MODIFIKASI PERFORMANCE OF VETERINARY SERVICES (PVS) TOOLS UNTUK EVALUASI SISTEM KESEHATAN HEWAN DAERAH: STUDI KASUS PENGENDALIAN PENYAKIT MULUT DAN KUKU DI PROVINSI JAWA TENGAH

Aldi Salman, drh. Heru Susetya, M.P., Ph.D.; Prof. Dr. drh. Soedarmanto Indarjulianto; Prof. drh. Agung Budiyanto, M.P., Ph.D.

2026 | Disertasi | S3 Sain Veteriner

Wabah Penyakit Mulut dan Kuku (PMK) tahun 2022 menunjukkan pentingnya evaluasi kapasitas sistem kesehatan hewan daerah di Indonesia. Penyebaran penyakit yang sangat cepat hingga menjangkau seluruh kabupaten/kota di Provinsi Jawa Tengah dalam waktu 41 hari sejak kasus pertama terdeteksi di Kabupaten Boyolali menunjukkan bahwa kemampuan surveilans, deteksi dini, dan respon penyakit hewan menular pada tingkat daerah belum berjalan secara optimal. Meskipun sistem kesehatan hewan daerah diselenggarakan melalui mekanisme desentralisasi berdasarkan kewenangan pemerintah daerah, hingga saat ini belum tersedia instrumen evaluasi yang secara khusus dirancang untuk menilai kapasitas sistem kesehatan hewan pada tingkat subnasional sesuai karakteristik pemerintahan daerah di Indonesia. Penelitian ini bertujuan mengembangkan modifikasi Performance of Veterinary Services (PVS) Tools tingkat subnasional berdasarkan evaluasi penerapan Sistem Kesehatan Hewan Nasional di Provinsi Jawa Tengah dalam pengendalian PMK. Penelitian dilakukan di 35 kabupaten/kota di Provinsi Jawa Tengah menggunakan pendekatan deskriptif evaluatif. Modifikasi instrumen dilakukan melalui penyesuaian kompetensi kritis PVS Tools milik World Organisation for Animal Health (WOAH) terhadap kewenangan pemerintah daerah, karakteristik epidemiologis wilayah, dan kebutuhan operasional pelayanan kesehatan hewan daerah. Instrumen yang disusun divalidasi secara kualitatif melalui expert judgement oleh panel ahli untuk menilai relevansi, kejelasan, dan keterterapan instrumen pada tingkat subnasional. Evaluasi dilakukan terhadap aspek kelembagaan, sumber daya manusia, fasilitas pelayanan veteriner, laboratorium, surveilans, pengendalian penyakit, interaksi dengan pemangku kepentingan, dan akses ke pasar pada tingkat provinsi maupun kabupaten/kota. Hasil penilaian selanjutnya disandingkan dengan analisis epidemiologi PMK tahun 2022, menunjukkan bahwa modifikasi PVS Tools tingkat subnasional berhasil disusun melalui penyederhanaan dan penyesuaian 36 kompetensi kritis PVS Tools WOAH menjadi 29 kompetensi kritis yang dikelompokkan ke dalam empat komponen utama, yaitu sumber daya manusia, fisik dan keuangan; wewenang dan kemampuan teknis; interaksi dengan pemangku kepentingan; serta akses ke pasar. Evaluasi menunjukkan adanya heterogenitas kapasitas sistem kesehatan hewan antar daerah, dengan lima kabupaten/kota berkategori kuat, 16 kabupaten/kota berkategori cukup, dan 14 kabupaten/kota berkategori lemah. Ketimpangan kapasitas terutama terlihat pada struktur kelembagaan, posisi otoritas veteriner, distribusi dokter hewan dan paramedik veteriner, ketersediaan Puskeswan, kapasitas laboratorium, serta dukungan pembiayaan. Penyandingan hasil penilaian dengan epidemiologi PMK menunjukkan bahwa tingginya mobilitas ternak, aktivitas perdagangan melalui pasar hewan, keterbatasan biosekuriti, serta variasi kapasitas pelayanan kesehatan hewan berkontribusi terhadap percepatan penyebaran PMK di Jawa Tengah. Penelitian ini menyimpulkan bahwa modifikasi PVS Tools tingkat subnasional dapat digunakan sebagai instrumen evaluasi sistem kesehatan hewan daerah yang lebih operasional sesuai karakteristik desentralisasi pemerintahan di Indonesia. Penguatan kelembagaan dan otoritas veteriner, pengembangan sumber daya manusia dan infrastruktur veteriner berbasis risiko, serta penguatan surveilans dan respon darurat perlu menjadi prioritas pengembangan sistem kesehatan hewan daerah dalam mendukung pengendalian penyakit hewan menular strategis berbasis pendekatan One Health.

The 2022 Foot-and-Mouth Disease (FMD) outbreak highlighted the importance of evaluating the capacity of subnational animal health systems in Indonesia. The rapid spread of the disease, affecting all districts and municipalities in Central Java Province within 41 days following the first reported case in Boyolali District, demonstrated that surveillance, early detection, and response capacities at the local level had not functioned optimally. Although animal health services in Indonesia operate under a decentralized governance system in accordance with local government authority, no evaluation instrument has been specifically designed to assess animal health system capacity at the subnational level. This study aimed to develop a modified subnational Performance of Veterinary Services (PVS) Tool based on an evaluation of the implementation of the National Animal Health System in Central Java Province during the FMD outbreak. A descriptive evaluative approach was conducted across 35 districts and municipalities in Central Java. The instrument was developed by adapting the critical competencies of the World Organisation for Animal Health (WOAH) PVS Tool to local government mandates, regional epidemiological characteristics, and operational needs of local veterinary services. The instrument was qualitatively validated through expert judgement by a panel of experts to assess its relevance, clarity, and applicability at the subnational level. The evaluation covered institutional arrangements, human resources, veterinary service facilities, laboratories, surveillance, disease control, stakeholder engagement, and market access at both provincial and district levels, and the findings were integrated with the epidemiological analysis of the 2022 FMD outbreak. The results showed that the modified subnational PVS Tool was successfully developed by refining and adapting the 36 critical competencies of the original WOAH PVS Tool into 29 critical competencies grouped into four main components: human, physical and financial resources; technical authority and capability; interaction with stakeholders; and access to markets. The assessment revealed substantial heterogeneity in animal health system capacity across districts and municipalities, with five categorized as strong, sixteen as moderate, and fourteen as weak. Capacity gaps were particularly evident in institutional structures, the positioning of Veterinary Authority Officers, the distribution of veterinarians and veterinary paraprofessionals, the availability of Animal Health Centers (Puskeswan), laboratory capacity, and financial support. Integrating the assessment results with FMD epidemiology indicated that high livestock mobility, intensive livestock trading through animal markets, inadequate biosecurity measures, and disparities in veterinary service capacity contributed to the rapid dissemination of FMD in Central Java. This study concludes that the modified subnational PVS Tool can serve as an operational evaluation instrument for assessing local animal health systems within decentralized governance settings in Indonesia. Strengthening institutional arrangements and veterinary authority, developing risk-based veterinary human resources and infrastructure, and enhancing surveillance and emergency response systems should be prioritized to support the control of strategic animal diseases through a One Health approach.

Kata Kunci : ketahanan veteriner, penyakit mulut dan kuku, provinsi jawa tengah, PVS Tools, sistem kesehatan hewan daerah