Kualitas dan dinamika formulasi kebijakan pendidikan berperspektif gender di Provinsi Jawa Tengah

NURHAENI, Ismi Dwi Astuti, Promotor Prof. Dr. Warsito Utomo

2008 | Disertasi |

gkan oleh pemerintah Indonesia sejak tahun 2000, dan kebijakan PUG pendidikan telah dilaksanakan secara intensif sejak 2003, namun data empiris menunjukkan masih adanya kesenjangan gender, salah satunya kesenjangan gender di bidang pendidikan. Penelitian ini mengkaji kualitas dan dinamika formulasi kebijakan pendidikan berperspektif gender, mencakup: (1)Apakah isi kebijakan pendidikan telah berperspektif gender?; (2) Bagaimana proses formulasi kebijakan pendidikan berperspektif gender berlangsung?; (3) Mengapa perspektif gender berhasil masuk dalam kebijakan pendidikan? Penelitian dilakukan di Provinsi Jawa Tengah, Kabupaten Banjarnegara dan Kabupaten Karanganyar. Pemilihan dua kabupaten tersebut ditentukan secara purposive berdasarkan kriteria disparitas gender pendidikan. Jenis penelitian adalah evaluasi kebijakan dengan desain single program before after. Data penelitian mencakup data sekunder (Propeda, Repetada, Renstra ataupun peraturan lainnya) dan primer. Data dikumpulkan dengan teknik dokumentasi, focus group discussion, wawancara mendalam dan observasi berpartisipasi. Informan penelitian ditentukan secara purposif, antara lain: Bapeda, stakeholders pendidikan, Dewan Perwakilan Rakyat Daerah, Biro Pemberdayaan Perempuan, Lembaga Swadaya Masyarakat, Perguruan Tinggi, tokoh agama dan tokoh masyarakat. Validitas data menggunakan triangulasi sumber, metode dan teori. Teknik analisis menggunakan analisis isi, analisis interaktif dan analisis gender. Beberapa temuan penting penelitian ini adalah: 1. Kesetaraan dan keadilan gender telah berhasil menjadi arus utama dalam dokumen kebijakan pendidikan, khususnya pada program pemberdayaan perempuan sub bidang pendidikan, serta pada dokumen ”position paper” PUG bidang pendidikan. Dilihat dari perspektif gender, terjadi perbaikan kualitas kebijakan pendidikan sesudah dilaksanakannya program PUG pendidikan, khususnya dalam bentuk penajaman program, perubahan orientasi pemberdayaan perempuan dari affirmative action menuju gabungan antara affirmative action dan gender mainstreaming, serta adanya jaminan keberlanjutan program dengan tersusunnya rancangan kebijakan PUG 2009-2013 dan grand design pemberdayaan perempuan. Temuan tersebut terjadi di Provinsi Jawa Tengah, tetapi belum terjadi di Kabupaten Banjarnegara dan Karanganyar, karena (a) gender belum dianggap sebagai isu penting dalam pembangunan pendidikan, (b) capacity building hanya dipandang sebagai ”proyek semata”, (c) kabupaten seringkali menerima kegiatan capacity buling dengan fokus yang berbeda-beda, sehingga program PUG belum terinternalisasi sudah tertumpuk dengan intervensi yang lain; (d) tidak ada mekanisme reward dan punishment; (d) interaksi dan dukungan anggaran yang diberikan dari pemerintah provinsi ke kabupaten belum seoptimal dengan yang diberikan dari pemerintah pusat ke provinsi. 2. Adanya perbedaan preferensi antar aktor-aktor yang terlibat dalam proses formulasi membuat proses formulasi kebijakan pendidikan berlangsung secara dinamis dan berimplikasi pada rumusan kebijakan berupa affirmative action atau gender mainstreaming atau gabungan keduanya. Adanya perubahan pemahaman tentang konsep gender berimplikasi pada pemindahan pemegang otoritas pelaksana PUG dari subdin Pendidikan Luar Sekolah ke subdin renbang yang berimplikasi pada semakin mudahnya gender menembus batas-batas ”ego” antar sub dinas. Pada proses formulasi kebijakan terjadi konflik-konflik inter dan intra personal, di mana resolusi konflik diselesaikan dengan cara mengintegrasikan, rela membantu serta melakukan kompromi bersama. 3. Faktor-faktor yang mempengaruhi keberhasilan gender masuk dalam kebijakan pendidikan antara lain: (a) kapasitas sumberdaya manusia (SDM), khususnya yang paham tentang gender, memiliki sensitivitas gender dan memiliki otoritas dalam pembangunan pendidikan; (b) capacity building dan advokasi pengarusutamaan gender di bidang pendidikan yang dirancang dengan baik sesuai kebutuhan daerah dan direspons dengan baik pula; (c) budaya organisasi yang mengedepankan visi dan misi untuk mewujudkan kesetaraan dan keadilan gender; (d) pembentukan dan penguatan jejaring dan kemitraan sebagai media pembelajaran bersama antara stakeholders sehingga menumbuhkan sensitivitas gender. Secara keseluruhan dapat disimpulkan bahwa multi stakeholder partnerships (kemitraan antar berbagai pemangku kepentingan) merupakan komponen kunci dalam melakukan perubahan kebijakan. Melalui multi stakeholder partnerships terjadi transfer pengetahuan dan sumber-sumber antara stakeholders sehingga terjadi proses pembelajaran bersama, dan memperkuat aliansi strategis untuk melakukan perubahan kebijakan. Temuan ini memperkuat pandangan Lindsay dan Riege (2006) tentang stakeholder partnerships in the public policy development, pandangan Paine dan Naumes (1974) tentang model sistem dalam proses pembuatan kebijakan, pandangan Spector (1997) tentang perlunya legitimasi kebijakan dengan cara membangun koalisi antar stakeholders, mengalokasikan sumber-sumber serta mendesain dan modifikasi organisasi, serta pandangan Brinkerhoff (1996) tentang perlunya penerapan proses pendekatan manajemen strategis. Rekomendasi yang diusulkan antara lain: 1. Perlu dilakukan reformasi kebijakan pendidikan dan reformasi organisasi dari semula netral gender menjadi responsif gender. 2. Teori yang digunakan untuk mengkaji perubahan kebijakan pendidikan dapat difokuskan pada 2 aspek perubahan, yaitu perubahan kebijakan dan organisasi dengan fokus kajian pada pendekatan siklus kebijakan, organisasional serta pembelajaran. 3. Perlu disusun Peraturan Menteri Pendidikan Nasional tentang PUG di Bidang Pendidikan serta digali nilai-nilai kesetaraan dan keadilan gender yang berakar pada lingkungan sosial budaya di Indonesia dan mencerminkan kearifan lokal. 4. Proses pendidikan harus mampu mengembangkan perilaku androgini dengan cara mengintegrasikan nilai-nilai kesetaraan dan keadilan gender, baik pada bahan pembelajaran, proses pembelajaran maupun materi bahan ajar. 5. Metode penelitian yang dipandang tepat untuk mengungkap sistem nilai yang diyakini oleh masyarakat terkait dengan gender adalah penelitian partisipatif dan penelitian berperspektif gender. 6. Perlu dilakukan kajian tentang: (a) dampak PUG terhadap perubahan mindset tentang gender; (b) strategi membangun kemitraan dalam mendukung perubahan kebijakan berperspektif gender; (c) hubungan kebijakan responsif gender dengan alokasi anggaran responsif gender; (d) budaya organisasi dalam mendukung kesetaraan dan keadilan gender; (e) penelitian sejenis (kualitas dan dinamika formulasi kebijakan pendidikan berperspektif gender) di lokasi lain.

The Indonesian Government had declared the importance of gender mainstreaming issues in its national development and education policies since 2000 and 2003, respectively. Despite its concerns, gender disparities in education have been happening persistently. This research evaluated the quality of education policy and dynamics of its policy formulation based on gender perspectives. It included three following research questions: (1) Had the province and municipal government policy content in education responded to gender issues? (2) How did the process of education policy formulation responding to gender issues take place? (3) Why was gender perspective successful to be included into education policy? This study used location and informant purposive samplings. It was conducted in two levels of governments including Central Java Province and two regencies consisting of Banjarnegara and Karanganyar. The type of this research was policy evaluation which focused on design of single program before after. Data used for analysis consisted of primary and secondary data. The primary data was collected from focus group discussion, in depth interview and participant observation. Informant consisted of officials of Regional Planning Board (Bapeda), stakeholders in education, local legislative (DPRD), bureau of women empowerment, non government organizations, informal leaders of religions and communities, and university. Secondary data was collected from the documents of Regional Development Program of (Propeda), Annually Regional Development Planning (Repetada), the Regional Strategic Planning (Renstra) and any other regulation. Data validities used triangulation of data sources, methods and theories. Data analysis used analysis of content, interaction and gender. This study showed some following findings: 1. Gender equality and equity had been successfully to be integrated into the Education Sub-division of the Woman Empowerment Program and document of gender mainstreaming position paper. After the implementation of gender mainstreaming education program there were quality improvements in the forms of program strengthening, orientation change from affirmative action to combined affirmative action and gender mainstreaming, and sustainable program in the gender mainstreaming policy planning of 2009-2013 and grand design for women empowerment. These findings were found in Central Java, but there was no evidence in Banjarnegara and Karanganyar because of some reasons: (a)gender perspectives had not been considered as important issues in education development; (b)government officials did not consider capacity building program as an important issue for improving their performance; (c) they obtained not only the gender capacity building program but also many other program in different issues intervened from many other institutions. This situation brought about their ineffectiveness in internalizing the gender mainstreaming issue in their education policy; (d) there was no mechanism reward and punishment for the gender mainstreaming implementers; (e) there was different assistance provided to province government and the two municipalities. Support from the central government to province was much stronger and sustainable but those from the province government to the two local governments were unsustainable and insufficient. 2. There were different preferences among stakeholder who involved in the policy formulation in education. This situation brought about the policy formulation process worked dynamically and intensively, and it produced an affirmative action or gender mainstreaming or both. The change in gender mainstreaming perspectives had resulted in a change in government preferences to delegate gender mainstreaming authority holders from the Sub-division Office for Non-formal Education (Pendidikan Luar Sekolah) to the Sub-division Office for Planning and Development. This shift resulted in gender mainstreaming improvement beyond ego borders among sub division of government offices. In the policy formulation process, inter and intra personal conflicts happened but they could be resolved through integration among them, their willingness to help each other and compromise. 3. There were four factors which influenced the success or failure of gender integration into the education policy: (a) human resource capacity who understood gender issues, had gender sensitivity and authority in education development; (b) capacity building and advocacy of gender mainstreaming in education designed properly in accordance to the local needs and responded it accurately; (c) organization culture prioritizing the vision and mission to achieve gender equality and equity; (d) Formation and strengthening of network and partnership as media of learning process among stakeholder. They had encouraged gender sensitivity which contributed to the inclusion of gender perspective into education policy. In conclusion, multi-stakeholder partnerships are key elements for policy change from neutral and biased gender to gender responsiveness. They had been a media for mutual learning process for stakeholders where transfer of knowledge and resources from one to another took place and they strengthened strategic alliance to conduct the policy change. This finding strengthened Lindsay and Riege’s works on stakeholder partnership in the public policy development, Paine and Naumes’s argument on the model system in policy making process, Spector’s claim on the necessity of policy legitimacy through coalition building between stakeholders, and Brikenhoff’s assertion on the need of implementation of strategic management approach, which underline the importance of multi-stakeholder partnerships for policy change. Recommendations for next actions include: 1. Reform in education policy and organization emphasizing on gender responsiveness rather than neutral and biased gender. 2. Analysis of education policy is focusing on two aspects of changes including policy change and organization change emphasizing on analysis of policy cycle approach, organizational approach and policy learning. 3. Issuing regulation on gender mainstreaming in education by education minister, and explore equality and equity values of gender which derive from local social culture circumstances in Indonesia and represent tacit or local knowledge. 4. The education processes must be able to develop androgyny behavior through the integration of equality and equity gender values into learning materials, learning processes as well as teaching materials. 5. Researchers who concern to gender issues should used participatory research approaches and have sense of gender sensitivity. 6. More research projects in: (a) impacts of gender mainstreaming to support gender equality and equity; (b) partnership strategy building for policy changes; (c) relationships of gender mainstreaming and gender budgeting; (d) organizational culture to support gender equality and equity; (e) gender perspectives focused on quality and dynamics of policy formulation in education in different locations for both municipalities/regencies and provinces.

Kata Kunci : Kebijakan pendidikan, Pengarusutamaan gender, Pioner gender, Responsif gender