Interaksi antara pemerintah, sektor swasta, dan masyarakat dalam pelayanan transportasi publik perkotaan :: Studi pada pelayanan transportasi bus kota di Surabaya

ENDARTI, Esa Wahyu, Promotor Prof.Dr. Miftah Thoha, MPA

2006 | Disertasi | S3 Administrasi Publik

Penelitian ini ditujukan untuk memetakan dan menjelaskan bagaimana pola interaksi yang berlangsung di antara stakeholders dalam penyelenggaraan pelayanan publik, khususnya di bidang transportasi publik di perkotaan. Melalui beberapa pendekatan yakni: government, new public management dan governance, peneliti mencoba mengidentifikasi pola interaksi yang telah dan sedang berlangsung dalam proses perumusan dan implementasi kebijakan transportasi Bus Kota. Permasalahan utama yang diketengahkan adalah mengapa pola interaksi sebagaimana konsep good governance belum dapat terlaksana sehingga kualitas pelayanan transportasi publik belum dapat memuaskan masyarakat pengguna layanan Bus Kota di Surabaya, serta dimensi apakah yang paling menentukan dalam proses interaksi kebijakan (policy interaction) khususnya untuk pelayanan transportasi Bus Kota di Surabaya ? Dipilihnya pelayanan transportasi perkotaan sebagai setting penelitian, adalah karena semakin kompleksnya permasalahan di sektor transportasi yang mana hal ini memerlukan penanganan secara sinergis antar tiga domain governance. Dalam mengidentifikasi model interaksi, peneliti memfokuskan pada 4 dimensi yaitu: penguasaan sumber daya, distribusi kekuasaan, pola interaksi dan efektivitas koordinasi. Untuk itu metode penelitian kualitatif dipilih guna memperoleh informasi secara mendalam dengan menangkap fenomena interaksi, perilaku, dan tipe dalam latar natural, sehingga disebut juga dengan pendekatan naturalistic. Sumber data utama adalah para informan yang dinilai memiliki kompetensi mengungkapkan proses berlangsungnya interaksi dalam policy process. Hasil penelitian menunjukkan bahwa model interaksi yang ada masih berkisar dalam pendekatan government dan new public management (belum merepresentasikan pendekatan governance). Adapun dimensi yang paling berperan dalam membentuk atau mewarnai pola interaksi yang berlangsung adalah dimensi penguasaan sumberdaya. Pemerintah Provinsi yang memiliki sumberdaya kekuasaan politik dan otoritas formal masih menjadi aktor sentral dalam proses pengambilan keputusan terkait dengan pelayanan transportasi Bus Kota di Surabaya. Hal ini menunjukkan masih berlangsungnya praktek penyelenggaraan pelayanan publik yang diwarnai oleh konsep government yang merupakan ciri dari praktek the old public administration. Secara keseluruhan hasil penelitian ini sejalan dengan penelitianpenelitian mengenai penyelenggaraan pelayanan transportasi publik yang telah dilakukan sebelumnya seperti hasil penelitian Yogyakarta Urban Infrastructure Management Support (1999) yang masih menemukan fakta bahwa kualitas pelayanan transportasi publik masih rendah. Adapun hasil-hasil penelitian yang telah dilakukan oleh Richardson dan Jordan (1979); Benson et al. (1982); Grant et al. (1988); dan Rhodes (1988). Mitchell (1969) serta Aldrich dan Whetten (1979) mengenai policy process network, ternyata tidak sesuai dengan apa yang ditemukan dalam penelitian ini. Hubungan saling ketergantungan (resources interdependency) yang menjadi asumsi dasar pemikiran mereka ternyata tidak terbukti. Dimensi yang justru paling berperan dalam policy process sesuai dengan hasil penelitian ini adalah dimensi penguasaan sumberdaya yang bernuansa politis yaitu kewenangan formal pemerintah. Kesimpulan yang diperoleh adalah bahwa dengan adanya interaksi yang masih bersifat terbatas antara Pemerintah dan sektor privat, dan domain interaksi yang masih pada tataran operasional, serta sifat hubungan yang masih cenderung formal, hierarkhis, terstruktur tersebut, ternyata membuahkan kualitas pelayanan yang belum akuntabel, kurang responsif, rendah dalam hal sufficiency, dan tangibilitynya. Hasil penelitian ini sekali lagi menegaskan urgensi Interaksi yang mengacu pada konsep governance yakni yang mengedepankan prinsip-prinsip kesetaraan, proporsionalitas peran, hubungan kemitraan dalam mengatasi masalah-masalah strategis guna meningkatkan kualitas pelayanan publik. Sesuai hasil penelitian ini, dapat diajukan sejumlah rekomendasi sebagai berikut :1) Pemerintah perlu menetapkan standar pelayanan transportasi publik, khususnya bus kota yang berpijak pada kepentingan masyarakat; 2) Pemerintah perlu meninjau kembali alokasi dan distribusi trayek-trayek yang sudah ada dan mekanisme penetapan trayek dengan membuka tender berdasarkan standar pelayanan yang telah ditetapkan yang diikuti oleh semua operator; 3) perlu mengembangkan lembaga pembinaan kemitraan antara pemerintah, sektor swasta dan kelembagaan masyarakat (LSM),; 4) Perlunya optimalisasi peran organda dalam menghimpun kendala, tantangan, dan peluang organisasi dan assosiasinya, serta membicarakan berbagai program kemitraan dengan pemerintah dalam tata hubungan sinerjik integratif; 5) Perlu adanya kelembagaan atau paguyuban masyarakat yang keberadannya dibentuk atas kebutuhan masyarakat sendiri, dengan bimbingan pemerintah diberdayakan agar mampu menjalin hubungan kemitraan, yaitu dilibatkan dalam kegiatan bersama di beberapa sektor yang memungkinkan akan mencapai hasil yang optimal; 6) Selain rekomendasi yang bersifat aplikatif untuk pemecahan masalah public transportations, secara akademik perlu dilakukan studi-studi lebih lanjut terkait dengan policy process dan policy interactons di bidang transportasi yang lebih spesifik.

This research is intended to map and to explain how the interaction patterns make progress among the stakeholders in executing the public services, especially in the sector of public transportation at urban areas. Through some approaches, namely government approach, new public management approach and governance approach, the researcher tries to identify the interaction patterns already been in existence and currently in progress in the process of formulation and implementation for the City Bus Transportation Policy. The main problem highlighted is why the interaction pattern just like the concept of good governance cannot be accomplished yet, so that quality of public transportation services has not yet been able to satisfy the community, the user of City Bus Services in Surabaya; and also what dimension is the most significant in the process of policy interaction particularly for the City Bus Transportation Services in Surabaya. The choice of urban transportation services as the setting for this research is due to the more and more complex problems encountered in transportation sector, in which it requires the synergic handling among the three domains of governance. In identifying the interaction models, the researcher puts the focus on 4(four) dimensions, namely: resource control, power distribution, interaction pattern and coordination effectiveness dimensions. It is for this reason that the Qualitative Research Method is chosen in order to obtain the information in depth by catching the interaction phenomena, behavior, and type in natural background, so that it is also called a Naturalistic Approach. The main sources of data are the informen evaluated as having competence in revealing the interaction in policy process. The outputs of this research indicate that the existing interaction models are still stuck to the government approach and to the new public management approach (not yet representing the governance approach). Meanwhile, the dimension playing the most prominent role in establishing or in coloring the interaction patterns in progress is the resource control dimension. The Provincial Government Administration which has the formal authority and the political power resources still becomes the central actor in the decision making process related to the City Bus Transportation Services in Surabaya. This indicates the practice of public service implementation colored by the government concept which is the typical characteristics of the old public administration practices. As a whole, the results of this research are in line with the outputs of researches on the implementation of public transportation services already been conducted previously, such as the research outputs of Yogyakarta Urban Infrastructure Management Support (1999) which still finds the fact that the quality of public transportation services is still low. Meanwhile the outputs of researches conducted by Richardson and Jordan (1979); Benson et al (1982); Grant et al (1988); Rhodes (1988); Mitchell (1969) as well as Aldrich and Whetten (1979) on the policy process network are proven to be in non-conformance with the finding in this research. The interdependent relation (resources interdependency) which becomes their fundamental assumption of thought is found to be unproven. The dimension which surely plays the most important part in policy process pursuant to the results of this research is the resources control dimension under the political nuance, namely the government formal authority. The conclusion states that due to the limited nature of interaction between the Government and the private sectors, and the interaction domain which is still under the operational stage, as well as the nature of relation which tends to be formal, hierarchical, and structured, it is proven that such interaction produces the service quality considered as being non-accountable yet, not so responsive, low on its sufficiency and on its tangibility. The output of this research, once again, confirms the urgency of interaction referring to the governance concept, namely giving more priority to the principles of equality, proportionality on the roles, partnership relation in solving the strategic problems in order to improve quality of the public services. Pursuant to the outputs of this research, several recommendations can be proposed as follows: 1) The Government needs to determine the standard of public transportation services, especially the city bus based on the community interest. 2) The Government needs to review the allocation and distribution of the existing transportation designated routes and the mechanism in determining the transportation designated routes by opening the bid based on the predetermined standard of services participated by all operators. 3) It is necessary to establish a partnership development institution among the government, private sectors and non-governmental organization (NGO). 4) It is necessary to optimize the role of ‘Organda’ (Organization of Land Transport Providers) in compiling the constraints, challenges, and organizational opportunities and its association, and to discuss various partnership programs with the Government in an integrative synergic relation system. 5) It needs to have a community institution or association established for the sake of the needs of the community itself, under the guidance of the Government which is empowered in order to be capable to establish a partnership relation, namely by involving them in the joint operations in several sectors enabling to achieve the optimum outputs. 6) In addition to a recommendation under the applicative nature for public transportation problem solution, academically further studies need to be carried out in connection with the policy process and the policy interactions in more specific transportation sector.

Kata Kunci : Pelayanan Publik,Transport Perkotaan,Interaksi Pemerintah dan Swasta,Interaction, Urban Transportation Policy, Public Transportation Services