Kompatibilitas kelembagaan pemerintahan desa dan kelurahan terhadap karakteristik lokal di Sidoarjo

UMAR, Zainul Arifin, Dr. Pratikno, M.Soc.Sc

2008 | Tesis | S2 Ilmu Politik

Thesis ini mengkaji tentang kompatibilitas kelembagaan pemerintahan desa dan kelurahan terhadap karakteristik lokal di Sidoarjo. Karakteristik lokal yang dimaksud yaitu konteks sosial masyarakat Sidoarjo, yang telah dan sedang berubah semakin mengkota. Studi ini dimaksudkan untuk menilai apakah kelembagaan pemerintahan yang ada sekarang tetap kompatibel terhadap konteks urban tersebut. Studi ini meminjam kerangka analisa Lipsky tentang supply and demand, untuk melacak kompatibilitas kelembagaan pemerintahan desa dan kelurahan. Kompatibilitas dilacak dari kesesuaian pemenuhan demand oleh supply. Demand adalah tuntutan kebutuhan masyarakat urban terhadap kelembagaan pemerintahan. Sedangkan supply adalah kapasitas kelembagaan pemerintahan desa dan kelurahan dalam merespon tuntutan kebutuhan tersebut. Demand masyarakat urban dianalisa pada tiga bidang, yaitu bidang politik, bidang pelayanan dasar dan bidang pelayanan administratif. Ternyata kebutuhankebutuhan tersebut tidak terlalu berbeda antara masyarakat urban di desa dan kelurahan. Namun respon supply terhadap kebutuhan-kebutuhan tersebut cukup berbeda antara kelembagaan pemerintahan desa dan kelurahan. Penilaian kompatibilitas pada bidang politik menunjukkan bahwa pada level struktur, kelembagaan desa lebih kompatibel daripada kelurahan. Namun pada level fungsi, kelembagaan politik yang ada di desa maupun kelurahan sama-sama kurang kompatibel. Mekanisme musyawarah tidak optimal bekerja, karena partisipasi (kehadiran) yang minim. Sedangkan lembaga representasi menghadapi permasalahan dalam fungsi menampung dan menyalurkan aspirasi. Pada bidang pelayanan dasar, baik kelembagaan desa maupun kelurahan sangat tidak kompatibel, dimana peran dan kontribusi desa dan kelurahan sangat minim dalam pemenuhan demand masyarakat urban yang cukup tinggi di bidang pendidikan, kesehatan dan keamanan. Sedangkan pada bidang pelayanan administratif, kelembagaan desa maupun kelurahan telah mampu memenuhi esensi kebutuhan administrasi masyarakat urban yang tinggi di bidang ini. Namun jika dilihat dari prosesnya, baik desa maupun kelurahan, dihadapkan pada persoalan inkompatibilitas waktu layanan, yang membuat pelayanan sulit diakses masyarakat pengguna secara langsung. Oleh karena itu, studi ini kemudian merekomendasikan beberapa langkah pembenahan kelembagaan desa dan kelurahan, yang masing-masing difokuskan pada dua aspek, yaitu kelembagaan demokrasi dan kelembagaan birokrasi. Pembenahan kelembagaan demokrasi meliputi lima hal. Pertama, pembenahan kelembagaan demokrasi di desa dan kelurahan, dengan mengembangkan mekanisme digitalizing democracy. Kedua, pembenahan pada level fungsi dalam mekanisme musyawarah di desa dan kelurahan, meliputi tiga aspek, yaitu aspek boundary rule, aspek waktu dan aspek tempat. Ketiga, berkaitan dengan BPD, perlu dilakukan upaya optimalisasi fungsi BPD pada dua ranah, yakni ranah individu dan sistem. Keempat, berkaitan dengan FMK, studi ini menawarkan dua alternatif bentuk kelembagaan FMK, yaitu (1) sebagai bentuk lembaga representasi warga (Dewan Kelurahan); dan (2) sebagai suatu forum pengambilan keputusan (FMK). Kelima, khusus pada kelembagaan demokrasi di kelurahan, perlu dibuat kerangka aturan tentang mekanisme penyusunan kebijakan dan anggaran yang partisipatif. Sedangkan pembenahan kelembagaan birokrasi, meliputi empat aspek. Pertama, mendorong fungsi-fungsi fasilitasi dalam tata kelola pemerintahan desa dan kelurahan berkaitan dengan kebutuhan pelayanan dasar. Kedua, pembenahan kelembagaan pelayanan administratif di desa dan kelurahan, yakni perlu ada terobosan waktu layanan ekstra di luar jam kantor. Ketiga, khusus pada kelembagaan birokrasi desa, perlu dilakukan penegakan disiplin kerja aparatur pemerintahan desa dan penegasan pembagian tugas-tugas pelayanan. Keempat, khusus pada kelembagaan birokrasi kelurahan, perlu ada payung hukum tentang kedudukan perangkat fungsional non-PNS yang memungkinkan untuk dijabat penduduk setempat.

This thesis studies about institution compatibility of village government and sub-district government (kelurahan) to local characteristic in Sidoarjo. Local characteristic refers to social context of Sidoarjo’s societies, that have been changing more urbanized. This study aim to assess whether the institution of the government is still compatible to urban context. This study borrows Lipsky’s analytical framework about supply and demand, to trace the compatibility of institution of village government and subdistrict government. Compatibility traced from accomplishment of demand’s fulfillment by supply. Demand is the requirement of urban societies to the institution of government. While supply is capacities of the institution of village government and sub-district government to respons demand. The demand of urban societies analysed at three area, that are political area, basic services area and administrative services area. Obviously, the demand are not too differs between urban societies in village and urban societies in sub-district. But supply’s response to demand enough differing in between the institution of village government and sub-district government. Assessment of compatibility at political area indicates that to level structure, the institution of village government is more compatible than sub-district. But at level function, both of the political institution in village government and sub-district government are less compatible. Meeting mechanism is not workable, because of lack of participation (presence). While representation institution to face problem of function of accomodating and channels aspiration. At basic services area, either the institution of village government and also sub-district government hardly not compatible, which the role and contribution of village government and sub-district government hardly minim in accomplishment of urban-societies demand which is enough height in education, health and security. While at administrative services area, either the institution of village government and also sub-district government have been able to fulfill the essence of administrative demand of urban societies that high in this area. But if it is seen from its process, either the institution of village government and also sub-district government, given on to the problem of service time incompatibility, what makes service difficult to be accessed by consumer directly. Therefore, this study then recommends some step of institution rebuilding at village government and sub-district government, each focussed at two aspects, that are the institution of democracy and institution of bureaucracy. Rebuilding institution of democracy covers five things. Firstly, rebuilding institution of democracy in village and sub-district, by developing mechanism of digitalizing democracy. Second, rebuilding institution at level function at meeting mechanism in village and sub-district, covers three aspects, that is boundary-rule aspect, time aspect and place aspect. Third, relates to BPD, need to be done optimalisation effort to the function of BPD at two domains, that are individual and system. Fourth, relates to FMK, this study offers two alternative about institutional form of FMK, that are (1) as a representation institution (Sub-district Council); and (2) as a decision making forum (FMK). Fifth, in particular at institution of democracy in sub-district, need to be made regulation framework about participative policy making and participatory budgeting. While institution rebuilding of bureaucracy, covers four aspects. Firstly, encourage facilitation function in institution of village government and sub-district government, relates to requirement of basic services. Second, institution rebuilding at administrative services in village government and sub-district government, its needs a breakthrough, extra-service-time beyond office time. Third, in particular at institution of village bureaucracy, need to be done straightening of job discipline to the village government apparatus and clearing job description of service duties. Fourth, in particular at the institution of sub-district bureaucracy, its needs regulation about occupation of functional staff beyond public servant (non-PNS), that its might be taken hold of local citizen.

Kata Kunci : Supplay and demand,Masyarakat urban,Kelembagaan desa dan kelurahan, supply and demand, urban societies, institution of village government and sub-district government