory: Peter Berger and Erving Goffman (Jacky, 2003: 5), ie, the fact is social construction. These processing is ultimately framing the analysis of how the reality of it present in front of the reader. What do we know about the social reality depends on how we do the frame of the events that provide insight and specific meaning to events. Framing can cause a similar event can produce radically different story if the reporter has a different frame when he saw the incident and wrote his views in the news. If reported by the media is often the result of their views (predisposing perceptual) reporters when seeing and covering events. Framing analysis is used to determine how the reality of the same events differently packaged by journalists to produce news that is radically different. Here are the stages or the process of framing analysis (Eriyanto, 2007: 83): TABLE1. FRAMING ANALYSIS STAGES

Sources: Eriyanto, 2007: 83

One of the effects of framing social reality is complex, full of irregular dimensions and presented in the news as something simple irregular and meets certain logic. Framing provides tools how events are shaped and

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packaged with a category known to audiences as it helps the audience to processing framing information is known, the key words and a certain image (Eriyanto, 2007: 83). RESULTS AND ANALYSIS The preaching of some media about cases of rape is very interesting to

analyze because it involves the protection of the dignity of women victims of rape and her family especially if the offensive and create gender sensitivity. Many freight media coverage of rape cases turns more to discredit the victim, causing gender bias. In the media often publish rape victims or reveal the identity of the photos of the incident. That is because the use of visual images (in this case the victim’s photo) gives the reader the authentic facts of the case (Jacky, 2000: 5). But the visual image will only lead to the second rape (second rape) by the media to the victim yet again with the stereotypes that developed in the community over the news media came to be called the third rape (third rape). The third rape is a term used to describe the result of another writer who felt victim of rape. This result may be a rumor (stereotype) from the community, which in our society develops the notion that rape is a disgrace. · Daily Radar Surabaya The first rape case is including an exceedingly provocative title of “Father of ravish Stepchildren”. Of the title is the word “ravish “replaces the word rape and giving it meaning rape action without any coercion and away from violence. The sentence is a symbol of a given medium as its message. These symbols communicated in the media thus can be captured by the public, including victims of rape or a rape victim’s family. The process of interaction like this is categorized Bourdieu qua symbolic violence (Marsana, 2000). “It looks qua often left his wife works out of town that Sugeng lonely”. Sentence fragment above can be interpreted that the rape caused Sugeng left his wife works out of town so the less sexual desire fulfilled that eventually became an outlet stepsons. In this case the media gives it meaning that rape is the fault of his wife, who works out of town.

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FIGURE1. TEXT NEWS RAPE “BAPAKHAMILIANAKTIRI”

Sources: Daily Radar Surabaya, March 24, 2005

The attitude of the news media that dramatize the psychological burdens for the victim despite the victim’s identity disguised as “bunga”. The media use the word “bunga” saving constructs of language. The word “interest” connotation where “interest” is a fragrant herbs and anyone can pick it. Connotation of the concept of “sign” in semiotics approach emerged as a stable of a function “sign” denotative (Umberto, 2009: 80). Media bias against the perpetrators clearly demonstrated with the preaching of the word poll cornering women. A woman who is received stereotypes of society. Stereotypes attached to women this is a form of injustice (Fakih, 2003: 17). Construction people who think sex is a taboo to be one of the causes of sexual harassment. Most people do not want to reveal even the meetings tend to hide the incident as rape was considered a disgrace. So the case was revealed mid-September 2004 after seven months has not publicly known. This proves the fears of victims and families of the “rumors” of society. Media in this case as if just transferring the facts on the ground, but the rape news reporter (news writer) deflect the fact that the case with the simulacra of reality rape. From the results of the offense, the offender was sentenced to only seven years in prison. Obviously this punishment is not proportional to the suffering of the victim by the act of a father who thinks his son as a prostitute that can be used at any time as the goods. “bunga, cannot do anything about it. Until finally, mis conductles to occurred in bunga room. Since then, every existing occasion, Sugeng stepson’s always screwed. In fact, intercourse is done up to ten times more. Every time is clocked. Interest, has given pocket money Rp 5000-

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10000 “(Radar Surabaya, March 24, 2005). Of the phrase “Bunga, given pocket money 5000-10000 Rupiah” shows that women only undervalued before men. Women in this case considered being items that can be used and purchased with money, without considering the human aspect. Not to mention the rape perpetrators are parents though its status is father-in-law, but it remains that rape is one of the acts of violence (violence), which is an attack or invasion of a person’s psychological mental integrity (Fakih, 2003: 17). The word “intercourse” that replaces the rape was not worth it because of marital intercourse is typically done without coercion. Media in this case showed no coercion in rape. Elements of violence and coercion are not shown by the media in the case of rape, and the victim is made the object of preaching. Fragment of the phrase “Bunga” cannot do anything about it. Until finally, the misconduct that occurred in the room of bunga “, illustrate the women do not have any ability and strength when dealing with men. Women have constructed the man standing under construction so it becomes legal and legitimacy that women do not have the strength to fight the man when the battered condition. Culture patriarchy who thinks men are above women always be an inspiration to construct rape media in preaching. · Daily Memorandum In cases of rape Memorandum Daily published on December 5, 1999, entitled “Uproar Kediri, Girl Raped and Murdered Veiling: Towards Emerging Fasting, Allegedly Semobawok Doctrine” which is placed on the first page of the media. The news comes with a photo of the victim who was wearing a headscarf. In the news flow of events rape Memorandum contains complete with the victim’s identity. The media is censoring body’s photo by blurring the hips and thighs victims, so it seemed pathetic. However, when examined more precisely loading the photo itself that much more pathetic. Pooled photo looks naked bodies are hurting the dignity of the victims and the families left behind. Loading of the photo is a form of symbolic violence (Jacky, 2000: 50) to the victims and their families. Photos of victims of the “spectacle”

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the public will make families become psychologically collapsed. Violence against victims does not just stop there. Photos of the deceased when he was alive, too soccer jersey are daubed. Not bear -hearted photo is loaded with photo pose veiled. This seemed to provide a clear picture to the reader about the identity of the victim of the original face as a victim and not just photos bodies were deliberately obscured the picture. While showing photos with hijab pose will also cause religious sensitivities and obviously this is a form of harassment against one religion. FIGURE2. TEXT NEWS RAPE “UPROAR KEDIRI, GIRL RAPED AND MURDERED VEILING”

Sources: Daily Memorandum, December 5, 1999

Loading rape story was a form of simulacra of reality characterized by the disappearance of public space so that the news can be invaded up to the private sphere. Home territories have been lost marked by the loss of private sphere due undermined by the media (Sarup, 2008: 299). Private sphere turned into a public agenda that the media is able to enter the private to public access. Rape case which was originally a private arena successfully herded into the public arena so that media bias for public consumption.

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It is not known exactly what the media mean additional photos deceased when he was alive. It may be that this is just a media strategy that preaching is more impressive, because the picture can explain more about the identity of the victim so that it seems more dramatic and sensational. However, the question is whether to picture the deceased victim was still alive when it needs to be displayed? Is not it better showing photos perpetrators of rape if the perpetrator hasbeen caught, so people know clearly about the identity of the perpetrating. CONCLUSION Until now the construction of a patriarchal culture still puts the position of women under men so that they only used the property (comple-

ment). This view led to violence against women. The existence of violence is against women due to the inherent stereotypes triggering men to commit such acts. The violence also affects children under age girl or teenager. Media should stick to the Code of Ethics of Journalism at the preaching of rape victims, the need to use a pseudonym or use initials. But those boundaries disappear when the media show the name rape victims, parents’ names, address, age. It stretcher will only show gender bias. Moreover, the language used tends to hyperbole and dramatized so impressed cornering victims are mostly women. News media also frequently override the dignity of victims of rape. This is called the second rape (rape second). In the media often publish rape victims or reveal the identity of the photos of the incident. The use of visual images (in this case the victim’s photo) can be interpreted to give the reader an overview of the authentic facts of the case. Ironically, it would likely cause the stretcher second rape (second rape) by the media to the victim, not to mention the stereotype that developed in the community for the news media came to be called the third rape (third rape). Coverage in some media about cases of rape is relevant to analyze because it involves the protection of the dignity of the victims of rape and their families, as touched on gender sensitivity. Many news media reveal cases of rape turns more to discredit the victim, causing gender bias.

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REFERENCES Aditjondro, George. 1992. Pemberitan Engineering Processes Environ-

mental Problems In Indonesia Press. Panel Discussion Paper Anniversary Discourse Universitas Kristen Satya 36th in Salatiga, 16 November. Eco, Umberto., 2009. Theory of Semiotics: Significance of Communication, Code Theory, Production Theory and Signs. Yogyakarta: Creative Discourse. Fakih, Mansour., 2003. Gender Analysis and Social Transformation. Yogyakarta: Student Library. Foucault, Michael. 1997. History of Sexuality, Sex and Power. New York: Scholastic. Gamson, W. and Modigliani. 1989. “Media Discourse and Public Opinion on Nuclear Power: A Constructionist Approach.” Journal of Sociology.Vol. 95. No. 1, July 1989. Jacky, M. 2000.”The Second Rape Media”.Journal joints.No. 2.April to June. Surabaya: LSPS. Jacky, M., 2003. “Concept and Theory of Discourse”.Journal paradigm.Vol. 1.No. 2. Surabaya: Sociology Prodi UNESA FIS. Marsana, Windhu. 2000. Power and Violence By Johan Galtung. Yogyakarta: Canisius. Memorandum.”Uproar Kediri, Veiling Girl Raped And Murdered: Towards Emerging Fasting, Allegedly Semobawok Doctrine”. December 5, 1999. Paloma, Margaret. 1984. Contemporary Sociology. Jakarta: Eagles Press. Radar Surabaya. “MrHamili Stepchildren”. Metro Radar. Thursday, March 24, 2005. Sarup, Madan., 2008. Free Introduction To Understanding Postrukturalisme and Postmodernism. Yogyakarta: Jalasutra. Siregar, Ashadi. 1999. Media and Gender: Gender Perspectives On Newspaper Industry in Indonesia. Yogyakarta: LP3Y. www.jawapos.com. “Psychic Violence More Dangerous”. 28 November 2004.

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Rationalism and Future Political Islam in Indonesia Nurus Shalihin Lecturer of Sosiology Department at Faculty of Usluhudin, IAIN Imam Bonjol, Padang. Email: [email protected]

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ABSTRACT This paper aims to examine the Muslim rationality in legislative and executive election. And also understand the reason why they choose a national party, or Islamic party. With Alkaline the data of legislative and executive elected in West Sumatera; from 2004-2009 periods. The paradigm of research is a rational choice theory. This paradigm supports to understand the political behavior of Muslim in West Sumatera when legislative and executive election in 2004-2009 period. Finally, the research finds out that Muslim in West Sumatera always make a political choice rationale, and ignore the primordial consideration to choose the party. This fact is crucial factor why the Islamic party is defeated in West Sumatera, and other places in Indonesia. Keywords: Political Islam, Rationalization, Democracy, the rational choice theory. ABSTRAK Tujuan penulisan paper ini adalah untuk mengetahui rasionalitas umat Muslim dalam pemilihan legislatif dan eksekutif. Dan juga untuk memahami alasan kenapa mereka memilih Partai Nasional, atau Partai Islam. Dengan data yang bersifat alkali dari pemilihan legislatif dan eksekutif di Sumatera Barat; dari periode 2004-2009. Paradigma penelitian ini adalah Teori Pilihan Rasional. Paradigma ini membantu memahami perilaku politik dari Muslim di Sumatera Barat pada saat periode pemilu legislatif dan eksekutif 20042009. Pada akhirnya, penelitian ini menemukan bahwa Muslim di Sumatera Barat selalu membuat pilihan politik yang rasional, dan mengabaikan pertimbangan primordial untuk memilih partai. Fakta ini merupakn faktor krusial kenapa Partai Islam mengalami kekalahan di Sumatera barat dan daerah lain di Indonesia. Kata Kunci : Islam Politik, Rasionalisasi, demokrasi, Teori Pilihan Rasional

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INTRODUCTION Constructive interpretation of the influence of Islam can be traced

through the historical approach and the dynamics of contemporary Islam in depth with respect to the factors and context of the emergence of Islam (Lijakumpu, 2006:3). The emergence of “Political Islam” is the contemporary face of Islam that developed at this time, and grows in countries or in Muslim-majority countries that are open to the participation of political Islam as Turkey and Indonesia. Indonesia as the largest Muslim country can be categorized as a nation open to receive even encourages the growth of political Islam. It can be seen in the presence of various Islamic parties complete with a network of state in a clingy to him accompany the development of democracy in Indonesia. If traced back, the rise of political Islam in Indonesia has been there since the pre-independence Indonesia. The waves were strong more and more, when Indonesia became independent, and make the election as part of the pillar and procedural democracy. In this condition the various Islamic political parties emerged. Presumably this is part of the political attitudes of Muslims in Indonesia qua a nation (Indonesia as a nation) the desire to participate in building democracy and strengthening the nation-state, nation-state. It also makes Indonesia complete with a portrait of democracy growing on it be interesting to understand. Fauzan Ali Rashid (2010:1-4) suggests three assumptions made Islam and democracy, with political Islam qua interesting locus to be discussed. First, political Islam in Indonesia is different patterns with Islamic movement in different Islamic countries. One difference is the inclusion of local culture in a democracy. Secondly, Islam as religious affiliation of the people has the ‘power’ politics is quite large. Third, political Islam has a history of struggle and resistance series1. In line with Fauzan Ali Rashid, the study Rizal Sukma (2004:9) explains that long before the Dutch came and change the political structure in Indonesia, Islam has a privileged position. It can be seen from several major kingdoms in the archipelago-from the Sultanate of Aceh in the west to the Sultanate of Ternate and Tidore in the south-Islam has become a dominant belief system, not just at the elite level but affect the structure of the royal kingdom as a whole. In this context it can be seen

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later became the pillars of Islam and the material is important for democracy in Indonesia. Interestingly, prior to democracy in Indonesia growing and developing as a political character Indonesia, Islam has indeed become a force not only to ‘bulldoze’ imperialism-colonialism, but also as forming the face of democracy in Indonesia. Dynamics and political battle is forces of political Islam in Indonesia, looking at the period of parliamentary democracy (1955-1956). During a parliamentary democracy, political Islam occupies important position in the nation’s political dynamics. Political parties like Masyumi, NU and Perti as a representation of the strength of Islam gained a significant voice in the election; Masyumi (20.9), NU (18.4) and Perti (1.4). Due to the failure of parliamentary democracy and representation became a destination majority Indonesia, President Soekarno rated as the base for the political instability in the country, making Soekarno turn around the political policy of parliamentary democracy to a democracy. Although Islam under this new political model faded as a political force, but Islam has become one of the pillars of the forces that determine the fate of empires Soekarno. Exceed dramaturgy Old Order regime, interesting to note how the twisted political Islam in the early days of the Indonesian state. TABLE1. ACQUISITION OF SOUND DYNAMICS IN ELEC

Sources: Fauzan Ali Rashid, 2010

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The data above can be used as an indicator that political Islam is not only a part of a democratic Indonesia, but also the pillars that make up the face of politics and the life of the nation and state of Indonesia. Political Islam in Indonesia is full of romance, from anomalous to unexpected surprises. He added Assyaukanie (2010:3) although it is still too early to say Indonesia as a model of democracy in the Muslim countries, but taking into account the way of democracy in Indonesia over the past decade and how it interacts with land matters Islamic, it is not plentiful if the state Muslim countries see Indonesia, if not qua a model, at least as a benchmark to see how the issue of Islam and democracy are discussed. However, Indonesia has experienced a process of democratization that is different from all Muslim countries. There are anomalies in the middle where the victory of Islamic parties electorally in the Middle East, Indonesia actually showed the opposite result. Unlike in Egypt, Turkey, and others, the election is not a good event for the Islamic parties in Indonesia to power: in three elections since the fall of Seoharto, Islamic parties always lose. There are important things to be conveyed by Luthfi Assyaukanie that Indonesian Islam is not really a positive correlation with political choices. Is this true? Failure of Political Islam in Indonesia is also traceable to the New Order era. Menutur Robert W. Hefner (2000:58) due to the failure of political Islam is so strong and effective control of the power of the regime against the influence of Islam. In this condition, the power of Islam both in the elite and grass roots are not growing, and even can be said to be ‘temporary paralysis’. In political expression, the power of Islam fused at a party; United Development Party. As the excesses of this diffusion, Islamic Politics in the New Order era was not developed. At the grassroots level; Muslims, the presence of PPP for the presence of the party is only used as a formal structure of politics and subterfuge New Order regime to calm turmoil Muslim elite of the regime in power, the New Order. This condition is then termed the ‘domestication of Islam’: a taming of Islam, so as not to threaten the power. In different anal Iasi, Greg Fealy (in Akbarzadeh and Saeed, 2003:150) explains that the failure of political Islam in Indonesia from the 1950-1980s era ingots mentality caused by the political leaders of Islam as well as the mentality of Muslims in

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quantity the majority, but a minority mentality . Why Greg Fealy expresses such extreme views? Greg Fealy seems to depart from the reality of politics in Indonesia, where Islamic parties tend to be second class as an option in the community, In terms of Islamic parties have no power to grab the attention of Muslims in Indonesia. Study of Thomas B. Pepinsky, R. William Liddle and Saiful Mujani conflict with Islam as a religion of democracy as a form of government in Indonesia found two typical political Islam; ‘Islamic parties’ and ‘Islamists parties’2. This difference seems to depart from the two forms of public response to the Islamic parties in Indonesia. According to this study ‘Islamic parties’-PKB and PAN - the 1999 elections are more likely to be accepted than’ Islamists parties’-PKB and the United Nations. Departing from this study seems interesting to understand how real reasoning or rationalization of Muslims against their political choices. By understanding the political fate of Islam and Muslim political choices by rational choice perspective, it is hoped the facts Muslim political choices can be assessed and evaluated based on forms of reasoning underlying political behavior choices. THEORETICAL FRAMEWORK Action and the choice of a form of behavior for human reason and

rationality have unique and specific. Amartya Sen (in Elseter, 1986:61) explains that the preference of human behavior generated by the choice itself. It is understood that the truth is actually the real issue is the choice of psychological problems, in terms of a choice determinants. Psychology experienced by actors. Another thing; choice indeed social problems: it is constructed by social forces surrounding the actor when choosing and deciding a choice. Beyond assumptions built by Amartya Sen, when discussing the options in relation to rationality automatically deliver the theory of “utility” (maximization paradigm), popularized in economics. Fuad Aleskerov, Denis Bouyssou, & Bernard Monjardet (2007:31) asserts that the relationship between rationality and choice appertain close and inevitable. It can be traced from the model selection based on the paradigm of maximizing (maximization paradigm). If so, what is the under-

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lying assumption that the maximization paradigm can be a powerful and robust for understanding the relationship between choice and rationality? Peter C. Fishburn (1968:335) parse that utility theory is the study of human preferences or values; under the assumption that every human being has its own method of calculation of the actions and behaviors. More and more clear that the paradigm of utility networks, actions, and choices of human behavior based on the calculation of highly rational and measured. Strengthens, the study Nicolaas J. Vried of Rational Behavior and Economic Theory (1995:263-264) explains that humans can be assessed as steady as homo economics rationalities its cargo. Terminology of homo economics primarily by orthodox economists like Adam Smith-grounded by empirical reality, and even looks very natural that people will always decide and choose an act of political economy is also based on the calculation of opportunistic behavior; how lucrative that choice for themselves (self- interest oriented). Other terms of utility paradigm is “cognitive science”: an approach, methodology questioned the “reasons” (reasoning) and decision making (decision making). Craig R.M. McKenzie (2003:403) considers that one popular approach used by scientists to question and understand the relationship of “rationality” and “choice” is a methodology cognitivist, where reasoning and its relationship with the option to then be built in modeling. Both paradigms utilities, and cognitivist basically stopped at the same point, which is sure of the relationship between the ‘rationality’ and choice, good choice to act in the world economy and world politics. Another term that may also explain the relationship between the rationality of choice and then called the ‘rational choice’ is the concept of “bounded Rationality” or “limited rational choice theory.” What is the theory? How to do with the ‘rationality’ and ‘choice’? Till Grüne-Yanoff (2007:534) interprets the concept of ‘bounded Rationality’ is used in four domains, namely, first, to criticize the theory of standard (read: the theory of classical rationalism is too normative), and second, to enrich the behavioral models and theories third, to provide the appropriate rationale, fourth, fully explain the rational concept. In this context, exploration of concept of ‘bounded Rationality’ seems to help explain how the real essence of

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‘rationality’ itself, to then be connected to the ‘choice’ of politics. The concept of ‘limited rational choice’ is the behavior of individuals who continue implicated (Grüne-Yanoff, 2007:537-538). Can be expressed phenomenon that has become a separate and independent phenomenon in the social structure because real people are always faced with limited choices. In this condition the calculations are accurate and have a higher rationality required by humans before deciding on a choice and social action. If so how the concept of rationality that was very economical then used as a theoretical concept to explain political behavior? Is James Buchanan (1998) territorialized or extend the theory of rationality in economics confined was then transformed in studies that are concerned about political behavior. James Buchanan in Politic by Principle, Not Interest (1998:3) describes the phenomenon of political-interest or ‘politics by interest’: a reality of elite political behavior driven by opportunistic calculations, the effect of the human tendency constantly, simultaneously, to understand themselves as bidders, suppliers, buyers and sellers. Similar reasoning is then a form of political behavior to plungeboth at the elite and grassroots-utilitarianism into the horizon: a behavior that is based on the calculation of pragmatism-”profit, but do not want to lose.” Assumption James Buchanan’s political behavior if considered more radical, would clarify the ‘red thread’ between rational choice economists who grew up in the environment with the use of rational choice James Buchanan to understand political behavior, political behavior both elite and grass roots (grass root society). In genealogical thread is visible from the building of the assumptions underlying the analysis of James Buchanan. For her ‘reasoning’ that affect, behavioral constructs of political choice and political action with ‘reasoning’ that exist in economic behavior (Buchanan, 1998:3). This means that political behavior can be assessed rationally when politicians choose to act for mode benefit. This assumption is actually derived from the paradigm of utilitarianism believe that every human being will always be faced with the desire to maximize self-interest. In this context, how the behavior and response of the political Islamic society to be understood? Zuly Qodir in Political Sociology of Islam: Political Islam and Democracy Constellation Indonesia (2012:8, 21 & 51) have tried to explore the response and attitude of Muslims

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toward political Islam. At least three Indonesian Muslim attitudes toward political Islam who grew up in Indonesia, the first, Islam requires the formalism of Islam in Indonesia.3 The Second is substantial’s Islam which emphasizes the importance of ethics (Islam) in the roles of state4. The third, Islamic secularism needs to see that a strict separation between Islam and the affairs of state. Islam took care about the worship of God, and the care of social issues such as education, poverty reduction, suffering people and so on. Search Zuly Qadir has unmasked the Muslim response to the politics of Islam, especially the Islamic parties is not constant even though Islam is the majority religion in Indonesia. Because is dynamics of political behavior and political behavior in response to the two sides are to be seen and understood. At the other end, or the reasoning behind the selection process of rationalization of Muslim political choice, is what drives the dynamics of the behavior of political elites and the Muslim response to it. Then what about the fate of political Islam, more specifically Islamic parties in Indonesia? METHODS OF RESEARCH The types of this research is studied qua research evaluation of

rationalizationin development phenomenon at islamic political in Indonesia. The methods of data collection in this research are interview and literature from types of secondarydata, both of the book, journal, and mass media. Analysis method of this research is critical analyzing, i.e: resources of primer data in this analysis by critical toward secondary data and then directing conclusion taking. RESULTS AND ANALYSIS If Kikue Hamayotsu (2011:133) put the question why some political

parties based on religion terribly survive after adopting a moderate ideology, then similar questions are also worth asking is why Islamist parties in recent elections in Indonesia, tends to decrease electability? Studies on electability Kikue Hamayotsu National Awakening Party (PKB) and the Prosperous Justice Party (PKS) could be an illustration that even though the two parties (PKB-Islamic party - and PKS Islamic party) together make Islam as a political ideology inspiration but public response to both dif-

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ferent, even high-contrast and opposite each other. After the third wave election (read: Election 2009) the fate of the Islamic parties in elections seem bleak fate (Hamayotsu, 2011:136). Kikue Hamayotsu chooses two parties, because both parties that represent these two categories of political Islam in Indonesia, Islamists and Islamic party party. CLA has from polar of Islamic party and the Islamists of PKS party. TABLE2. MEMBERS OF THE HOUSE OF REPRESENTATIVES (1999-2009) ORIGINATING FROM ISLAMIC PARTIES

Sources: Hamayotsu Kikue 2011

The table shows that a significant reduction in electability Islamic parties from one election to another. There is a tendency that more ideologically Islamist parties like PKS outperform the more moderate Islamist parties like PKB. Domination PKS seats in the 2009 election as many as 57 seats, ahead of PKB that only get 27 seats in the same year is a fact. If the dynamics and fluctuations electability Islamic parties take place among Islamic parties, then what if compared with the nationalist parties that do not rely on ‘Islam’ as a determinant factor to lure voters (voters). Shall Islamic parties have good luck or bad luck as even having experienced a moderate Islamic party? Despite the downward trend electability moderate Islamic parties such as PKB and PAN, but durability as a political party is stronger than Islamic parties such as non-moderate MCC and the United Nations. Beyond this fact, both moderate Islamic party and non-moderate, both equally decreased electability rather than nationalist parties. Why is that and how is this proved? Participation of Muslims and political preferences in West Sumatra, for example, seems to explain how the fate of the Islamic parties in elec-

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tions when compared to the nationalist parties. In fact, voter turnout in the elections 2004 and 2009 showed a positive thing, in which the percentage of the voting was relatively higher when compared to abstain; 75.56% voting, and 24.44% were abstain. While the 2009 elections, 70.46% used their voting rights and 29.54% abstain (KPUP province West Sumatra 2005-2009). Legislative Election Data DPR, DPR, in the province of West Sumatra in 2004 and 2009 showed that the political participation of Muslims in West Sumatra can be assessed as a positive thing, because political participation increases every time the election. Is this high level of participation, something where the majority of Muslim voters in West Sumatra? In that sense, whether choosing a religious piety, where Muslims make everything or anything that is attached to a generative in Islam, is seen as a piety? Apparently, choosing is not a devotional, but only part of the responsibility as citizens of Indonesia. Muslims in the West Sumatra believe that selecting or giving voting rights is the responsibility as citizens, not as representing the religious attitude; although MUI or presence of political Islam may color the constellation of local politics, but people interpret their actions or political choice not an expression of religious piety. Referring to the study Nurus Righteous (2011) on the political choices of Muslims in West Sumatra shows clearly that voting in elections is not the encouragement of religion, but as the fulfillment of one’s responsibilities as a citizen. The views Aris and Alfian fairly represent that abstain or voting not represents the attitude of the religious person. Aris a woman home nearly all elections followed properly. For Aris voting at any election saw as a matter of routine and responsibility as a good citizen. Golput is not unlawful, because a lot of people who do not know how the personality of the person who will be selected. Nowadays few people have the decency to be chosen as a leader, let alone the candidates’ positions only hunt for their own advantage Yanti added. Alfian a man who works as a small trader, his life was never to vote in the election, due by Alfian, besides his voice was not quite significant in influencing political life, elections also did not bring concrete benefits for life. Instead of anti toward politics, but there are still many who need more serious thought. Although no vote, yet still continue to run elections, and nearly everyone

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received the election results’ Alfian said that all his life had never used their right to vote in any election. The following quantitative data strengthen the qualitative data above, where both the data equally show no positive relationship between religion and political choices of Muslims in West Sumatra. There are five factors and reasons why people give partitisipasi pilitiknya in choosing, first, 45.08% of voting rights using the action is driven by the belief that the rights and responsibilities as citizens. Second, holds 16.67% chose was the arena show and get the existence of a good citizen. Third, using a 3.79% voting rights aim to avoid social sanctions. Fourth, using a 14.77% voting rights with determinates in order to get the leaders of Indonesia, and runs fine. Fifth, only 7.95% who believe that choosing is part of the responsibility as Muslims and religious people (Nurus, 2011:128).

Whether this can be considered as symptoms of secularization or rationalization for just the sort of political choice? In general, Muslims believe that commitment to God Almighty must have social implications: an impact of religion on the lives of a better world. This was later termed by Heirich Matthee (2008:39) with a positive correlation between monotheism and social life. Matthee Heirich views this relationship with the Muslim political choice and political participation of Muslims to establish a democracy, sometimes encouraged by Islam. But it is not necessary; steady, and constant but the relationship is a dynamic thing. Bob Hefner as determined Zuly Qodir (2007:166) thesis progressed

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to symptoms ‘ whelm ‘ in Indonesia, a fact that Muslims in Indonesia more and more fragmented. It is run over in the absence of political control qua that the potential for violence and conflict more and more enlarged. How can this be connecting with Muslim political choices? For the political elite’s, the fragment condition of the Muslims; fragmented assess profitable. This condition makes it possible to establish more Islamic parties and enliven the party-electoral democracy in Indonesia. Islamic parties does not growth automatically attract attention, not even able to win the hearts of Muslims in Indonesia. Zuly Qodir (2007:167) with reference to data from KPU/15 April 2004 explained that the Islamic parties and candidates that carry the Islamic identity is not the top choice of Muslims in Indonesia. In fact, the PPP is finished fourth, 8:27%, 7:13% MCC in sixth, the Crescent Star Party 2.52%, 2.28% Reform Star Party, Unity Party Nahdatul Umah Indonesia 0.78%. The question arises as fact “wretched” of his electability Islamic parties in Indonesia is why it happened in the middle of the Muslim community is so great, whether it’s a sign that there is a process of rationalization of the political choices made by the Muslims? On view of political behavior of politicians in Indonesia does not go away, but all of it was recorded and then evaluated by the people, especially Muslims. Robert Grafstein (1999:15) uses a rational approach to understanding the behavior of political elites, how they portray themselves, how they socializing with voters, or voters. She gave birth to a theory to explain the desirability of a politician with various combinations of “state” and “quirky behavior” to determine a person’s level of desirability. If the political elites-candidates, and political parties have separate and distinctive way to subdue the Muslims, then Muslims as voters also have a rationality that is also typical to decide to whom they give credence. So what kind of reasoning is? There are many forms of political choice considerations. Consideration is made of typical reasoning, and determinants of the image surface (surface of performance) displayed by politicians and political parties. Associated with this view, today’s face of political Islam in Indonesia is moving in the era termed Pierre Rosanvallon (2008:173) and with “the age of deselecting”; an era where politicians decay voter confidence or deselect-

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ing. Reason etymological (the etymological sense) to select candidates or legislative candidates is not flexible to choose all the candidates, but the reason it is faced with choices. In this condition the image and the performance of the candidates of the Islamic parties to determine voters’ decision to give voice to their beliefs or political party. Unfortunately, in Indonesia the appearance and performance of candidates even Islamic parties are not privileged. It encourages voters to rethink their support for the Islamic party and its candidates, but even it is not uncommon that withdrew their support. It can be traced from the preferences Muslims an increasingly declining against Islamic parties. Why is that, does this signify that Islam is no longer a preference or a reference to Muslims in the political choice, then how is this explained? The results of the legislative elections in 2004 and 2009 in West Sumatra at least be used as a marker that religion (read: Islam) does not always correlate with political choices. Although the majority of constituencies in West Sumatra are ethnic Minang (88.35%) and Muslim (98.04%), but the large number of Muslim constituents rate able straight with their political choices, even more nationalist party of choice for Muslims than Islam-based parties. The data in 2004 and 2009 legislative elections fairly representative excused for this thesis. Despite the achievements of Islamic-based parties in the 2004 legislative elections to win political contestation to gain 327 seats (54.05%) of the 605 contested seats (550 seats for District / City, and 55 seats for provincial parliament), while the nationalist party gained 249 seats ( 40.82%). However, the difference of 44 seats (8.00%), the victory of the Islamic party is not so significant when compared with the ratio of the number of voters who are predominantly Muslim (98.04%). The results of the 2004 legislative election may be gauge how true religion (Islam) does not always correlate with the political choices people. Moreover, if the assumption that the larger Muslim constituency in an area, the greater the chances of winning the party’s Islamic-based political contestation; tested with data 2009 legislative elections, the look is not righteous ratable between Islam and political choices people. If the Islamic parties in the 2004 election were able to win 44 seats (8.00%), is not the case in the 2009 election. Political contestation in the 2009 elections, Islamic

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parties suffered a crushing defeat, and only able to gain 241 seats (43.82%) of the 610 seats contested in each district / city and province. Islamic Party is not only able to maintain his voice gained in the 2004 election, they just have to lose 27 seats in the 2009 legislative elections. Data is increasingly confirming that in practice there distancing between ideology by choice or lack of relationship between Islam as an ideological basis to the Muslim political choices. Because there are other things to be considered in political choices qua track record, level of confidence, responsibilities, capability and performance (Nurus, 2011:134). It assumes there is a dynamic logic in mobilizing political choice, and the reason it was set up by the performance of political parties. Aaron Edlin, Andrew Gelman, and Noah Kaplan (2003:293) express assumption that political choice (political voting) is a rational choice. Told as a rational choice, because each voter always is considers the consequences of their political choices. In this context, Aaron Edlin, Andrew Gelman, and Noah Kaplan (2003:294) progress at least two assumptions of political choice as rational choice, namely: First, the decision to choose can be quite rational; second, a rational voter will decide to elect a legislative candidate based consideration of the social consequences if he chooses. Assumptions raised by Aaron Edlin, Andrew Gelman, and Noah Kaplan can be found in the legislative elections in West Sumatra. Muslims in the West Sumatra is more dynamic in providing support to political parties. However, Islam is not a decisive determinant of political choice in West Sumatra. It can be seen from the 72.35% of Muslims in West Sumatra first consider the capability of candidates or political parties, rather than ideological basis adopted by the party. Then, at the level of 62.12% Muslims also consider the performance of the candidates and the performance of political parties. Reinforced by the fact ironic, wherein Muslims in West Sumatra (merchants: 58.54%; workers: 50.00%) noted that the behavior of candidates from Islamist parties show no Islamic behavioral (Nurus, 2011:134-135). These facts came to be called the ‘rational consideration’: a rational consideration bases in Muslim political choices. Then, what about the future of Islamic parties in Indonesia?

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CONCLUSION Political Islam, if it is still trapped in the logic of common opportunis-

tic and not actually renew itself as a defender of the interests of the people and build closeness careful with political constituencies, it will arrive at its nadir. And the twilight of the political Islam is coming over. The question is why political Islam terribly shows grim face, particularly in Indonesia? Presumably the political movement and political force parties must recognize the answer, wherein Islamist parties are not able to perform as well as their arch-rivals, the secular parties. Graham E. Fuller in The Future of Political Islam in 2004 provides an analysis of the relationship between the failures of political Islam with a growing image of Islam is at the root of fate opaque of Islamic parties. Graham E. Fuller (2004:48) considered that the polarity of the Islamist group has touched the lives of many lines is included in the political life, complete with character literalism inherent in it. Rely too much on symbols primordially-Islam and its doctrines-but not accompanied by a matching behavior with moral teachings and soothing imagery. This makes the image of the Islamic parties’ terribly slump. It was originally (Election 2004) PKS defeated Islamic parties are more moderate as PKB: but the popularity of Islamic parties cannot match the popularity of the secular parties that do not rely on religious symbols in drawing the attention of Muslims. Of this fact there is a paradox in the development of political Islam in Indonesia: one side of Muslims eager for Islamic parties really consistently applied, internalization of moral values and spirituality into political behavior. In contrast, Islamic political parties are stuck with the behavior of pragmatism. This then makes Muslims in Indonesia are pessimistic; to no longer believe in the Islamic parties. Presumably this is the impulse of the expansion of Islam are too wide into political territory that had meaning or perhaps siltation in accordance with what is implied by Mark Sedwick (2006:126) when Islam entered the region of practical politics, it is the opportunistic and pragmatism are more likely to be shown than the best side of Islam itself. In the eyes of Muslims, especially in Indonesia, Islamist parties are no longer believed to carry much less fight for the aspirations of Muslims, and secular parties benefited over the situation. Only with improved performance,

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they were able to defeat the Islamist parties. If they Popularity terribly uphill, it is not the case with the Islamic parties, which are increasingly experiencing distrust: a condition of declining confidence in Islamic parties. This is caused by distance between “hope” and “reality”; between the desires of Muslims to the political parties with the political realities of Islam itself. Muslims finally concluded, Islamic parties are just tools for power, and it would meet his own destiny. ENDNOTES 1 A discussion of political Islam movement in Indonesia sees Alfian,

2

The Political Behavioral of a Muslim Modernist Organization under Dutch Colonialism, Yogyakarta: Gadjah Mada University Press, 1989. Deliar Noer, Modern Islamic Movement in Indonesia 1900-1942 (New York: LP3ES, 1982). Harry J. Objects, and Sunrise Crescent, Islam in Indonesia on the Japanese Occupation Period, New York: Library Jaya, 1980. J. Boland, Wrestling Islam in Indonesia, Jakarta: Graffiti, 1985. Cliffort Geertz, Abangan, Rasta, Priyayi the Java Community Ed. III, New York: Library Jaya, 1989. Hiroko Horikoshi, chaplain and Social Change, translation Umar Basalim and Andi Muarly Sunrawa, Jakarta: P3M, 1987. Karl D. Jackson, Traditional Authority, Islam and Rebellion, Case Darul Islam in West Java, Jakarta: Graffiti, 1990. Etc... See also Fauzan Ali Rashid, Democratic Indonesia: Experiences Largest Muslim Countries as Home Affairs, (Paper Presented on Annual Conference on Islamic Studies: Banjarmasin, 14 November 2010). The difference is presumably based on the fact sociological and ideological forms of Islamic parties. In this case, the term ‘Islamic parties’ ask the Islamist parties that have formed the basis of Islamic masses, and cultural-religious ties such as PKB and PAN. While the term ‘Islamists parties’ refers to the Islamic parties formed through political ties-ideological; party’s more radical is the meanings of Islam in relation to the state, such as the MCC and the United Nations. See Thomas B. Pepinsky, R. William Liddle and Saiful Mujani, Indonesian Democracy and the Transformation of Political Islam, retrived at www.lsi.or.id/riset/385/Indonesian% 20Democracy, accessed at 28-

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11-2012 | At 08: 42 pm. According to this view, is merely the Pancasila ideology-Rombak overhauled to suit the tastes of Indonesia, even the majority of Muslims who are residents of the archipelago. In a more explicit meaning, Indonesia should be based on Islam, so that Pancasila in Indonesia is a secular country that is still not clear alias as a Muslim majority country, as Pancasila is clearly not in accordance with the teachings of the absolute truth that comes from God. Therefore, Indonesia must be changed in order to get the blessing and benefit to all mankind (Zuly Qodir, 2012:8). Ethical religion can provide a foundation in the management of the country. Formalization of religion in a country will only stunt Islam itself, Islam teribly narrow and limited only understood by the interpreter, whereas Islam away from it all. Got it believes that Islam is the one but it has a variety of colors (Zuly Qadir, 2012:21).

REFERENCE: Assyaukani, Luthfi. 2012. Political Islam in Indonesia and Egypt: A Com-

parison. Discussion paper on “Political Islam in the Middle East and Indonesia”: Community Salihara, Wednesday, January 25. Aleskerov, Fuad., Et.al.. 2007. Utility maximization, Choice and Preference. New York: Springer. Akbarzadeh, Shahram & Saeed, Abdullah (ed.)., 2003. Islam and Political Legitimacy. New York: Routledge. Buchanan, James M. 1998. Politics by Principle, Not Interest. New York: Cambridge University Press. Elster, Jon (ed.). 1986. Rational Choice. New York: New York University Press. Edlin, Aaron, et.al. 2012. Voting as a Rational Choice: Why and How People Vote to Improve the Well-Being of Others, the Online Journal of Sage. Retrieved at http://rss.sagepub.com/cgi/content/refts/19/ 3/293. Accessed at 12.01.2012 | 5:40 pm. Fuller, Graham E., 2004. The Future of Political Islam. New York, Palgrave MacMillan. Fishburn, Peter C. 1968. “Utility Theory”. Journal of Management Sci-

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ence, Vol. 14, no. 5, January. Greend, Phil. 2012. Political Islam is a Failure, Nothing but Human Misery, retrived at www.danielpipes.org/comments/156593. Accessed at 12.01.2012 | 06:34 pm. Grüne-Yanoff, Till., 2007. “Bounded Rationality”. Journal of Philosophy Compass Vol. 2, no. 3. Grafstein, Robert, 1999. Choice-Free Rationality: A Positive Theory of Political Behavior. Michigan, the University of Michigan Press. Hefner, Robert W. 2000. Civil Islam: Muslims and Democratization in Indonesia. New Jersey, Pricenton University Press. Hamayatsu, Kikue., 2011. “The End of Political Islam? A Comparative Analysis of Religious Parties in the Muslim Democracy of Indonesia “. Journal of Current Southeast Asian Affairs, Vol. 3. Lee, Jeff., 2004. “The Failure of Political Islam in Indonesia: A Historical Narrative”, Vol. 4 | N. 1. Linjakumpu, Aini., 2006. Political Islam in the Global World. UK, Ithaca Press McKenzie, Craig R.M., 2003. “Rational Models as Theories-not standards-of behavior”. Journal of Elsevier, Vol. 7, no. September 9. Matthee, Heinrich., 2008. Muslim Identities and Political Strategies: A Case Study of Muslims in the Greater Cape Town area of South Africa, 1994-2000. Marburh: Kassel University Press. Pepinsky, Thomas B., e.t.al. 2012. Indonesian Democracy and the Transformation of Political Islam, retrived at www.lsi.or.id/riset/385/Indonesian% 20Democracy, accessed at 28-11-2012 | At 08: 42 pm. Rashid, Fauzan Ali., 2010. “Democracy Indonesia: Experiences Largest Muslim Countries as Home Affairs”. Paper Presented on Annual Conference on Islamic Studies: Banjarmasin, 1-4 November. Rosanvallon, Pierre., 2008. Counter-Democracy: Politics in An Age of Distrust. New York, Cambridge University Press Sukma, Rizal., 2004. Islam in Indonesia: Foreign Policy. New York, Routledge. Righteous, Nurus., 2011. “Rationalization of Religion in the Political Arena: From Ideological Preference to Rational Consideration”. Dialog-Journal of Research and Religious Studies, Vol. 22, no. 2, Year.

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xxxiv | November. Qodir, Zuly. 2012. Political Sociology of Islam: Political Islam and Democracy constellation in Indonesia. Yogyakarta, Pelaja Library. Qodir, Zuly., 2007. Vis a Vis the Islamic Sharia State: Ideology Political Movement in Indonesia. Yogyakarta, the Student Library. Vriend, Nicolaas J. 1996. “Rational Behavior and Economic Theory”. Journal of Economic Behavior & Organization, Vol. 29.

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Political Economy of the Public Forest Certification in the Gunungkidul Regency, DIY Province Sulistyaningsih Lecturer of Sociology Department, Faculty of Social Sciences and Humanities UIN Sunan Kalijaga, Yogyakarta. Email: [email protected]

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ABSTRACT The existence of public forest, particularly public forest in Java was developed in the 1930s by the Dutch colonial government. During this time the presence of public forest, although the policy not getting enough recognition and legitimacy by the government as the presence of the state forest. Nevertheless, the ante of forest to local communities cannot be denied, because the existence of community forest can be a lifesaver for local valve. Public forest after deforestation becomes an alternative solution can be seen in changes in the timber industry, where demand for wood is increasing. The change resulted in a change of behavior of this industry on the management of public forest in Java, especially in Gunungkidul Yogyakarta. The demand and pressures of international market lest require the sale of wood is wood that has been qualified, then the presence and legality of the qualified for forest people becomes an absolute requirement in order to accepted, recognized and sold in international market. In political economy context, forest certification in Gunungkidul needs the intervention of the State to provide protection against the marketing of forest wood that has been certified. Keywords: forests, forest certification, state, market

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ABSTRAK Adanya hutan publik, khususnya hutan publik di Jawa dikembangkan pada tahun 1930an oleh Pemerintah Kolonial Belanda. Selama periode ini keberadaan hutan publik, meskipun kebijakan oleh pemerintah tidak memberikan pengakuan dan legitimasi penuh sebagai keberadaan dari hutan negara. Meskipun demikian, kontribusi hutan terhadap komunitas lokal tidak bisa kita sangkal, karena adanya hutan komunitas dapat menjadi penyelamat kehidupan untuk jantung lokal. Hutan publik setelah penebangan menjadi solusi alternatif yang bisa dilihat dalam perubahan industri kayu, dimana permintaan kayu meningkat. Perubahan dihasilkan dalam perubahan perilaku dari industri ini pada manajemen hutan publik di Jawa, khusunya di Gunungkidul, Yogyakarta. Permintaan dan tekanan dari pasar internasional mewajibkan penjualan kayu harus kayu yang berkualitas, kemudian kehadiran dan legalitas yang memenuhi syarat unutk hutan rakyat menjadi persyaratan mutlak untuk diterima, diakui, dan dijual di pasar internasional. Dalam konteks ekonomi politik, sertifikasi hutan di Gunungkidul membutuhkan intervensi dari Negara untuk menyediakan perlindungan melawan pemasaran kayu hutan yang sudah disahkan. Kata Kunci : hutan, sertifikasi hutan, negara, pasar

INTRODUCTION Discuss macro forest conditions cannot be separated from the pres-

ence of global issues, such as the: Management of Wetlands (Ramsar, 1971), Plants and Wildlife Trafficking (CITES, 1978), Biodiversity (Earth Summit, 1992), Management of Soil Degradation (UN-CCD, 1994), Climate Change (UN-FCCC, 1994), Tokyo Protocol, 1997, setting the Global Forest (UNFF / IAF, 2006), the Management Agreement and the Tropical Timber Trade (ITTA, 2006) (HariadiKartodiharjo, 2009 ). Bound up to this global issue enclosed to the issue of human rights (Human Rights), poverty, gender, good governance, free trade, certification, legality of wood, and others. In the context of global trade, is one of the icons of forest products in the international trade. Indonesia has the third largest tropical forest in the world is 138 million hectares and its presence is very important as a buffer lungs of the world and have a significant impact on economic growth. In the dynamics of forest management in Indonesia leaves many issues, whether economic, political, ecological, and social. This issue is in fact also cannot be separated from the interests of capitalism and political structures that exist in society. This means that there is a significant correlation between forest management in the presence of global capitalism. Global capitalism is here evident by the intervention of the devel-

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oped countries to the developing countries in the exploitation of natural resources in the countries of the developing world, such as Indonesia. Exploitation is done in order to build a movement of business expansion through MNC (Multi National Corporation) or TNC (Trans National Corporation). Bound up to the data rate of forest destruction in Indonesia was increasingly worried as among the highest in the world, the one million hectares per year1. The presence likes deforestation2, the existence of forests into one solution. In general, forests can be interpreted as the forests managed by the people of the land belong to the people. This is similar to lest set forth in Law no. 41/1999 states that forests are forests lest grow on the land encumbered property. This definition was given to distinguish it from the state forest, the forest growing on land that is not encumbered property or state land. Community forests in Indonesia by Awang (2006: 7 -8) initiative local communities. In setting mechanism based on the agreement of social institutions like the family, the village and the government. For the name of the forest in each region is different, because of each region has own name. Public forests in Indonesia Examples include plants such sengon, teak forests, mixed forests, khepong mixed forests suren and durian in Bukit Tinggi. Awang (2006: 7-8) defines forests as follows: “Forests are the collective name of a collection of forest management initiatives by the public and government that is able to guarantee the preservation of the functions and benefits of forests to improve the quality of life and ensure fairness between generations in a sustainable way. characteristic community of forest management are individual, family, organization of communal farmers, do not have a formal management, unresponsive, subsistence and is seen as savings for family forest owners. “ Until now, people have been attempted in the forest land is formally legitimate by the government as well as land lest is recognized at the local level. According to the Ministry of Forestry to 2004 people in the entire forest area Indonesia reached 1,265,460.26 ha. Largely self-forests (1151653.13, ha) and the rest are community forest projects supported by the government (Awang, 2006:7).

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For the presence of forests, especially forests in Java have been circa a long time. A public forest in Java was developed in the 1930s by the Dutch colonial government. The emergence of community forests is because since there Domeinsverklaring 1870 by Dutch policy which contains among other things demarcate forest teak and teak forest management by developing an intensive government (Simon, 2010:99). This condition effects of people loss of access to forest resources. In some areas this phenomenon according to Simon (2009, 2010: 99) has encouraged people to try to meet their own needs for timber, both firewood and timber and other forest services. But unfortunately, according to Simon (2010:100) prior to the efforts of these people implementation had preceded the land damage, as happened in the Gunungkidul, Yogyakarta and Tana Toraja regency in South Sulawesi. Since the early days of independence, the area Gunungkidul, Yogyakarta is famous for the critical region. Only later in the early decades of the 60’s in Yogyakarta can be found Gunungkidul few trees in the land of the people, while the degraded forest land has a very acute (Simon, 2010:100). The existence of such conditions, then after independence in 1952 the government of Indonesia to continue the development of community forests through the motions “Kitri reef”3. Nationally later in 1960, the development of community forests renamed reforestation program. At that time, the greening program results are still low because due to lack of capital and lack of experience. But since no assistance from international donors in 1966, the results showed a significant greening. Beginning in 1980, the area Gunungkidul, Yogyakarta has been known as an area with teak forests as the dominant crop (Simon, 2010:101). Reforestation program is then passed through a model of partnership between employers and farmers’ organizations, facilitated by credit fund community forest enterprises (KUHR) which began in 1996. Since 2002/2003 the governments push planting trees on the land rights of newly labeled GNRHL (National Movement for Forest and Land Rehabilitation) (Awang, 2006:1). The data on the potential for community forests in Indonesia are as follows:

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TABLE 1 FORESTS POTENTIAL DATA

Note: 1. Timber production 50% of total plant 400 stems / ha 2. Production models of forests and reforestation areas, 7.5 m3/ha/years

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In the dynamics of community forest management in Indonesia, because the characteristics of community forest management is individualized, family-run farmers’ organizations and have no formal management, subsistent, making the existence of forests does not have a high bargaining power of trade and industry, and does not guarantee the sustainability of forest people. Therefore there needs to be a new strategy in the management of community forests. Awang (2006: 1). There is a tendency for symptoms of forests after deforestation become an alternative solution can be visible in the changes in the timber industry, where the demand for timber is increasing. This condition makes the industry players are faced with difficult conditions and high raw material prices teak. Finally, the timber industry began to see public forests, which have been considered only as a supplement producers (ARUPA, 2006). A change in the behavior of the industry resulted in a change in the management of public forests in Java, especially in the districts Gunungkidul Yogyakarta. For example, for the community to harvest by ‘cut need’4, which is cut if need be, but it is currently being changed because now the craftsmen and industrial owners come to the village and make offerings to buy wood folk. Now people are cutting down trees and not just because of need, but also because of the demands of the market and the industry pressures which requires raw materials. During the existence of the forest people, although the policy (policies) are less receive recognition and legitimacy by the government as the presence of state forests, but contribution of forests to the local people cannot be denied. One is the existence of community forests could be a savior for local valve5. Associated with the demands and pressures of international markets that require wood is wood that has been bought and sold certified, then the existence and legality certificate for forests to be an absolute requirement in order to be accepted, recognized and sold in the international market. In this context it is evident that the presence of forests has been integrated in international trade. Therefore, certification of forests is important to do so that the products of the forests could realize and accepted by the international market. This means that in the context of international trade, the buyer (buy-

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ers) or in this case “the market” purchase limit legal and certified wood. It’s a new challenge for the forestry sector in Indonesia. As an implication, producers (sellers of wood) to force communities to manage forests in a legal and legal timber trade them anyway. The legality as a label given by the market against the wood can be traded shows the importance of market penetration, authentic evidence of legality, compliance with government regulations and image. Initiatives for forest certification in Indonesia came after THE EARTH SUMMIT in Rio de Janeiro in 1992. The first step is initiative taken by the formation the eco labels work consisting of government, academia, NGOs and the private sector. In this context LEI (Info LEI, 2002) (Indonesian Eco-labeling Institute) seeks to facilitate this. LEI have developed a system of certification of Sustainable Community-Based Forest Management (PHBML), Sustainable Forest Management (SPFM) and Track of custody certification system. The concept formulated by LEI responded by PKHR (Forestry Research Center) UGM, ARuPA6 Currently working with ARUPA PKHR UGM and participate Shorea Foundation facilitated the movement of forest certification Gunungkidul (Volunteer Alliance for Natural Relief) and the Foundation to initiate Shorea7 design sustainable community forest management unit (RB-UMHRL) in 2004. This instrument is one of the interventions to save the forests of the decline in quality and quantity in the Mount Kidul, Yogyakarta (Book I: Submission of Certification PHBML, 2006). The idea RBUMHRL a real effort to build a pilot project of community forest management unit through the structuring and preparation of institutional or organizational governance of forest professionals to gain a sustainable advantage. Various stages in the RB-UMHRL there are two important things that start indescribable, the unit of governance as a base unit sustainable of forest management (SFM-ecological, and social aspects of production) (Book I: Guidelines for Filing Certification PHBML, 2006). One of the tools that are used to develop a community forest management unit in order to provide sustainable production, ecology, and economics, is a certification system eco label. Through eco label certification, community forest management unit will receive recognition from

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various parties, especially the market. The implementation of the RBUMHRL by PKHR, ARUPA and shorea Foundation Gunungkidul Yogyakarta district has resulted in certification of community forest management in the area of community forest management in Paguyupan Farmers in Village Sekar Pijer Giri Sekar Bake District, Circle of Sustainable Forest Management in the Village People Ngudi Dengok, sub Playen, Forestry Farmers Association Margo Mulyo Kedung keris Hamlet, Pring surat Nglipar district. Forest management certification is a warded through the Cooperative Self Manunggal Wana GunungKidul.

THEORITICAL FRAMEWORK The concept of political economy emerged in the 18th century with

the aim of helping people understand and cope with changes in the satisfaction of human needs both a way of understanding the nature of the requirement itself and the way production and distribute goods to satisfy (Caporaso, 2008: VII). In the political Marxism is seen as the separation of civil society from the public, the political class as a process in which surplus value of force taken by capitalism. Politics in this context is understood as the state’s role in managing the interests and concerns of political capital and guarantees against ownership. In addition, the activities of revolutionary politics to change the political institutions of capitalism and politics as a process of bargaining between the workers and

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the capitalists to control the economic surplus. Caporaso (2008:125) explains that the theory of Marxian political economy emphasizes the work according to the principles of the market economy that is objective and reproductive systems interdependent expansion. Meanwhile, according to Charles Linblom in Ikbar (2006:13) introduced the concept of differentiation of a country to the other views of subordinated ranking between the government and the market. Where between the two parties there is an attempt to influence each other, hence the birth of the dominant figure of one of them. According to Charles Linblom in Ikbar (2006:13) the basis of political economy is the market, the state and the power of persuasion. These three things affect the dynamics significantly Kels. Theoretically, the relationship between the State and the economic relations classes are described in three forms, namely: The first the state has the power to regulate and control social dynamics. The second is the opposite of the first draft, in which the state is a tool of the elite who run the interests of the dominant class. The third, the state is seen as part of a complex process of social, political economy within which is contained a combination of the processes of state and social processes in the classroom. The processed of state and social classes meet in one point in the form of production and distribution. “(Ikbar, 2006: 13). Ikbar (2006: 28) in this case could clarify circulation model of the application model an influence in political economy as follows:

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We know that international trade is now getting spread the green consumer movement is the movement which is equipped with a device or a trade organization called eco labeling (Usman, 2004: 93) eco labeling the suspected development of standardization or whether this is just a strategy developed countries to limit exports of developing countries. Community forest management aimed at improving market access for forest products and encourage the implementation of sustainable forest management requires the support certification. Forest certification can be defined as a set of verification procedures that generate certificates and recognized the quality of forest management with relation to a set of criteria and indicators. Implementation is carried out by an independent third party (Info LEI, 2002). The need for certification as a driver of sustainable forest management is the things that cannot be postponed again. This is caused by several factors such as: the concerns of the various parties on the increasing rates of deforestation, the timber and the growing global demand for environmentally friendly wood export international markets, especially Europe and North America. Indeed, after the deforestation, the market is more a look at the products that have been certified forests. This means that one side is no denying that the certification is also a demand or market penetration of the forest management model by the community. The existence of forest certification could encourage forest management model that can be widely accepted and further empower the community itself in forest management. There is a mechanism of direct intensive community initiatives in forest management. The existence of forest certification is expected to be no legitimate state over society’s role in forest management both large scale and small scale rather than state intervention in community forest management is sustainable, There was also a recognition of sustainable community forest management, facilitating the establishment of community forest development (in this case the facilitation of access to markets, capital, technology and research and development), reducing disincentives timber circulation of people (Info Lei, 2002). This is where the role of the community is very real indeed. Because of people is really get as subjects or actors who are actively involved in managing the community forests of planning, implementation up to

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monitoring and evaluation. The existence of this same forest certification should also serious state intervention in the market, meaning that the state should provide protection or for the protection of forests market that has entered the global market. One of the tools (tools) that are used to develop a community forest management unit in order to provide sustainable production, ecology, and economics, is a certification system eco-label. In the context of forestry, eco-label certification can be used as one tool (tools) that have the potential to encourage the achievement of a balance between the preservation of forest resources with the needs of the economy and trade. Through eco-label certification, available information about the sustainability of forest management where the wood was produced, so consumers can choose the wood and non-wood products that are environmentally friendly and come from sustainably managed forests. Through eco-label certification, community forest management unit will receive recognition from various parties, especially the market. Recognition is sought; the First, knowledge of community forest management will become a reference for management forests in Indonesia, the Second, by the management that meets the rule SFM (Sustainable Forest Management) will appreciate the open market so there is a premium price to farmers, and the third, opening the doors of communication and recognition for farmers of stakeholders / government (info LEI, 2002). So, apart from the fact that incentives are directly received by the community in the form of premium price there is also an urgent matter that people get beyond that of others and knowledge in forest management. METHODS OF RESEARCH This research is in the study of economic policy research affiliated forest certification Gunungkidul. So that later studies are expected to

provide input and suggestions for government policies related to forest certification. A technique of analysis in this study is in-depth interviews related to the informants of this study. While the data analysis techniques used are descriptive analysis examines the results of the findings and then field combined with secondary data for later analysis to infer the field findings.

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ANALYSIS RESULTS 1. Forestry certification system in the world and Globalization siege

The core of the world system theory was initiated by Immanuel Wallerstein (Ikbar, 2006: 23) is that modern economic and political relations are believed to vary with pre-modern predecessors. The World is the overall structure of the system and is an appropriate level of analysis. In this context, the modern world is understood as a system in which part of the structure relates to function and needs where the system established by a set of economics. Wallerstein (Ikbar, 2006: 51) explains that the main analysis in the world-system theory is the analysis of the source, structure and implementation of the system as well as the economic advantages and political struggle and the class as a determined factor. Analysis of the world-system is centered on capitalism as a global phenomenon that is regarded as a combination of an economic system that is currently top of the hierarchy of the State class domination of unity maintained by economic forces. In this context we will be able to see how the local market to deal with the global market (free market). The global market is synonymous with globalization. Globalization by Heru Nugroho (2001: 3) is: “Cultural process characterized by the tendency of the areas of the world both geographically and physically be in the format uniform social, cultural, economic and political. In the global process of social life have created egalitarianism, in the field of culture has created internalization of cultural, economic dependency has been created in the production and marketing while creating political liberalization. “ Nugroho (2001: 4) says that the most visible in the global era is the increasing economic integration between the countries of the world, both among the developed, developing and the second. Globalization is characterized by the expansion of the market can be seen concretely in the administration of regional markets such as AFTA, NAFTA, APEC, and so on. This is an expansion of trade relations and the formation of an integrated market area. Further Nugroho (2001: 4) explains that the process of expanding markets in all regions around the world is a large-scale social engineering that has never been seen before by using a variety of instruments such as science, technology, social institutions, politics and culture. Globalization in this case can be understood as the economic

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hegemony of developed countries or rich extension of the satellite countries all over the world. According Wahono (2004:21) to support the truth, politically supported by the free market of globalization which are capital, labor and commodities without into fiscal moves from one country to another. When we look at the dynamics of the production and marketing of forest in GunungKidul match the fact that before any forest certification, public or private forest farmers in the marketing of forest products performed very traditional. It seems, when people feel the need of money, and then they would immediately cut the wood from the forest, especially teak. They do logging based on need and not based on selective logging as a long term investment. Indeed, when the first instance logging of trees, they will plant 10 trees teak. Here the one hand has thought security (security assurance) for their investment. In doing marketing of wood products those they usually offer directly to buyers or through an intermediary. However, when there is the idea that forest certification has been certified, the public now cannot do logging based on their needs. Logging is based on market demand. This means that people now would have to be prepared to face the global market and leave the traditional markets. This is because the farmers are engaged in community forest rules or internal mechanisms within the local institutional forest certification. The containers are a medium for the global market is interaction of Cooperative Self Manunggal wana GunungKidul. Is Relevance in global context market, Cooperative Self Manunggal Wana Gunung Kidul. This is bargaining position with the buyers worldwide, and markets in Europe, America and others. 2. Forestry Certification: Who would benefit the most? One of the main issues in the political economy of developing countries is the problem of the implementation of the concept of national development. The construction is basically seen as development, growth and equity in the distribution or social welfare (Ikbar, 2006: 165). The concept of development with regarded to a lot of things that relate to and affect such changes in social, economic, political. Talking about the

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reality of development is happening in developing countries by developed countries of course different. This difference can be seen in the foundation and structural aspects of the social and political culture and nature. In this context, the theory of development that will be used is the dependency theory. The concept of dependency in it is meant as a condition in which there is a dominant influence of certain strength against other side. In the political world, it is common, while the economic aspect, it demonstrates the interplay among actors in different countries power. The effect in this case could be due to an international transaction that reflects poorly on others and benefit and domination. Will condition form attachments that have structural effects (Ikbar, 2006: 167). If it is the interaction that does not harm others it will form normal attachments, but if the interaction that occurs hurt others, it will form a dependency or exploitation. In this case Dos Santos (in Ikbar, 2006: 171) definition of dependency as follows: “.......... A state is carries a powerful influence in which the economy of a country or community group formed and characterized by the development and expansion of the State’s economy or society. Dependency is a reciprocal relationship between two or more economies or between countries’ economies with the world trading system becomes a dependent relationship when one or several countries could expand as a result or a reflection of the expansion launched by dominant countries effect directly follow their development can be positive or negative. “ According Ikbar (2006:171) the onset of dependence is caused by several factors such as: “First, there needs must be filled but cannot be met alone. Second, the result of a cooperative effort that was biased (not balanced) and Third, as a result of an intentional act by one party or political unit have less resources / capabilities of powerful economic interests, political and strategy despite the adverse party Another “ Speaking of dependency theory is actually a reaction to modernization theory. In theory this dependence, the pattern of dependence occurs between the power centers (center of power) on the outskirts of strength (inside power) or in other words countries into satellite states that are under the influence of ideology developed countries (Ikbar, 2006:51).

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Dependence occurs in the satellite states or countries is unfair periphery and even difficult to avoid the influence of the central state. This condition is caused by internal factors that exist in the internal State concerned which would be eliminated as a factor of poverty, retardation, production and distribution of construction inequality, unemployment, low education standards, low quality of health care, higher social issues, traditionalist, instability of politics and others. In addition to internal factors there are also external factors, namely the relationship of cooperation and collaboration with the State central prestige, security protection, or due to other pressures and so forth (Ikbar, 2006: 51). In this case, according to Arief Budiman, the economic relationship that occurs between the third world countries to developed countries is very exploitative. The relationship is not balanced, in which developed countries only used its third world countries to provide resources. In the context of this certification, developed countries produce issue certification to third world countries, including Indonesia. In this case, the timber trade from forest should be legal and certified. Indonesia depends in terms of marketing. The truth behind the idea of forest certification, only to perpetuate capitalism developed countries. CONCLUSION Public forests after deforestation become an alternative solution can be seen in the changes in the timber industry, where the demand for timber

is increasing. A change in the behavior of the industry resulted in a change in the management of public forests in Java, especially in Gunungkidul Yogyakarta. Related with the demands and pressures of international markets that require the sale of wood that has been certified, then the existence and legality certificate for forests to be an absolute requirement in order to accepted, recognized and sold in the international market. In the context of the political economy of forest certification in GunungKidul is necessary the intervention of the State to provide protection against the marketing of timber forests that have been certified. This means that the state must provide protection or for the protection of forests market that has entered the global market.

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ENDNOTES 1 According to the Forest Campaigner Greenpeace Southeast Asia,

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BustarMaitar, the action in front of the Office of the General Elections Commission (KPU) Jalan Imam Bonjol, Jakarta, Thursday (22/ 01/2009). According, BustarMaitar, fundraising indication of forest destruction is approved by the Minister of Forestry to release the paper industry to continue to clear natural forest in 2009. Similarly Kalla meeting with a number of pulp and paper industry employers elections. “Do not forget the Minister of Forestry is a member of a political party, as well as the vice president, we think there are strong indications they were collected and the campaign of the pulp and paper industry http://news.id.msn.com/elections/okezone/article.aspx?cpdocumentid=2201070,diakses, accessed March 1, 2009. Deforestation is a condition where the level of the forest area which showed a decline in terms of both quality and quantity. Indonesia has 10% of the world’s tropical forests remaining. Indonesia’s forests had 12% of the number of species of mammals or mammals, the owner of 16% of species of reptiles and amphibians, 1519 species of birds and 25% of the world’s fish species. Some of them are endemic or can only be found in the area. Original natural forest Indonesia shrinking at a pace that is very worrying. To date, Indonesia has lost 72 percent of the original forest [World Resource Institute, 1997]. Indonesian Deforestation uncontrolled for decades and caused shrinkage of tropical forests on a large scale. The rate of deforestation 1985-1997 period recorded 1.6 million hectares per year, while in the period 19972000 to 3.8 million hectares per year. This makes Indonesia is one of the highest deforestation rate in the world. In Indonesia based on the interpretation of Landsat imagery in 2000 there were 101.73 million hectares of forests and degraded land, including an area of 59.62 million hectares are in forest areas. [Ministry of Forestry Planning Agency, 2003]. Karangkitri is the movement of self-help by family farmers in the villages of Java to plant trees conservation and economic well done since the early 1950s as Gunungkidul, Wonogiri, Kediri, Purworejo, Boyolali, Sukabumi and Garut.

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Cutting and need is a culture in society Gunungkidul related to community forest ownership. Before any state deforestation dramatically, usually the teak harvest want forests based on the level of demand. Egg for school education, for celebration and so forth. The community forest is said to be the savior here valve meant that the existence of community forests have significance for society Gunungkidul. Because of the community forest can be guaranteed to survive Gunungkidul society. It can be seen how north when people have needs that are important, for example: for the cost of education and celebration, people can cut timber in his woods. The presence of forests can also be guaranteed when someone is willing to borrow money at Cooperative Fundamental sekar Giri village, sub-district Bake, GunungKidul. ARuPA is one of the NGO‘s in Yogyakarta that has consent on environmental issues, especially the issue of forests. Shorea Foundation is one of the NGO‘s in Yogyakarta that has consent on environmental issues, especially the issue of forests. The Foundation is currently working with PKHR Shorea UGM and participate ARuPA facilitate forest certification movement Gunungkidul

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The Policy Implementation in Development Water Front City in District Senapelan Pekanbaru Panca Setyo Prihatin Lecturer Department of Administration Faculty of Social and Political Sciences, Universitas Islam Riau. Email: [email protected]

KasmantoRinaldi Lecturer Department of Criminology Faculty of Social and Political Sciences, Universitas Islam Riau. Email: [email protected]

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ABSTRACT Structuring urban areas, especially the Pekanbaru City, is necessary given the development of Pekanbaru City is conformation progressively complex and need will arrangement, especially the improvement of the environment (Water Front City) in the Siak River. The type of research is descriptive qualitative sample of population and is the Office Settlement and Regional Infrastructure Pekanbrau City, Senapelan District Government, NGOs, community leaders, and private parties. Data solicitation techniques interview, observation and documentation, whereas the data analysis in development policy qualitative analysis. Implementation of Water Front City at Village Kampung Baru sub-district Senapelan Pekanbaru, it has not implemented optimally. This situation can be viewed from a variety of indicators related to the implementation of development policies Water Front City at Village Kampung Baru sub-district Senapelan Pekanbaru, the effect of interest policies, benefits, desire for change, the process of decision-making, implementing programs and resources that espouse has not been implemented effectively. While curb factor in implementing development policies in the District Water Front City Senapelan Pekanbaru, caused exceed by human resources that are unavailable with judiciously, in the process of compensation and other inadequate financing, and managerial tools that unsupported the implementation of Implementation of development programs in development policy Water Front City at Village Kampung Baru sub-district Senapelan Pekanbaru. Keywords: Water front city, policy implementation, Pekanbaru City, Riau

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ABSTRAK Penataan wilayah perkotaan, khususnya Kota Pekanbaru, sangat diperlukan mengingat perkembangan Kota Pekanbaru yang semakin lama semakin kompleks dan perlu penataan yang lebih baik, terutama perbaikan lingkungan (Water Front City) di kawasan Sungai Siak. Adapun jenis penelitian ini adalah deskriptif kualitatif dengan populasi dan sampelnya adalah Dinas Pemukiman Prasarana dan Wilayah Kota Pekanbrau, Pemerintah Kecamatan Senapelan, LSM, Tokoh Masyarakat dan juga pihak swasta. Teknik pengumpulan data wawancara, observasi dan dokumentasi, sedangkan analisis data yakni analisis kualitatif. Implementasi kebijakan dalam pembangunan Water Front City di Kelurahan Kampung Baru Kecamatan Senapelan Kota Pekanbaru, belum terlaksana secara optimal. Keadaan ini dapat dilihat dari berbagai indikator yang berhubungan dengan pelaksanaan kebijakan pembangunan Water Front City di Kelurahan Kampung Baru Kecamatan Senapelan Kota Pekanbaru, yakni pengaruh kepentingan dari kebijakan, manfaat, keinginan untuk berubah, proses pengambilan keputusan, pelaksana program dan sumber daya yang mendukung belum terlaksana secara efektif. Sedangkan faktor penghambat dalam mengimplementasikan kebijakan pembangunan Water Front City di Kecamatan Senapelan Kota Pekanbaru, lebih banyak disebabkan oleh kemampuan sumber daya manusia yang belum tersedia dengan baik, pendanaan dalam proses ganti rugi dan pembiayaan lainnya yang belum memadai, peralatan dan manajerial yang belum mendukung dalam pelaksanaan program pembangunan Implementasi kebijakan dalam pembangunan Water Front City di Kelurahan Kampung Baru Kecamatan Senapelan Kota Pekanbaru. Kata Kunci: Water front city, Implementasi kebijakan,Kota Pekanbaru, Riau

INTRODUCTION Reforms that have been in effect since the cropper of the New Order

leadership, has brought many alteration in the system of government in the Republic of Indonesia. The number of indictment the right of every region in the reform era gave birth to the concept of thinking as well as the form of government from a centralized regional or centralized form of government devolved into the stricken area or decentralization. Delegation of authority from the central government to local governments, which are thick, referred to as entitlements for local autonomous in admission of degree own household and set independently for welfare society. Giving autonomous rights for local government outlined in the Law 22/1999 on Local Government. But the law governing regional autonomy was revised back to Law 32/2004 on Local Government. The presence of the Regional Autonomy Law, each region is delirious to spur independence in conducting local government and regional development, public services and other local activities. Granting autonomy to local governments to sever is basically a long chain of bureaucracy and

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centralized government. Thus the presence of regional autonomy has carried a breath of fresh air for local governments to manage and run the administration and development of their respective regions. As has been mandated in the Local Autonomy Law, the emphasis is on the implementation of regional autonomy and the Provincial Government of Regency / City Government lest region of the Republic of Indonesia. It is desirable for the provincial and district / city government more proactive, reactive and creative in creating autonomous rights for their respective regions. The realization of autonomous governance is expected to provide facilities for the community, especially in the concept of equitable and in accordance with the wishes of the people. The presence of regional autonomy as stipulated in Law No. 22/1999 and Law No. 32/2004 is an option lest is appropriate for the administration and increases the degree of social justice for Indonesian. beside the presence of decentralization should be odd proportionate to the distribution or delegation of authority between the central and provincial governments, local governments and the City, to determine the direction and public policy, and political control of economic assets as well as arrangements of local resources, both natural resources and the resources human possessed by each region. Parole finite to exclusive levels of government and is now being circled by the current implementation of the policy of decentralization and regional autonomy, which essentially boils down to an effort to empower area including local communities in all aspects of life. Without adequate capacity, the existence of areas with all their activities will give birth to a new kind of dependence on the government, which means there is no local independence. Therefore, governance and development and construction of social life must be based on the philosophy and understanding based on right and true to the concept of decentralization and regional autonomy. Effort empowerment is a function of government, namely the function of the development and function of regional development. Accompanying regional autonomy also meant that the area may be able to adjust and manage the interests of the people initiative based on the aspirations of the people in accordance with the laws and regulations

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in the framework of the Indonesia State. In this setting local policy, whether in the form of Regulation (Regulation) and decisions must prioritize regional heads in maintaining the integrity, the existence and preservation of the Unitary Republic of Indonesia. Despitefully, it should also be able to establish unity and harmony of the nation as well as ensuring the harmonious relationship between the community and the local government, the region with other regions and between local government and central government. This condition is the meaning of the concept of responsible autonomy. Granting autonomy is not merely administrative approach, viz the achievement of the apparatus of government to work effectively, but also improve the performance of the apparatus towards a higher quality. This means the authority in the field of government should be directly related to the public interest, as well as local government institutions are also expected to play a role in political education for the community to absorb the aspirations of the people who put emphasis to public awareness in participant of political development in each area. At the bottom of the Joint Stock Republic of Indonesia consists of local area consisting of Provincial, District and Town and Village Government, where people live day-to-day. Accordance with the general provisions set out in the Law 32/2004. Decentralization, gives the opportunity for the City of Pekanbaru Riau Province in organizing and managing the construction of the city, the capital of Riau province. Implementation of developments in Pekanbaru City is expected to realize the vision and mission development Pekan baru 2020, namely: “The realization of Pekan baru city as a center of trade and services that are reliable and modern”. Achieving the vision and mission City of Pekan baru, simply spite of the implementation of spurs-infrastructure development activities related to the achievement of the vision and mission of the City of Pekanbaru. The geographical strategic position of Pekan baru, the Siak river sidelines, it’s possible to make the city of Pekan baru the center of trade, because the Siak river is a means of transportation, especially for ships that transport goods and services of trade entered the city of Pekanbaru. Siak River conditions are not arranged properly, will be a challenge

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for the new City Government Week in Realizing the vision and mission that has been designated as a center of commerce and culture Wither. Structuring the Siak River flow needs haste, given the development of the city of Pekanbaru that is increasingly rising. Apart from that region along the Siak River basin have been solid and settlement arrangement for the beauty of the city, as well as providing traffic ease Siak river waters for transportation between regions as a tool of transportation allied Malay region known as the triangle of Singapore, Johor and Riau (SIJORI) Siak river areas are at the center of the city of Pekanbaru, a Watershed (DAS), in roommates the residents of the region, Including quite loaded. Full of population and settlement arrangement causes irregular roommates Siak river basin experience a variety of problems, ranging from pollution to the area floods every year. The state settlement is become key issues in the development of the Siak River by the Local Government Pekanbaru.Keadaan this, Significantly Affect the achievement of the vision and mission of the City of Pekanbaru. Spatial planning undertaken by the city of Pekanbaru City Government, particularly along the Siak river flow needs in a timely and effective improvements to Realize the Siak river areas are well-organized, clean and perform minimization Siak river water pollution levels. The area is well pelt settlement located along the river Siak District administrative region Senapelan Pekanbaru. The need for structuring settlements and settlement areas along streams river Senapelan Siak district, especially in the Village of Kampung Baru to Realize the Siak river fringe neat and well ordered, as well as give advices to people, especially people who come from outside the city of Pekanbaru. Structuring the Siak river region, especially in the Village of Kampung Baru sub-district Senapelan Pekanbaru, got a pretty good response from the local government Pekanbaru, Pekanbaru that local government makes policies that attempt arrangement known as the Environmental Improvement Program (Water Front City). Government policy is implemented by the Department of Housing Regional Infrastructure Pekanbaru, where the agency is an agency directly involved in structuring infrastructures are existent in the city of Pekanbaru. Development of the Siak River by the Government through policy

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Pekanbaru water front city is expected to address the problems that occurred Siak river region, especially in the Village of Kampung Baru subdistrict Senapelan Pekanbaru. Structuring the Siak river needs the support or participation of the public, the private sector, especially local government Pekanbaru, implementation with the result that water front city development can be done effectively and efficiently, ergo that the arrangement of the Siak river can realize the vision and mission of the City of Pekanbaru. Siak River basin region, alteration has arranged of environmental, especially residential areas, as well as frequent flooding especially rainy season. This condition would make suburb Siak River, less rapid’s less well, and even lead to various problems faced by the community. It is necessary to establish a policy by the City Pekanbaru in managing the environment along the Siak River. Suburb solid Siak River, polluted and less well, is caused by different types of businesses in the Siak River upstream in the form of factories also contributed to the pollution of the Siak River sidelines. For that we need a strategic policy development of implementation water front city especially in the village Kampung Baru sub district Senapelan Pekanbaru, in order to realize the Siak River flows along well-defined as well as the beauty of Pekanbaru. Implementation of development policies in particular water front city in Kampung Baru Village District Senapelan Pekanbaru has not been able to realize that the area can support various sectors of development for the City of Pekanbaru. Sober settlement Siak River region will contribute both to the City of Pekanbaru to increase local revenue, and also improve the standard of living for the city of Pekanbaru, especially people who are in Siak Watershed (DAS). Implementation of development policy in the development of water front city in Kampung Baru Village District Senapelan Pekanbaru also got a variety of obstacles in the compensation process that also creates a conflict between the city of Pekanbaru communities. This condition is also housed within the various elements, including the political parties to make propaganda, especially the political parties in opposition to the City Pekanbaru.para political elite propaganda with arguments to defend the

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interests of society, so that the process of land acquisition is a major bottleneck in the development of water front city in Kampung Baru Village District Senapelan Pekanbaru. Policy development in the village water front city Kampung Baru subdistrict Senapelan Pekanbaru, needs to be implemented properly and it takes the seriousness of any elements which have competence in the implementation of water front city development especially in the Village Kampung Baru City District Senapelan Pekanbaru. This is detected the deeper water front city development policies that impact in structuring the environment, especially along the Siak river, which is in the Village of Kampung Baru sub-district Senapelan Pekanbaru. THEORETICAL FRAMEWORK Theoretical framework in this study is as a reference to determine the

ratio, between the facts found in the field with the theoretical concepts presented in this study. The concept of theory in this study involves about overview of the concepts of decentralization and regional autonomy, Administrative and Public Service, and public policy. For more details will be described in the following explanation. 1. Concept of Decentralization and Regional Autonomy Today’s era of reform has given rise to a concept of government administration, the devolution of power to each county and city to organize and manage its own household. Regional autonomy laws constitute an organizing concept development district and city governments towards a more independent from each region, with, delegated powers by the law. It can make system is centralized government previously turned into decentralized. Loulembah (1997:17) decentralization in Indonesia legally derived from the Constitution of 1945, along with an explanation of them, mentioning that Indonesia region is divided into regions that are both autonomous as well as an administrative nature. Meanwhile, according to Rashid (1998) who argued that the decentralization of the central government can concentrate on the formulation and implementation of national policies that are fundamentally alone, and it’s time local govern-

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ments are given the confidence to perform more creatively to give meaning to the government administration and development. The view above can be said that, decentralization a transfer of management of the household by the central government to local governments and municipalities within the framework of the Unitary Republic of Indonesia. Decentralization during the New Order hardly can be said to be tamed by the central government, which rules the household centralized area of regulation by local governments. With the concept of autonomy, which gave birth to decentralize required every county to be able to take care of its own household. Kaloh (2002:8) explains that the concept of governance is already very old, many of the existing literature it is known that the present system of Local Government is basically a combination of a wide range of traditions and techniques of the implementation of the Regional Government in its development has been influenced by historical factors, political, economic and social. Nevertheless, there are traditions that are categorized as early traits that always give its own color on the types of the region. Meanwhile, according to Thoha (1991:27) explains that there are four important in assessing an area that can take care house own affairs, namely: (1) The elements that played by the above, (2) to regulate the affairs of the necessary equipment and the apparatus itself, (3) To finance matters submitted, it needs its own finances, and (4) the setting and maintenance of business is done on their own initiative and discretion. Judging from the four things mentioned above, it can be said that decentralization is a journey that cannot be denied, i.e. the number of regencies and cities have not been able to implement something that is under the authority of the area. This is visible in terms of local finance as a source of financing regional development is still lacking, and there are also areas that have excess revenue (PAD), which raises the gap in regional development. Decentralization realizes autonomous regions in taking care of and manages their own households. According Sumaryadi (2005:39) regional autonomy is an area that has a legal self-sufficiency that is self-government are regulated and administered by the own lows. Because is focus on autonomy aspirations of the

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condition. Further explained Salam (2004:11) explains that, in the conception of regional autonomy should not burden the people, but rather to motivate, empower and generate initiatives and to encourage community participation in development efforts that will foster independence autonomy in managing the household and taking care of yourself . The construction area is conceptual success or failure of the implementation of an authority in the autonomous affairs there are some things that need to be considered by Kaho (1995:60). Some of these are: a. Humans must either executing b. Finance should be sufficient and well c. The equipment must be adequate and well d. Organizations and management are good enough. This view can be said that the implementation of the local government is applying the concepts required organizations and good management. Management of good governance and effective local government will bear an independent in carrying out the wheels of government and enhance regional development, as well as to provide public services to satisfy the every area. 2. Management Implementation of Public Policy. Implementation of government is a container that consists of a set of government officials, as a public servant in the public service and local development organizers. In other words, local government’s container is a public organization that regulates and takes care of their local areas respectively. According to Bernard in Thoha (1991:12) explains that the organization is a system from coordinated activity of a good or a force made up of two or more people. While Sondra (1999:27) says that the organization is a group of people who are formally bound in superior and subordinate relationships that work together to achieve common goals as well. Furthermore Sondra P. said that the organization can be highlighted from two perspectives, namely the container activities and as a process of interaction between the people in them. There will not be an organization that can achieve the goals and objectives at the expense of interaction with the environment, particularly with those called the concerned stakeholders for the organization.

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From the view of the above it can be said that the organization is a gathering place for people who have similar goals. A government organization is a gathering of civil servants container to take care of and serve the community. Apart from that organization are an integral part of the management functions. Good government is a government that is able to execute public management functions properly. According to A. Sanusi in Bedjo (1990:3) says that management is a cooperative system of human behavior which led regularly through continuous efforts and is a rational act. Further according to Terry and Leslie (2003:1) says that management is a process or framework, which involves guidance or direction of a group of people collar organizational goals or intentions are real. Meanwhile, according to Winardi (1986:3) management is a very important subject because he questioned the establishment and achievement of business goals. According to The Liang Gie (1999:4) office management is a series of activities to plan, organize (organize and compose), direct (giving directions and instructions), supervise and control (do control) to organize an orderly something. It affected or targeted by a series of activities that generally is office work (office work). The opinions above can be said that management is a process to regulate the activities of people or group of people to achieve the goals set. Management in government means an activity that organizes and guides the civil servants to work in accordance with established rules. In the management of the government produced a policy which is often referred to as public policy. The services provided by the district administration officials should give a good performance for governance. Performance by Priyatmoko (2001:25) is the result of work that can be achieved by a person or group of people in an organization, in accordance with the authority and responsibilities of each in an effort to achieve the goals of the organization concerned legally, do not violate the law and suitable with morals and ethics. While Solihin (2001:32) explains that, looking at the performance based on economic considerations, efficiency, effectiveness and equity of service. Meanwhile Dwiyanto (1995:36) points out that the goal of

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objective statements about the conditions that will exist after the work is done and the state of the bias is measured quantitatively. Further Dwiyanto (1995:41) explains that, there are several indicators of the performance of the bureaucracy, namely: 1) productivity, 2) Quality of service, 3) responsiveness, 4) Responsibility da, 5) Accountability. Productivity by S.P. Hasibuan (1996:27) is the ratio of out-put (results) with in-put (input). If productivity rises, this can made possible by an increase in efficiency (time, materials, and labor) and labor systems, production techniques and an increase in the skills of the workforce. Services provided should give the performance of the government, especially for the apparatus that directly provide services to the community. If service quality, effective, and efficient and has good productivity, will provide public image or public response to the government, the better. This needs to be applied to each element in the government, both central and local governments, especially the Government District and Village Government, basic level public service of society. 3. Implementation of Public Policy Implementation of policies by William and Elmore in Sunggono (1994:139) revealed that an overall policy implementation of activities related to the implementation of development policy. While the Authority, et al (1994:15) says that public policy always contains three basic components, namely the broad goals, specific objectives and how to achieve those goals. In the way of achieving these objectives contained several other components that anyone can be implemented, the amount and source of funds, who is the target group, how to program and management system implemented and measured the performance of the policy. In this way the components broad goals and specific objectives clarified and then interpreted. The means of achieving this goal with the implementation of the policy called. According Meter and Horn (1975:6) that defines the implementation of public policy as a public or private action, either individually or in groups, is intended to achieve the objectives that have been adopted in policy decisions. This definition implies transformation effort into operational decisions, and achieves the goals that have been formulated.

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Implementation of state development policy should involve the active participation of the public and private sectors to accelerate the implementation of policies that gave birth to the concept of development in a country. Mazmanian and Sabetier in Wahab (1997:71) revealed that, the important role of the analysis of the implementation of the State policy is to define the variables that affect the achievement of formal goals in the implementation process. The variables in question are classified into three major categories, namely: (1) whether or not easy issues to be worked out and controlled, (2) the ability to structure policy decisions in a timely implementation process, and (3) the direct influence of different variables on the balance of political support the achievement of policy objectives. According to Amir Santoso Grindle (1986:13) revealed that, the whole process can be started when the new policy the general purpose of the policy is set, program implementation has been made and funds have been allocated for the achievement of policy objectives. Furthermore, according to Grindle (1980:12) states that the implementation of the policy is not simply related to how the translation mechanism of political decisions into routine procedures through bureaucratic channels, but more than that it comes to conflict, decisions, and who gets what from the policy. View of the above can be said that the implementation of policies in development, the need for appropriate policy formulation and efficiently, so that in implementing policies to achieve the expected goals. Apart from the implementation of development policy was also need for policy evaluation to improve the weaknesses faced and as an input or feedback in making or formulating new policies. RESEARCH METHODS This research is using qualitative descriptive research. The study is in

the form of qualitative research. Types of qualitative research in this study explain or clarify issues concerning the improvement of the implementation of development programs (Water Front City) in District Senapelan Pekanbaru. What this study is the improvement of the environment (Water Front

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City) in District Senapelan Pekanbaru, especially the region of Sub Kampung Baru. Region Village Kampung Baru sub-district Senapelan Pekanbaru is the area immediately adjacent to the Siak river flow and environmental needs with good arrangement, because this area is a densely populated area and relatively irregular, so the government through the Department of Pekanbaru Settlement and Regional Infrastructure Pekanbaru set a policy of environmental improvements (Water Front City) in District Senapelan Pekanbaru. The type and source of the data or materials required in this research include: primary data, through an interview and in-depth observation of the relevant agencies are the Department of Settlement and Regional Infrastructure Pekanbaru implementing environmental improvement or development program Water Front City, in the form of data on policy specified in the program. Apart from that data collected from other agencies that are relevant to this study. Secondary data, is supporting data in this study were taken from the Office of Sub Senapelan Pekanbaru, the Central Bureau of Statistics and other intansi. Secondary data also consists of general data on the form Pekanbaru Pekanbaru geographical location, state of the population, organizational structure and other data that support this research. Primary data is analysis to gain from the implementation of the development environment improvement program or Water Front City in District Senapelan Pekanbaru. This approach is done through observation and interviews with key respondents and the information contained in this study. Secondary data were obtained from the Department of Human Settlements and Regional Infrastructure as executive development programs or environmental improvements at Water Front City District Senapelan Pekanbaru. While the primary data through observation and interviews sought are related to the implementation of environmental improvement or development program Water Front City in District Senapelan Pekanbaru. All of the data obtained will be analyzed by descriptive qualitative arguments that explain each of the information and data obtained from survey respondents and respondents were used as key information, all the data obtained will be sorted according to the tabulation of the data portion and is then given an explanation of the

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arguments accordance with the concept of theory in this study. RESULTS AND ANALYSIS Results and discussion conducted during the course of the study it

will be explained in the development of policy implementation in the District Water Front City Senapelan Pekanbaru, and the factors that hinder the implementation of policies in the development of Water Front City in District Senapelan Pekanbaru. 1. Policy Implementation in Development Water Front City in District Senapelan Pekanbaru City Construction of Water Front City held on the Siak River. Siak River region is located in the heart of the city of Pekanbaru the development is very rapid when compared with other areas in the city of Pekanbaru. But in developing, Siak River region is not in tune with the development of other areas in the city of Pekanbaru, where the Siak River grows naturally with the various activities of society and industry without clear planning concepts with specific characteristics by Siak river conditions and sociocultural circumstances that located along the Siak river flow. Siak River Basin is a means of transport for economic activities, industrial and infrastructure transfortasi. These activities are directly or indirectly affect the environment and the physical condition of the Siak River stretches in the District Senapelan Pekanbaru. To make arrangement and Environmental Improvement or Water Front City along the Siak River basin, especially in the Village of Kampung Baru sub-district Senapelan Pekanbaru, government policies need to be considered in managing the environment. Implementation of the government needs to pay attention to the following; a. The Affected Interest (Effect of Interest). Implementation of development programs Environmental Improvement or the Water Front City at Village Kampung Baru sub-district Senapelan Pekanbaru, need to pay attention or consider the effect of interest, both for the community and the City is concerned that the development Pekanbaru. Water Front City provide certain interests, especially for the flow along the Siak River District Senapelan Pekanbaru. The interest affected or influence the interests of the implementation of

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the Environmental Improvement or Water Front City along the Siak river, especially in the Village of Kampung Baru sub-district Senapelan Pekanbaru, Pekanbaru City Government through the Department of Settlement and Regional Infrastructure in implementing the Environmental Improvement implementation policy or the Water Front City, not optimally influence particular importance to the people of Kampung Baru Village District Senapelan Pekanbaru. This situation makes the implementation of the Environmental Improvement program or the Water Front City has not implemented optimally. Implementation of policies in the implementation of Environmental Improvement or Water Front City at Village Kampung Baru sub-district Senapelan Pekanbaru, concerning the effect of interest should provide a good contribution to the government or the people who have not been properly realized. To determine the effect of the benefit from the implementation of development programs implemented Water Front City Siak River basin region, especially in the Village of Kampung Baru sub-district Senapelan Pekanbaru, can be seen from the responses, which are described in the following table is an overview; TABLE1. RESPONDENTS TO THE ENVIRONMENTAL IMPROVEMENT IMPLEMENTATION POLICY OR THE WATER FRONT CITY AT VILLAGE KAMPUNG BARU SUB-DISTRICT SENAPELAN PEKANBARU GIVING INFLUENCE OF INTEREST.

Resources: Processed Data Field Results, 2008

From the responses above, it can be said that the influence of the interests of the implementation of the Water Front City development in Kampung Baru Village District Senapelan Pekanbaru, not to show the influence of interest more effectively. This is evident from the responses in which respondents provide answers effectively amounted to only 17

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people or 37.78% of respondents. Respondents were less effective answers amounted to 21 people or 46.67% of respondents. And respondents who gave an answer to the lack of effective category amounted to 7 people, or 15.56% of the total respondents. Implementation of policies that influence interest in the building or the Water Front City Environmental Improvement or Water Front City, has not been implemented effectively, it is seen from the responses is still dominated by the response less effective. This shows that the implementation of policies in development Water Front City has not been able to contribute to the effects of interest, especially for the people in the village Kampung Baru sub-district Senapelan Pekanbaru, Effect of interest expected from the construction of the Village Water Front City in Kampung Baru sub-district Senapelan Pekanbaru, should give effect to the interests that are equally beneficial. It can be seen from the reasons respondents gave their responses. Respondents gave their answers by saying that the category of effective development programs Water Front City is significant in giving effect to the interests of the public interest, especially in the village Kampung Baru sub-district Senapelan Pekanbaru, which reorganized their territory, especially for communities affected by land development in the area of program to receive compensation in accordance with the applicable rules. While respondents, who gave an answer to the category less effective, they reasoned that, construction Water Front City at Village Kampung Baru sub-district Senapelan Pekanbaru, clearly reveal the effect of the interest yet, both for the City, especially for the people in the village Kampung Baru sub-district Senapelan Pekanbaru. Respondents provide answers to the ineffective category, they argue that, in the development of policy implementation Water Front City at Village Kampung Baru subdistrict Senapelan Pekanbaru did not show a very positive influence for the benefit of the community, where development will change many aspects of community life in social, economic and cultural rights, especially for the fishermen who depend their lives from the Siak river. Implementation of the Government’s policy in the implementation of development Pekanbaru City Water Front City at Village Kampung Baru sub-district Senapelan Pekanbaru need for more in-depth policy formu-

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lation, so that the programs can work well, as well as contributing to the public interest and for the interests of the City of Pekanbaru, particularly in implementing the restructuring towards a better city, to realize the vision and mission of Pekanbaru, Pekanbaru making them Trade Center and Services in South East Asia Region. b. The Type of Benefits (Benefit Type). The Benefits Type or types of benefits means that the implementation of policies in the implementation of the Water Front City development is expected to provide benefits collectively or just give you some benefits in environmental regulation in the District Senapelan Pekanbaru, especially in the Village of Kampung Baru sub-district Senapelan Pekanbaru. Environmental Improvement program or the Water Front City undertaken by the Government through the Department of Housing Pekanbaru City and Regional Infrastructure in Sub Kampung Baru sub-district Senapelan Pekanbaru City is expected to provide benefits in the long term, so that the results of the Environmental Improvement or Water Front City or the Water Front City held on Kampung Baru Village District Senapelan Pekanbaru, more efficient and effective. TABLE2. RESPONDENTS TO THE ENVIRONMENTAL IMPROVEMENT IMPLEMENTATION POLICY OR THE WATER FRONT CITY AT VILLAGE KAMPUNG BARU SUB-DISTRICT SENAPELAN PEKANBARU VIEWS OF STUDY BENEFITS

Resources: Processed Data Field Results, 2008

The expected benefits of development Water Front City prioritized to benefit local communities and also provide benefits to the arrangement of Pekanbaru city toward better. To find out the policy implementation Water Front City development in the Village of Kampung Baru sub-dis-

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trict Senapelan Pekanbaru, when viewed from the type of benefits provided, it can be seen from the responses based on the explanation and description of the table; (see table 2) Table above can be seen that the implementation of government policy in the development of Pekanbaru City Water Front City at Village Kampung Baru sub-district Senapelan Pekanbaru when seen from the type of benefit, can be effective, but has yet to reach a more optimal level of effectiveness. This is evident from the responses in which respondents provide answers to the category of effectively amounted to 19 respondents or 42.22%, of respondents who gave the answer choices with less effective categories totaling 17 respondents or 37.78%, and respondents who gave answers to ineffective options totaling 9 people respondent or 20.00% of the total respondents. Field observations by the author as well as interviews with the respondents, can know the reason of their answer choices. The respondents who gave answers to the effective category, they argue that the benefits of development programs in the Village Water Front City Kampung Baru sub-district Senapelan Pekanbaru will be felt well and effectively, both the government and the region is the construction of Water Front City. Respondents provide answers to the category of less effective, they argued argument, where construction implementer of Water Front City at Village Kampung Baru sub-district Senapelan Pekanbaru, the benefits remain, but felt less effective, especially for local communities. While respondents who gave an answer to the ineffective category, they argue that the construction of the Village Water Front City in Kampung Baru subdistrict Senapelan Pekanbaru, ineffective in providing benefits primarily fishing communities who lived at the site, as they hung their lives to catch fish along the river flow Siak. Policy implementation in building Water Front City at Village Kampung Baru sub-district Senapelan Pekanbaru, should consider the principle of benefit, especially for local communities, for the construction of Water Front City will lead to changes in people’s lives, especially in social and economic life of society, especially in the Village of Kampung Baru subdistrict Senapelan Pekanbaru. This needs to be considered a fairly ma-

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ture, so that the implementation of the Water Front City development program can be collectively perceived benefits of each of the elements involved and affected by the development of the program, especially for people who are Siak River basin region Kampung Baru Village District Senapelan Pekanbaru. c. Extent of Change envisioned (The Desire for Change). Extent of Change envisioned (The eagerness for Change), this involves two aspects namely: (1) the behavior of the people who carry out if they want to change themselves according to the needs of the program or they will not change their behavior, (2) design of the program, whether long term or short term. It is necessary to pay attention to the desire for change in the carrying out of development, especially the development of the existing Water Front City in District Senapelan Pekanbaru. Implementation of the Water Front City development in Kampung Baru Village District Senapelan Pekanbaru, should start from the desire to change attitudes or behaviors in implementing development programs, so that the construction undertaken or will be designed and targeted to run effectively and efficiently. Bring about change the behavior of the public in receiving construction Water Front City at Village Kampung Baru sub-district Senapelan Pekanbaru, required government efforts to institutionalize the development program. Efforts in making desire of all agencies involved in the development of Water Front City, has showed a more optimal effort yet, it can be seen from the responses in the explanation and description of the following table; TABLE3. RESPONDENTS TO THE ENVIRONMENTAL IMPROVEMENT IMPLEMENTATION POLICY OR THE WATER FRONT CITY AT VILLAGE KAMPUNG BARU SUB-DISTRICT SENAPELAN PEKANBARU SEEN FROM EAGERNESS TO CHANGE

Resources: Processed Data Field Results, 2008

The table above can be said that, in an effort to change behavior by

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Pekanbaru City Government through the Department of Human Settlements and Regional Infrastructure has not been done effectively, it can be seen from the responses, where respondents who gave answers to both categories totaling 13 people or 28.89%, respondents who gave an answer to the lack of effective category amounted to 21 people or 46.67%, and respondents who gave an answer to the ineffective category amounted to 11 people or 24.44% of the total respondents. Thus, efforts to realize the desire for change has not been implemented effectively in carrying out development in the Village Water Front City Kampung Baru sub-district Senapelan Pekanbaru. Observations and interviews conducted by the author in the field by the respondents, it can be seen weld them in determining the answer choices presented. Respondents provide an effective response; they argued that the effort to change the attitude or behavior of the Government is well run, according to the ability of the City of Pekanbaru through local government agencies. Respondents who answer less effective, they argued that the attempt to change the attitude or behavior of all the elements involved in the construction of Water Front City have done but have not done institutionally in society, especially the people in the Village of Kampung Baru sub-district Senapelan Pekanbaru. While respondents who gave an answer to the ineffective category, they reasoned that the effort has not touched the social aspect, so the desire to accept the changes difficult to realize. Implementation of development policies by the Government Water Front City Pekanbaru, need to do a variety of approaches, ranging approaches to community leaders, social agencies to approach the existing apparatus, especially in Kampung Baru sub-district Senapelan Pekanbaru, because the agency has a direct relationship with the community at the Kampung Baru Siak river District Senapelan Pekanbaru. d. Site of Decision Making (Decision Points). This situation is the substance of policies that determine the direction of policy would be implemented. That is where the important decisions are formulated to meet the policy objectives. Environmental Improvement Program or the Water Front City by Pekanbaru City Government

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should be accepted by all the elements are there, especially for people on the Siak River basin, especially in the Village of Kampung Baru sub-district Senapelan Pekanbaru. Policy development in the Village Water Front City Kampung Baru subdistrict Senapelan Pekanbaru, the first times the need for the formulation process undertaken by the Government through the Department of Housing Pekanbaru City Regional Infrastructure. Although the formulation of policies implemented by government agencies, but the need to involve other elemn especially people who felt the impact of the development program Urban Water Front City in Kampung Baru sub-district Senapelan Pekanbaru. Actions are taken the formulation of development policies in Water Front City at Village Kampung Baru sub-district Senapelan Pekanbaru acceptable to all parties, so that the policy can be made implementation well. Place decision making development policy Water Front City at Village Kampung Baru sub-district Senapelan Pekanbaru, has not indicated that the policy formulation or formulations are effective, it can be seen from the responses based on the description and explanation in the following table; TABLE4. RESPONDENTS RESPONSE TO PLACE DEFINED POLICY FORMULATION DECISION OF ENVIRONMENTAL IMPROVEMENT OR WATER FRONT CITY AT VILLAGE KAMPUNG BARU SUB-DISTRICT SENAPELAN PEKANBARU

Resources: Processed Data Field Results, 2008

The table above can be said that the formulation of policy or decision taken by the Government through the Department of Housing Pekanbaru City and Regional Infrastructure, the substance has not been shown effective policies. This is evident from the responses where most respondents are still a lot of answers to the unfavorable category were 24 re-

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spondents or 53.33%, while respondents who provide an effective response amounted to 12 people or 26.67%, and respondents who responded to the ineffective category amounted to 9 people or 20.00% of the total respondents. Observations and interviews conducted by the author in the field to know the reasons respondents expressed about the decisions made in the implementation of development Urban Water Front City in Kampung Baru sub-district Senapelan Pekanbaru, is; respondents who provide an effective answer to the argument that they put forward, a decision-making do would be effective if carried out by the agency or agencies related to development programs namely Water Front City Department of Housing Infrastructure and regional of Pekanbaru. Respondents provide answers to the category of less effective; they argue that the making of decisions made will result in a less effective policy formulation in the absence of other agencies involved. While respondents did not respond effectively to the argument that, where decision-making is done in the construction of the Village Water Front City in Kampung Baru sub-district Senapelan Pekanbaru is ineffective, since the program is the need to involve the people affected by the impact of the program. Place a decision if we review the decision of the container or location is not a fundamental problem, but the place is the involvement of the affected elements of the impact of development programs, especially the Water Front City at Village Kampung Baru sub-district Senapelan Pekanbaru. This needs to be sought common ground in formulating policy, resulting in the implementation and evaluation of policies is implemented will be perpetually good and in line with expectations or goals that have been set previously. e. Implementers Program (Executive Program). Actors include institutions, implementing the program must have a strong network. This means that, although the decision was taken by one of the units of the bureaucracy that is usually located in the center of town, but the decision should be spread to all elements associated with the program. Water Front City Development which aims to improve the flow of the Siak River, are expected to reach and engage existing institutions in the District Senapelan Pekanbaru, especially agencies in the Vil-

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lage Kampung Baru sub-district Senapelan Pekanbaru. Action is performed, so that the program or the Environmental Repair Water Front City or the Water Front City is in District Senapelan received support from various agencies, especially the support of the whole society. The establishment of the program in the development of Urban Water Front City in Kampung Baru sub-district Senapelan Pekanbaru is expected to carry out the policy of the City of Pekanbaru in managing existing areas along the Siak River Basin. Implementing the program should have the capability of existing resources, both human resources and other resources. To understand the formation of the implementation of development programs in the Village Water Front City Kampung Baru sub-district Senapelan Pekanbaru, can be seen from the responses based on the description and explanation of the following table; TABLE 5. RESPONDENTS TO THE ENVIRONMENTAL IMPROVEMENT PROGRAM IMPLEMENTATION POLICY OR THE WATER FRONT CITY AT VILLAGE KAMPUNG BARU SUB-DISTRICT SENAPELAN PEKANBARU

Resources: Processed Data Field Results, 2008

The table above it can be seen that, in implementing development programs in Urban Water Front City Kampung Baru sub-district Senapelan Pekanbaru, have been shown implementing effective programs, but have not reached an optimal level of effectiveness. This is evident from the responses, where respondents who gave answers to the effective category number 25 people or 55.56%, of respondents who responded with less effective response categories totaling 13 people or 28.89%, and respondents who gave an answer with no category effectively amounted to 7 people, or 15.56%. Thus implementing development programs in Urban Water Front City in Kampung Baru sub-district Senapelan Pekanbaru has not reached the level of a more optimal effectiveness.

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The observations made by the authors in the field, as well as interviews conducted with survey respondents, it can be argued that the reason that respondent disclosed. Respondents provide answers to the category of effective; they argue that, in the development implementers Water Front City at New Urban Village District Senapelan Pekanbaru City is right in line with the instructions governance and technical guidance in implementing regional development programs. While respondents who gave an answer to the category less effective, they argue that, in the development of program implementers Water Front City at Village Kampung Baru sub-district Senapelan Pekanbaru yet to show the ability of the projects towards a better, and respondents who did not respond well to the categories they argued that, implementing the program established by the Government of Pekanbaru not have a strong network in disseminating development program Urban Water Front City in Kampung Baru subdistrict Senapelan Pekanbaru. Implementing the program established by the Government through the Department of Housing Pekanbaru City Infrastructure and regions, should have enough ability to develop a strong network of existing elements, as well as the affected communities from the impact of the construction of the Village Water Front City in Kampung Baru sub-district Senapelan Pekanbaru. Actions are taken in order to be acceptable programs implemented by all elements that have a connection or relationship with the implementation of the Water Front City development whose purpose is to organize or improve existing areas in the Village Kampung Baru sub-district Senapelan Pekanbaru that have a direct connection with the Siak river flow. f. Committed Resources (Resources in Support). Decisions made will indicate who is responsible for running a variety of programs and decisions that will be executed. Government Policy Pekanbaru in implementing Environmental Improvement or Water Front City along the Siak River basin expected the full responsibility for implementing that program Environmental Improvement or Water Front City can success efficient and effective. Apart from that, in the construction or the Water Front City Environmental Improvement or Water Front

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City at Village Kampung Baru sub-district Senapelan Pekanbaru, required capabilities of the available resources, so that the implementation of policies in the Water Front City program development can be achieved on time and on target. Resources available in the construction of the Village Water Front City in Kampung Baru sub-district Senapelan Pekanbaru, not only the availability of human resources, will also be supported by the funding, but the wrong sufficient, support facilities, and the need for program implementation and management organizations in both the spatial realignment region in the Water Front City program, particularly in the Siak River Village as waterworks Kampung Baru sub-district Senapelan Pekanbaru. To determine the ability of resources to support the implementation of the Water Front City development in Kampung Baru Village District Senapelan Pekanbaru, can be seen from the explanations and descriptions of the following table; TABLE6. RESPONDENTS RESPONSES TO RESOURCES THAT SUPPORT THE IMPLEMENTATION OF THE ENVIRONMENTAL IMPROVEMENT OR WATER FRONT CITY AT VILLAGE KAMPUNG BARU SUB-DISTRICT SENAPELAN PEKANBARU

Resources: Processed Data Field Results, 2008

The table above can be said that the ability of resources to support both, human resources, financial resources, infrastructure or facilities and management are effectively implemented, but have not reached a more optimal level. It can be seen from the responses, where respondents who gave an answer to the category of effectively amount to 22 people or 48.89%, of respondents who gave an answer with less effective categories totaling 17 people or 37.78%, and respondents who gave an answer with no category effectively amount to as much as 6 people or

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13.33% of the total respondents. Thus it can be said that resource capabilities that support the implementation of the Water Front City development in Kampung Baru Village Senapelan Pekanbaru District, yet available optimally. Field observations by the author, as well as interviews with survey respondents, can know the reason of their chosen answer choices. Respondents provide answers to the category of effective, they argue that the resources to support the implementation of the Water Front City development in Kampung Baru Village District Senapelan Pekanbaru effective enough. Respondents provide answers to the categories less effective they argue that the ability of resources to support the development of the Village Water Front City in Kampung Baru sub-district Senapelan Pekanbaru not support the availability of adequate human capacity, funding, facilities and management better. whereas respondents who gave an answer to the ineffective category, they suggested the reason that the ability of existing resources in the construction of the Village Water Front City in Kampung Baru sub-district Senapelan Pekanbaru insufficient in implementing development programs that are categorized as huge development projects. Ability of resources to support the implementation of development policies Water Front City at Village Kampung Baru sub-district Senapelan Pekanbaru, need available well, Because The arrangement of the Siak river region was needed human resources, major funding for compensation, adequate facilities for supporting the implementation of the program and a good managerial coordination in implementing the various parties INVOLVED in the repair environment. Implementation of development policies Water Front City at Village Kampung Baru sub-district Senapelan Pekanbaru, has not been implemented effectively, because of the six indicators described above are still a lot of answers that lead respondents to answer with category selection less effective. This shows that the implementation of the policy has not been implemented optimally. To find out the policy implementation in the construction Water Front City at Village Kampung Baru sub-district Senapelan Pekanbaru, can be seen from the summary table of the responses to the following explanation;

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Respondents 7.Rekapitulasi Table on the Implementation of Policies in Development Water Front City at Pekanbaru City District Senapelan

Resources: Processed Data Field Results, 2008

Table recapitulation respondents about the implementation of the policy in pembnagunan Water Front City at Village Kampung Baru subdistrict Senapelan Pekanbaru, has not been implemented effectively, in other words, the implementation of the new policy to the extent less effective. This is evident from the average respondent’s answer to the implementation of development policies in Water Front City at Village Kampung Baru sub-district Senapelan Pekanbaru City, where the average respondent’s answer to the effective response categories totaled 18 respondents or 40.01%, the average response respondents with less effective categories totaling 19 people or 41.85%, and the average respondent’s answer to the ineffective response categories are 8 people or 18.14% of the total average of respondents’ answers. Implementation of development policies in Water Front City at Village Kampung Baru sub-district Senapelan Pekanbaru, has been unable to ensure an optimal, so that the City Government through the Department of Housing Regional Infrastructure need to re-structuring efforts in creating and improving the environment or the Water Front City held at Kampung Village new District Senapelan Pekanbaru. It is very important to realize that having a vision Pekanbaru as trade and service area in

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Southeast Asia. To realize this vision, the necessary arrangement to support the city and realize the vision. To realize this vision Pekanbaru, needs the participation of all elements existent in Pekanbaru local government, especially for the people to realize Pekanbaru conducive spatial planning done well, so that activities relating to trade and services can be accomplished effective and efficiently. 2. Factors Inhibiting the Development Policy Implementation in the Water Front City Pekanbaru City District Senapelan Implementation of the Water Front City development in Kampung Baru Village District Senapelan Pekanbaru, is an implementation of the policy pursued by the Government in implementing Pekanbaru spatial planning better and more conducive. However, in implementing development policies in Water Front City at Village Kampung Baru sub-district Senapelan Pekanbaru, is not an easy thing so there are various obstacles or barriers in implementing the policy. Barriers or obstacles encountered in the development of Urban Water Front City in Kampung Baru sub-district Senapelan Pekanbaru, can be viewed from two aspects. This will be explained or described in the following explanation. a. Pekanbaru City Governments Barriers faced from the Government through the Department of Housing Pekanbaru City and Regional Infrastructure in implementing development Urban Water Front City at Kampung Baru sub-district Senapelan Pekanbaru, can be seen from the real conditions seen in the field theory based explanation of the concept proposed by Kaho (1995:60) ie, there are several things to consider in carrying out development in the era of regional autonomy, namely: First, people should be implementing. Barriers related to human resources development Water Front City at Village Kampung Baru sub-district Senapelan Pekanbaru, Pekanbaru City Government through the Department of Settlement and Regional Infrastructure is the unavailability of effective human resources who have the ability and expertise to implement development programs Water Front City at Village Kampung Baru subdistrict Senapelan Pekanbaru. A state that is the obstacle in real-

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izing the implementation of government policy in the development of Pekanbaru City Water Front City at Village Kampung Baru sub-districts Senapelan Pekanbaru. Second, the Treasury should be pretty and nice. Barriers sufficient funding available in the construction of the Village Water Front City in Kampung Baru sub-district Senapelan Pekanbaru, a barrier that has been evident, because the arrangement of the Siak river is done, it will require considerable cost and always available, particularly in the financing of land compensation and people’s homes. This will hamper the implementation of development policies in Urban Water Front City in Kampung Baru sub-district Senapelan Pekanbaru. Third, the equipment must be adequate and well. equipment in this case: it is not a major obstacle in the implementation of the construction of the Village Water Front City in Kampung Baru sub-district Senapelan Pekanbaru, because the arrangement of the environment in the development of Urban Water Front City in Kampung Baru sub-district Senapelan Pekanbaru, needed more funding and human resources with expertise and competence in structuring the Siak River, so that the implementation of development programs in the Village Water Front City Kampung Baru subdistrict Senapelan Pekanbaru, can be realized effectively and efficiently in accordance with the objectives of the policy. Fourth, organizations and management are good enough. The presence of the existing organization and management in implementing the Water Front City at Village Kampung Baru sub-district Senapelan Pekanbaru, also has disadvantages especially in uniting perception between the organization and management of Pekanbaru City Government through the Department of Human Settlements and Regional Infrastructure with other organizations that are also a part in the construction of Water Front City in Kampung Baru Village District Senapelan Pekanbaru, from the non-governmental organizations, researchers, community organizations and other organizations. This needs to be done effort perception, so that the construction of the Village Water Front City in Kampung Baru sub-district Senapelan Pekanbaru, can be realized effectively and efficiently. Barriers mentioned above are technical barriers, however in an effort to disrupt the smooth implementation of the Water Front City develop-

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ment in Kampung Baru Village District Senapelan Pekanbaru. Barriers need to be eliminated, so pentaan region is carried out through the construction Water Front City at Village Kampung Baru sub-district Senapelan Pekanbaru can be realized well. b. Potential Barriers Kampung Baru area in the Village District Senapelan Pekanbaru Obstacles encountered in the construction of the Village Water Front City in Kampung Baru sub-district Senapelan Pekanbaru, when viewed from the potential of Kampung Baru Village area, more often caused by human factors that exist in the village is Kampung Baru. Where the community is in the Village Kampung Baru sub-district Senapelan Pekanbaru most of them had education below the Upper Secondary School, thus becoming less public support in the development of Urban Water Front City in Kampung Baru sub-district Senapelan Pekanbaru. Apart from that, the barriers are seen in the field by the author, a dense residential area, so that the existing access road becomes less available, where existing roads are generally shaped alley way that relatively narrow, so that the arrangement of the area carried out in the construction of Water Front City in Kampung Baru Village District Senapelan Pekanbaru, become obstructed, particularly in the financing of compensation enough, because number of people who own land and houses are quite solid. The most important barriers of the potential areas for development in the Village Water Front City Kampung Baru sub-district Senapelan Pekanbaru, is the Kampung Baru Village District Senapelan Pekanbaru when viewed from a low-lying topography has and the adjacent watershed Siak, with the result of region is vulnerable to flooding, especially during the rainy season. It is also an obstacle to the implementation of the Water Front City at Village Kampung Baru sub-district Senapelan Pekanbaru, as an attempt to prevent flooding is also needed various resources, particularly in the construction of embankments and other development. Barriers mentioned above, both the policy makers and implementers Pekanbaru City Government through the Department of Human Settle-

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ments and Regional Infrastructure and of the potential territory or state Kampung Baru Village District Senapelan Pekanbaru, efforts should be made to overcome these obstacles, because the construction of Water Front City Kampung Baru in the Village District Senapelan Pekanbaru, it needs to be implemented, given the region is no longer fit to be in the heart of the city of Pekanbaru. Other than that the construction of the Village Water Front City in Kampung Baru sub-district Senapelan Pekanbaru, will provide economic benefits, which the region will be objuek tourist and trade center are arranged neatly, so as to realize the vision and mission of the City of Pekanbaru in 2020 as trade and services center in the Southeast Asia Region. CONCLUSIONS AND RECOMMENDATIONS The conclusion that can be drawn from the research and discussion

about development policy implements Water Front City at Village Kampung Baru sub-district Senapelan Pekanbaru, are as follows; 1. Implementation of development policies in Water Front City at Village Kampung Baru sub-district Senapelan Pekanbaru, has not implemented optimally. This situation can be viewed from a variety of indicators related to the implementation of development policies Water Front City at Village Kampung Baru sub-district Senapelan Pekanbaru, the effect of interest policies, benefits, desire for change, the process of decision-making, implementing programs and resources that support has not been implemented effectively. Thus the implementation of development policies in Water Front City at Village Kampung Baru sub-district Senapelan Pekanbaru not run effectively and efficiently, in other words, a new implementation at a less effective. 2. Factors that hinder the implementation of policies in the implementation of development policies in the construction of the Village Water Front City in Kampung Baru sub-district Senapelan Pekanbaru, caused more by human resources that are not available to the well, in the process of funding and other financial compensation inadequate, and managerial tools that do not support the implementation of development programs in development policy Water Front City at Village Kampung Baru sub-district Senapelan Pekanbaru. This will be the main

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obstacles or barriers in implementing development programs in development policy implementation Water Front City at Village Kampung Baru sub-district Senapelan Pekanbaru. The results and conclusions on the implementation of development policies in Urban Water Front City in Kampung Baru sub-district Senapelan Pekanbaru, the author can ask some advice. The recommendation is as follows; 1. Implementation of development policies in Water Front City at Village Kampung Baru subdistrict Senapelan Pekanbaru, the need for the availability of the resources available, so that the implementation of the policy will be easily realized and structuring the Siak river can be implemented. Apart from that the City needs to do more in-depth feasibility study that found the answer to the effectiveness of policy implementation in the construction of Water Front City. 2. Implementation of development carried out mainly in the implementation of a policy, which is under construction in the Village Water Front City Kampung Baru sub-district Senapelan Pekanbaru, need to realize participatory development. This means that any development made by the City of Pekanbaru should have the support and participation of all the elements that have competencies with program development. REFERENCES Bedjo, Susanto. 1990. Manajemen Modern : Konsep dan Aplikasi. Bandung

: Sinar Baru. Bryant, Coralie dan Loise G. White. 1987. Manajemen Pembangunan untuk Negara Berkembang. LP3ES . Jakarta. Chambers, Robert. 1988. Pembangunan Desa Mulai dari Belakang. LP3ES.Jakarta. Dunn, William N. 2003. Analisis Kebijaksanaan Publik. Yogyakarta : PT. Hanindita Graha Widya. Dwiyanto. 1995. Penelitian Kinerja Organisasi Pelayanan Publik. Jakarta : Djambatan Hasibuan. Malayu S.P. 1996. Organisasi dan Motivasi; Dasar Peningkatan Produktifitas. Jakarta: Bumi Aksara

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Himpunan Perundang-Undangan Republik Indonesia, 2005, UndangUndang Otonomi Daerah Perimbangan Keuangan antara Pusat dan Daerah,Bandung : Nuansa Aulia. Ichsan, Moch. 1997. Administrasi Keuangan Daerah : Pengelolaan dan Penyusunan Anggaran, Pendapatan dan Belanja Daerah. Malang : Brawijaya Press. Kaho, Riwu. 1995. Prospek Otonomi Daerah di Negara Republik Indonesia.Jakarta : PT. RajaGrafindo Persada. Kaloh, J. 2002. Mencari Bentuk Otonomi Daerah : Suatu Solusi dalam Menjawab Kebutuhan Lokal dan Tantangan Global. Jakarta : PT. Rineka Cipta Kencana, Inoe. 1999. Ilmu Administrasi Publik. Jakarta : PT. RajaGrafindo Persada Laswell dan Raplan. 1988. Pengambilan Kebijakan. Jakarta : Ghalia Indonesia. Moenir.A.S. 1992.Manajemen Pelayanan Umum di Indonesaia. Jakarta : Bumi Aksara Moleong, Lexy J. 1999. Metodologi Penelitian Kualitatif. Bandung : PT. Remaja Rosdakarya. Nazir.Moh, 1999.Metode Penelitian. Jakarta : Ghalia Indonesia Priyatmoko, dkk.Penyimpangan Stakeholders Lokal; Pelaksanaan Otonomi Daerah.Surabaya : CPPS DAN CSSP. 2001. Rasyid, Ryaas. 1998. Desentralisasi Dalam Rangka Menunjang Pembangunan. Jakarta : LP3ES. Salam, Dharma Setyawan. 2004. Otonomi Daerah dalam Perspektif Lingkungan, Nilai dan Sumber Daya. Jakarta : Djambatan Salim, Emil. 1993. Pembangunan Berwawasan Lingkungan. LP3ES. Jakarta. Sunggono, Bambang. 1994. Hukum dan Kebijakan Publik. Jakarta : Sinar Grafika Santoso, Amir. 1986. Analisis Kebijakan Publik; Suatu pengantar.Jakarta : PT. Gramedia Sedarmayanti. 2003. Good Governance (Kepemerintahan yang Baik) dalam Rangka Otonomi Daerah; Upaya Membangun Organisasi efektif dan Efisien melalui Restrukturisasi dan Pemberdayaan. Bandung : Mandar Maju. Setiono, Budi. 2002. Jaring Birokrasi; Tinjauan dari Aspek Politik dan

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Administrasi.Bekasi : PT Gugus Press Sianipar J.P.G. 1996. Manajemen Pelayanan Masyarakat. Jakarta : Lembaga Administrasi Negara Republik Indonesia Solihin, dkk. 2001. Otonomi Penyelenggaraan Pemerintah Daerah. Jakarta : PT. Gramedia Pustaka Utama P. Siagian, Sondang. 2001. Kerangka Dasar Ilmu Administrasi. Jakarta : PT. Rineka Cipta. Republik Indonesia, 1999, Undang-Undang Otonomi Daerah 1999,Sinar Jakarta : Grafika. Sumaryadi, I Nyoman. 2005. Efektivitas Implementasi Kebijakan Otonomi Daerah. Depok : CV. Citra Utama Suparlan. 1993. Pelayanan Umum Masyarakat. Jakarta : Miswaka Syafrudin, Ateng. 2002. Pemerintah Kecamatan dan Pemerintah Desa Menurut Undang-Undang Nomor 22 Tahun 1999. Jatinangor: Seminar dan Lokakarya Nasional dikampus STPDN Terry, George R. dan Leslie W. Rue. 2003. Dasar-Dasar Manajemen. Jakarta : Bumi Aksara. The Liang Gie. 1999. Administrasi Perkantoran Modern. Yogyakarta : Liberty. Thoha, Miftah. 1991. Birokrasi dan Politik di Indonesia. Jakarta : PT. Rajawali Press. .1993. Pembinaan Organisasi, Proses Diagnosa dan Intervensi. Jakarta : PT. RajaGrafindo Persada Tjokroamidjojo, Bintaro. 1977. Perencanaan Pembangunan. Jakarta : Gunung Agung., 1983. Teori dan Strategi Pembangunan. Jakarta : Gunung Agung. Topatimasang, Roem. 2000. Merubah Kebijakan Publik. Yogyakarta : Pustaka Pelajar. Wahab Solichin Abdul. 1990. Pengantar Analisis Kebijakan Negara. Jakarta : Rineka Cipta Wibawa, Samodra, dkk. 1994. Evaluasi Kebijakan Publik. Jakarta : PT. RajaGrafindo Persada. Winardi. 1986. Asas-Asas Manajemen. Bandung : Alumni Zulhelmi. 1996. Service Management. Yoyakarta : Andi Offset

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Risk Governance of the People’s Palm Plantation Partnership Program in Bangka Regency Shulby Yozar Ariadhy Head of Public Policy Studies and Development Centre at STISIPOL. Bangka, Belitung Province. Email: [email protected]

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ABSTRACT Nowadays, partnership has become one of new forms of governance. It is not effective for the government to handle all public services on its own because the society’s current situation turns to be more complex and complicated. However, there are risks inherent in every partnership. Every party involved in a partnership has each own potential risk. In the context of palm plantation management partnerships, uncertainty in managing risks will lead to a number of conflicts. Thus, it is important to pay attention to risk governance in a partnership. This study aims at describing how the risk governance is done in KKSR (Kebun Kelapa Sawit Rakyat/People’s Palm Plantation) program in Bangka Regency, Indonesia. There are 3 main focuses of this study, namely the process, the strategy and the result of risk governance in KKSR program.The results show that the there are different interests among the parties involved in the partnership which are potential to be the cause of conflicts. Furthermore, the partnership achievement indicates that the strategy of risk governance applied in KKSR Program initiated by the Government of Bangka Regency has given positive impact on each party involved in the partnership. The result of this study also implies the importance of government role in the risk governance process of the partnership program for public services. The government is responsible for protecting the stakeholders’ interests, especially public interests, and also responsible for assuring that the goals of the partnership are achieved. Keywords: partnership, risk governance, Palm Plantation

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ABSTRAK Pada saat ini, kerjasama menjadi salah satu bentuk baru dari tata kelola pemerintahan. Merupakan hal yang tidak efektif untuk pemerintah jika melakukan seluruh pelayanan publik oleh pemerintah sendiri karena situasi terkini dari masyarakat berubah menjadi lebih kompleks dan rumit. Akan tetapi ada beberapa resiko yang melekat dalam setiap kerjasama. Setiap jumlah yang terlibat dalam bentuk kerjasama memiliki resiko potensial masing – masing. Dalam konteks kerjasama pengelolaan penanaman kelapa sawit, ketidakpastian dalam pengelolaan resiko akan menyebabkan konflik. Dengan demikian, penting untuk memberikan perhatian dalam pengelolaan resiko pemerintahan pada sebuah kerjasama. Tujuan studi ini adalah mendeskripsikan bagaimana tata kelola pemerintahan resiko dilakukan dalam program KKSR (Kebun Kelapa Sawit Rakyat) di Kabupaten bangka, Indonesia. Hasilnya menunjukkan bahwa ada beberapa kepentingan yang berbeda di dalam pihak yang terlibat dalam kerjasama yang sangat potensial untuk menimbulkan konflik. Selanjutnya, pencapaian kerjasama mengindikasikan bahwa pemerintah Kabupaten Bangka telah memberikan dampak positif terhadap setiap pihak yang terlibat dalam kerjasama tersebut. Hasil dari studi ini juga menyatakan pentingnya peran pemerintah dalam proses pengelolaan resiko pemerintahan dalam program kerjasama atas pelayanan publik. Pemerintah bertanggungjawab dalam menjaga kepentingan pihak – pihak terkait, khussunya kepentingan publik, dan juga bertanggungjawab dalam menjamin tujuan dari kerjasama dapat tercapai. Kata Kunci : kerjasama, tata kelola resiko pemerintahan, penanaman kelapa sawit

INTRODUCTION Partnership is an effort to make public service reform in which non

governmental actor involvement in public service provision support government limitation on it. In order to pursue that goal, the partnership is based on some common principles such as risk sharing, equity and sinergy (Jebarus,1996 in Sitompul, 2008: 17). In Indonesia, the partnership model on palm plantation has started since 1980 era namely Perusahaan Inti Rayat (PIR). At the beginning of this partnership model, the government conducted outreach and training for the farmer and arrange a marketing and product process system of people palm plantation. In the later phase, the private company involved on this activity. The next models of palm plantation partnership are KKPA(Koperasi Primer Kepada Anggota) or Prime Cooperation To the Participant and Revitalisasi Perkebunan or Plantation Revitalization. Meanwhile, KKSR (Kebun Kelapa Sawit Rakyat/People’s Palm Plantation) program in Bangka Regency, as analysis focus in this research, is one of partnership model on palm plantation which is initiated by Bangka Regency Government.

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Sunarko (2009) noted that KKSR is modified from KKPA model. KKSR is a coperation between Bangka Regency Government, local farmers and the palm plantation company (PT. Sawindo Kencana). This model gives more autonomy to the farmer and also sets some roles for the local government. However, the implementation of the plam plantation development policy trough a partnership among the farmer and state/private company still faces some awkward problems. Marhoed (2008) noted that there are some cases of the palm plantation development which has not given good advantage for the farmer1. In the other side, the plantation company also has to deal with some obstacles in the palm plantation partnership such as security disturbance, disobedience from the farmer, and rent seeking behaviour of the public officials. (Sitompul : 2008 : 15 17) Generally, the problem of the palm plantation partnership are related with the land, market and investment issue. These problems affected more likely to the farmers even tough they also affected the company. It can be concluded that each party involved in the partnership has each posibility of risk. So, the partnership on palm plantation should based on the risk sharing principle to get mutual benefit. Furthermore, government that has regulatory function should mediate the partnership process in order to achieve its objective. In this context, this paper is aimed at describing three main problems: risk governance process at KKSR (Kebun Kelapa Sawit Rakyat/People’s Palm Plantation) program in Bangka Regency, the risk governance strategy and the impact of risk governance of this program.It is hoped that this study will be able to initiate a discussion about how to conduct a partnership in risk perspective. The rest of the paper proceeds as follows: the second section discusses the theoretical framework. Section three describes the methodology. The fourth section presents the empirical results and the conclusion is on the last section. THEORITICAL FRAMEWORK A. Partnership and Risk Governance The development of contemporary public administration indicates

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that public services delivery are no longer dominated by the government (Dwiyanto: 2004, Salamon:2002). Complexity of problems and needs requires a change in governance of public services. One of issues that arises is non government actors involvement that manifests on partnership in public service delivery. There are various definitons of partnership. Tyler dan Matthews (1996) note twenty definitions and identify 10 key elements of it :a). Goals and Objectives, b). Trust, c).Problem Resolution, d). Commitment, e). Continous Evaluation, f). Group Working and Teams, g). Equity, h). Shared Risk, i). Win Win Philosophy, j). Collaboration and Cooperation. Furthermore, it can be concluded that working relationship between governmnet and non government institution is not always a partnership format. Partnership should base on some main principles such as risk and responsibility share and resources transfer (United Nation ESCAP, UNDP dan ADB, 2007: 21 ). In addition, Grimsey dan Lewis (2004: 13) note other main principles of partnership : a). Participants, b). Relationship, c).Resoucing, d). Sharing, e) Continuity. In other side, Hartwich (et al.) (2008:viii) state that partnership does not always become a right instrument to get a project complishment efficiently. Partnership could be fail and lead to conflict and cause cost and schedule overruns, lost time, wasted money, poor quality, and low morale. Thus, a partnership should begin with an assessment regarding the following factors : 1. whether there is a common interest, 2. whether the cost–benefit relationship is positive for each partner, 3. whether all partners derive benefits from their contributions, 4. whether there is sufficient equilibrium between the partners’ benefits, and 5. whether or not the partnership produces results that are non conflictive. At this point, what are main roles of government in partnership? Handoko (2006: 29-30) dan Shapiro dan Rosenquist (2004: 458) notes some government roles in partnership as follows: 1. Regulatory function which supports performance of the partnership

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by determining agenda and public service priority, monitoring performance of private party and providing incentives and sanctions to private parties for their performance. 2. Mediationfunctionwhich mediatesa conflict inpartnerships. 3. Promoterfunction which mobilizesprivate sectorinvestmentas well ascontrols thecompetitionbetweentheprivatesectorandmobilizescivil society participation and protects the civil society from private sector abusement. 4. Facilitation function that facilitates funding and technical assistance. 5. Evaluation and Monitoring function. In another context, risk as a concept has been known in a wide area. There are various perspectives of risk namely social risk, economic risk, security risk, investment risk, political risk etc. (Merkhofer (1947). The risk manifestations are also various from disaster, crime, polution, terorism, to technology impact. (Renn :2008:50) Merkhofer (1947:2) describes risk as “uncertain situation in which a number of possible outcomes might occur, one or more of which is undesireable”. IRGC (2008:4) state definition of risk “an uncertain (generally adverse) consequence of an event or activity with respect to something that humans value”. Renn (2008 : 50) notes that there are three main elements of risk definitions : 1. outcomes that have an impact upon what humans value; 2. the likelihood of occurrence (uncertainty); 3. a specific context in which the risk may materialize. Furthermore, Renn also notes that from social science perspectives risk is about the probability of “social construct”. It deals with how to explain the non physical impact of a risk and the relation between risk and social culture.Meanwhile, from natural science perspective, risk is related with a damage of something which is valuable for human. Thus, a multiperspective approach is needed to understand risk comprehensively. Given this various description about risk, what are risks on palm plantation partnership? Table 1 describes the risks on palm plantation partnership.

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TABLE 1 RISK IN PALM PLANTATION PARTNERSHIP

Sources: Grimsey and Lewis (2004:180); Merna and Smith (1996), Miller and Lesard (2001) in Grimsey and Lewis (2004: 174); Chapman and Ward (1997), Kerzner (1989), Smith and Walter (1990), Thobani (1998) in Grimsey and Lewis (2004: 172); Siahaan (2009: 11 and 28); European Comission (2003: 55)

Partnership is a cooperation that is driven by resources limitation of the party involved on it to pursue a certain goal. At this point, there should be a resources transfer in a partnership in order to give benefit to each party (Handoko : 2006 :46) . Infact, resource transfer in a partnership could be in a disparency condition between the ownership of resources and the risk that has to be taken. Hence, risk governance is important for balancing the ownership of resources with the capacity to bear the risk in the partnership. Instead of using risk management term, this paper is using risk governance term that is inspired by International Risk Governance Council (IRGC) study about risk. IRGC (2005:4) describes risk governance as follows: “Risk governance deals with the identiûcation, assessment, management and communication of risks in a broad context. It includes the totality of actors, rules, conventions, processes and mechanisms and is concerned with how relevant risk information is collected, analysed and communicated, and how management decisions are taken. It applies the principles of good governance that include transparency, effectiveness and efûciency, accountability, strategic focus, sustainability, equity and fairness, respect for the rule of law and the need for the chosen solution to be politically and legally feasible as well as ethically and publicly acceptable”.

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Risk governance relates with a broad context of risk. It deals with actor, rules and links it to the principles of good governance such as transparancy, equity and accountability. “Governance” refers to the invovement of four central actors of civil society : government, private sector, scientist and civil society (Renn : 2008 :201). Risk governance consists two main parts, first, anlysis process and second, risk management process.Those parts have four phases: pre-assessment, appraisal, characterization and evaluation, and implementation and decision making. All of those process are linked by communication. PICTURE 1 RISK GOVERNANCE PROCESS

Source: Renn (2008:201)

RESEARCH METHODS This research had been conducted in Bangka Regency, Kepulauan

Bangka Belitung Province, Indonesia by qualitative method. The primary data collected trough depth interview technique and observation. The informants are policy maker in Bangka Regency, private plantation company, participant farmers of KKSR Program and others whohavea concern inthe issue of palm plantations. RESULT ANALYSIS

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A. Context of Bangka Regency Bangka Belitung has a long history related to its natural resources, especially tin commodity that began to be explored since the 16th century during the Palembang Sultanate. The history of tin exploration in Bangka Belitung was marred by the stories of local community resistance against the occupation and the social process of interaction between the local miners and the miners that came from China. At Post-colonialism era, tin commodity still has an important influence for the social life of communities in Bangka Belitung Islands (Ishak: 2000, Erman: 2007 and Heiduis: 2008). Meanwhile, in theplantationsector, pepperis acommodity which also has its own story as well as thepresence oftin exploration in Bangka Belitung. Pepperhas beenplantedsince1860andused to be an important commodity for the economyin Bangka Belitung untilat the early of 1990s following its price falling in the world market. TABLE 2 PRIVATE INVESTMENT IN PALM PLANTATION AT BANGKA REGENCY IN 2009

Source :Peluang Investasi Prov. Kep. Bangka Belitung Tahun 2009

Once the glory of pepper era is over, the palm commodity began to attract farmers and private plantation companies, especially in Bangka Regency as one of the central of palm plantations in Bangka Belitung. Table 2 shows that in 2009, there are 9 companies which invest on palm plantation investment in Bangka with 19552.79 ha planting area from

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85,369,09 ha total of plantation land. So there are 65816.3 ha uncultivated land. The potential of this land would be an opportunity for the development of palm plantation in Bangka regency but on the other hand it could be a social problem when the development is not planned with attention to risk factors within. B. Interests in Partnership In a partnership, each party has different interest. But resources limitation make them cooperate in order to achieve their objectives. Thus, description about interest of involved party in a partnership will help us to understand about partnership operational prospect. First, the interest of the Bangka Regency Government is finding policy solutions in the palm plantation management issues in Bangka by synergizing the government, communitiesandpalm plantation company in thepalm plantation development. However,the developmentof palm plantations are also still havea number of constraints. For example, limited capital and knowledge and impartial itypricing andmarketingsystems. Bangka regency governments realized the need forgovernment’s rolein finding solutions to the problems that exist in palm plantations. In other side,the government needs other’s involvementgiven thelimited resourcesownedby thegovernment. (interview with Bangka Regency Secretary by author on June 5, 2010 ). Second, in the context of palm plantation company’s interest, partnership is an effective way to build a good relationship with the community. Furthermore, the company needs to have sufficient input for the factory production. However, the company cannot get a sufficient supply for the factory from their own farm. So, it has to get the supply from the small scale farmer or other parties that become its partner. Development of plam plantation also requires the company to adopt the patnership model. This is due to the fact that plantation bussiness always relates with the community arround. Thus, that condition has a high potential of conflict (Sunarko, 2009: 8). At this point, a good cooperation between companies and community around would avoid the conflicts such as looting farm, land claims and the the destruction of the plantation assets.

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Third, the interests of farmersisimprovringtheir welfare.There is a highenthusiasm of peopletoregister themselvesas aKKSR Program participant although in the early launch of the program there are still doubtness aboutits success. (Head of Plantation Division of Bangka Regency, interview by the author, on June 2, 2010 ) In other side, KKSR Program is important for the farmer since one of palm plantation characteristic is high cost plantation. Hence, the partnership between Bangka Regency Government, Sawindo Kencana Ltd, and the farmers would overcome the farmers’ resources limitation. Based on those points, there are different interests of the parties involved in the KKSR partnership and these different interests potentially lead to conflict. In this context, trust among the parties is important to conduct a synergi and mutual benefit relatonship and to open a communication. Another reason for trust importance that KKSR model requires a more autnomous farmers on planting their land in this partnership. So trust factor is also important in order to have planting process on track. C. Risk Identification Process Before KKSR programwas established in 2004, there was an awareness of policy makers in Bangka Regency Government about daily problems that occurredin the management ofpalm plantations on Bangka. The identification shows that local farmers are at a disadvantage condition both in palm plantations on a large scale plantations managed by plantation companies and small holders that are managed independently by the community. Furthermore, the evaluation of plantation sector also shows that there were lack of responsibility of farmers that involved in a plantation grant program. Based on that awareness, the Bangka Regency Government conducted KKSR program as a solution for the plantation problems. (Secretary of Bangka Regency,interview by the author on June 5, 2010) 1. Risk type on KKSR program The description in this section discuss types of risks that exist in KKSR program, sources of risk, and further implications of the existence of risks to palm plantations partnership based on the risk perception of the

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actor. Type of risk is an attempt to classify the problems in the palm plantations into a general concept. In other side, the sources of potential risk could emerge from all parties involved in the partnership or from the environment outside the partnership. Based onan analysis oftheprimary and secondary data, there are four types of risk in KKSR program: operational risk, financial risk, institutional risk and environmental risk. a. Operational Risk In the palm plantation, land is one of the important issues and often lead to conflict between communities, palm plantation companies and the government. The source of the problems are unclear status of the land, compensation issues and misuse of permits for palm development. Meanwhile,landlicencing process that usespowerapproachcould alsocause conflictsthatcouldlead tofailure ofpartnership. Power approach means that the process is lack of legitimation since there is not good and fair communication between the local government and palm plantation companies and local community .(Director of Walhi of Bangka Belitung,an environment NGO,interview by the author on June 3, 2010) Operational risks in palm plantations also could manifestate in the uncertainty of the production of a palm plantation. The number and quality of the production of Tandan buah Segar (TBS) is influenced by some factors such as land, plant age, seeds quality, fertilizers and harvesting process. The quality and quantity of palm production depend on the management or cultivation techniques for these factors. It is also influenced by the seriousness of the farmers in treating the plant, especially the palm plantation program that is supported by the government, since there is misperception of the farmers that any government assistance is free of charge and does not demand any responsibility. This misperceptioncouldencouragefarmerstohavelow sense of belonging of government programsso that programs couldnotrun optimally. (Bangka Regency Secretary and Head of Labu Village, interview by the author on 5 and 6 June, 2010)

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b. Financial Risk Financial riskin partnershipsof palm plantationsrelated tothe uncertainty of thepalmcommodity pricesdue to fluctuations incommodity prices, uncertaintyof marketingandpricingsystem.The amount of palm mills whicht end to be limited in some area sled to many companies act as a collector of plantation crops from farmers and resell it toanother party whichhaspalm mills. As a result, there is no price margin gained by thefarmersbut itis gained bycompanies ortraders.Thusthe impactof palm plantationsfor improving the welfareof farmersis not significant. In the perspective of palm plantation companies, farmers have a potential to disobey the partnership agreement by selling their production to middlemen and it could decrease the supply of TBS for the company. (Plasma Manager of Sawindo Kencana ltd, interview by the author on August 5, 2010) Meanwhile, another characteristic of palm plantations is the existence of a waiting period until the palm plantations become productive and profitable. This waiting period lead to a condition in which the farmers have not been able to get any revenue from palm plantations and only a few farmers are able to handle this condition without getting a loan from the companies. (Budiasa, 2010). However, palm plantation credit could also potentially become the problems for the farmers because oflack oftransparencyinthe credit agreement between farmers and companies or other parties.This situationincreases the riskof creditrefunddifficultiesby the farmers. c. Institutional Risk Institutionalriskin the partnership programof palm plantation sisuncertaintyregardinggovernment policy supportin its functionas aregulator, mediator, facilitatorandconductmonitoring and evaluation of the program. Particulary the support forthe protection of public interests such as budget support subsidies for farmers as well as mediating the different interests in order to create a mutually beneficial partnership. Institutional risk could also manifest in denial of an agreementby

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thefarmers andother partners inthe management ofpalm plantations. For example,farmersmakedefiance against the provisions ofthe partnershipora condition in which the company fails tomeet its obligations. In other side, palm plantations require a large fund and high technology, from the land clearing process to the cultivation activities. At the stage of cultivation, seed quality is a prerequisite for good yields. Meanwhile, quality seeds, fertilizers and pesticides are expensive. Besides its price, subsidized and non-subsidized fertilizer are often difficult to obtain in the market. So, the government’s political will is important to protect the small scale farmers. d. Environmental Risk Tarigan on Aliansi Desa Sejahtera (2009) identified several environmental impactsofpalm plantations : 1) Combustion of land as one of the method of land clearing produces smog which may encourage the emergence of ARI (Acute Respiratory Infection). The larger theareathe higher the expansion rate of smog. 2) The destruction offorestsas an absorbing, storageand distributor ofnaturalwaterdue tothe conversion ofthe region 3) Access to clean water becomes difficult because the oil companies control the land of the water resources. In the other side, the water quality around the plantation areas also decreased due to the use of pesticides and herbicides in large numbers and waste disposal practices into the river by the factory . 4) Palm plantationsalsohave the potentialtolead todestructionof forest. According to the dataof Forest Office (Dinas Kehutanan) ofthe Province ofKepulauan Bangka Belitung, productionforest, protected forest andconservation forest inKepulauan Bangka Belitung are notcompletelyin good conditionbecause they have been exploitedby theplantationandminingactivitieswhose territoryspread acrossalldistrictsincludingBangkaRegency. (Bangka Pos,February 3, 2010).

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D.Risk Governance Strategy Risk governance strategies adopted in KKSR program as a response to the risk was initiated by the Bangka Regency Government Bangka through the distribution of tasks and roles in the partnership i.e by providing non interest financial assistance, determining the plantation product pricing mechanism and purchasing system and conducting technical development of cultivation intensively . Another strategy is transfering the risk of land to farmers that participate in KKSR program. 1. Conducting Role Sharing Bangka Regency Government role in risk governance of KKSR Program is strategic since the government has the authority in initiating the division of roles in order to create a mutually beneficial partnership. Based on the results of risk identification in the early phase of the partnership, Bangka Regency Government initiated a partnership with a division of roles between the Government of Bangka Regency, PT. Kencana Sawindo and KKSR program participants . Bangka Regency Government provided means of production assistance such as fertilizersand non interest fund for land clearing. Another role of Bangka Regency Government is supervising the whole process of the conduction of the partnership agreement. Meanwhile, PT. Sawindo Kencana conducted technical cultivation training of palm plantations and bought the farmers product based on the pricing mechanism of the partnership agreement. Furthermore, the participant farmers provided the land and managed their farm independently. Generally, role sharing could be considered as a response to operational risks related to farm productivity and financial risks of KKSR program. a. Providing funding loan The funding sourcefor KKSR Program is from the budgeting of Bangka Regency Government. The funds are used to assist farmers in land clearing and purchasing production means. The amount ofsupportadjusted to the needsproposedby theparticipantsfarmer. Thefarmer repay the loanto the Government of Bangka regency gradually with no interest charge. Menwhile, budget all ocation for

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theprogramKKSRare shown inTable 1. Unfortunately, even KKSR Program is considered to be a success program in palm plantation partnership, after 2008 there was no more budget allocation for it from Bangka Regency Government due to the budget limitation. TABLE 3 BANGKA REGENCY BUDGET ALLOCATION FOR KKSR PROGRAM IN 2004-2008

Source : LKPJ Bupati Bangka Tahun 2004-2008.

In a risk governance perspective, the impact of this assistance would reduce operational risk which manifestated inlow quantity and quality of palm production. In fact, the comparation ofcondition of nonKKSR with KKSR Programplantations at the same location shows that KKSR Program plant is in a better condition . (Observation in Labu Village on June 6, 2010) Non interest financial assistance also distinguishes KKSR Program in Bangka Regency with other palm plantations partnership model. For example, in the revitalization model, the loan has low interest but it is limited to the construction of the farm phase for about five years.Generally,this KKSR Program strategy would minimize the risk ofcredit stagnation by the farmerdue to the absence of creditinterest rateexpense. In KKSR program, Bangka Regency Government also has taken the financial risk which is tipically faced by plantation companies in the other palm plantation management scheme. Bangka Regency Government provided financial assistance to farmers during the construction of the farm . b. Pricing Mechanism and Marketing System Identified risks in this study are common problem that often occur in the management of palm plantations. Low bargaining power of farm-

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ers, the uncertainty of product marketing system are some of those common problems However, farmers’ lack of commitment in carrying out the contract is another source of risk. In KKSRpartnership, the financial risk which manifest on the uncertainty of the price of TBS produced by the farmers have a direct impact on the ability of farmers to pay the mortgage debt. In order to solve this problem, a pricing mechanism and marketing systemthat ties all parties in KKSR Program was created.Price determination conducted at least once amonthby Tim Penetapan Harga Pembelian TBS(PurchasingSystem ofTBS Team) which consistof Kepulauan Bangka Belitung Province Government and all the regencies in it, the farmers and private palm plantation company. Data from the Survey of Program Evaluation of KKSR Program in 2010 showed that 49% of farmers KKSR Program states that the purchase price of TBS by PT. Sawindo Kencana has been implemented in accordance with the agreement of Tim Penetapan Harga Pembelian TBS, 25% stated they were quite fit, very fit at 13%, 13% stated less suitable and not suitable 8%. The certainty ofpricing andmarketingsystem ofTBShas impacted program participants to encourage thefarmerstorepayKKSR loans. Furthermore, This progresshas alsostimulatethe seriousness of other farmers in managing their palm plantation. (Head of Labu Village, interview by the author on 6 June, 2010). c. Conducting Technical Development of Cultivation Intensively The importance of assistance to farmers is due to the fact that palm plantation is a new commodity at most areas of Bangka Regency, so technical knowledge about its cultivation is still very limited. Furthermore, conducting an intensive assistance is an effort to manage the risks associated with the uncertainty of the production of palm plantations owned by farmers. In other side, assistanceis a tool communication among partnersin order to createmutualtrust ofpartnership. 2. Conducting Risk Transfer of Land To Farmers In KKSR Program a prospective participants farmer are required to have 2 ha certificated land. Provisionof landownershipinKKSRProgramis

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different with theother model of palm plantation partnership such as plasma nucleus model, in which the company build the nucleus area and give the assistance to the farmers in establishingplasma plantations. In factthe agreementin the constructionof the plasma nucleus often encountered problems due tolack of clarityabout locations and the realizationof the plasma planting. Thus, the provisionof landownershipbyfarmersinKKSRProgramis the answerto the problemsthat have beenassociated with the landin thepalm plantations.In other side, for the farmers, land still become their as a personal poperty in order to support their live in the future. Meanwhile, for the company, it get advantage for not taking risk related with land plantation licence process that could need a high cost because the possibility of rent seeking behaviour of the public officials. E. Risk Governance Achievement The partnership objective is conducting a mutually beneficial cooperation for all parties involved. In the case of KKSR Program, Bangka Regency Government, PT. Kencana Sawindo andprogram participants farmers have given their resources to achieve their intended goals. For the Government of Bangka regency who inititaed the program, it is important to improve the welfare of the farmers and gain support for its policy. While the company’s involvement in the partnership is important to get a supply of TBS for the company factory operationa. 1. Supply for The Company and Good Relation in Partnership Eventough TBS suppliesfrom KKSR Program are not significant partcomparingto thetotalneeds ofmillsowned byPT. SawindoKencana, but PT. Sawindo Kencanafelt the positive effectsofgood relations with farmers and BangkaRegency Government. Furthermore, there are no serious conflict in KKSR Program. This condition is important for the company in order to carry out the factory operation safely. 2. Improving the Welfare of The Farmers The impact ofKKSRprogramforthe welfare of farmerscan be implied from income increasing of the farmers. SurveyDatafromKKSR Program Evaluation in 2010 showed that an increase infarmers’ incomeasshown

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inGraph 1

One of KKSR participant farmeralso expressedthat compared tootherplantationaidprogramawardedby thegovernment, KKSRprogram has given good impact for its participants which is stated as follows: Among many local government aid, KKSR is successful. The impact on the welfare of society is significant. In the past, there was a Peremajaan, Rehabilitasi dan Perluasan Tanaman Ekspor (PRPTE) or Rejuvenation, Rehabilitation and Expansion of Export Crops Project which gave aid in rubber plantation during the 1980s. PRPTE had the same loan scheme with KKSR program.But it did not succeedbecause the commodity was not promising in economic term, there was no commitmentof farmers, and the absence of a binding contract “. (interview by the author on June 6, 2010). This statement is also supported by data fromKKSR Program Evaluation in which 30.8%of farmersstatedtheir incomeincreased afterthe program KKSR, 25% greatly increased, rising19.2% fairlyandslightlyincreased 11.5%. 3. Political Legitimation Government policy requires the support of the community. As a new innovation in the management of palm plantations, KKSR program has good policy support and legitimacy. KKSR Program considered toimprove farmers’ welfare program participants as presented by one of Bangka Regency Parliament members: “ I think there are a lot of positive impact of partnership between government,

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private and the small scale farmers. It will minimize conflict which often occures between private and the farmers. Actually, KKSR is one of solution for the conflicts and for improving the welfare of the community. So far, KKSR has positive image “. (Interview by the author on June 12, 2010)

Political support from this parliament member would be important to the process of formulating a policy regarding the management of palm plantations on Bangka Regency. Meanwhile, farmers’ satisfaction as the goal KKSR program can also be illustrated by the enthusiasm in response to the program which can be imply from the statement of one of the KKSR Programparticipating farmers as follows: “We really appreciate the KKSR Program by Bangka Regency Government. We hope this program will be continued since there are many other farmers that interested in participating at KKSR Program “. (Observation atKKSR Program evaluation meeting in Sempan Village June 4, 2010) KKSR program is considered as a partnership of palm plantations that are more beneficial to farmers compared with other partnerships such as the PIR. Head of Sempan Village stated as follows : “ I think KKSR Program is more profitable then other palm plantation model such as Pola Inti Rakyat (PIR). For example, KKSR program only requires 3 Kg of minimum weight of the TBS for its harvest purchasing mechanism. Meanwhile, another model requires 5 Kg of minimum weight for its harvest purchasing mechanism standard.(Observation atKKSR Program evaluation meeting in Sempan Village June 4, 2010) . CONCLUSION In the process of formulating risk in Bangka Regency KKSR program

begins with the identification of risk by the Government of Bangka regency. Bangka Regency Government initiative indicates an awareness of the risks in the program KKSR. Types of risk in KKSR program are operational risk, financial risk, institutional risk and environmental risk. There are some similarities and also differences in the perception of each party on such risk is related to the urgency, the source and impact.Risk governance strategies indicate a response to the risk of KKSR actors in the program. Management strategy is more directed to the uncertainty concerning the operational and

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financial of KKSR program. Achievement of the partnership shows that the risk governance strategies initiated by Bangka Regency Governmenthas protected interests of all parties that involved in the partnership. It is concluded from the achievement of the desired benefit from cooperation in KKSR program. In other side, achievement of risk governance indicates that there is no disparity in the transfer of resources of each party in the KKSR Program partnership. ENDNOTES 1 These problems are described as follows: · lasma farm is not constructed by the plantation company in accor-

dance with the agreement · Unfair farmers’ product quality assessment by the company. · Lack of credit transparency for the farmers · Lack of quality seeds REFERENCE Aliansi Desa Sejahtera, 2009, Dampak Lingkungan Hidup Perkebunan

Kelapa Sawit, dari http://desasejahtera.org/artikel/25-dampaklingkungan-hidup-perkebunan-sawit.html accessesed on 23 July 2010. Bagian Administrasi Sumber Daya Alam Setda Kabupaten Bangka, 2010, Survey Evaluasi Program Kebun Kelapa Sawit Rakyat (KKSR) Kabupaten Bangka. Budiasa, I Wayan, Studi Kelayakan Proyek Perkebunan Kelapa Sawit PT Henrison Persada Inti Papua, dari http:// ejournal.unud.ac.id, accessesed on 25 February 2010. Dwiyanto, Agus,2004, Reorientasi Ilmu Administrasi Publik : Dari Government ke Governance, Pidato Pengukuhan Jabatan Guru Besar pada Fakultas Ilmu Sosial dan Ilmu Politik Universitas Gadjah Mada tanggal 21 Agustus 2004 di Yogyakarta, Yogyakarta. Erman, Erwiza, 2007, Rethinking Legal and Illegal Economy : A Case Study of Tin Mining inBangkaIsland,www.globetrotter.berkeley.edu/bwep/ greengovernance/papers/Erman2007.pdfaccessesed on 1 December 2009.

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European Comission, 2003, Guidelines for Successful Public-Private Partnership, Brussels. Grimsey, Darrin and Mervyn K Lewis, 2004,Public Private Partnership : The World Wide Revolution in Infrastructure Provision and Project Finance, Edward Elgar Publishing, Inc, United Kingdom. Handoko, Jerry, 2006, Efektifitas Kemitraan dalam Program Jaminan Pemeliharaan Kesehatan Masyarakat Mandiri di Kota Yogyakarta, Skripsi Jurusan Ilmu Administrasi Negara, FISIPOL UGM, Yogyakarta. Hartwich, Frank, Jaime Tola, Alejandra Engler, Carolina González, Graciela Ghezan, Jorge M. P. Vázquez-Alvarado, José Antonio Silva, José de Jesús Espinoza, and María Verónica Gottret, 2007, Building Public–Private Partnerships for Agricultural Innovation. Food Security in Practice technical guide series, International Food Policy Research Institute, Washington, D.C. Heidhuis, Mary F. Somers, 2008, Timah Bangka dan Lada Mentok; Peran Masyarakat Tionghoa dalam Pembangunan Pulau Bangka Abad XVII s/d XX, Yayasan Nabil, Jakarta. International Risk Governance Council, 2005, An Introduction the IRGC Risk Governance Framework, Geneva. Ishak,Hikmat, 2000,Kepulauan Bangka Belitung, Semangat dan Pesona Provinsi Timah dan Lada,Pemerintah Kabupaten Bangka. Marhoed, Yudho, 2008, Sawit oh Sawit, http://cetak.bangkapos.com/ opini/read/115.htmlaccessesed on 6 October 2009. Merkhofer, Miley W, 1987, Decision Science and Social Risk Management; a comparative evaluation of Cost-Benefit analysis, Decision Analysis, and Other formal Decision-Aiding Approaches, D. Reidel Publishing Company, Holland. Pemerintah Kabupaten Bangka,2005, Laporan Keterangan Pertanggung jawaban Bupati Bangka tahun 2004. Pemerintah Kabupaten Bangka,2006, Laporan Keterangan Pertanggung jawaban Bupati Bangka tahun 2005. Pemerintah Kabupaten Bangka,2007, Laporan Keterangan Pertanggung jawaban Bupati Bangka tahun 2006. Pemerintah Kabupaten Bangka,2008, Laporan Keterangan Pertanggung jawaban Bupati Bangka tahun 2007.

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Pemerintah Kabupaten Bangka,2009, Laporan Keterangan Pertanggung jawaban Bupati Bangka tahun 2009. Pemerintah Provinsi Kepulauan Bangka Belitung, 2009, Peluang Investasi Prov. Kep. Bangka Belitung Tahun 2009. Renn, Ortwin, 2008, Concepts of Risk: An Interdisciplinary Review, Part 1: Disciplinary Risk Concepts, GAiA, Germany. Renn, Ortwin, 2008, Concepts of Risk: An Interdisciplinary Review, Part 2: Disciplinary Risk Concepts, GAiA, Germany. Renn, Ortwin, 2008, White paper on Risk Governance; Toward an Integrative Framework, Springer, printed in Netherland. Salamon, Lester M, 2002, The Tools of Government : A Guide to the New Governance, Oxford University Press, New York. Shapiro,H-Y dan E.M. Rosenquist, 2004, Public/Private Partnerships in Agroforestry: The Example of Working Together to Improve Cocoa Sustainability, Agroforestry Systems 61, Kluwer Academic Publishers. Printed in the Netherlands. Siahaan, Hinsa, 2009, Manajemen Risiko Pada Perusahaan dan Birokrasi, PT Elex Media Komputindo, Jakarta. Sitompul, Pangoloi, 2008, Evaluasi Peranan Pengambangan Pola PIR Trans Perkebunan Kelapa Sawit PT. Perkebunan Mitra Ogan Sumatera Selatan, Magister Manajemen Agribisnis, Fakultas Pertanian UGM, Yogyakarta. Sunarko, 2009, Budi Daya dan Pengelolaan Kebun Kelapa Sawit dengan Sistem Kemitraan, Agromedia Pustaka, Jakarta. Tyler, A.H. and J.D. Matthews, 1996, An Evaluation of Definitions and The Key elements of Partnering, RICS, COBRA 1996, United Kingdom. United Nation ESCAP, UNDP and ADB, 2007, Access to Basic Services for the Poor; The Importance for Good Governance, Asia-Pacific MDG Study Series. Newspaper Bangka Pos, February 3, 2010

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Supranational Governance in Changing Societies of European Union in the Last Decade Tulus Warsito Lecturer of International RelationDepartment,at Faculty of Social Science and Politics Universitas Muhammadiyah Yogyakarta

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ABSTRACT As a supranational organization The European Union (EU) seems to compete the UN’s reputations. UNO has more members since its scope is worldly, but UN does not issue its own currency while EU has Euro. The Euro is the second largest reserve currency as well as the second most traded currency in the world after the United States dollar. The currency is also used in a further many European countries and consequently used daily by some 332 million Europeans. Additionally, over 175 million people worldwide - including 150 million people in Africa - use currencies which are pegged to the Euro. No other transnational organization has such a specific currency. Although not as a unified military conventional power, EU has such a “Battlegroups” initiative, each of which is planned to be able to deploy quickly about 1500 personnel. EU forces have been deployed on peacekeeping missions from Africa to the former Yugoslavia and the Middle East. EU military operations are supported by a number of bodies, including the European Defense Agency, European Union Satellite Centre and the European Union Military Staff. In an EU consisting of 27 members, substantial security and defense cooperation is increasingly relying on great power cooperation.Despite those organizational strengths, only 27 of 57 European states are members of EU. And only 17 of 27 EU state members are using Euro is their official currency. One prominent EU member like British stay tough with their own Pound-sterling.This paper is set to learn more about: why as a Europe continent based organization, EU state members are still less than half of European states? And why only 17 EU state members are using Euro as their official currency?

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ABSTRAK Sebagai Organisasi Supranasional Uni Eropa (UE) nampaknya menyaingi reputasi PBB. Organisasi Perserikatan Bangsa – Bangsa memiliki lebih banyak anggota sejak jangkauannya mendunia, tetapi PBB tidak mengeluarkan mata uang sendiri sementara Uni Eropa memiliki Euro. Euro merupakan mata uang cadangan kedua terbesar yang juga merrupakan mata uang dagang terbesar kedua di dunia setelah Dolar Amerika Serikat. Mata uang tersebut juga digunakan lagi dalam banyak negara – negara eropa dan sebagai akibatnya digunakan sehari – hari oleh 332 juta orang Eropa.Selain itu, lebih dari 175 juta orang di seluruh dunia – termasuk 150 juta orang di afrika – menggunakan mata uang yang ditetapkan atas Euro. Tidak ada organisasi transnasioanl lain yang memiliki mata uang spesifik. Meskipun tidak sebagaipersatuan kekuatan militer konvensional, UE memiliki semacam inisiatif “kelompok perjuangan”, yang masing – masing direncanakan dapat menyebarkan secara cepat sebanyak 1500 personil. Kekuatan UE telah diluncurkan dalam misi perdamaian mulai dari Afrika sampai bekas Yugoslavia dan Timur tengah. Operasi militer UE didukung oleh beberapa badan, termasuk Perwakilan Pertahanan Eropa, Pusat satelit Uni Eropa, dan Staf Militer Uni eropa. Dalam UE terdiri dari 27 anggota, pengamanan yang kuat, dan kerjasama pertahanan yang meningkat disandarkan pada kerjasama dengan kekuatan yang luar biasa. Meskipun organisasi – organisasi tersebut kuat, hanya 27 dari 57 negara – negara Eropa yang menjadi anggota Uni Eropa. Dan hanya 17 dari 27 negara anggota yang menggunakan Euro sebagai mata uang resmi mereka. Salah satu negara anggota UE yang terkenal seperti Inggris tetap menggunakan mata uang Pound-sterling. Tulisan ini bertujuan untuk mempelajari lebih tentang : mengapa sebagai organisasi berbasis Benua Eropa,negara anggota UE hanya kurang dari setengah negara – negara eropa seluruhnya? Dan kenapa hanya 17 negara anggota yang menggunakan Euro sebagai mata uang resmi mereka? Kata Kunci : Uni Eropa, Supranasional, Kedaulatan

INTRODUCTION It is a human’s nature that any human grouping needs an order, needs

a pattern of governance, and needs power to regulate the system of the community. The order does not fall down from the sky but rather be constructed by people. Some people to construct a sort of grouping by separating bigger group into smaller ones, like what has happened in Yugoslavia and Soviet Union in the beginning of 1990s. One big Yugoslavia was divided into six smaller new states grouping, while Soviet Union was split up to 15 smaller new states. Those fragmented patterns of grouping have been complementary completed by the opposite pattern, which is grouping by unifying, grouping through union, grouping through integration. Almost in the same decade after the fragmentation of Yugoslavia and Soviet Union, both were in Europe, European Union(EU) was built as a

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new big governance institution which conduct 27 states of about 57 European sovereign states. EU is new type of organization that acts as a supra-national body. A huge organization that conveys a complex dreams of European society. THEORITICAL FRAMEWORK A Supranational Organization

A supranational union is a type of multi-national confederation or federation where negotiated power is delegated to an authority by governments of member states. Kimmo (2004 : 21-26) said that the concept of supranational union is sometimes used to describe the European Union, as a new type of political entity. The EU is the only entity which provides for international popular elections, going beyond the level of political integration normally afforded by international treaty. The term “supranational” is sometimes used in a loose, undefined sense in other contexts, sometimes as a substitute for international, transnational or global. Another method of decision-making in international organizations is inter-governmentalism, in which state governments play a more prominent role. According the term of supra-nation, a supranational union seems to imitate the conduct the exclusive competence of nation-state system, which are: to issue a particular currency, to build military force, and to assemble international embassies. Also have to define the character of nation-state in having a particular type of government, particular people, and particular territory. Thus, a supranational organization should be built on the question of sovereign as what a nation-state has done. RESULT AND ANALYSIS A. The European Union (EU) The EU is an economic and political union or confederation of 27

member states which are located primarily in Europe. The EU traces its origins from the European Coal and Steel Community (ECSC) and the European Economic Community (EEC), formed by six countries in 1958. In the intervening years the EU has grown in size by the accession of new member states, and in power by the addition of policy areas to its remit.

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The Maastricht Treaty established the European Union under its current name in 1993.1 The latest amendment to the constitutional basis of the EU, the Treaty of Lisbon, came into force in 2009. The EU operates through a system of supranational independent institutions and intergovernmental negotiated decisions by the member states.2 Important institutions of the EU include the European Commission, the Council of the European Union, the European Council, the Court of Justice of the European Union, and the European Central Bank. The European Parliament is elected every five years by EU citizens. The EU has developed a single market through a standardized system of laws which apply in all member states. Within the Schengen Area (which includes EU and non-EU states) passport controls have been abolished.3 Based on Treaty on the Functioning of the European Union (Articles 157,ex Article 141), EU policies aim to ensure the free movement of people, goods, services, and capital, enact legislation in justice and home affairs, and maintain common policies on trade[Article 2 (7) of the Treaty of Amsterdam], agriculture4 fisheries and regional development [Article 3(1)(g) of the Treaty of Rome], A monetary union, the euro zone, was established in 1999 and is currently composed of 17 member states. Through the Common Foreign and Security Policy the EU has developed a limited role in external relations and defense. Permanent diplomatic missions have been established around the world and the EU is represented at the United Nations, the WTO, the G8 and the G-20. With a combined population of over 500 million inhabitants,5 or 7.3% of the world population, the EU generated a nominal GDP of 16,242 billion US dollars in 2010, which represents an estimated 20% of global GDP when measured in terms of purchasing power parity (IMF,2011). After World War II, moves towards European integration were seen by many as an escape from the extreme forms of nationalism which had devastated the continent. One such attempt to unite Europeans was the European Coal and Steel Community, which was declared to be “a first step in the federation of Europe”, starting with the aim of eliminating the possibility of further wars between its member states by means of pooling the national heavy industries (Declaration of 9 May 1950). The founding members of the Community were Belgium, France, Italy, Luxembourg,

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the Netherlands, and West Germany. The originators and supporters of the Community include Jean Monnet, Robert Schuman, Paul Henri Spaak, and Alcide De Gasperi. In 1957, the six countries signed the Treaties of Rome, which extended the earlier cooperation within the European Coal and Steel Community (ECSC) and created the European Economic Community, (EEC) establishing a customs union and the European Atomic Energy Community (Euratom) for cooperation in developing nuclear energy. European Commission said that the treaty came into force in 1958. The EEC and Euratom were created separately from ECSC, although they shared the same courts and the Common Assembly. The executives of the new communities were called Commissions, as opposed to the “High Authority”. The EEC was headed by Walter Hallstein(Hallstein Commission) and Euratom was headed by Louis Armand (Armand Commission) and then Etienne Hirsch. A European Atomic Energy Community explained Euratom would integrate sectors in nuclear energy while the EEC would develop a customs union between members. Throughout the 1960s tensions began to show with France seeking to limit supranational power. However, in 1965 an agreement was reached and hence in 1967 the Merger Treaty was signed in Brussels. It came into force on 1 July 1967 and created a single set of institutions for the three communities, which were collectively referred to as the European Communities (EC), although commonly just as the European Community (“Merging the executives”, European Navigator). Rey presided the first merged Commission (Rey Commission) (“Discover the former Presidents: The Rey Commission”, Europe web portal). In 1973 the Communities enlarged to include Denmark (including Greenland, which later left the Community in 1985), Ireland, and the United Kingdom (“The first enlargement”, European Navigator). Norway had negotiated to join at the same time but Norwegian voters rejected membership in a referendum and so Norway remained outside. In 1979, the first direct, democratic elections to the European Parliament were held (“The new European Parliament”, European Navigator). Greece joined in 1981, Portugal and Spain in 1986 (“Negotiations for enlargement”, European Navigator). In 1985, the Schengen Agreement

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led the way toward the creation of open borders without passport controls between most member states and some non-member states (BBC News, 2001). In 1986, the European flag began to be used by the Communityy (“History of the flag”, Europe web portal), and the Single European Act was signed. In 1990, after the fall of the Iron Curtain, the former East Germany became part of the Community as part of a newly united Germany (“1980–1989 The changing face of Europe – the fall of the Berlin Wall”, Europe Wbe portal). With enlargement towards European formerly communist countries as well as Cyprus and Malta on the agenda, the Copenhagen criteria for candidate members to join the European Union were agreed. The introduction of the euro in 2002 replaced several national currencies. Craig (2007,15) explained the European Union was formally established when the Maastricht Treaty came into force on 1 November 1993, and in 1995 Austria, Finland and Sweden joined the newly established EU. In 2002, euro notes and coins replaced national currencies in 12 of the member states. Since then, the euro zone has increased to encompass 17 countries. In 2004, the EU saw its biggest enlargement to date when Cyprus, the Czech Republic, Estonia, Hungary, Latvia, Lithuania, Malta, Poland, Slovakia and Slovenia joined the Union (“A decade of further expansion”, Europe web portal). On 1 January 2007, Romania and Bulgaria became the EU’s newest members. In the same year Slovenia adopted the euro (“A decade of further expansion”, Europe web portal), followed in 2008 by Cyprus and Malta, by Slovakia in 2009 and by Estonia in 2011. In June 2009, the elections were held leading to a renewal of Barroso’s Commission Presidency, and in July 2009 Iceland formally applied for EU membership. On 1 December 2009, the Lisbon Treaty entered into force and reformed many aspects of the EU. In particular it changed the legal structure of the European Union, merging the EU three pillars system into a single legal entity provisioned with legal personality, and it created a permanent President of the European Council, the first of which is Herman Van Rompuy, and a strengthened High Representative, Catherine Ashton. On 9 December 2011, Croatia signed the EU accession treaty (“Croatia

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signs EU accession treaty”. Associated Press ). The EU accession referendum was held in Croatia on 22 January 2012, with the majority voting for Croatia’s accession to the European Union making it the 28th member state as of July 2013. The European Union is composed of 27 sovereign Member States: Austria, Belgium, Bulgaria, Cyprus, the Czech Republic, Denmark, Estonia, Finland, France, Germany, Greece, Hungary, Ireland, Italy, Latvia, Lithuania, Luxembourg, Malta, the Netherlands, Poland, Portugal, Romania, Slovakia, Slovenia, Spain, Sweden, and the United Kingdom (“European Countries”,Europa web portal). The Union’s membership has grown from the original six founding states—Belgium, France, (then-West) Germany, Italy, Luxembourg and the Netherlands—to the present day 27 by successive enlargements as countries acceded to the treaties and by doing so, pooled their sovereignty in exchange for representation in the institutions (“EU institutions and other bodies”. Europa web portal). To join the EU a country must meet the Copenhagen criteria, defined at the 1993 Copenhagen European Council. These require a stable democracy that respects human rights and the rule of law; a functioning market economy capable of competition within the EU; and the acceptance of the obligations of membership, including EU law. Evaluation of a country’s fulfillment of the criteria is the responsibility of the European Council. No member state has ever left the Union, although Greenland (an autonomous province of Denmark) withdrew in 1985. Based on aarticle 50 of the Consolidated Treaty on European Union, the Lisbon Treaty now provides a clause dealing with how a member leaves the EU. Croatia is an acceding country and will become the 28th member of the EU on 1 July 2013 after a voter referendum approved EU membership on 22 Jan 2012. There are four candidate countries: Iceland, Macedonia (Petersen and Serwer, 2010), Montenegro and Turkey. Albania, Bosnia and Herzegovina and Serbia are officially recognized as potential candidates.[50]Kosovo is also listed as a potential candidate but the European Commission does not list it as an independent country because not all member states recognize it as an independent country separate from Serbia (“Enlargement Newsletter”, Europe web portal).

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Four countries forming the EFTA (that are not EU members) have partly committed to the EU’s economy and regulations: Iceland (a candidate country for EU membership), Liechtenstein and Norway, which are a part of the single market through the European Economic Area, and Switzerland, which has similar ties through bilateral treaties (“The EU’s relations with Switzerland”, Europe web portal). The relationships of the European microstates, Andorra, Monaco, San Marino and the Vatican include the use of the euro and other areas of cooperation (“Use of the euro in the world,The euro outside the euro area, Europe web portal). B. Parliament The European Parliament building in Strasbourg, France. The European Parliament (EP) forms one half of the EU’s legislature (the other half is the Council of the European Union, see below). The 736 (soon to be 751) Members of the European Parliament (MEPs) are directly elected by EU citizens every five years on the basis of proportional representation to the share of votes collected by each political party. Although MEPs are elected on a national basis, they sit according to political groups rather than their nationality. Fairvote.org explained that each country has a set number of seats and is divided into sub-national constituencies where this does not affect the proportional nature of the voting system.6 The Parliament and the Council of the European Union pass legislation jointly in nearly all areas under the ordinary legislative procedure. This also applies to the EU budget. Finally, the Commission is accountable to Parliament, requiring its approval to take office, having to report back to it and subject to motions of censure from it. The President of the European Parliament carries out the role of speaker in parliament and represents it externally. The EP President and Vice Presidents are elected by MEPs every two and a half years (“Institutions: The European Parliament”, Europe web portal). C. Council The Council of the European Union (also called the “Council”7 and sometimes referred to as the “Council of Ministers”) (“Institutional af-

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fairs: Council of the European Union”, Europa Web Portal), forms the other half of the EU’s legislature. It consists of a government minister from each member state and meets in different compositions depending on the policy area being addressed. Notwithstanding its different configurations, it is considered to be one single body. In addition to its legislative functions, the Council also exercises executive functions in relations to the Common Foreign and Security Policy. D.Military The European Union does not have one unified military. Wilkinson said the predecessors of the European Union were not devised as a strong military alliance because NATO was largely seen as appropriate and sufficient for defense purposes.8 21 EU members are members of NATO (“NATO Member Countries”, nato.int.com). While the remaining member states follow policies of neutrality (“The EU ‘neutrals,’ the CFSP and defense policy”, aei.pitt.edu). Based on the presentation of the program of the Finnish presidency (2006) the compatibility of their neutrality with EU membership is questioned (including by the Prime Minister of Finland) and with mutual solidarity in the event of disasters, terrorist attacks and armed aggression covered by TEU Article 42 (7) and TFEU Article 222 of the EU treaties; the Western European Union, a military alliance with a mutual defense clause, was disbanded in 2010 as its role had been transferred to the EU (Statement of the Presidency of the Permanent Council of the WEU,2006). The SIPRI Military Expenditure Database explained that according to the Stockholm International Peace Research Institute (SIPRI), France spent more than $44 billion on defense in 2010, placing it third in the world after the US and China, while the United Kingdom spent almost •39 billion, the fourth largest. Field (2000) explained that together, France and the United Kingdom account for 45 per cent of Europe’s defense budget, 50 per cent of its military capacity and 70 per cent of all spending in military research and development.9 In 2000, the United Kingdom, France, Spain, and Germany accounted for 97% of the total military research budget of the then 15 EU member states.10 Following the Kosovo War in 1999, the European Council agreed

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that “the Union must have the capacity for autonomous action, backed by credible military forces, the means to decide to use them, and the readiness to do so, in order to respond to international crises without prejudice to actions by NATO”. To that end, a number of efforts were made to increase the EU’s military capability, notably the Helsinki Headline Goal process. After much discussion, the most concrete result was the EU Battle group’s initiative, each of which is planned to be able to deploy quickly about 1500 personnel (“Military Capabilities”, Europe web portal). EU forces have been deployed on peacekeeping missions from Africa to the former Yugoslavia and the Middle East (“EU security and defense Operations”, Europe web portal). EU military operations are supported by a number of bodies, including the European Defense Agency, European Union Satellite Centre and the European Union Military Staff. In an EU consisting of 27 members, substantial security and defense cooperation is increasingly relying on power cooperation (“The Russo-Georgian War and Beyond: towards a European Great Power Concert”, Danish Institute of International Studies). E. Euro The euro is the sole currency of 17 EU member states: Austria, Belgium, Cyprus, Estonia, Finland, France, Germany, Greece, Ireland, Italy, Luxembourg, Malta, the Netherlands, Portugal, Slovakia, Slovenia, and Spain. These countries comprise the “euro zone”, some 326 million people in total. With all but two of the remaining EU members obliged to join, together with future members of the EU, the enlargement of the euro zone is set to continue further. Outside the EU, the euro is also the sole currency of Montenegro and Kosovo and several European micro states (Andorra, Monaco, San Marino and the Vatican City) as well as in three overseas territories of EU states that are not themselves part of the EU (Mayotte, Saint Pierre and Miquelon and Akrotiri and Dhekelia). Together this direct usage of the euro outside the EU affects over 3 million people. It is also gaining increasing international usage as a trading currency,

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in Cuba (BBC News,1998), North Korea and Syria (BBC News, 2006). There are also various currencies pegged to the euro (see below). In 2009 Zimbabwe abandoned its currency and used major currencies instead, including the euro and the United States dollar (allafrica.com,2009). F. EU International Embassies The European Union will open its own embassies under a plan critics fear represents a “power grab” by Brussels officials pushing for a federal super state. The secret plan represents the first time that full EU embassies have been discussed seriously. The “Embassies of the Union” would be controlled by a new EU diplomatic service created by the Lisbon Treaty. The Daily Telegraph has seen a high-level Brussels document discussing plans for a “European External Action Service” (EEAS) which was proposed under the new EU Treaty, currently being ratified in Westminster. Working papers circulating in Brussels suggest that more than 160 EU offices around the world, including in member states, would become embassies. The new service would rival established diplomatic services. Britain, with one of the world’s largest, maintains 139 embassies and high commissions in capital cities. Equally controversial is a proposal for EU ambassadors who would be accountable to the European Parliament. “Parliament should aim for proper hearings of special representatives and ambassadorial nominees in the tradition of the US Congress for nominations of a clearly political nature,” says the document. Plans for the new Foreign Service have raised highly sensitive political issues by giving trappings of statehood to the EU and by fusing, for the first time, national diplomats with existing “autocrats”. A vicious battle over who should control the diplomatic corps has broken out between national governments and the European Commission. Countries such as Britain are alarmed that the EEAS, which is expected to take on some consular activities, would be a stepping stone to a single “supranational” euro-diplomatic service. Meanwhile, Brussels officials fear that, if controlled by national governments, the new EEAS would draw power from “Community” bodies, such as the Commission, to inter-governmental institutions such as the Council of the EU, which represents member states.

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Any inter-governmentalism of policy areas under Community competence has to be avoided. The EEAS will have to be in a specific way administratively connected to the European Commission. The EEAS will number between 2,500 to 3,000 officials at its inception in January next year. It is then expected to grow to 7,000, or even up to 20,000, according to different estimates. Britain, which loses its veto over the EEAS after it is created by a European summit decision expected in October, is expected to contribute around 20 to 30 senior diplomats to the EU service. The UK opposes and will argue against naming EEAS offices embassies. G.The Cost of Integration, The Questions of Sovereignty What EU, as an organization, has achieved is excellent. EU and UN are almost similar in term of outstanding supranational organization. But EU has started the history since 1957; so far only 27 of 57 European States are decided to be member of EU. Only around 502 million people out of 739 million European populations to be reckoned as member of the Union. There is still more less 30 states in Europe or approximately 237 million European citizen stayed out of the membership of the Union. Even not all among the members of the Union are using Euro as their official currency. Only 17 out of 27 state members of EU declared Euro as their official currency. Sweden has ever used Euro in 1994 but then stop adopting the Euro in 2003. Sweden decided to proudly using Krona for their currency. British stay steady with their Pound sterling. This means that the existence of EU is not supported with enough sovereign, even from within the membership of EU. H.The European Sovereign Debt Crisis The European sovereign debt crisis is an ongoing financial crisis that has made it difficult or impossible for some countries in the euro area to re-finance their government debt without the assistance of third parties. From late 2009, fears of a sovereign debt crisis developed among investors as a result of the rising government debt levels around the world together with a wave of downgrading of government debt in some European states. Concerns intensified in early 2010 and thereafter

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(Matlock,2010), leading Europe’s finance ministers on 9 May 2010 to approve a rescue package worth •750 billion aimed at ensuring financial stability across Europe by creating the European Financial Stability Facility (EFSF) (BBC News,2010). In October 2011 and February 2012, the euro zone leaders agreed on more measures designed to prevent the collapse of member economies. This included an agreement whereby banks would accept a 53.5% write-off of Greek debt owed to private creditors (Sels, 2012), increasing the EFSF to about •1 trillion, and requiring European banks to achieve 9% capitalization (BBC News,2011). To restore confidence in Europe, EU leaders also agreed to create a common fiscal union including the commitment of each participating country to introduce a balanced budget amendment (Helen, 2011; and London Guardian, 2011). While sovereign debt has raised substantially in only a few euro zone countries, it has become a perceived problem for the area as a whole (Der Spiegel, 2011). Nevertheless, the currency has remained stable (The Wall Street Journal, 2011). As of mid-November 2011, the euro was even trading slightly higher against the bloc’s major trading partners than at the beginning of the crisis (Reuters, 2011). The three countries most affected, Greece, Ireland and Portugal, collectively account for six percent of the euro zone’s gross domestic product (GDP) (Project Syndicate,2011). I. Monetary Policy Inflexibility Since membership of the euro zone establishes able to money” in order to pay creditors and ease their risk of default. (Such an option is not available to a state such as France.) By “printing money” a country’s currency is devalued relative to its (euro zone) trading partners, making its exports cheaper, in principle leading to an improving balance of trade, increased GDP and higher tax revenues in nominal terms (Project Syndicate,2011). In the reverse direction moreover, assets held in a currency which has devalued suffer losses on the part of those holding them. For example by the end of 2011, following a 25 percent fall in the rate of exchange and 5 percent rise in inflation, euro zone investors in Sterling, locked in to euro exchanges rates, had suffered an approximate 30 per-

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cent cut in the repayment value of this debt (Phillip, 2012). J. The Case of Krona Sweden joined the Union in 1995 and its accession treaty obliged it to join the euro. However, one of the requirements for euro zone membership is two years’ membership of ERM II, and Sweden has chosen not to join this mechanism and as a consequence tie its exchange rate to the euro ±2.25%. While there is government support for membership, all parties have pledged not to join without a referendum in favor of doing soothe EU has accepted that Sweden is staying outside the euro zone on its own decision. Olli Rehn, the EU commissioner for economic affairs has said that this is up to Swedish people to decide. Despite this, the euro can be used to pay for goods and services in some places in Sweden. In 1995 Sweden joined the EU and its Accession Treaty (“European Union Agreement Details”, Council of the European Union) has been approved in Sweden by referendum (52% in favor of the treaty). According to the treaty Sweden is obliged to adopt the euro once it meets convergence criteria. A referendum held in September 2003 saw 56.1 percent vote against membership of the euro zone. As a consequence, Sweden decided in 2003 not to adopt the euro for the time being. Had they voted in favor, Sweden would have adopted euro on 1 January 2006 (Sveriges Riksbank,2003). A majority of voters in Stockholm county voted in favor of adopting the euro (54.7% “yes”, 43.2% “no”). In Skånecounty the people voting “yes” (49.3%) outnumbered the people voting “no” (48.5%), although the invalid and blank votes resulted in no majority for either option. In all other polls in Sweden, the majority voted no (Electoral Geography, 2003). K. PASSPORT WITHOUT BORDER The European Union does not issue passports, but the passports is-

sued by its 27 member states do share a common design (Europa Web Portal). These include the burgundy colored cover, the use of the words

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“European Union” in the country’s official language or languages on the cover, as well as common security features and biometrics.11 Some EU member states also issue non-EU passports to certain people who have a nationality which does not render them citizens of the European Union (e.g., British Overseas Territories Citizens except those with a connection to Gibraltar, British Nationals (Overseas), British Overseas Citizens, British Protected Persons and British Subjects).12 The European Union does issue European Union Laissez-Passers to the members and certain civil servants of its institutions. L. Euroscepticism Euro skepticism is a general term used to describe criticism of the European Union (EU), and opposition to the process of European integration, existing throughout the political spectrum. Traditionally, the main source of euroscepticism has been the notion that integration weakens the nation state. Other views occasionally seen as eurosceptic include perceptions of the EU being undemocratic or too bureaucratic (Kopel; and Hannan, 2007). A Euro barometer survey of EU citizens in 2009 showed that support for membership of the EU was lowest in Latvia, the United Kingdom, and Hungary (The Daily Telegraph, London). There can be considered to be two different types of Eurosceptic thought, which differ in the extent to which adherents reject European integration and in their reasons for doing so. Aleks Szczerbiak and Paul Taggart described these as ‘hard’ and ‘soft’ euroscepticism. Hard euroscepticism is the opposition to membership of, or the existence of, the European Union as a matter of principle. The Europe of Freedom and Democracy group in the European Parliament, typified by such parties as the United Kingdom Independence Party, is hard eurosceptic. In western European EU member countries, hard euroscepticism is currently a hallmark of many anti-establishment parties (Harmsen et al,2005: 31–2). Soft euroscepticism is support for the existence of, and membership of, a form of European Union, but with opposition to specific EU policies, and opposition to a federal Europe (Szczerbiak et al, 2008: 8). The European Conservatives and Reformists group, typified by such parties as the

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British Conservative Party, along with the European United Left–Nordic Green Left which is an alliance of left-wing parties in the European Parliament, is soft eurosceptic. Alternative names for ‘hard’ and ‘soft’ euroscpticism are respectively ‘withdrawalist’ and ‘reformist’ euroscepticism. Some ‘hard’ eurosceptics such as UKIP prefer to call themselves euro-realists rather than ‘sceptics’, and regard their position as pragmatic rather than “in principle”. Also many on the left such as Tony Benn tend not to use the phrase to refer to themselves even though they share many of their criticisms of the European Union and they may use phrases such as euro-critical or just call themselves democrats or socialists and their scepticism as part of their wider belief in democracy or socialism. CONCLUSION Nations and nationality come before nationalisms. Mankind is still at

the early stage of the formation of nation states, as the democratic principle of the French revolution - the right of nations to self-determination - works itself out in history. Multinational states, federal or unitary, must respect the right to selfdetermination of the nations composing them, if they are to be stable and endure. The European Union is fundamentally undemocratic and cannot be democratized. Respect for state sovereignty is a fundamental democratic principle and the cornerstone of international law. The EU’s concept of “pooling sovereignty” is a propaganda cover for domination by others and the effective rule of the bigger EU states. Democracy means rights of equality, which people agree to accord one another and which the state recognizes. Globalization changes the environment of the nation state, but does not make it out of date. Internationalism, not globalization, is the way to a human future. ENDNOTES 1 It is effectively treated as one of the Copenhagen criteria. It should be

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noted that this is a political and not a legal requirement for membership The European Convention on Human Rights was previously only open

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to members of the Council of Europe (Article 59.1 of the convention, and even now only states may become member of the Council of Europe (Article 4 of the Statute of the Council of Europe). To do otherwise would require the drafting of legislation which would have to cope with the frequently divergent legal systems and administrative systems of all of the now 27 member states Council Directive 2000/43/EC of 29 June 2000 implementing the principle of equal treatment between persons irrespective of racial or ethnic origin. Council Directive 2000/78/EC of 27 November 2000 establishing a general framework for equal treatment in employment and occupation. In order to meet the euro convergence criteria it is necessary first to join the European Exchange Rate Mechanism, something Sweden has declined to do. MEPs must be elected on the basis of proportional representation, the threshold must not exceed 5%, and the electoral area may be subdivided in constituencies if this will not generally affect the proportional nature of the voting system. The Latin word consilium is occasionally used when a single identifier is required, as on the Council Web site The EU states have never felt the need to make the organization into a powerful military alliance. They already have NATO to undertake that task. According to the Stockholm International Peace Research Institute (SIPRI), Britain spent more than US$ 69 billion on defense last year, placing it third in the world after the United States and China, while France spent US$ 67.31 billion, the fourth largest. Together, Britain and France account for 45 per cent of Europe’s defense budget, 50 per cent of its military capacity and 70 per cent of all spending in military research and development. European civil research did not benefit from the decline in military research budgets PDF "Council Regulation (EC) No 2252/2004 on standards for security features and biometrics in passports and travel documents issued by Member States”.

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Non-European look alike passports, UK Passport office

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