Kapasitas DPRD dalam tata pemerintahan demokratis

SUSANTA, FX Agung, Dr. Riswandha Imawan

2004 | Tesis | Magister Administrasi Publik

Keran gka ke1:ia konstitu sional-legal keparlemenan Indonesia sekarang menem patkan DPRD pada posisi pent ing dalam tata pemerinta han. UUD hasil, amandemen member i kewenangan check and balance dal am tata pemerintahan demokrati s yang melibatkan negara , masyarakat sipil dan pasar. Tiga fungsi ditetapkan bagi DPRD, yaitu legislasi, penganggaran, dan pengawasan. Kewenangan DPRD belum mendukung kelancara n pemerintahan di daerah, karena orientasi politik berlebihan menjadikan DPRD meneka nkan kepentingan jangka pendek yang memperbesar kesenjangan kapasitas terhadap pemerintah. Penelitian untuk mendalami hal ini telah dilakukan terhadap DPRD Propinsi, Kabupaten dan Kota di 5 propinsi. Ptmingkatan kapasitas DPRD belum mendasarkan pada mandat kons tH•usion al­ legaJ, tetapi dilakukan dengan pendekatan • proyek tanpa strategi kesinambungan yang mapan . Pengelolaan proyek berdasarkan pada percieved needs pengembang proyek dan bukan pada real needs DPRD. Pelaksana proyek pun sebagi ln besar belum membuktikan kompetensi dalam bidang ini. Capacity assessment belum menjadi dasar pengemb angan kapasitas, karena di Indonesia memang belum ada kerangka yang mapan bagi maksud seperti ini. Kerangka dan konsepsi penelitian ini telah dikembangkan menjadi kerangka capacity assessment keparlemenan yang dapat diterapkan melalni rapid capacity assessment dengan metode focused group discussion. Desentralisasi dan otonomi daerah sebagai konteks makro cenderung menekank an aspek administrasi pemerintahan. Resentralisa si dan inkonsistensi tindak Janjut desentra lisas1 telah mengh ambat optimalisasi kine1ja DPRD dan Pernerit!tah Daerah. Ber bagai dampak negati f dapat diminimalkan dengan perumusan dan pelaksana an etika aparacur pemerintahan di daerah, termasuk di Pngkungan DPRD. Rendahnya kapasitas legislasi DPRD disadari oleh semua pelaku tata pemerintahan . Fungsi ini masih menganda lkan masukan Pcmerini:ah Daerah, karena kemampuan DPRD yang terbatc:ersifat teknis. DPRD dinilai mengambil alih fungsi dari lembaga pemerintahan Jainnya, karena fungsi ini belum didefinisikan bersama. Pengawasan juga dipakai sebagai alat politik untuk menjatuhkan kepemimp inan di daerah. • Kapasitas pengem6angan tata pemerintahan demokratis juga belum optimal. DPRD dalam banyak l asus justru menjadi contoh buruk, karena DPRD belum punya strategi pelembagaan yang m apan. Tata Tertib DPRD dan PerDa merupakan dua mekani sme utama yang memungkinkan DPRD melemba gakan tata pemerintahan demokratis dari dalam. Pengembangan kapas itas DPRD dipengaruhi oleh konfigurasi lingkungan yang memampukan. Kondisi ini mencakup kondi si politik kepartaian dan keterwa kilan; kekuatan politik riil birokrasi; kesiapan dan kemampuan masyarakat sipil;komitmen media rnassa; prasyarat ekonorni bagi tata pemerintahan dernokratis; serta kesetaraan partisipasi poli ti k antara l aki-laki dan perempuan Capacity asessment ini merupakan bagian dari kaji tindak dengan pendekatan , programati k dan hasilnya akan digunakan bersama oleh sernua pihak yang terkait.• Pengembangan kapasitas DRPD akan mernperhitungkan kemarnpuan dan kebutuhan seluruh struktur kelembagaan serta fungsi dan tugas DPRD dan Sekretariat DPRD. Upaya ini rnembutubkan perangkat self-assessment yang user-friendly. Ini adalah bagi an dari management of knowledge and learning keparlemenan. DPRD yang dilibatkan telah menyetujui programm e milestone yang dirancang. Programme milestone mencakup tiga tingkat, yaitu peningkatan kapasitas DPRD; pembentukan regional support facility; serta pengembangan jaringan kebijakan. Seluruh upaya ini berguna untuk mengembangkan program pengembangan kapasitas DPRD yang terstruktur dan sistematis.

The recent constitutional and legal framework of the Indonesian parliament has placed regional parliaments (DPRD) in its important position in governance. The amended Constitution gives check and balance authorities in democratic governance, which involves the state, civil society and market. Three functions have been established for DPRD, namely legislation, budgetary and oversight. The authority of DPRD has not supported the smoothness of government in the regions, because excessive political orientation has made DPRD emphasised short term objectives, making it suffers from the capacity gap to that of the government. The research that was undertaken to explore these problems have been conducted on the provincial, district and city DPRDs in 5 provinces. The capacity enhancement of DPRD has not based on the constitutional-legal mandate, yet it has been bone on project approach without an established sustainability strategy. Project management has been based on perceived needs of the project developers and not on the real needs of DPRD. Most of the project developers have not even proven their competence in this field. Capacity assessment has not been the basis for capacity enhancement, because there has not been any framework developed for this purpose in Indonesia. The framework and conception of this research has been developed further into a parliamentary capacity assessment framework that could be done through rapid capacity assessment and focused group discussion methods. Decentralisation and regional autonomy as the macro context tend to emphasise on the governmental administration aspect. Re-centralisation and inconsistent follow up of the decentralisation have restricted the performance optimisation of DPRD and Regional Government. Various negative impacts could be minimised by formulating and implementing the ethical code of regional government apparatuses, including from the DPRD environment. The low legislation capacity of DPRD is realised by all actors of governance. This function still relies on the regional government inputs, because of the limited capacity of DPRD. Legislative capacity enhancement tends to emphasise on legislative drafting, which is only a component of this function. Regional government and DPRD are often faced with uncertainty in authority and their works are judged inconsistent to the order of laws and the national policy. The budgetary function also relies on the regional government input. Over-emphasis on the performance budgeting has caused this function becomes technical. This has been worsened by practices of using this function to get economic access. The implementation of oversight function has been more technical. DPRD is said taking over the function of other institutions of government, because this function have not been jointly defined. Oversight has been used as a political tool to tumble executive leadership in the region. The capacity in developing democratic governance is also not yet optimum. In many cases, DPRD even becomes bad examples because it has not had an established institutionalisation strategy. The Rules of Procedure and Regional Regulation are two major mechanisms by which DPRD could institutionalise democratic governance from within. Capacity enhancement of DPRD is influenced by the enabling environment configuration. This condition covers political party and representation systems; real political power of bureaucracy; readiness and capacity of civil society; commitment of mass media; economic prerequisite of democratic governance; as well as equality of political participation between men and women. This capacity assessment is part of the action research with a programmatic approach and its results will be used together by all involved parties. Capacity enhancement of DPRD will take into account capacity and need of all institutional structures as well as functions and tasks of DPRD and its Secretariat. This effort needs a set of user friendly self-assessment tool. This is part of parliamentary knowledge and learning management. The involved DPRD have agreed the designed programme milestone. The milestone covers three levels, namely capacity enhancement of DPRD; development of regional support facility; as well as development of policy network. All of these efforts are useful for programme development for developing a structured and systematic DPRD capacity development.

Kata Kunci : DPRD,Peran,Pemerintahan Demokratis