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Section 5. Population economics and demographics
Wahyu Agustini, Sri Suwitri, Muchamad Syafruddin, Kismartini,
Public administration doctoral program Faculty of social and political sciences Diponegoro university Semarang, central Java, Indonesia
E-mail: [email protected]
POLICY IMPLEMENTATION ON SUPPLYING GOODS AND SERVICES IN BLORA REGIONAL GOVERNMENT
Abstract. The problems supplying of goods and services those are currently prevalent in Blora Region, namely infrastructure, resources either human or non-human, where quality and quantity can not be entirely like what to expect. This research aims to find out and analyze the policy implementation of supplying those goods and services by using the existing principles in Presidential Regulation Number 16 in 2018 of Government supplying of goods/services in Blora Region. What Factors encourage and inhibit the process of supplying of goods and services in Blora Regency Government. To formulate model policies that used by the Blora Regency Government in overcoming or resolving problems of supplying goods and services that exist today. Research methods used by researchers are qualitative, with checking of the data using the technique of triangulation. In doing this research, researchers use principles that exist in Presidential Regulation Number 16 in 2018 of Government supplying goods/ services. The theory uses delivered by Grindle associated with Content of policy and context of implementation. The research results in the field suggests that the policy implementation of supplying goods and services conducted by the Government has yet to implement full of the principles contained in the Presidential Regulation Number 16 in 2018 about Government procurement ofgoods/services. Supporting factors in this study is the content of the policy, and the restricting factor is a context of implementation.
Keywords: The Officers, Supplying of Goods and Services, Commitment Maker Officers, Budget Utilyzing Authority, ULP and LPSE.
I. Introduction
Government supplying of goods and services is very important in realizing development. Seen from a variety ofperspectives, the progress of Indonesia could
not release from the event. In the field of the economy, development of facilities and infrastructure supporting the growth of the economy would realized through the mechanism of government supplying of goods and
services, including the provision of facilities as roads, bridges, telecommunications infrastructure, and others. In addition, the amount of funds provided by the Government in the activities of supplying of goods and services is the amount that cannot be ignored in the calculations the number of development.
The social field, government procurement of goods and services for the improvement of health, education and poverty alleviation also helped resolve some social problems. It is not only that the relationship between government procurement of goods and services but also the political aspects of Government
is also a very important issue. Often the politicians exploit the budget, which owned by the Government to help tackle the problems faced by their constituents; among them is the availability of facilities and infrastructure. However, on the other hand, the Government's procurement of goods and services assessed as a crucial problem, such as the discovery cases of irregularities in the procurement ofgoods and services. The large number of irregularities cases that occurred in Indonesia in general effect on corruption perceptions index in Asia-Pacific which it will more details could seen on a figure 1 below.
Figure 1. Corruption Perception Index in Asia Pacific Area
Source: Corruption Perceptions Index (CPI), 2016
Based on data issued by Transparency International the Global Coalition against Corruption, seen that in the Asia Pacific for the Corruption Perceptions Index in 2016 score earned Indonesia is 37.
is 61, Brunei with a score is 58, and Malaysia with obtaining a score is 49. As seen in Figure graphics 1 above, Transparency International the Global Coalition Against Corruption provide to countries that exist to-
This score is still very low when compared with our day 0-100, the higher value obtained by a country
neighbouring countries that exist today, such as Sin- then the level of corruption is low, and getting lower
gapore with acquisition score is 84, Australia with the grades obtained by a country then the level of cor-
acquisition score is 79, Taiwan's score with a score ruption is high.
The lack score still achieved by Indonesia, in- different from the data issued by the Corruption
dicates that the current level of corruption that Eradication Commission in an annual report of
occurred was still very high. Perception is not much 2015. Which is it could see on a figure 2 below. 1400
1200
1000
800
600
400
200
1169
■
679
479
222
■
APBD
Pelayarian Publik Pelaksanaan Proyek Pengadaan Barang
dan Jasa
APBN
Figure 2. Community Corruption Denunciation Bases on Categories
Source: Annual Report of Commission Eradication Commission (Data Managed), 2015
III
ll
0 2011 2012 2013 2014 2015 2016
■ Permasalahan pengadaan barang dan jasa 7 3 3 3 6 4
Figure 3. The Procurement Case Of Goods And Services In Blora Region
Source: Legal Department of Blora Region, 2017
Based on the (figure 2) above that found in 2015 Corruption Eradication Commission is misappro-
Corruption Eradication Commission received pub- priation of Regional Government Budget as much
lic complaints totaled 3478 corruption complaint. as 1169 complaint. It is not only Regional Govern-
Complaint of corruption from the public received by ment Budget being diverted or corrupted, but also
for public service category with as many 929 complaint, project implementation with a complaint as much as 679, procurement of goods and services complaint by complaint 479, and Indonesian Budget with complaint as many as 222. The high corruption complaint by society reported to Commission Eradication Commission in 2015 indicates that the current practices of Corrupsion, Collusion, and Nepotism have been grom on all government agencies are no exception in Blora Regency, that currently there are some problems going on related to the goods and services procurement process conducted by the Regional Government Party. These problems could see in (Figure 3) in the following graph.
Based on a figure 3 above can be known that during this period of 2011 up to 2016, in Blora Regency also has a case for the procurement of goods and services with a total of 26 cases. Many cases occur where indicated in 2011, 7 cases of procurement of goods and services in Blora Region. Then in 2015 as 6 cases of procurement of goods and services, and in 2016 as much as 4 cases of procurement of goods and services. In the implementation of procurement auction/indeed, problems often occur, whether implemented by the provider/partner, the Official Manufacturer of the Commitment (PPK), or it could also be from Pokja (Working Group). These problems could have been was intentional to get advantages for certain groups, or indeed sometimes happens because of ignorance of the rules that are in an auction process/procurement.
There is still the existence of problems or cases that occur in the procurement of goods and services today from the central level, provincial level, up to the District/City area. It presumed by researchers due to not yet in principles implementation of procurement of goods and services properly contained in President Regulation No 16 in 2018 about Government procurement of goods/services.
The large number of problem occurs relate to the procurement of goods and services from the Central Government to the County. These things make researchers feel interested to do a study related to the
policy implementation of the Government procurement of goods/services in Blora Region. Where research is included in the realm ofpublic administrative science with the focus is public policy. This research aims to find out and analyze these supporting and restricting factors from the policy of procurement of goods and services in Blora Regency Government, which became the locus in the current research.
II. Research method
This research uses research method and techniques of the qualitative data analysis where this method is a method of research that contrary to experimental methods. The research methods used to examine the conditions of natural objects and researchers have tasks and functions as a key instrument in the main dug a problem will be revealed in a research object was going to do. It is with testing the legality and validity of the data using the technique of triangulation.
III. Literature review
1. Concept and step ofpublic policy
There are several concepts of public policy presented from experts, as well as the [11] which defined that public policy is a set of interrelated decisions taken by a political actor or a group of actors, with regard to the purposes for which it was selected along with ways to achieve it in a situation. Those decisions in principle remain within the limits of the authority of the power actors. Therefore, is [1] which meant that the public policy as a policy laid down by the bodies and agencies of the Government? The discussion about policy not separated from the relation between interest groups, both the present Government as well as society in General. Not much different with two expert opinion above, [3] defined that public policy as "whatever governments choose to do or not do" where any policy is the choice of Government to do or not. The other definition of public policy stated by [4] contains two meanings: (1) public policy created by government agencies, not private; (2) public policy concerning the choice to do it or not by the Government.
Bases on different libraries expressed that public policy, which is a rule that regulate the life together, that adhered to and applies binds all its citizens. Any violations sanctioned in accordance with the weight of the offense committed and sanctions dropped in front of the community by institutions that have the task of dropping sanctions [8]. Based on the above definition of public policy are all activities undertake by the Government to provide answers to issues and problems of the public with solving the community interest. [2] explained that stages public policy consists of as follows:
A. The stage of agenda preparation
The selected and appointed officials put the issue on the public agenda. Before these problems are competed in advance to be able to enter into the policy agenda. In the end, some issues getting into policy agenda of the policy framers.
B. The stage of policy formulation
The issues that being entered into the policy agenda later discussed by policy makers. The problems of the earlier defined to look for the best solution. Solving those problems come from of a variety alternatives that exist. At this, stage each alternative competing selected as the policies taken to solve the problem.
C. The stage of policy implementation
The administrative unit to mobilize these financial and human resources implement the policies that taken.
D. The stage of policy assesment
At this stage, the policies that run assessed or evaluated to see the extent to which the policies made. Specified measurements or criteria that become the basis for judging whether the public policy has gained the desired impact
At this stage, the policy that has run assessed or evaluated to see the extent to which the policies made. The Specified measurements or criteria that become the basis for judging whether the public policy has gained the desired impact. Bases on the several stages ofthe public policy above, this study fall into the stage of policies implementation that focuses on the policy
implementation of the Government procurement of goods and Services that are in Blora Region.
2. The implementation of public policy
The execution of the program or program implementation is a process or the stages of the public policy. The policy implementation seen in a broad sense is the stage of the policy process or immediately after the determination of the Act. The implementation widely perceived significance of implementation of legislation in which various actors, organization, procedures, and techniques work together to run the policy in an effort to achieve the goals of policies or programs. Implementation on the other hand is a complex phenomenon that might understand as a process, an output or as an impact (outcomes).
Various policy objectives achieved not by itself without the policy implemented. Though as a concept implementation is often used to describe how the efforts made by the implementer in realizing the goal of the policy, but only with the mention is not enough implementation illustrates how indeed numerous attempts to realize the purpose of the policy was undertaken.
Stages of implementation as the process to realize the policy objectives is often referred to as the stage of an important (critical stage). This step is important because it is called a "bridge" between worlds concept with the world reality as [5] stated that the implementation of "establish a link that allows goals of public policies to be realized as outcomes of governmental activity". The world of the concept what meant here reflected in the ideal conditions, something that aspired realized as formulation in a document policy. While the real world is the reality, in which the community as a policy target groups are struggling with different issues of social, economic and political.
Indiahono, [6] stated that the implementation of policies is an important stage in the policy. This step determines whether the policies pursued by the Government are applicable on Court and managed to produce outputs and outcomes as has been planned. The output is the output of the policy that
expected to emerge as a direct output of the policy. The output is usually seen within a short time of post implementation policies. Outcomes are the impacts of the policy, which expected to rise after discharge output policy. Outcomes usually arranged in a long time post of policy implementation.
3. Policy implementation model
Policy implementation is a crucial stage in the public policy process. A program of policy imple-
mented in order to have the desired impact or purpose [10]. Implementation according to the Webster Dictionary is derived from the words to implement the means to provide the means for carrying out (provides the means to implement something); to give practical effect to (impact/ result against something). If this view we follow, then the policy implementation seen as a process of policy implementation [9].
Figure 4. Policy implementation accrding to (Grindle, 2011) Source: (Grindle, 2011)
in this study, researchers used a model implementation of policies delivered by [5]. Where the success of implementation according to [5] in (Kawer, Bai-quni, Keban, & Subarsono, 2018) is affected by two variables, such as the following.
1) Content policies, which is includes the extent to which the interests of the target group contained in the contents of the policy, the type of benefits received by the target groups. The extent to which the desired change of a policy, whether the location of a program, it has been just right, if a policy has mentioned by its implementer with detail, and whether a program supported by adequate resources.
2) Policy environment that includes how much power, interests, and the strategy that is owned by the actors involved, institutional characteristics and the ruling regime, the level of compliance and responsiveness of the target group.
The success of the implementation of a public policy measured from the process of the achievement of the results (outcomes), which achieved or whether goals achieved. This is expressed by [5] in Agustino (2008:154), the measurement of the implementation of these policies can be viewed from two things, namely: first views of the process, with the question does the implementation of policies in accordance with specified (design) with reference to the action of its policies. Second, what does the policy objectives achieved?
Based on the description and Figure 4 above, then it could inferred that in implementing such a policy must be clearly visible contents of a the policy and be able to see the situation of the policy environment by considering various aspects. It can affect the process of implementation, as well as the required supporting factors in the achievement of the goals. Which implement a policy in advance should analyze the problem to find out easily or whether the problem is resolved. After that identify what do factors needed in the process of implementation and
policy environment, which affected both of internally and externally.
IV. Result and discussion
1. Supporting and restricting factors of policy on the procurement of goods and services in blora region
The Research that has been done by researchers about the policy implementation on procurement of goods and services in Blora Region has been completed. Restricting and supporting factors from the policy on Procurement of goods and Services in Blora Region, known from the results of the interviews with the informant. Where in this research policy content factors seen in the form of interest of target group, namely the Committee on procurement and for providers of goods and services is already contained in the content policy (regulation or rule). The change desired by the public existence of a policy on the procurement of goods and services, the rules regarding the Implementor or resources that clear and detailed information from the Government to run policy procurement of goods and services in Blora Region Government became the primary focus of the research context.
Informants who successfully found by investigators while in the field reveal the conditions above. In addition to the content of the policy that used to view the supporting and restricting factors to the policy associated with a policy on procurement of goods and services in Blora Region, researchers based on informants in this study learned that the environment of the implementation of these policies became restricting factor. Where in this study the environmental factors of policy implementation (context of implementation) that is about power, interests, and the strategy that owned by the actors involved in the process on procurement of goods and services in Blora Region. The characteristics of the institution and the regime of the ruler/leader who is being served in the policy on procurement of goods and services in Blora Region, and level of compliance and responsiveness of the target group that is still a lot of
perverted. So many raises legal cases related to these policies Implementation on procurement of goods and services in Blora Region at this time.
The description of the results of the interviews with the informant-related supporting and restricting factors of policy on procurement of the goods and services in Blora Region Government both neither for the content of policy nor for the context of implementation would presented by researcher in the following discussion.
2. Content of policy as a supporting factor of policy on procurement of goods and services in blora region
The supporting factor of a policy on the procurement of goods and services in Blora Region in this research is the content of the policy or the content that is contained in the rules or regulations governing the implementation of the procurement of goods and such services. At this point, the regulation used by the Government to regulate procurement of goods and services is the Presidential Regulation of Indonesia Republic Number 16 in 2018 about Government procurement of goods/services.
Presidential regulation of the Indonesia Republic Number 16 In 2018 about Government procurement of goods/services, which provided guidance in the process of procurement of goods and services had mentioned that the related subject articles containing about objectives, policies, Principles, Ethics And procurement of goods/services set forth in Article 4 to Article 7. To the perpetrators or implemen-tor of procurement of goods and services contained in Article 8 and this task described from Article 9 to Article 17. Procurement Planning up to the announcement contained from Article 18 to Article 22 about the rule that contains the HPS contained in article 26. For the procurement of goods/services electronically regulated in Chapter X of Article 69 to Article 73 of these and the quality of human resources along with its instituions set in article 74 and 75, and containing complaints, penalties, and legal services provided from Article 77 to Article 84.
The results of the interviews conducted by researchers with the informant may be aware that the current of supporting factor from of policy on procurement of goods and services in Blora Region is a regulation or policy rules that created and made into guidelines in making the procurement of goods and services. However, the executor or the officer given the authority that believed to be a Working Group or ULP Committee or the procurement of goods or services in Blora Region is less support to be able to implement the rules set. Because the executor or the officer who becomes a Committee for the procurement of goods and services incorporated in the ULP or Working Group, still get interventions from Parties or certain groups who want to win one of the CV that follows a tender or auction the open.
The variable content of this policy includes: (1) the extent to which the interests of the target group or target groups included in the content policy; (2) type of benefit received by the target group. (3) How long the desired change of a policy. (4) Does the location of a program is just right. (5) Does a policy has mentioned by its implementer with detail; and (6) Does a program is supported by adequate resources.
According to the theory presented by (Grindle, 2011) about supporting and restricting factors of policy above, current content policy variable that is Presidential Regulation Number 16 in 2018 about Government procurement of goods/services is an supporting factors of a policy for the implementation programme of procurement of goods and services in Blora Region. Because of all the interests of the target group is already contained in the content policy. Actors, institutional and its characteristics has also Appeared in the regulation policy on the procurement of goods and services.
3. Context of implementation as a restricting factor of policy on procurement of goods and services in blora region
The restricting factors from a policy of procurement of goods and services in Blora Region in this
research is the Context of implementation, namely the environment where the place of implementation of the policy in the implementation of the procurement of goods and services in Blora Region. Based on the results of the breakdown of the interviews have been conducted by researchers with the informant involved in the policy implementation on procurement of goods and services can be aware that restricting factors of this policy is implementation environment of its policies.
This is apparent from: 1) the lack power, interests, and the strategy that owned by the actors involved in the process of procurement of goods and services, which are not in accordance with the principles of
implementation in the rules that apply at this time due to personnel/less of human resources compliant in drafting a working group. 2) Characteristics of the institution and the leadership that many still intervene to working group or ULP to win one of the CV or the partners close to it. 3) The level of compliance and responsiveness of the procurement Committee that high is against the direction of the current, so did not dare to refuse and report if getting intervention from certain parties. Where the policy problems on procurement of goods and services in Blora Region conducted by officers or its implementer seen in the picture below which is a case, which is being dealt with by the Court at this time.
Figure 5. The legal problems on procurement of goods and services in blora region
Source: The Legal Secretariat of the Regional in Blora Region, 2018
Based on (Figure 5) above it can be aware that the amount of Litigation in Blora Region up to this time was as much as 37 cases, with the most things are the case on procurement of goods and services with totally 16 cases. Where these cases convened right in the District Court as many as 13 cases, and convened in The State of The Judiciary as many as 3 cases. From the 13 cases that convened District Court currently caused by tort in which one party had violated the
agreement that already agreed together. So there is discontent from one party that later led to the occurrence reporting and processed through the law. One example of cases on procurement of goods and services that occurs in Blora Region that is associated with the road metal. It is currently happening in Mendenrejo village, Kradenan District, Blora Region. Where there are, still many roads damaged and perforated which seen in (Figure 6) below.
Figure 6. Road conditions damaged in mendenrejo village Kradenan District, Blora Region
Source: Researcher Documentation, 2017
According to the Figure 6 above may be aware that there is road access in Kradenan Village of Blora Region precisely the road in Mandenrejo Village to Pilang Village of Randublatung District and also Ng-inggil Village and Nglebak Village in the same example of Mandenrejo access there is road in the area of defective conditions pertained. Because of this, condition the course of perforated and deep enough, to endanger road users traveling in the area. According to several communities that successfully found by researchers that some time ago is actually the way it's been fixed by the Government, but because the work was less serious than the project workers who allegedly violate the spec or is there another factor then not how the path is broken again. Coupled with the large number of trucks carrying sand across the area, making the road does not withstand heavy loads, resulting in the road are often damaged.
According to the policy environment variable according to (Grindle, 2011) included: (1) how big power, interests, and the strategy that is owned
by the actors involved in the implementation of the policy; (2) the characteristics of the institution and the ruling regime; (3) level of compliance and responsiveness of the target group.
Restricting factors of policy in the implementation program for the procurement of goods and services in Blora Region is currently the environment policy. Where the magnitude of power, interests, and the strategy that owned by the actors involved were not utilized wisely. In addition, the leadership that is being served is often abused those powers to be able to suppress or intervene to Working Group Organizers or ULP in the process on procurement of goods and services. With levels of response or high compliance are among its current corporate governance.
V. Conclusion and suggestion
Bases on the results of this research above, it concluded that the Procurement Policy become Supporting Factor into goods and services in this research is the Presidential Regulation of Indonesia Republic number 16 in 2018. This is about Govern-
ment procurement of goods/services as the Foundation of the guidelines in the process on procurement of goods and services had mentioned that the related subject articles containing about goals, policies, principles, and ethics procurement of goods/services set forth from Article 4 to Article 7.
To the perpetrators or implementer on procurement ofgoods and services contained in Article 8 and its task described from Article 9 to Article 17, Procurement Planning up to the announcement contained from Article 18 to Article 22. The rule that contains HPS contained in Article 26, for the procurement of goods/services Electronically regulated in Chapter X of article 69 to 73 of these and the quality of human resources along with its institution set in article 74 and 75, and containing complaints, penalties, and also legal services provided for from Article 77 to Article 84.
Then became a policy of restricting factors for the procurement of goods and services in Blora Region in this research is the Context of implementation, namely the environment where the place of policy implementation on the procurement of goods and services Blora Region. It includes: 1) The Lack power, interests, and the strategy that owned by the actors involved in the process on procurement of goods and services which are not in accordance with the principles of implementation in the rules that apply at this time because of personnel/Human Resources on the less compliant in Working Group drafting. 2) the characteristics of the institution and the leadership that many still intervene to Working Group or ULP to win one of CV or the partners close to it; 3)
level of compliance and responsiveness on procurement Committee that high against the direction of the current, so did not dare to refuse and report if getting intervention from certain parties.
There are some recommendations that need done over a range conditions of the research results on the policy implementation on procurement of goods and services in Blora Region are: need transparency, integrity and truth in carrying out procurement of goods and services in accordance with the applicable provisions. Second, increase in Human Resources through Technological Guidance in cooperation with LKPP/College. Third note findings from Working Group to include providers of goods/services, recorded no good violate the conditions made or included in the black list (Blacklist). Because of up to this moment there is nothing to do that. Fourth, joint commitment of stakeholders need to be involved in the procurement of goods and services since the beginning of the planning, budgeting, implementation, post implementation of project activities. Fifth, the building infrastructure for ULP in order it will separate and more independent without having to join on the other. Sixth, self-contained Working Group should be able, with no doubles as PPTK, PPHP so as not to give rise to a conflict of interest and intervention of the supervisor. Seventh, the remuneration for Working Group is given more interesting so it has no intention to request the participant who has won projects or activities of the goods and services in Blora Region.
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