The Jawa Pos Institute of Pro Otonomi
G r a h a P e n a L t . 8 , R u a n g 8 0 1 J l . A . Y a n i 8 8 S u r a b a y a
P h o n e : 0 3 1 8 2 0 2 0 3 8 F a x : 0 3 1 8 2 0 2 0 8 1
E - M a i l : o t o n o m i @ j p i p . o r . i d W e b : w w w . j p i p . o r . i d
Final Report
Study on Sustainable Innovations and Good Practices of
INTRODUCTION
Decentralization, better known as regional autonomy, in Indonesia provides room for innovation to regional governments to develop their regions. Of course, the final purpose of an innovation is to improve public service delivery and public welfare. Regional autonomy, which was officially introduced on January 1, 2001, is an antithesis of the failure of the centralistic regime having been in power for 32 years. The policy has been a rational choice after the 1998 reform that demanded equal economic distribution from Sabang to Merauke. If decentralization policy were not taken, disintegration threats would be widespread in regions, particularly outside Java. The centralistic regime proved to only develop Jakarta as government center.
Regional autonomy offers a way to Indonesia to develop not only its center but also all parts of the country. Therefore, since 2001, the central government has delegated the largest part of its political, administrative and fiscal authority to districts across the country. Receiving the great authority, regional governments have the freedom to manage themselves. The closer-is-better principle was really inspiring President
(abibie s political policy. (owever, the relatively new policy on regional autonomy
certainly has some limitations. Therefore, it is crucial to monitor the process of this governance transformation.
Three months after the introduction of regional autonomy, April 1, 2001 to be exact,
Jawa Pos Group voluntarily established the Jawa Pos Institute of Pro Otonomi (JPIP).
The purpose is to oversee and promote regional autonomy to benefit the public.
Using a unique approach, JPIP has introduced an Autonomy Award Program in East
Java.
The Autonomy Award Program is functioning as an instrument to motivate local governments to perform better in the economic, public service and local political sectors (participation and accountability). The program will be an annual tradition to award district/city governments for their best performance in the three sectors. Competition among local governments to develop their regions and improve public service delivery has been reverberating around East Java. Tens of innovative programs have been recorded by JPIP and were presented Autonomy Awards.
from 2004 to 2013 in public service delivery and governance. The locus of this study is the Province of East Java.
METHODOLOGY
In line with its purpose, this study is conducted to identify the sustainability of innovations that won the Autonomy Awards 2004-2013. One research question is:
how have the innovative programs that won the Autonomy Awards 2004-2013 progressed?
This underlying question is the starting point to gather supporting information. For example, what lessons can be learned from wilting and stagnant innovations. And, from blooming innovations, what good practices can be replicated to support their growth. In addition, the role of stakeholders and implications for the development of such innovative programs can be mapped with this study.
Technically, the research starts from a desk study to guide a field study. The desk study is the first part of the research. At this point, JPIP re-identifies innovations and good practices that won Autonomy Awards. In addition to the re-identification from the JPIP data center, the desk study includes data crosschecks with JPIP researchers annually going down to regions and observations by journalists of Jawa Pos News Network (JPNN) across districts/cities in East Java.
Further, initial information is also gathered through direct correspondence with key persons from district/city governments directly dealing with such innovative programs. The correspondence includes telephone calls and short message services (SMS). With the help of these technologies, initial information is sought on the status of innovative programs and good practices that won Autonomy Awards. Results of the desk study provide initial guidance for the JPIP Team to conduct a field study.
The purpose of a field study is to verify the initial information gathered from a desk study. It is also done to get the whole picture of factors contributing to and inhibiting the sustainability of innovative public services achieved by districts/cities over the past 10 years.
JPIP fully uses a qualitative method (see Chart 1). The objective is to collect more
Secondary data related to the study topics is treated as interview-supporting data. Such data includes APBD documents, regional regulations, accountability reports, program brochures/leaflets, etc. In addition, direct observations of local innovative service units contribute to the qualitative study. They are needed to verify and
validate information as well as support researchers complete descriptions.
Therefore, researchers who go down to regions should have skills in gathering information through interviews and should be trained observers.
Chart 1. Design of Research on Sustainable Innovations Winning Autonomy Award (OA) 2004-2013
Further, based on its research findings, JPIP classifies the development of innovative programs/services that won Autonomy Awards in East Java into three categories. The categories include the following:
a. Blooming: this means that the innovations achieved by districts/cities are
ongoing and continue to proliferate from their first form. The blooming includes area coverage or service quality. For example, when an Autonomy Award was won several years ago, the innovation was applied in one subdistrict (kecamatan). But when this research was conducted, the innovation has been replicated in other subdistricts. Thus, the beneficiaries of the program increase in number.
Quality improvement refers to management improvement. For example, if services were provided manually in the past, they are computerized now or adopt ISO management standards. Likewise, in the past, the innovation was managed only by SKPD or one entity but now it is managed by a
multi-1. Public services (education, health, administration) 2. Local politics (participation,
innovations. In other words, the innovative service/program has metamorphosed into a sophisticated one.
b. Stagnant or continuing without blooming: The innovation that won an
Autonomy Award is maintained by the district/city concerned. However, the program has not progressed significantly or proliferated. The recent conditions of the innovative service/program remain the same as when it won the Autonomy Award several years ago.
c. Wilting: The innovation that received an award from JPIP survives for one or
two years only. After that, the program disappears and is not sustainable.
Illustration 1. Three Possible Developments of Innovative Programs that Won Autonomy Awards 2004-2013
Wilting: Innovation does not survive
Stagnant: Innovation is
sustainable and does not grow
Blooming: Innovation continues to proliferate, in coverage and quality
MAP OF AUTONOMY AWARD WINNERS
The assessment parameters and methodology used by JPIP were first introduced to the public on August 23, 2001. The complete set of these assessment tools and explanations were posted in the Jawa Pos Daily on that day in four full pages. The research design 2002 was the basis on which the first Autonomy Award was assessed. This first year event of parameter and methodology tests received positive appreciation from the public.
Significant lessons could be learned from the JPIP Autonomy Awards 2002 on how to objectively, effectively and efficiently measure the performance of district/city governments. The methodology and parameters were improved to conduct a research in the following year. These two years were the initiation phase for JPIP when some research designs and instruments were improved.
JP)P s initiation phase took place in and . The ensuing phase was
stabilization when research designs and instruments were tested for reliability. District/city governments being the focus of research were relatively better aware of the assessments adopted. In the third year, the competitive spirit among regions within the parameters was raised. In the phase, the main mission of JPIP to drive the progress in regions achieved its
optimum point. The
methodology and Autonomy
Award categories which have been used since 2003 were not significantly changed until 2013.
From its inception in 2002 until 2013, the Autonomy Awards
program has been updated
according to existing conditions. For example, three standard methods were established in
2004 and the political
institutionalization category was removed in 2009 because minimum innovations were found.
For the purpose of this research, JPIP decides to use only data from the stabilization phase of 2004-2013. There are two reasons for the decision. First, in the phase, regional governments innovations could be compared fairly between one and another. This is possible because JPIP used a methodology in 2004 for the first time.
Initiation (2002-2003)
Autonomy Awards have been presented to districts/cities in East Java since 2002. During this initiation phase, the methodology adopted by the Jawa Pos Pro-Otonomi (JPIP) progressed by trial and error. It means that JPIP was looking for the best methodology to measure the performance of local governments in East Java.
Stabilization (2004-2013)
The assessment methodology is the combination of qualitative and quantitative researches.
Second, a public survey is a capacity that JPIP has to assess the performance of regional governments. It directly involves beneficiaries in the regions to verify the existence and benefits of the program. JPIP is a media-based organization fully aware that involving local communities to assess local governance progress will make the Autonomy Awards more credible.
The starting point of methodological stabilization was in 2004 when JPIP collaborated with the Local Potential Resources Research and Development Unit (UP3D) of Institut Teknologi Sepuluh Nopember (ITS) in Surabaya to conduct public surveys. For JPIP, public surveys will also confirm that regional government innovations really benefit the public.
Table 1 List of Autonomy Awards Winners and Program Innovations 2004-2013
Year
PARAMETERS
PUBLIC SERVICES LOCAL POLITICS
EDUCATION HEALTH ADMINISTRATION ACCOUNTABILITY PARTICIPATION POLITICAL
INSTITUTIONALIZATION
Movement to build a healthy community (Gerbangmas)
Doctors Go Down to Rural Areas (Terkesan)
The innovations that brought these regions to win Autonomy Awards are presented
in brief. The brief summary can be found in Annex 1 hereto.
In quantity (see Chart 1), Sidoarjo District won the most Autonomy Awards. From 2004 to 2013, this smallest district in East Java won six Autonomy Awards. It can be said that Sidoarjo was the richest in innovations across East Java because the innovations were relatively diverse, ranging from health, administration, accountability to public participation.
The study shows that no regions had so diverse innovations other than Sidoarjo District. Unfortunately, the innovative spirit of this buffer district of Surabaya City has become weak when the Lapindo mud disaster emerged on May 29, 2006 and has buried four villages in Porong Sub-district. For two years, all technical working units (SKPDs) had fully concentrated their efforts on mitigating the impacts of such hot mudflows. For two years its ranking had also dropped in the Autonomy Award events in East Java. The District woke up again when it received Autonomy Awards in 2009 for Public Participation Category and in 2013 for Public Administration Category.
The second winner of Autonomy Award was Surabaya City. Five trophies were
collected by the city using the slogan Sparkling Surabaya. As described in Chart 1,
this capital of East Java was also winner in the public accountability category. Out of the five Autonomy Award trophies, four were contributed by government
accountability programs. The programs include Simultaneous Auction and Adoption
of Three E’s in City Government E-Procurement, E-Budgeting and E-Controlling). 0
1 2 3 4 5 6
Chart 1. Map of Autonomy Awards Winners 2004-2013
Pelembagaan
Partisipasi
Akuntabilitas
Administrasi
Kesehatan
Another interesting thing in the Autonomy Award winners map is Ponorogo District.
The district well known with its folk dance Reog Ponorogo is a specialist in
administrative services. Three awards received in 2009, 2011 and 2012 were all for
basic administration innovations. The innovations include Village Administrative
Management Information System (SIMADES), Cheap Birth Certificate Services at Sub-districts and Civil Registration Administration in partnership with PT Pos Indonesia and Hospitals.
Treatment of Initial Information
From the above initial information, researchers conducted a field study through interviewing district/city stakeholders. The activity aimed to examine the sustainability of innovations that won the awards. In the field study, these researchers thoroughly investigated the innovations by reviewing:
Type of services delivered by district/city
Innovation initiators (sources), whether innovations originate from the
regional head (local leadership), higher levels of government
(provincial/national), bureaucracy (SKPD), civil society or donors.
Environment, either conducive or not conducive to causing such innovative
programs and good practices to wilt, stagnate or bloom. The environment includes leadership type, local political dynamics, civil society s role and existence of incentives for innovation.
STUDY FINDINGS
The study shows that of the 55 good practices winning Autonomy Awards during the period of 2004-2013, most (44%) continued and progressed in quality and area.
Or, in this research, they are referred to as Blooming. Then, 42% of the programs
and good practices stagnated. This was a condition in which the programs/services winning the Autonomy Awards were still continued by district/city governments but did not proliferate further.
The remaining 14 percent were wilting. Such programs or good practices might stand for only two or three years, after which they would not be continued by regional governments due to some factors.
By area distribution (Chart 3), Sidoarjo District stays recorded as having the greatest number of innovative programs in the public services and local politics sectors. During the period of 2004 to 2013, Sidoarjo District won six Autonomy Award trophies for public service delivery and local politics. Unfortunately, three of the six good practices wilted and even disappeared. Among the wilting programs was Free Medical Treatment with Modified JPKM that was discontinued in 2006.
The data on innovation area distribution shows that Surabaya City was relatively consistent to develop its innovative programs. During the period of 2004 to 2013,
the so-called City of (eroes won four Autonomy Awards. Of the four awards, three
Layu/Wilting Stagnan/Stagnant Berkembang/Blooming 8
23 24
innovative programs bloomed. The remaining two were consistently implemented
though stagnant. The blooming programs include Simultaneous Auction, the Triple
E’s e-budgeting, e-controlling, and e-procurement), and Government Resources Management System (SIMASDAP).
Among 21 regions who won Autonomy Awards in public services and local politics, Magetan District performed relatively poorly. Located at the foot of Mount Lawu, the district only once won the Autonomy Award in 2005 for the Political institutionalization Category. But the innovative program wilted over time. Relatively similar situations happened to Pacitan District and Batu City. Of the two innovative programs they won, one wilted. However, the other one continued and progressed well.
Malang District, Probolinggo City and Lumajang District seemed to be specialists in developing their innovative programs. Malang District, for example, successfully collected four Autonomy Award trophies during the period of 2004-2013. Out of the four awards, only one stagnated. The other programs progressed well.
In Malang District, the stagnant program actually did not stop. The innovative
program is Community-Based Integrated Epidemiologic Surveillance, or abbreviated
to Sutera Emas. The program won Autonomy Award 2013 for the category of health services.
When this research was being conducted in mid-2014, the program that had taken place for one year did not show further development in quality and area coverage. However, the future development of the innovative program seems an exciting
Chart 3. Status of Innovative Programs Winning Autonomy Awards 2004-2013
Blooming
Stagnant
ANALYSIS OF STUDY FINDINGS
This section considers factors contributing to and inhibiting the sustainability of innovative public services in East Java. The analysis is divided into three parts: innovative services delivered by district/city governments, innovation sources or initiators of such innovative programs and environments conducive and not conducive to the development of such innovations.
Type of Services
This research highlights six types of innovative services: education, health, basic administration, public participation, public accountability and local political institutionalization. The six types of public services should be monitored and evaluated consistently by JPIP in addition to the three economic indicators: economic growth, economic distribution, and local economic empowerment.
Of the six innovative types of services delivered by district/city governments, the politically nuanced programs (public participation, public accountability and local political institutionalization) would not last long if compared to other innovative basic public services such as education, health and administration.
During the period of 2004-2013, JPIP presented 25 Autonomy Awards for
innovations in political services. However, five of the 25 innovative programs lasted for one to two years only. 12 were stagnant. The rest were blooming. Even, one won the Autonomy Award again in 2012.
2 2
1 1 2
3
5
4
6
4 2
5
3
6
3
5
1
Chart 4. Innovative Types of Services/Programs
Berkembang/Blooming
Stagnan/Stagnant
The innovation that won the award back was Promoting Public Participation in Four
Ways, initiated by Probolinggo City. The program was first initiated in 2004. In the
year, Probolinggo City enacted three political district regulations (Perda), i.e. Perda No. 3/2003 on Transparency, Perda No. 4/2003 on Participation and Perda No. 5/2003 on how to voice opinions. Over time, the three Perdas have been improved
in implementation. One innovation that reflected the implementation was Pedicab
Drivers Congress (Abang Becak) in support of City Musrenbang. This innovation contributed to Probolinggo City the Autonomy Award 2012 for Public Participation.
As shown in Chart 4, innovations in political institutionalization programs are recorded as least found. These innovations may include efforts or breakthroughs in conflict management, human rights enforcement, political communication between political elites, etc. Even, on the account of poor findings of the innovations, there was no winner for that category during the period of 2009-2013. As a result, the innovations found in the period of 2004-2013 were relatively insignificant if compared to other sectors. JPIP found only five innovations in the ten-year period. Of the five innovations, only one was blooming.
Of the six types of services/programs examined, most innovative programs in the administration, education and public accountability sectors were blooming. In the accountability sector, for example, more programs were implemented by local governments to promote transparency.
In Surabaya City, e-procurement, e-budgeting, e-controlling and e-planning innovations have been put in place. The city has also developed a Government Resource Management System (GRMS). Malang Regency has provided wide public
disclosures on its official website: www.malangkab.go.id. On the website, citizens
easily download a very thick book of its local budget (APBD), with nothing being concealed. This initiative of Malang Regency has been copied by other districts in East Java.
Innovation Sources (Initiators)
It is interesting to see innovative services provided by winners of Autonomy Awards 2004-2013. From the field research, answers from key respondents about who initiated innovative programs may be classified into five groups. The five innovation initiator groups include regional heads, national government, provincial
SKPD/UPT
Chart 5 shows that the majority of initiatives to create innovations come from SKPDs (Regional Working Units) and UPT (implementing agencies). 33 of the 55 innovative services examined, or 60 percent, were initiated by SKPDs. The SKPDs herein refer to dinas, agencies, offices, including Puskesmas (one UPT under SKPD), and villages. Within the SKPD/UPT scope, innovative ideas may come from heads of dinas/agencies/offices/UPT and ordinary staff.
Innovative services of Pasuruan District on Cheap School Transportation and
One-Roof Elementary and Junior High Schools are one innovation initiated by district office (dinas) head. When visiting one remote district, the dinas head felt sympathy for students who were struggling to go to school early in the morning. The difficult access to school was then addressed by an innovation of creating a one-roof elementary and junior high school. In addition, the dinas head also requested that the district government modify a former ambulance car to make it suitable for a school bus. These innovative programs at the time of this research were still ongoing and blooming well. In addition to the former ambulance car, an ex-camat car was also modified to be a school bus.
If in Pasuruan District, the idea of innovation came from the education office (dinas) head, in Malang District a brilliant idea in the health sector came from a puskesmas (community health center) head. The district currently led by Rendra Kresna won
Pemerintah pusat
Pemerintah provinsi
Non Birokrasi
Donor Kepala daerah
SKPD/UPT
1 1 2 3
15
an Autonomy Award for Health in 2013. The innovation appreciated by JPIP was
entitled Sutra Emas (Community-Based Integrated Epidemiologic Surveillance).
Based on the results of interviews with some SKPD/UPT heads and staff, there seem to be a mutually supportive relationship between the leadership style of a regional head and the creativity of SKPD to produce program innovations. Some regional heads make awards from other parties such as JPIP Autonomy Awards as a tool for competition among SKPD/UPTs within the regional government. This was done by District Heads of Sidoarjo, Lamongan, Probolinggo dan Pasuruan. They challenged their SKPDs/UPTs to innovate and submit such innovations to JPIP for Autonomy Awards in the following year.
In addition to creating an atmosphere of competition among SKPDs/UPTs, some district heads launched special challenges to particular SKPDs/UPTs. For example, if this year an autonomy award was achieved for an innovation of the Health Office, then next year the regional head sets a special target for the Education Office to win an award in the education sector. If an award can be achieved, the regional head will earn a good reputation and the innovation initiator will usually be promoted.
Regional Head
The second supplier of innovative ideas is the regional head. District heads/mayors contributed to 27 percent of the total 55 innovations winning the Autonomy Awards
2004- . JP)P s researches during early implementation of regional autonomy
indicate that the advancement of a region heavily depends on the capacity and leadership style of its head (bupati/mayor). A creative regional head will make his region quickly advanced and developed in terms of economic sector and public services. In East Java, this is reflected by Lamongan District.
Under the leadership of Bupati Masfuk (2000-2010), the north coastal district of Java was developed so fast, particularly in the economic sector. In the period of ten years, Lamongan was changed drastically from an underdeveloped region to a tourist and business destination in East Java. The District Head (Bupati) was an entrepreneur who successfully attracted some investments in Lamongan. His
leadership style is also responsive and thus acceptable to many circles of society.
Similar to Bupati Masfuk, other regional heads who may be called idea makers include Bupati Rendra Kresna (Malang District), Walikota Djarot Saiful Hidayat (2000-2010) of Blitar, Bupati Junaedi Mahendra (1998-2008) of Madiun, Bupati Suyoto of Bojonegoro and Bupati Achmad Fauzi (1998-2008) of Lumajang.
point where the replacement of a regional head will affect the sustainability of ongoing innovations. This may be worse when there is a political friction between the old district head and the new one. As a consequence, the innovations created by the previous district head may be discontinued fully or partly by the current district head.
In East Java, such conditions are prominent in Blitar City. In the city, some innovations produced by the previous mayor are all stagnant and even weaker due to the mayoral replacement. One of the innovations that was the pride of the city was Citizen Charter in some Puskesmas. The innovation received a positive response from beneficiaries.
Some awards from a number of agencies were received for the adoption of such citizen charters. After successful introduction to puskesmas, the citizen charters were applied to public schools. However, according to information from some local NGOs leaders, the innovation that required some regional governments to conduct a comparative study has an unclear fate. The replacement of the mayor followed by a bureaucratic overhaul has caused the spirit to continue the innovation to be weak.
Donor Organizations
International development organizations or donor organizations are in the third position as contributors to innovations of districts/cities in East Java. Three of the 55 innovative programs examined were initiated by donor organizations. They
include the issuance of Regional Regulation on Transparency in Probolinggo City,
Public Participation Pilot Project in Eight Villages in Pacitan District and Annual Survey of Public Services in Jombang District.
The issuance of Regional Regulation on Transparency, Participation and Procedures
for Submitting Opinions in Probolinggo City in was iniated by USA)D s Local
Government Support Program (LGSP). The innovation won a JPIP Autonomy Award for the Category of Local Politics Institutionalization in 2004. Interestingly, the innovation was still ongoing and blooming at the time of this research. Even, based on the innovation introduced ten years ago the mango-producer city in East Java again won the Autonomy Award for the Category of Public Participation in 2012.
The exit strategy from donor organizations is important to ensure that the ongoing program can be continued by the regional government. Donor organizations should convince decision-makers at the working unit level (technocratic) and regional leadership level such as bupati/mayors and regional legislature level (political) that it is important to continue the good practices. However, again, political frictions between the previous bupati and his successor sometimes make such a well-prepared exit strategy meaningless and eventually make the innovation inactive.
Non-Bureaucracy
The next innovation contributor is non-bureaucratic entities. Only two of the 55 innovative programs examined were initiated by non-bureaucracy entities. They were found in Jombang District and Blitar City. In Jombang District, the non-bureaucratic entity is District Education Council.
At that time, the Education Council composed of community leaders actively campaigned for improving the quality of education in Jombang. To raise public awareness, the Council held weekly public dialogs on a radio to identify public aspirations and complaints about education services in Jombang. The results of these public dialogs provided input for Bupati and the District Education Office to improve service delivery. Unfortunately, upon replacement of members of the Education Council, the excellent program was not continued.
Another non-bureaucratic actor contributing innovative ideas is universities. The application of an innovative Citizen Charter (CC) to Blitar City was initiated by the Gadjah Mada University (UGM) supported by the Ford Foundation in 2004. The then Mayor of Blitar, Djarot Saiful Hidayat, was interested in an idea offered by a team from the UGM s Demographic and Policy Study Center PSKK . Cooperation was established and started with training some persons from the civil society and civil service (PNS) on citizen charter (CC). The charter was finally implemented in three puskesmas in three sub-districts in 2005. Further, CC was also implemented in schools ranging from public elementary schools (SDN), public junior high schools (SMPN) to public senior high schools (SMAN) in Blitar City.
National Government
Less innovations in East Java were initiated by the national government. The only innovation found is Community Healthcare Security (JPKM) of Sidoarjo District. This mass and cheap health insurance is the implementation of Law Number 23 Year 1992 on Health. The Law stipulates that local governments may manage JPKM independently. JPKM is a model of prepaid health security with controllable quality and at reasonable costs.
JPKM is managed by an implementing agency (Bapel) adopting quality control and cost control. People who want to be members will register themselves in groups with Bapel by paying contributions in advance. Members will receive full and graded health services, spearheading the first level of services to meet primary health needs with controllable quality and at reasonable costs.
Health service providers (PPKs) are part of healthcare networks hired and paid on a pre-effort basis or in advance by Bapel and thus stimulated to provide complete health services with controllable quality and at reasonable costs.
Based on the national government regulation, any change to the regulation will significantly affect the sustainability of this innovation. This occurred in 2004 upon issuance of Decree of the Health Minister 1241/2004 that appointed four private companies (PT Askes, PT Taspen, PT ASABRI, and PT Jamsostek) as sole
administrators of JPKM previously managed independently by
provincial/district/city governments. In December 2006, the innovative program of JPKM in Sidoarjo was officially terminated.
The situation behind the issuance of the ministerial decree was not conducive. The mass media often reported on misappropriation of funds and mismanagement by Bapel JPKM in almost all parts of the country. The bad news seemed to generalize all JPKM practices in the country so the good management of JPKM as in Sidoarjo District was adversely affected by the ministerial decree. At that time, the issue of re-centralization emerged strongly after four years of regional autonomy.
Provincial Government
Out of the 55 district innovative programs in East Java, the provincial government contributed one idea. This was found in Bondowoso District with an innovation
entitled Illiteracy Eradication by Involving a Multi-Stakeholder Forum.
The presence of the provincial government to participate in addressing educational
issues in the Tape-producing district in East Java is reasonable. In East Java,
Wilting/layu:' Inovasi'tidak' berlanjut' (wilting)'
Province of East Java from being ranked the highest in illiteracy across the country (BPS 2010), special treatment should be given to Bondowoso District. If illiteracy in Bondowoso was reduced, this would directly contribute to reducing provincial illiteracy.
The Provincial Government of East Java and the District Government of Bondowoso intensively cooperate in formulating policies and mobilizing funds and human resources to increase Latin literacy in Bondowoso. One of the policy taken is to establish a Learning Center (PKBM) involving volunteers from the civil society, military, religious leaders, students, civil service, etc. These volunteers serve as impromptu teachers for illiterate members of local communities in some parts of Bondowoso.
After three years of implementation, illiteracy eradication efforts bear fruit. The number of illiterate people in 2011 (in the 15-59 age group) was 73,904 but it is now 20,964 in early 2014.
The successful innovative program in Bondowoso District has been attributed to the high participation of community members voluntarily serving as tutors. In addition, the continuous support of the province and the district head s high commitment have contributed to removing the stigma from Bondowoso as an illiteracy enclave within East Java.
Environmental Conditions
The environment referred to in this research is a situation, including contributing or inhibiting factors that cause innovative programs and good practices to be wilting, stagnant or blooming. Therefore, the environment will be closely related to leadership styles, local political dynamics, civil society s role and incentives for innovation. However, other factors found in the qualitative research will also be described in order to improve the comprehension of issues that affect the development of an innovation.
As earlier described in the methodology section, there are three development possibilities of innovative programs that won Autonomy Awards 2004-2013. The three possibilities are wilting, stagnant and blooming innovations.
Wilting
Of the 55 innovative programs that won Autonomy Awards 2004-2013 in East Java, this research found that 8 were discontinued or wilting. The 8 wilting innovations are shown in the following table:
Table 2. List of Wilting Innovations
Regions Programs
Sidoarjo District JPKM (Community Healthcare Security)
Modified JPKM Pamekasan District Participatory PSB
Jombang District Annual Public Services Survey Public Dialogs by Jobang Educational Council Batu City Layar Pilkades
Pacitan District Public Participation Pilot Projects in 8 villages
Magetan District Capacity Building in Political, Legal, Human Rights and Civic Sectors for the Community
The field research on the eight wilting innovations found five factors that caused
their discontinuation. The first inhibiting factor was weaker enthusiasm of the
bureaucracy to provide innovative services. This category also includes mismanagement of innovative services, e.g. corruption and inefficient management of budget.
The second inhibiting factor is the replacement of a regional head contributing to the termination of innovations. Politically and psychologically, the new regional head has factors different from the previous head. Properly ongoing innovative services will be at stake, especially in the case of political frictions between the current and former regional heads. Frictions may occur as a result of competition between political parties or between political elites within one party. If such a condition occurs, good practices introduced by the former regional head will be thrown away.
The replacement of a regional head also means a change of development priorities because each regional head has his/her own mission and vision to develop the region. If the missions and vision of a new regional head are in parallel with ones of the former head, the ongoing innovations will continue well. But, if the new head has different development priorities from the former, the ongoing innovations will not be the main focus.
The third inhibiting factor is the issuance of a national regulation that terminates the ongoing innovations being implemented by regional governments. One finding in
East Java is the dissolution of Community Healthcare Security (JPKM) in Sidoarjo
District. The issuance of Health Minister Decree 1241/2004 withdrawing the authority of regional governments to establish JPKM Implementing Agency (Bapel) completely terminated the typical Sidoarjo JPKM innovation in 2006.
The fourth inhibiting factor is the expiry of assistance contracts with donor organizations potentially terminating the ongoing innovations. On the one hand, the presence of donor organizations to initiate innovative programs is very beneficial
Terhambat peraturan pusat
23%
Pergantian kepala daerah
16% Antusiasme
birokrasi menurun/Managem
en buruk 31% Respons
masyarakat rendah 15%
Donor pulang 15%
for regional governments because they usually have significant references about best practices from both local and international sources. However, if their exit strategies are not internalized well in bureaucracy and political elites (district heads/mayors/ legislatures), their departure from regions may also mean termination of such innovations.
The fifth inhibiting factor is the low responses of the community to innovative services that shorten the period of such innovations. This is reflected by the results of some interviews with key respondents/informants in each region. If an innovation does not directly benefit the community, it will fade away and disappear.
In East Java, the community made an unfavorable response to the innovation
Participatory Admission of New Students (PSB) in Pamekasan District.
The program won the Autonomy Award 2008 for Education. Over time, the program initiated by the district education office (Dinas) was widely criticized by the community. There were allegedly commercialized admissions of new students under the Participatory PSB program. Consequently, the community lost its trust in the educational innovation. Finally, in the academic year 2014/2015 the innovative program was officially terminated.
Stagnant
Out of the total 55 innovative programs examined, 23 (42%) were stagnant where they continued but did not bloom. The blooming means improved quality of services and expanded coverage of services. The stagnant status means that the innovations were relatively similar to the status when they won Autonomy Awards several years ago. There were no improvements in management nor increases in beneficiaries.
Of the 23 innovations, inhibiting and contributing factors causing them to be stagnant were identified. As shown in Chart 7, some inhibiting and contributing factors that caused the innovations to be stagnant were found. This report will not address them one by one but review strategic factors and commonalities of the findings.
Chart 7. Contributing and Inhibiting Factors Causing Innovations to be Stagnant
Inhibiting Factors
First inhibiting factor. Most of the innovations (39%) winning the Autonomy Awards 2004-2013 were stagnant as a result of the declining enthusiasm of the bureaucrats to manage the programs. In addition, poor management of the programs was also among the inhibiting factors. There were some factors causing the enthusiasm to drop.
One crucial issue is the replacement of SKPD/UPT heads where the innovations were being implemented. The replacement may occur naturally such as retirement, job transfer and promotion. It may also occur as a result of the replacement of a regional head. In some cases, job transfers and move to other departments leave the ongoing innovations in a neglected state. For example, well trained personnel who know how to provide such innovative services are transferred to other workplaces. Consequently, new personnel should be trained again. After a few months, the same condition recurs, and so on.
Such a case occurred in the Public Complaint Center (P3M) innovation in Sidoarjo
Second inhibiting factor. The replacement of regional heads caused seven
innovations % to be stagnant. )n some cases, an analogy can be drawn: when
the captain is replaced, the ship s course will also be changed. When taking office, a new regional head may have priority programs he/she campaigned for before. So, when assuming power they try to actualize their political promises. These include conducting bureaucratic reforms or creating new innovations. As a result, the existing innovative services tend to be neglected.
One of the stagnant innovations that can be used to clarify the second inhibiting
factor is Circular Friday Prayers Safari by the Pamekasan District Head. This
innovation won the Autonomy Award 2007 for the Public Accountability Category. Through the program, the district head inspected (blusukan) villages to interact directly with villagers. The purpose was to identify public aspirations and complaints about public services. Unfortunately, upon district head replacement in 2013, the innovative program was no longer a priority and in a dead faint.
Third inhibiting factor. National regulations unfavorable to regions have caused three innovations (13%) to be stagnant. One recent national regulation conflicting with the innovation spirit is concerned with Social Health Security Provider (BPJS) put into operation in 2014. In Jombang District and Surabaya City, Puskesmas services are equivalent to hospitals type D.
Now, in this era of National Health Security (JKN) the excellent service spirit encounters challenges again. Specialist services and health facilities owned by
Puskesmas Idaman and Puskesmas Idola in Jombang are discontinued. The reason
behind this is that JKN establishes puskesmas status as first-level health facilities
(FKTP) although some puskesmas in Jombang have the capability of providing specialist services, complete blood tests and x-ray and prenatal care using ultrasonography (USG). Similar fate may happen to puskesmas in Surabaya City.
Contributing Factors
First contributing factor. Positive responses from the community to innovative services have saved 13 innovations (27%) from death. The positive responses from the community indicate that such services have met their current needs. The
programs are distributed across some regions. They include Sidoarjo District (ead’s
Circular Friday Prayers Safari, Package and Online Licensing in Sidoarjo District s
BPPM, ABPD Handbook in Pamekasan District, Educational Awareness Posts in
Malang City, Specialist Puskesmas in Jombang District and Surabaya City, etc.
Second contributing factor. Regional heads again play a key role in making innovations sustainable. Chart 7 shows that 11 (23%) of the total 23 stagnant innovations can survive because regional heads continue to provide such innovative services. The replacement of regional heads does not put the innovations in danger. Some particular factors cause the replacement of regional heads to have no negative impacts on the innovative programs.
In Sidoarjo District, for example, the incumbent district head was a vice head. So,
when he held office as district head, the Circular Friday Prayers Safari program that
has been implemented for 10 years still continues. The district head finds it necessary to communicate directly with community members and sees their conditions by himself.
In Surabaya, the Puskesmas with Medical Specialists program is implemented
throughout the city. This happens because the incumbent mayor has a high level of concern about health. The mayor also pays unquestionable attention to common people. The replacement of the mayor in 2010 had no impacts on the innovation because the previous mayor (Bambang DH) was reelected but in a different position as vice mayor. The current mayor (Tri Rismaharini) was a Bappeka Head. As some key informants said, the innovative program was threatened to be terminated by the application of the JKN (BPJS) Law. This regulation assigns Puskemas to be basic service units without medical specialists.
Third contributing factor. Relatively stable bureaucracy is a fertile ground for growing innovations. Drastic changes usually occur because the new regional head will change the composition of a team directly managing an ongoing innovative program. The replacement of team members means training and re-internalization for new human resources. If this happens frequently, innovative programs will fluctuate.
In Ponorogo District, the Village Administration Management Information System
(SIMADES) still continued up to five years because of solid bureaucracy. It means that there was no extreme replacement of bureaucracy (radical overhaul) in SKPD/UPT that managed SIMADES, i.e. Governance Unit within the regional secretariat. The innovative SIMADES program has been adopted by tens of villages across Ponorogo District to present.
into regional planning documents (RPJM and RPJP), or the old regional head and the new regional head have the same visions and missions.
There are several unique cases in East Java related to the sustainable policies. In Probolinggo District and Probolinggo City, the incumbent regional heads are wives of the previous regional heads. As a result, there was no significant change to policies after regional elections. In some cases, this has positive impacts on the ongoing innovative programs because they receive continuous attention and have been implemented to present.
Fifth contributing factor. Donors assistance helps innovative programs to stay
longer. In East Java, three innovative programs are found to be still active because of the participation of an international development agency in strengthening the programs.
The innovative programs include Sutera Emas (Community-Based Integrated
Epidemiologic Surveillance) in Malang District with the support of WHO, USAID and AusAid. Even, some are saying that this innovation will be adopted nationwide by
the national government. In addition, there is a program of Participatory
Development of Public Facilities in Probolinggo District currently with the assistance
of USAID. Finally, there is a program of Public Complaint Handling Center (P3M) in
Sidoarjo District which receives assistance from USAID IUWASH this year.
Sixth contributing factor. Consistent financing from regional governments will determine the sustainability of an innovation. Continuous financing may means that the innovative program is still a development priority of a region, especially if the
program is a key output of SKPD/UPT. Such innovations include Package and Online
Licensing in the Licensing and Investment Agency (BPPM) of Sidoarjo District and
Transparency in Business Licensing Fees in the One-Stop Licensing Office (KPPT) of Madiun District.
Seventh contributing factor. Awards from other parties contribute to the longer implementation of an innovative program. For regional governments, particularly SKPDs/UPTs that are directly involved in initiating a program, such awards are presented in recognition of their ideas and hard work.
The recognition can be used as a tool to raise public awareness and political alignment concerning the existence and utilization of a program. In simple terms, if external parties recognize the works, it is reasonable for local communities and local governments to promote the appreciated programs.
City and Puskesmas Idola-Idamanku (My Idol-Favorite Puskesmas) and Rumah Sakit Cintaku (Beloved Hospitals) in Jombang District.
Blooming
The results of this research are good news for decentralization proponents, particularly JPIP because the majority (44%) of the 55 innovative programs that won Autonomy Awards 2004-2013 are sustainable and growing. In this research such a condition is called blooming. In East Java, some 24 programs/types of services are blooming innovative programs.
Some in-depth interviews with some key informants identify seven contributing factors that cause the innovative programs to bloom. The factors range from the commitment of regional heads to support from donor organizations.
As shown in Chart 8, the most dominant factor contributing to the growth of innovative programs is the strong commitment of regional heads. Interestingly, among these blooming programs, a new factor emerges, i.e. support from the mass media. The further details of each of the contributing factors are as follows.
Pendampingan lembaga donor
3%
Komitmen kepala daerah
32%
Birokrasi yang stabil/kondusif
22% Respons masyarakat
tinggi 23% Konsistensi dukungan
pendanaan 4%
Penghargaan dari luar 11%
Dukungan media massa
5%
Chart 8. Factors Contributing to Blooming Innovations
First contributing factor. Regional heads, in addition to the dominant factor, are a factor that determines the development of an innovation. The contributing factor of the highest local leadership is necessary in almost all blooming innovations. 23 of
the 24 blooming innovative programs state that regional heads commitment is a
strong determinant factor because innovations supported by legal frameworks (bupati/mayor regulation) could easily be revoked by the new regional head because he/she has the full legal standing to issue and abrogate the existing regulation of the previous bupati/mayor.
It is interesting to discuss the factors of regional heads and sustainability of innovations because the 24 innovative programs have passed some replacements of regional heads. In other words, regional head replacements are not a problem as long as the new regional head has the same spirit and enthusiasm to continue and even develop innovations.
However, in Malang City, the program Malang Single Window/e-Malang does not
relate to strong commitment of regional heads. It seems that the key to the program is regional secretary. Although the mayor has been replaced, the position of Malang City Regional Secretary (Sekda) is held by the same person (Sofwan Hadi). Sofwan
Hadi serves the second term of office starting from the previous mayor s
administration. His tenure is extended by the new mayor to May 2015. According to the mayor, the reason for his extended tenure is to keep sustainable public services and governance.
The strong commitment of regional heads to support the development of service innovations that won the Autonomy Awards seems to be closely related to the second contributing factor, i.e. the community s positive response to the innovative programs. Some regional heads interviewed are of relatively similar opinion that as far as the programs are useful for the community, they will be continued and developed.
Second contributing factor. Local communities or beneficiaries play a significant role in raising the bargaining position to keep innovative programs blooming. In East Java, programs related to licensing and use of information technology in the government have received wide appreciation from the community. They include
Package and Online Licensing Services in Sidoarjo District, Paperless Puskesmas in
Lumajang District, APBD Transparency on the Website in Malang District, and
E-Procurement, E-Budgeting and E-Controlling in Surabaya City, etc.
Third contributing factor. Innovative services can bloom if they are supported by stable/conducive bureaucracy. The conducive bureaucracy as a requirement for the innovative programs to bloom was found in 16 innovations in East Java. They
Administration/Registration), Bondowoso District (Illiteracy Eradication), Sidoarjo
District (ISO Application to BPPM), Probolinggo City (Promote Citizen Participation
through Four Ways), Jombang District (Educational FM Radio), and Madiun District (Integrated Social Work).
The key to creating the stable bureaucracy lies with the regional head. The regional head should not exercise extreme transfers causing the placement of incompetent personnel in SKPD/UPT where the innovation exists. Incompetent leaders will discourage the innovation management staff. Such a condition poses a high risk to the innovations without established SOP (Standard Operating Procedure) because the ongoing mechanism for service delivery heavily depends on the competency and commitment of these individual management staff members. This is reflected, for
example, in the innovative programs: Educational Radio in Jombang District,
Modification of former ambulance for School Bus in Pasuruan District, Doctors Go Down to Rural Areas in Pamekasan District, Integrated Social Work in Madiun
District and Friday Dialogs between Bupati and Citizens in Bojonegoro District.
If an innovation already has an established SOP, a bureaucratic change will not significantly impact on the performance of innovative services because the bureaucracy s staff will do what is set out and will record what they have done. Such practices exist in licensing SKPDs already applying ISO 9001-2000 in licensing SKPDs such as Sidoarjo District, Probolinggo City and Malang District.
Fourth contributing factor. External appreciation becomes motivation for regional governments. The awards received will encourage regional governments to further develop the ongoing innovative programs. Of the 25 blooming innovative programs, eight recognize the importance of the awards. The external awards in this context may come from independent institutions, provincial governments, national governments and international organizations. One awards program in appreciation
of local governments innovations well known across East Java is annual Otonomi
Award (Autonomy Awards) presented by JPIP.
The appreciation of innovative services can be considered a form of recognition of the performance and strategic value of a program. Moreover, the appreciation will increase the self-confidence of SKPD/UPT managing such innovative services to scale up the programs in scope and quality. The appreciation may also be used for justification in front of political elites and regional leaders in order to pay proper attention and provide sufficient funding to the programs.
Some of the innovative programs that regard the external appreciation as strategic
include APBD Transparency on the Website in Malang District, One-Roof Elementary
and Junior High Schools in Probolinggo District, E-Procurement in Surabaya City and
Fifth contributing factor. Good reports in the mass media contribute to the longer implementation of an innovation. Such good reports on an innovation will be free promotion for regional governments. Frequently, after being published in the mass media, an innovative program becomes the destination of comparative studies by other regional governments in Indonesia. Positive reports in the mass media are also a tool to lobby the local legislature for financial support for further development.
Some innovations that put the mass media in a position to support their further
development include Integrated Social Work in Madiun District and Application of
Government Administration under ISO 9001-2000 in Malang District.
Sixth contributing factor. The funding support from regional governments enables innovations to bloom. In fact, funding is not the main reason for an innovation to bloom more quickly. Only four of the 25 blooming innovations in East Java include
this funding factor contributing to their development. They are Puskesmas Paperless
in Lumajang District, Malang Single Window in Malang District, Doctors Go Down to
Rural Areas (Terkesan) in Pamekasan District and Educational Radio in Jombang District.
It is no exaggeration to say that regional governments do not place funding support as a determinant and dominant factor because in a program planning order a budget allocation is subject to the approval of the regional head and legislature (DPRD). Therefore, presentations to regional heads, DPRD and the public on the strategic value and benefits of an innovation are much more important.
Seventh contributing factor. Donor assistance contributes to the blooming of the ongoing innovations. Only two innovations place donor assistance as contributor to
their further development. The two innovations include Clean and Healthy Behavior
Initiative (Gemerlap Bersama) in Pasuruan District and One-Stop Shop (KPT) in Lumajang District.
Pasuruan District s Gemerlap Bersama )nnovation receives assistance from USA)D s
CONCLUSIONS AND RECOMMENDATIONS
For more than one decade, JPIP has appreciated district innovations in East Java
through its Autonomy Awards Program. Innovations significantly benefiting the
community will be appropriate solutions to local problems, and efforts to accelerate regional development receive special attention from JPIP. On an annual basis, this
nonprofit agency established by Jawa Pos searches, identifies, selects and
appreciates innovative programs from 38 districts/cities in East Java.
During the period of 2004-2013, JPIP has presented 55 Autonomy Awards for public
service delivery and local politics performance. Of the programs appreciated, only a small number (8 innovations) wilted or were discontinued by district/city governments. 23 innovations are still ongoing. And, most (24 innovations) are developed in quality and coverage of beneficiaries by district/city governments. This is good news for JP)P and stakeholders who promote local governments innovations.
This study shows that many lessons can be learned, particularly from the wilting and stagnant innovations. On the contrary, best practices can be learned from the blooming innovations that contribute to their development. Some of these can be concluded as follows.
First, the study shows that administrative innovations are more prominent than other public services. This is reasonable because the poor administrative services before or during the early implementation of regional autonomy have been closely
attached to the regional bureaucracy. )n the people s minds there was a strong
stigma if you can make it complicated, why not. That was the public perception of the bureaucracy.
Therefore, a strategy to remove the negative stigma is to improve government administration. If administrative services are good, people will believe that regional governments have really made a bureaucratic reform. Administration is a business that is always present in all aspects of people s life ranging from the newborn to death. All require administrative services from regional governments.
In addition, reform of administrative services is relatively more tangible than substantive public services such as education and health sectors. The latter are long-term investments.
SKPDs/UPTs play is like a two-edged sword. On the one hand, a strong and credible SKPD/UPT contributes to innovative services. On the other hand, most of the wilting or stagnant innovative programs are caused by lower enthusiasm of SKPDs/UPTs to manage them. This study also shows that in addition to the commitment of regional heads and positive responses from the community, innovations can be developed if the bureaucracy (SKPD/UPT) is relatively stable and conducive.
As a recommendation, it is very important for regional heads to prevent extreme changes to bureaucracy, e.g. replacing the top level of bureaucracy (Sekda), SKPD/UPT head and street level of bureaucracy (camat and village head) all at the same time because such replacements may potentially cause such a wilting or stagnant condition.
Third, in relation to the second conclusion, the commitment of regional heads is a dominant factor in the development of an innovation. Bupati/mayors are public officials having the political capacity to establish local development priorities. Political frictions between the previous regional head and the new head may change the local development priorities. Consequently, the ongoing innovative services may not be given priority anymore and thus the innovations will wilt slowly but surely.
On the contrary, if the regional head is highly committed to continue services beneficial for the public regardless of their political interests, innovations will bloom. Once again, innovations are facing a two-edged sword.
As a recommendation, it is very important to promote the political will of DPRD to champion the sustainability of the ongoing innovations. Political interests can be minimized by a political approach. It is necessary to improve and strengthen the supervisory and legislative functions of DPRD to guard local innovations. This study also confirms that DPRD plays a minimum role in keeping innovative programs/services sustainable. With its power, DPRD may produce local regulations to ensure the sustainability of such innovative services.
Fourth, an innovation may last long if it is meaningful to the community. It means that the breakthrough provides the prime solution to basic problems within the community. An innovation originates from the community s needs rather than what the SKPD/UPT wants. In other words, the innovation should be demand driven rather than supply driven.
This is also beneficial for donor organizations, which initiate or provide assistance in local innovative services. Careful need assessment should be conducted for the
most basic public services. It is crucial to give voice to the voiceless – rural women
Dominant groups may propose programs that promote government accountability and increase public participation. However, the voiceless may only propose improvements in maternity services, appropriate sanitation and water supply. Their children will not be late and tired at school. They have easier access to birth certificates for their babies. The findings of this research confirm the above statements.
As a recommendation, public needs should be identified carefully, especially if based only on the results of annual Musrenbang (Development Planning Discussions). Different approaches should be applied to different communities. The need assessment for potentially voiceless segments of population should be conducted properly before initiating or assisting in service innovations. This is particularly important for donor organizations. So, the image of merely running a development project can be banished. Upon donor s departure, the innovation will remain operational as it is really needed by the people.
Fifth, the provincial government plays a minimum role in developing local innovations although they have great opportunities to promote the replication of innovations across districts/cities. The provincial government s functions as mediator and coordinator of district development are less noticeable in this research. Gaps between regions in innovations are shown in data on winners of
Autonomy Awards 2004-2013. Four districts in Madura Island located approximately five kilometers from the provincial capital of Surabaya, are poor in innovations. Such regional disparities have not been managed optimally by the provincial government.
As a recommendation, the relatively large budget of the provincial government generated from retributions, local taxes and other revenues should be used to replicate innovative public services in other regions, particularly remote regions.
The provincial government – particularly the governor – should improve its political
role in managing such regional disparities. To meet the needs of local communities, the provincial government may offer the replication of an innovation to underdeveloped regions.
Sixth, the national government sometimes makes a general policy (one-size-fits-all policy) irrespective of local characteristics and good practices. The most recent case is the application of JKN Law (Health BPJS) seriously threatening the sustainability of innovative services in puskesmas.
regions. National officials are less aware of the basic characteristics of the mass media which favor bad news over good news.
As a recommendation, it is important for the national government to produce regulations that promote a diversity of innovations in regions. Inter-agency coordination at the national level is absolutely needed to prevent one regulation from negating the other. On the one hand, the Ministry of Home Affairs (MOHA) and the Ministry of State Apparatus Empowerment (KEMENPAN-RB) should encourage regions to innovate. On the other hand, however, the Ministry of Health (Kemenkes), Ministry of National Education (Kemendiknas), Ministry of Finance (MOF), BPK etc. precisely discourage regional governments to produce innovations. Good news is also news. Through balanced reports, the mass media contribute to promote regions. Regional governments should also be trained to present their innovations of news value. Thus, Jakarta will not only know about regional governments degradation but also their genius.
Seventh, external awards for innovations especially motivate district/city governments to continue and develop breakthroughs. Such awards are presented in recognition of their hard work. This recognition of credible external parties and mass media reporting on achievements will effectively promote regional heads and SKPD/UPT to win public trust. As a consequence, they will do their best to defend their achievements.
As a recommendation, it is important for award providers such as JPIP and others to keep appreciating regional governments innovations. Even, upon appreciation of innovations, it is better to monitor their development. The appreciating organization should also innovate their award criteria. Appreciating regions very painfully developing their innovations is as valuable as making such breakthroughs several years ago.
Finally, this study provides a foundation for local and national decision makers, donor organizations and other stakeholders to develop effective strategies for developing local innovations. For this purpose, it is important to conduct a further study to find an appropriate formula of the role each stakeholder should play. The formula includes the role of provincial governments and district legislatures (DPRD) as catalysts for innovation development.
