IMPLEMENTATION OF REGENCY LEADING PRODUCT POLICY IN THE BACKWARD AREA (Case Study of Coffee Development in Samarang District of Garut Regency) By Dwi Rudi Hartoyo Prof Dr. H.M. Aries Djaenuri, MA. And Prof. Muchlis Hamdi, MPA, PhD. as Co Promoter I and Prof. Dr. Dra. Erliana Hasan, M.Si. as Co Promotor II Abstract The background of this research is the government's strategy to eradicate the backwards area in Indonesia through the breakthrough of regional leading product program. This study aims to illustrate the implementation of regency leading product policy in improving the results and quality of coffee, the cause of policy implications and the alternative ecological approach of the government problem solving evaluation. The analysis used descriptive qualitative techniques by taking sample data through indepth interviews, and documentation studies. Research location Samarang District Garut Regency West Java Province. The results showed that the implementation has been successful but not yet maximize considering only add productivity while have not yet reach Farmers quality and income level. Some influencing factors are reflected by institutional activities, policy problems faced at that time, policy implementation and policy output that can achieve the expected objectives. Efforts to deal with the above problems can be assessed through government ecology currently under development but the nature is still a local model because it is only a case of coffee development where the key to successful implementation not only by the four factors above, but also influenced by time dimension, space dimension, as well as the dominant of environment policy. 1. PRELIMINARY The problem of high poverty, high public unemployment and low economic growth compared to the national average is a reflection of the condition of less developed areas (backwards areas). One of the government's breakthroughs is anticipated through regency prime product policies that are expected to increase local economic growth, increased production, community income and employment. The concrete form of the region or area can bring up a leading commodity based on its base sector. 1 Base sector determination is done through LQ (Location Quotient) analysis by comparing PDRB Kabupaten with Provincial PDRB. Garut regency leading sectors according LQ of the highest, that is (1). Agricultural, livestock, forestry, and fishery sectors (LQ 3.61), (2). Finance, Leasing and Corporate Services sector (LQ 1.20), (3). Trade, Hotel and Restaurant Sectors (LQ 1.17), and (4). The Service Sector (LQ 1.16). In order to support the development of the regency leading commodities and products, the sectors that can be developed are agriculture, livestock, forestry, and fishery. (Source of
Executife Summary Report "The leading Product Development Master Plan of backward areas in Garut Regency" Year 2012 Page 16), where in the plantation sector were selected coffee as the leading commodity because Garut regency is endemic to coffee, has brand "Java Preanger" taste that is not inferior to other types of coffee in the Province of West Java and Indonesia. In the implementation there are various problems that is (1). The lack of Government attention to policy intervention. (2). There is a difference of perception between the implementor in translating technical and absolute guidance. (3). Inadequate role of program counterpart. (4). The sustainability of the program has not been effective. (5). The absence of clear indicators to measure the success of the program implementation. And (6). Lack of guidance and program assistance from the Government to Community beneficiaries of the program. In the context of policy implementation in backwards areas, there is one area in Samarang District Garut Regency West Java Province which is being developed into the location of the implementation of program activities, has a very strategic geography location with the city center district so that become the center of economic growth, the availability of accessibility and adequate infrastructure, there are some villages that are still categorized as poor / backward villages and as coffee development sites. It is interesting that the implementation of this policy is explored from the implementation aspect. What factors are influential as well as local models to improve coffee products quality and have a major impact as an effective policy. 2. LITERATURE REVIEW According to charles O Jones (1977:166) implementation is that set of activities directed toward putting a program into effect is a series of activities or activities to implement a program intended to cause certain effects. There are three activities that are involved in the implementation process, namely organization, interpretation, and appiication which are (1). Organization: the establishment or rearrangement of resources, unit and methods for putting a policy into effect Organizational activity becomes very significant in relation to the establishment or reordering of all available resources, the arrangement of the units involved in the execution of an activity as well as the methods used for the policy that has been determined to run ". (2). Interpretation the translation of program language (often contaned in a statute) into acceptable and feasible plans and directives The interpretive interpretation requires interpretation in the programming language of the policy even though it is often influenced by the status of being an appropriate plan and direction and deserving of acceptance by all parties. And (3). Application : the routine provision of service, paymens, or other agree upon objectives of instruments Application activities of any routine provisions of a service, payment or associated with financial or otherwise tailored to the objectives or instruments of the program to be implemented ". To facilitate the implementation of Jones 2
also set up a frame of mind to facilitate the control in the implementation of the program are: The Policy Process A Framework for Analysis Functional Activities Catagorized in Government And as Systems With Outputs Organization Interpretation Aplication Government to Problem Source : Charles O Jones, 1994: 53 Furthermore Muchlis Hamdi (2013: 37) public policy is a pattern of actions established by the government and manifested in the form of legislation for the implementation of state governance, because according to the author, public policy is all actions of government (State Organizer) whether done as well as those that are not done based on a prescribed decision that may entitle rights and obligations. The decision comes from a collectivity option that is linked to each other and made by the authorized institution. Referring to the above understanding obtained a new understanding of the policy meaning that is first, our focus when studying public policy is more on what the real done by the government has a goal that is to solve public problems and not just on what is thought or want to be done. Second, policy implies the existence of alternative choices among a number of alternatives that are considered available. Third, normative policies are problem solving, which mean policy is intended to solve problems or at least break down the complexity of public problems that are collective problems that have been identified and Program Implementation 3 Varies (service, payment, facilities, control, etc) successfully included in the government agenda (governmental agenda). Fourth, policy is a reflection of the response / responsiveness of the political and administrative systems to a social reality, which is politically perceived as intolerable. and Fifth, implementation is a dynamic process of managing activities, resources and other support resources that involve continuous efforts to find what can be done in an effort to achieve goals through an understanding of the planning and referring to the guidelines that have been made. In an effort to improve the implementation of the policy to fit the objectives expected further Sadu waistiono through the ecological approach of government explained there are 4 (four) things that become the indicator of success of program implementation, among others (a) environmental factor, (b) time dimension, (c) context and (d) space dimension. The emergence of the ecological concept of government in this study, to answer other problems facing by coffee farmers as policy targets. Referring to the hybrid model (Charles O Jones and Wasistiono
theory) shown in Figure 4.2, it is not clear that there is no improvement in the quality of coffee, the economic improvement of farm households in Samarang indicates a lack of success in maximizing program implementation at the local level which is the policy target area. 3. RESEARCH LOCATION Research Location in Samarang District Garut Regency West Java Province. 4. DISCUSSION 4.1 Coffee Program Policy Implementation Implementation of the regency leading product program policy in the form of coffee in the Samarang region refers to the mindset of Charles O Jones, after being implemented by the government, local government and community with the aim to solve the main problems concerning production or productivity, coffee product quality, low household economy or coffee farmer income, ultimately for shortterm implementation of program policies to the extent of successfully increasing the production or productivity of coffee, but based on the policy evaluation looks less than the maximum achievement due to coffee quality problems and coffee farmers household economic improvement have not been resolved. 4.2 Factors that affect Several factors that influence the successful implementation of public information dissemination policy include communication, resources, disposition, and bureaucratic structure (Misroji, 2014). In relation to the implementation of the policy for leading coffee products in the Samarang region there are two things that can be seen is the relation with communication and availability of resources that support the success of the program. Read more as follows: Communication Communication in question is the need for socialization of programs from the central, regional, and village governments to the program targets in an effort to increase public understanding of the intent and purpose of the program to be disbursed. 1. Available resources have the potential for coffee development in accordance with the commodities that are the pre-eminent of the government-implemented programs. 2. Besides other factors also influence the success of coffee production, among others, the amount of labor, land area and age of coffee trees (Fatma, 2011). Similarly faced by coffee farmers in the Samarang region, production has increased in number, but the quality is not achieved because postharvest handling that has not been managed properly in creating added value so that the coffee market share produced by larger farmers and more market share global. Implementation of farming development policy is influenced by internal and external factors. Internal factors that influence, among others, communication, resources, attitudes and organizational structure. While external factors that influence among others the potential of population and natural resources, economic conditions and 4
technological advances, and local culture and dynamics of local politics (Igirisa, 2011). Increasing the quality of value-added coffee and improving the household economy of farmers who have not succeeded because they have not yet considered external and internal factors that support the success of the program to the maximum. Through the evaluation of previous policy implementation, it becomes important for collaboration between government (central, local, and local), coffee farmers, supporting institutions and related stakeholders in the effort to create farmer welfare that is the target of program policy. The development of coffee farming in Samarang area has no role as a commodity that improves the welfare of farmers. Aspects that affect this nonsuccess because the quality and price of coffee produced not in accordance with the expected price. According to Pratiwi (2016), the results showed that the obstacles in coffee farming development is not yet implemented the standard technique of cultivation, the processed coffee has not been accepted by the market, the closed access to information and lack of promotion. Then the marketing aspect becomes second priority because coffee farming needs promotion to open market opportunity. The third priority is the post-harvest processing aspect because of the need for awareness raising in appropriate post-harvest handling. The institutional aspect becomes the fourth priority because of the need to empower the farmer institution to form a partner in order to encourage the increase of farming. Then the policy aspect becomes the fifth aspect because there is no regulation in price protection and coffee trading system that benefits farmers. The problem of not yet reache coffee quality improvement and household economy of coffee farmers need to be seen from the internal and external environment that support the success of government programs. The internal environment that supports the implementation of the program consists of government agencies (central, regional, and village governments through the functions of services, regulation, development and empowerment), private institutions (kadin, banks and others supporting upstream and downstream activities), and community organizations (farmer groups, cooperatives, etc.) as the main actors of coffee's flagship business). Meanwhile, the external environment that supports the successful implementation of the leading product program includes the equation of vision and perception, the leading commodities proposed from the community or local government, controlling or appraising, allocating resources, determining the leading product, dynamic program implementation, and coordination and synergy. When it comes to region and even expected local levels it is an existence of long-term and sustainable program in the Samarang region. Through this long-term program the creation of value-added coffee quality and in accordance with market demand so that the community economic improvement to be better. The achievement of coffee commodities production or productivity increasing goal in the Samarang region which is the initial goal of the leading product 5
program implementation. Achieving the goal of increasing productivity or coffee production becomes a short-term goal that is only a central government program and the scope is still macro. Successful achievement of coffee production or productivity increased due to support from central, regional and village governments that play its role in performing service functions, arrangement, development and empowerment. However, these achievements are only short-term regardless of the sustainability of coffee development, especially those related to the downstream sector in an effort to realize an increase in income or household economy of coffee farmers. The ability of leading product programs that can only solve the problem of production or productivity is short-term, which only able to solve macro problems that only focus on the program which is in accordance with the proclaimed budget and meet the national target. Conditions occur because the central government only pay attention to the established budget guidelines and only pay attention to aspects of facilities and infrastructure needed by farmers who support production or productivity increased in the cultivation sector (onfarm). Achieving the objectives of the leading product policies implementation related to improving the quality of coffee products and improving the household economy of farmers that lead to long-term goals. The long-term goal in question is the need for sustainability, through improving the quality of coffee products. The ability of farmers to create coffee grade and value-added coffee will increase the price of coffee products and create a wider market 6 share of coffee products. This will increase the income or economy of farmer households. In the realization of coffee products that have good quality and added value required support from private institutions (including kadin, banks, and others that support the development of leading coffee products from upstream to downstream), and community institutions (including farmer groups, cooperatives, and others as the main actor business coffee seeds). 4.3 Efforts to improve policy implementation The problems associated with improving the quality of coffee in the Samarang region are the efforts of regiom and local governments through long-term collaboration with the central government and become micro-scope issues. However, the inadequacy of the implementation of this maximal policy is certainly influenced by the lack of support mainly related to external environmental factors. In relation to the matter that has not been done by the policy actors is the control / assessment and implementation of the program dynamically. 4.3.1 The Importance of Program Control / Assessment Through efforts to control the current or existing programs will help to understand the shortcomings and success of the program implementation. Therefore, there is a need for good cooperation between the central government, region, local, and institutions involved in the program. Unrecognized deficiencies are subject to consideration or improvement for further program implementation. Elements included in the category of good monitoring and evaluation (Ojha,
1998), one of which is the presence of clear indicators in an effort to achieve clear objectives. The lack of maximum control during the implementation of the leading coffee product program causes the issue of the coffee quality produced by farmers has not been able to be resolved so that the added value of farmers' income and the welfare of farmers who become the output effect of the leading program has not been achieved. Program monitoring is not only focused on targeted inputs to policy objectives, but also farmers' assistance to identify problems faced by farmers in coffee development from upstream to downstream. Therefore, good cooperation and transparency from village or local government will accelerate changes in coffee development in the Samarang region in an integrated manner. The role of government agencies, private institutions, and community institutions in realizing the objectives of leading product policy implementation (increasing production, product quality, and household economy of coffee farmers) requires an appropriate step and synergy. Some of the expected steps include the equation of vision and perception, the determination of leading products derived from farmers proposals (bottom up), and need to be evaluated or controlled from policy holders. If the results of the policy evaluation indicate the ineffectiveness of previous program implementation then there should be a review of resource allocation, the determination of the leading product program, the dynamic program implementation, and the coordination and synergy. The great hope of this leading product program is the long-term or sustainable output that will ultimately create coffee farmer independence. In realizing this condition there needs to be a development approach at the regional and village levels. At the regional level, there is a need for a main program and assistance, taking into account the characteristics and problems of the region, as well as a relatively flexible approach. Meanwhile at the village level, the need for a very holistic approach, the orientation of Micro scope is expected from the implementation of leading product program policies as described above, there needs to be support from local governments in supporting the successful development of coffee agribusiness at the local level. Approaches by local governments in realizing the expected outputs (improving the production, quality, and economy of farmer households) include attention to locally-needed budgets, improved facilities and infrastructure at the local level, preparation of appropriate areas for leading products program development, and local government assistance through credible extension agents). In realizing the implementation of leading product program policies proclaimed by the central government and local governments, there needs to be support from relevant stakeholders at the local level. There are several things that local stakeholders need to engage in the full participation of coffee farmers, the actualization of value desired by policy holders, as well as cultural exploration and local advantages. According Muktiali (2009), in development management, monitoring 7
and evaluation is the last stage of the government after the stage of planning, budgeting, and impelementation. The purpose of monitoring and evaluation is to see how far (feedback) the program is already running. Through evaluation and monitoring can help improve the efficiency of the ongoing program, and select or design the program to be implemented next. 4.3.2 The Importance of Dynamic Program Implementation. Dynamically executed programs are required for the implementation of the leading product program in the Samarang region. The importance of program execution dynamically in order that the output of the program is not only limited to increased production or productivity, but also the quality of coffee produced by farmers in accordance with global market demand. In addition, this flagship product program is expected to have a sustainability multiflier effect on improving the welfare of the community through the emergence of SMEs that create added value in the form of coffee products that have been processed. Good coffee quality and value-added coffee products will increase the market access of farmers, irrespective of the collectors or middlemen who seek to create asymmetric information. The inability of farmers in accessing large markets will have a social impact on the emergence of pessimistic attitude of farmers in carrying out coffee development activities as a leading commodity in improving society welfare. Seeing this condition, the role of government in running the wheels of government in helping the community as a supporting system of coffee farming activities. The condition of unresolved problems related to improving the quality or added value and the household economy of farmers in micro scope is influenced by the not realization of the value actualization, culture and local potential in the Samarang region. The policy of leading product program is not merely a policy to support improving the farmers' household economy and increasing value added, but also the need for synergy between the values and culture of the community with the utilization of local potency (coffee), so that the society economic will growth without eliminating culture and values. To find out how far the program influence to the economic improvement of coffee farmer's household so that it is necessary to control or evaluate the implementation of the program. The aim is to achieve sustainable and integrated coffee farm development from upstream to downstream. In the ecological theory of government can be seen there are four things that become indicator of leading product program success in Samarang region Garut Regency, among others (a) environmental factor, (b) time dimension, and (d) space dimension. The emergence of the ecological concept of government in this study, to answer other problems facing coffee farmers as policy targets. Referring to the hybrid model (O'jones and Wasistiono theory) shown in Figure 2 it can be seen that the lack of improvement in the quality of coffee in Samarang Region and the resolution of farmers' household economic 8
improvement problems indicates that there is a lack of success in implementing the program optimally at the local level Policy. 4.3.2.1 Time Dimension In relation to the implementation of leading product program policies, the time dimensions referred to in this model include both short and long term. Implementation of the policy in the short term focuses on the budget in an effort to increase the production or productivity of coffee in the region of Samarang. However, if the program focuses only on improving coffee production, after a policy evaluation shows that program implementation is not maximal in an effort to support the community to resolve the main issues related to the improvement of the household economy. Therefore, a longterm program is needed in order to create sustainable development of coffee plantation. The importance of this longterm program to see the phenomenon faced by coffee farmers is the quality or quality of coffee produced by farmers in the Samarang region is low and the price received is also low due to market access that is difficult to get in the policy target area. Increasing the quality of coffee as a step in increasing the competitive value in order to compete with coffee from other countries. Coffee quality is in line with global market demand so as to facilitate business actors in wider market access. The implication of achieving this expectation is that farmers no longer depend on markets created by middlemen who tend to monopolize the marketing of coffee in the Samarang region. Sustainability of coffee business development is expected to increase no longer focused on increasing production and quality, but there are efforts in creating added value in the form of products that can be consumed directly by the end consumer. The implication is that farmers not only act as farmers, but there will be post-harvest coffee processing business that can be run by the farmers' families. Through this increase in value added, it will change the mindset of farmers who not only sell coffee in the form of raw raw materials, but processed products that can be distributed throughout the region. Farmers 'household income will increase so that the farmers' household economy becomes better. 4.3.2.2 Space Dimension The space dimensions referred to in this model relate to micro scope and macro scope. The scope of the macro referred to above hybrid model is related to the scope of the program is still centralized. The purpose of a centralized program is a program that has been implemented by the government based on the concept of a Top Down. The policy is expected to be Bottom Up policy, in which the Government should be more aspirational to the voices of the regions scattered throughout Indonesia. Therefore, aspects related to micro scope are concern in increasing the economic of farm households. The micro scope approach is a localistic approach, meaning that empowerment is the most important thing for the transfer of knowledge to coffee farmers to improve the quality of coffee and build the creativity of farmers in creating added value. 9
Empowerment is done continuously and sustainably to create economic independence of farmers. The form of independent farmers is that farmers no longer expect government assistance in running coffee farming activities and able to compete without any further assistance 4.3.2.3 Environmental Factors The success of the implementation of this leading product program policy can not be separated from the influence of internal and external environment factors. However, the lack of success in achieving the implementation of this leading product program is maximally influenced by the condition of external factors that have not materialized optimally. External environmental factors in question is the control or reappraisal of programs that have been implemented. The need for this assessment as a form of evaluation of factors that affect a program is not achieved optimally. In this case, the improvement in the quality of coffee and the improvement of the household economy has become a consideration for the next program. Dynamic implementation of the program is expected to support the development of coffee farming activities at the community level in the Samarang region in accordance with the needs and desires of the policy objectives. the unmet needs of the community are improving the quality and value added of coffee, stable coffee prices and clear coffee market access. Through the support of the government in supporting the sustainability of coffee farming will have an impact on the economic growth of farm households evenly. 5. CONCLUSION. Upaya untuk menghadapi permasalahan diatas dapat dikaji melalui ekologi pemerintahan yang saat ini sedang dikembangkan namun sifatnya masih model lokal karena sifatnya hanya kasus pada pengembangan kopi dimana kunci utama keberhasilan implementasi tidak hanya oleh keempat faktor diatas, namun juga dipengaruhi oleh dimensi waktu, dimensi ruang, konteks serta faktor lingkungan kebijakan yang sangat dominan. The results showed that the implementation has been successful but not yet maximize only add productivity while the quality and income level Farmers have not. Some influencing factors are reflected by institutional activities, policy problems faced at that time, policy implementation and policy output that can achieve the expected objectives. Efforts to deal with the above problems can be assessed through government ecology currently under development but the nature is still a local model because it is only a case of coffee development where the key to successful implementation not only by the four factors above, but also influenced by time dimension, space dimension, as well as the dominant environment policy. 10
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