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PERSPEKTIF
Available online http://ojs.uma.ac.id/index.php/perspeksi
Mapping Electoral Districts and Seat Allocation for the 2024 Elections: A Case Study of Boyolali District Election
Commission (KPU)
Luvita Eska Pratiwi, Dewi Erowati & Kushandajani*
Master of Political Science, Faculty of Social and Political Sciences, Universitas Diponegoro, Indonesia Submitted: 27, September 2023; Reviewed: 06, January 2024; Accepted: 16, January 2024
Abstract
This article aims to analyze the application of the seven principles of electoral district structuring and seat allocation in the 2024 elections. The problem focuses on Electoral District Arrangement and Seat Allocation in Boyolali Regency which is experiencing the expansion of sub-district areas, from 19 sub- districts to 22 sub-districts. To approach this problem, technical guidelines for the preparation of electoral districts and allocations by the KPU of the Republic of Indonesia are used as a reference. Data was collected through interviews and literature studies of existing documents and analyzed qualitatively. This study concludes that the changes in the composition of sub-districts in electoral districts and seat allocation in Boyolali Regency have met the basic requirements for electoral district arrangement and seat allocation. These basic requirements are fulfilled by changes in population that result in the allocation of seats in one electoral district exceeding the maximum limit and/or less than the minimum limit determined by law; the expansion of the region from the original 18 sub-districts to 22 sub-districts; and there are electoral district structures and seat allocations that conflict with the principles of structuring electoral districts in previous elections which require changes and re- arrangement of the regional composition within electoral districts.
Keywords: Electoral District Arrangement; Seat Allocation; 2024 Election
How to cite: Pratiwi, L.E. Erowati, D. & Kushandajani, (2024), Mapping of Electoral Districts and Allocation of Seats for the 2024 Election: Case Study of the Boyolali Regency KPU, PERSPEKTIF, 13(1):
18-31
*Corresponding author: Luvita Eska Pratiwi E-mail: [email protected]
ISSN 2549-1660 (Print) ISSN 2550-1305 (Online)
INTRODUCTION
Indonesia is a democratic country, where the people are the main actors in the state administration process. The people are the holders of sovereignty, either directly or through representatives. Direct sovereignty, namely through voting, and indirect sovereignty, namely the people elect other people as their representatives who are members of representative institutions, who will later become policy formulators (Pahlavi, 2022). This is the common thread between the principles of democracy, popular sovereignty, and elections. Elections are an effort to create a representative government, where the people have the opportunity to choose and entrust the leadership of the government to those who are elected (Bogor City Election Commission, 2020).
The General Election Commission (KPU) officially opened the 2024 General Election (Pemilu) stages starting June 14, 2022, as regulated in the RegulationsKPU Number 3 of 2022 concerning Stages and Schedule for Organizing the 2024 Election. The KPU will hold two general elections in 2024. The first will be on February 14, 2024, to elect members of the People's Representative Council (DPR), Regional Representative Council (DPD), and Representative Council Regional People (DPRD), as well as the President and Vice President (Pilpres). Second, on November 27, 2024, to elect the Regional Head (Pilkada).
The electoral system used in Indonesia is a Mixed System, which is a combination of Plurality and Proportional Systems, which is then implemented in different elections. The election of the President and Vice President uses a plurality/majority system, with a one- round winning scheme for participants who get a total of 50% + 1 vote. The election of DPD members applies a multi-representative district (province) system, namely 4 participants with the most votes from first to fourth. Meanwhile, for the election of members of the DPR and DPRD, an open proportional system applies, where the selected participants are the participants with the most votes from the political parties that get seats (Pahlavi, 2022). In the Legislative Election, the votes obtained by election participants are then converted into seats covered in an electoral district and the allocation of seats is determined by the KPU.
Based on this scheme, the Legislative Election requires processes for structuring electoral districts and allocation of seats before they are finally determined. Structuring, mapping, and determining electoral districts (Dapil) is one of the initial and crucial stages.
Because, electoral districts that are formed with a clear number of seats/representatives are an embodiment of guaranteed representative democracy, as well as political representation that will bring the people closer to the public officials who have been elected. Constituents in each electoral district will know who represents them and to whom they will demand accountability. Elected people's representatives will also clearly know the constituents they represent and to whom they must be accountable for the results of their work. With proper structuring of electoral districts, the people as owners of sovereignty will know not only who they are conveying their aspirations and demands to, but can also influence what the people's representatives will decide (Surbakti, 2013).
Electoral district not only concerns how many voters live in an electoral district but also how many representatives are nominated to be elected in an electoral district. In other words, electoral district refers to the number of representatives to be elected from an area (Habieby, 2022).
Changes to the electoral district scheme and seat allocation will have an impact on many aspects. Political parties and/or individuals compete in elections to secure the throne to represent their electoral district. Changes to the scheme require election participants to remap their support and projected vote acquisition which will later be converted into calculating seats in parliament. Voters registered in each electoral district have the right to determine who the winner in that electoral district is through elections (Surbakti, 2023).
The arrangement of electoral districts and seat allocation is carried out by the KPU, in consultation with the DPR. This is by the provisions of Article 194 paragraph (5) and Article 195 paragraph (1) and paragraph (2) of Law Number 7 of 2017, regarding the preparation and determination of electoral districts for the Election of Regency/City DPRD Members. Furthermore, the KPU prepares and issues technical instructions (juniors) which are used as a reference in carrying out each step
in the formation of electoral districts and Allocation of Seats for Regency/Municipal DPRD Members in the Legislative Elections (KPU Decision No. 488, 2022).
The basis for structuring electoral districts and seat allocation is changes in administrative areas and population. Electoral districts are formed based on administrative area and/or population. Each electoral district is represented by one seat (single-member constituency) or more (multi-member constituency)(Surbakti, 2013). The population is obtained from population data, which is individual data and/or aggregate data compiled systematically as a result of a series of population registration and civil registration.
The Ministry of Home Affairs (Kemendagri) as the institution that handles this matter, announces the dynamics of the population in the form of aggregate population data and publishes it on the official website of the Regency/City Disdukcapil. This data is updated every six months (Disdukcapil, 2023).
Aggregate Population Data per District (DAK2) was officially submitted by Deputy Minister of Home Affairs John Wempi Wetipo to the KPU in Jakarta, on October 14, 2022. This DAK2 is used as material for the KPU in compiling the electoral districts for the provincial DPRD and district/city DPRD for the General Election. 2024. At the same time, the KPU received Aggregate Data on Indonesian Citizens abroad from 133 Indonesian Representative Offices, which was submitted by the Director General of Protocol and Consular Affairs of the Ministry of Foreign Affairs, Andy Rachmianto (Disdukcapil, 2023).
Furthermore Indonesian KPU synchronizes demographic conditions and information on government administrative areas, with maps of state administrative areas.
The results of the synchronization are outlined in KPU Decree number 457 of 2022 concerning the Number of Seats for Members of Regency/City Regional People's Representative Councils in the 2024 General Election. This KPU decision then becomes the basis for the KPU at the Regency/City level to organize electoral districts as well as allocate seats for members of Regency/City level DPRD.
The KPU at the Regency/City level is asked to propose a maximum of three proposals for the arrangement of electoral districts and seat allocation to the Indonesian
KPU. The Indonesian KPU then carried out a comprehensive examination and research on the proposals submitted and then continued with communication and discussions with DPR members. The results of the observation by the Indonesian KPU were then determined in a decree in the form of KPU regulation Number 6 of 2023 concerning electoral districts and the allocation of seats for members of the DPR, Provincial DPRD, and Regency/City DPRD in 2024 elections.
In Central Java, there are four regencies/cities that have experienced changes to the electoral district scheme and the number of seat allocations, namely Purbalingga, Boyolali, Sragen, and Kendal, which were originally allocated 45 seats, to 50 seats.
However, of the four districts, Boyolali is the only district that has experienced regional expansion by three sub-districts, so the total sub-districts currently are 22 sub-districts.
As stipulated in Boyolali Regency Regional Regulation Number 18 of 2018, Boyolali Regency has 3 (three) new sub- districts, by dividing the previous 3 (three) sub- districts, which were then given new identities, namely Gladagsari District, Tamansari District, and Wonosamodro District. Gladagsari subdistrict is the result of the expansion of Ampel subdistrict. Tamansari District was formed from the expansion of Musuk Regency, and Wonosamodoro District resulted from the splitting of Wonosegoro District (Regional Regulation of Boyolali Regency No.18/2018, 2018).
The geographical area of Musuk, Wonosegoro, and Ampel sub-districts is considered quite extensive. Initially, the expansion proposal was based on suggestions from residents who felt that population density was supported by too many villages. This can be seen from the number of villages in Musuk and Ampel Districts of 20 each. By the provisions of the Minister of Home Affairs, each sub-district is divided into at least ten villages. Meanwhile, the Wonosegoro sub-district, with a total of 18 villages, was split into two sub-districts, leaving 10 villages for the Wonosegoro sub-district.
Meanwhile, the eight villages resulting from the expansion were combined with two villages taken from the Kemusu sub-district (Ardiyanto, 2022).
With this expansion, it is hoped that it can increase the effectiveness of government
agencies and public services, in this case, the affordability of access to educational services, health facilities, transportation, and commerce in sub-district areas. Apart from that, regional expansion is expected to be able to encourage regional development and economic development. The expansion of the sub-district area was input received by the Boyolali Regency Government from the local community who wanted equal distribution of regional development results. It is hoped that this expansion will be able to achieve equal distribution of development results to areas far from the sub-district capital (Boyolali DPRD, 2019).
The process of structuring electoral districts must prioritize the interests of the community, not the interests of certain parties.
Because in essence, the purpose of forming an electoral district is to make it easier for constituents to convey all issues within their electoral district. The purpose of allocating electoral districts in elections is to measure the level of legitimacy of legislators. (Habieby, 2022). The KPU provides rules that must be guided by the KPU at the Regency/City level in the process of preparing the composition of electoral districts, which are called the seven principles for structuring electoral districts and allocation of seats, namely: (1) equality of vote value, (2) adherence to the existing electoral system proportional, (3) proportionality, (4) territorial integrity, (5) being within the same territorial coverage, (6) cohesiveness, and (7) continuity.
However, in the process of drawing up electoral districts and allocating seats, quite a few people reported allegations of fraud that had occurred, which became known as a gerrymander. Gerrymander is the term for political fraud in the process of determining electoral district boundaries, which is carried out to bring good to a party, group, or socio- economic class in the electoral district, but on the other hand also displays a discrepancy with electoral principles, resulting in injustice to other groups (Riansyah, 2022). In an article entitled Gerrymandering and Computational Redistricting, gerrymandering creates a sketch in the electoral process, which is called packing and cracking. Packing is a pattern structured by concentrating people who are most likely to vote for the opposition in a small number of electoral districts so that their votes do not
influence other electoral districts. Meanwhile, cracking is a pattern designed to weaken voters who are predicted to vote for the opposition.
The opposition will be separated into different electoral districts (Guest et al., 2019).
There have been several previous studies on the mechanisms and processes that occur during penalization. A study (Subhan, 2019) entitled Evaluation of 2019 Election Dapil Formation: Measuring the Principles of Equal Vote Value, Proportionality and Level of Political Party Competition, provides an overview of the electoral process and distribution of Regency/City DPRD seats in the 2019 Election. The focus of this research is to quantify 3 basic principles out of a total of 7 electoral rules and the distribution of seats that have been formulated by the KPU, namely the principle of equal vote value, and compliance with the proportionality, and proportionality system. This research used a sample of 33 electoral districts at the district/city level and resulted in the conclusion that the electoral process was generally by the rules determined by the KPU. However, for the record, there is still bias in seat prices in several electoral districts and there are still disparities in the level of competition (Subhan, 2019).
Research with a similar theme entitled Dynamics of Policy Formulation for Electoral District Arrangement in the 2019 Election: Case Study of Selayar Islands Regency (Andi Ruslam Idrus, 2019), shows that the electoral process for the Selayar Islands Regency DPRD in the 2019 General Election is in line with the rules for structuring electoral districts. However, the difference in the number of electoral districts ultimately affected the number of local politicians who failed to nominate themselves as election participants. Even though studying the process of preparing electoral districts and seat allocation using a descriptive-analytical approach, the background to the preparation of this research is based on distrust and differences in views regarding the process of preparing electoral districts for the 2019 elections. This was expressed directly by several political party administrators in Selayar Islands Regency.
The results of previous research entitled Apportionment and Redistricting Process for the US House of Representatives (Eckman, 2021) also stated that the population census and the reorganization of electoral districts
greatly influenced the representation of the House of Representatives in the United States.
It was also found that efforts to expand regions were intended to support the interests of a group unfairly (gerrymandering). This indicates that district boundaries can be designed in such a way as to benefit or disadvantage certain groups of voters.
Research on electoral districts and seat allocation has also been studied by Syaiful Azhar, Tonny P. Situmorang & Bengkel Ginting in their article entitled Policy for Structuring and Determining Electoral Areas for DPRD Deli Serdang Regency 2019 Elections (Syaiful Azhar, 2023). This research resulted in the conclusion that in the electoral process, there were interpretations that were not in line with the electoral rules set by the KPU theoretically. In the end, restrictions on the maximum and minimum numbers in determining seats in representative institutions have triggered inequality in the value of votes at the national, and provincial levels, and also between districts/cities in the region.
The common thread from several of the studies above is that the electoral process has not fully run according to the rules set by the KPU. Even though electoral districts play an important role in determining the electoral system. Apart from that, the electoral district will also affect the stability of the government held by the leader who wins the election. Thus, there needs to be a review process in every legislative election held, where election participants will have an interest in their electoral district to tie votes and obtain seats.
This is the urgency of the electoral process which must comply with the rules (Lestari, 2016).
Election and Allocation of Seats refers to several things, including (1) an increase or decrease in the population of a certain amount which affects the allocation of seats for an electoral district; (2) some areas are split/expanded for certain reasons or due to natural events that result in the loss of an area;
and (3) electoral districts found in the previous election conflicted with the rules for structuring electoral districts (Habieby, 2022).
Table 1. Districts/Cities in Central Java that received additional seats Regency/
City Total population Number of
Districts
Number of electoral districts
Chairs amount
2019 2022 2019 2022 2019 2022 2019 2022
2 3 4 5 6 7 8 9 10
Purbalingga Regency 953.304 1,027,521 18 18 5 5 45 50
Boyolali Regency 989,776 1,083,524 19 22 5 5 45 50
Sragen Regency 981,416 1,006,486 20 20 6 6 45 50
Kendal Regency 976,771 1,053,400 20 20 6 6 45 50
Source: Central Java Province KPU
Changes in the administrative area and population in Boyolali Regency, as contained in the table, ultimately affect the electoral district scheme and the number of seat allocations.
Therefore, the process carried out in determining the policy for structuring electoral districts and seat allocation in Boyolali Regency is the main focus of this research.
RESEARCH METHODS
The method used in this research is a descriptive research method with a qualitative approach. This method is used because the researcher wants to describe visible facts or symptoms as well as explore a phenomenon/social reality. According to Strauss and Corbin in the book Research
Methodology (V. Wiratna Sujarweni, 2022), qualitative output provides findings that cannot be obtained by reading statistical tables or using quantitative research methods. This type of qualitative method is applied in research that involves community life, history, behavior, organizational functionalization, social activities, and so on as objects. Meanwhile, descriptive research leads to a systematic description or picture, which involves the inevitability of what happens and the relationships that occur in the phenomenon being studied.
To obtain authentic and objectively accountable instructions, Ruslan (V. Wiratna Sujarweni, 2022) writes that two types of data sources are used as references, namely:
primary data and secondary data. Primary data was collected directly by researchers through face-to-face interviews with sources. The main data needed in this research is data obtained from interviews with election organizers in Boyolali Regency, as the party who is the subject who summarizes the proposals for forming electoral districts and dividing seats in the 2024 elections in Boyolali Regency.
Meanwhile, secondary data is obtained and collected by people who conducted previous research from existing sources. Apart from that, data was obtained in the form of documents/archives belonging to the Boyolali Regency KPU, Central Java Province KPU, and RI KPU, books, previous research reports, the Internet as well as several supporting literature
in this research. Data collection techniques for this research are in-depth interviews and archiving.
RESULTS AND DISCUSSION
The Process of Arranging Electoral Districts and Allocating Seats
Aggregate Population Data per District (DAK2) is the first document required in the process of structuring electoral districts and allocating seats for the Regency/City DPRD Member Elections. The Ministry of Home Affairs officially submitted DAK2 to the KPU on October 14, 2022, where the data was used as a reference in the electoral process for the 2024 Election.
Figure 1. Stages of Electoral District Formation and Seat Allocation Source: KPU Regulation Number 6 of 2022.
The Indonesian KPU then carried out examination and research on population data and government administrative area data. This data is then compared with a map of government administrative areas, to be used as a basis for preparing and determining the number of seats for DPRD members at the Regency/City level. The results of this synchronization were then outlined in KPU Decree Number 457 of 2022 concerning the Number of Seats for Members of Regency/City
Regional People's Representative Councils in the 2024 General Election. The number of seats determined by the KPU is the basis for the KPU at the Regency/City level to organize electoral districts and the Allocation of seats for Regency/City DPRD members. The Regency/City KPU has the right to submit a maximum of 3 (three) drafts of electoral district arrangement and seat allocation. This draft was then announced and carried out a public test in districts/cities, involving all elements of society
and stakeholders, including members of the DPRD, Forkopimda, related services/agencies, political parties, community organizations, religious organizations, media crews, and several universities. existing in the area.
Furthermore, the draft electoral district arrangement and seat allocation for Regency/City DPRD members which have gone through public examination, will be determined and forwarded to the Provincial KPU for scrutiny. After scrutinizing and recapitulating, all drafts from districts/cities are submitted to the KPU at the central level, for further scrutinization and consultation with the DPR, before being finalized in a KPU decision.
The population of Boyolali Regency from the 2019 Election to the 2024 Election has increased by 93,748 people so the total population as a basis for the 2024 Election is 1,083,524 people.
Table 2. Seat Allocation Provisions for each district/city by looking at population Total population Chairs amount
Up to 100,000 20 seats
100,001 to 200,000 25 seats 200,001 to 300,000 30 seats 300,001 to 400,000 35 seats 400,001 to 500,000 40 seats 500,001. up to 1,000,000 45 seats 1,000,001 to 3,000,000 50 seats More than 3,000,000 55 seats
Source: Law Number 7 of 2017 concerning General Elections.
Based on Article 191 paragraph 2 of Law Number 7 of 2017, for districts/cities with a population in the range of 1,000,000 to 3,000,000 people, 50 seats will be allocated.
The number of seat allocations for Boyolali Regency increased from the original 45 seats for the 2019 Election, to 50 seats for the 2024 Election. Almost all sub-districts in Boyolali Regency experienced an increase in population, except for the Ampel sub-district, Musuk sub- district, and Kemusu sub-district, because all three experienced regional expansion.
Table 3. Boyolali Regency DAK2 for the 2019 Election and 2024 Election
No Subdistrict 2019
ELECTION 2024 ELECTION
1 2 3 4
1 Cello 28,382 30,639
2 Ampel 77,975 41,511
3 Cepogo 55,983 61,437
4 Musuk 58,546 32,834
5 Boyolali 67,959 73,980
6 Mojosongo 54,008 60,544
7 Terrace 46,039 50,993
8 Palm 31.102 32,644
9 Banyudono 49,449 53,483
10 Sambi 45,200 48,636
11 Suck it up 83,260 92.405
12 Nogosari 66,234 74,039
13 Simo 46,701 51,636
14 Karanggede 43,324 47,495
15 Klego 45,898 50,446
16 Andong 59,118 63,176
17 Kemusu 43,148 35,692
18 Wonosegoro 54,317 40,254
19 Juwangi 33,133 36,016
20 Gladagsari 43,548
21 Tamansari 30,328
22 Wonosamodro 31,788
Total population 989,776 1,083,524 Source: Boyolali Regency KPU
Furthermore, to achieve equal vote values or seat prices between electoral districts with the principle of one person, one vote, one value, it is necessary to calculate the Population Divisor Number (BPPd). BPPd is obtained by dividing the population of a district/city by the number of seats determined for the Regency/City DPRD.
Figure 2. Calculating Regency/City BPPd Source: KPU Decree No. 18/PP.02-
Kpt/03/KPU/I/2018
With this calculation mechanism, the population will be proportional to the number of seats available, and the price of seats from one electoral district to another will be more or less the same. The BPPd figure is then used as a
dividing number to determine the estimated seat allocation per sub-district. Estimates of sub-district seat allocation are obtained by dividing the population figures per sub-district by the BPPd figures. The following is a calculation of the BPPd figure for Boyolali Regency so the BPPd figure is found to be 21,670.
Figure 3. Calculating the Estimated Allocation of Seats Per District
Source: Boyolali Regency KPU
After calculating the BPPd figures and estimating the allocation of seats per sub- district, the Regency/City KPU then prepares an electoral district scheme consisting of a sub- district or part of a sub-district, by observing the estimated number of seat allocations per sub-district as well as the rules for structuring electoral districts that have been determined and regulated in statutory provisions.
Figure 4. Calculating the Estimated Allocation of Seats Per District
Source: KPU Decree No. 18/PP.02- Kpt/03/KPU/I/2018
The estimated seat allocation per electoral district is calculated in the same way, namely by dividing the population per electoral district by the BPPd.
Figure 5. Calculating the Estimated Allocation of Seats Per Dapil
Source: KPU Decree No. 18/PP.02- Kpt/03/KPU/I/2018
If during the calculation process, a result is found in the form of a fraction, then the fraction is eliminated. If at the first stage of the calculation, there are remaining seat distributions, then the remainder is distributed to the group of electoral districts with the highest remaining population. To calculate the remaining population figure for each electoral district can be obtained by subtracting the population of each electoral district before dividing it by multiplying the BPPd with the Seat Allocation obtained in the first stage of calculation, as formulated in Figure 6.
Figure 6. Calculating the remaining population per electoral district
Source: KPU Decree No. 18/PP.02- Kpt/03/KPU/I/2018
The KPU at the Regency/City level is guided by the rules set out in KPU Regulation Number 6 of 2022 concerning the Arrangement of Electoral Districts and Allocation of Seats for Regency/City DPRD Members in General Elections(KPU Regulation No.6/2022 concerning the Arrangement of Electoral Districts and Allocation of Seats for District/City DPRD Members in the 2022 Election). These guidelines are the basis for realizing voters' trust in candidates to fight for the aspirations of voters in each electoral district. The seven principles are as follows.
1) Equal Vote Value, is formulated as an effort to realize equal vote value or seat prices between 1 (one) electoral district and other
electoral districts with the principle of 1 (one) person-one vote-one value.
2) Adherence to a Proportional Election System is realized by prioritizing a large number of seats. This is intended so that the percentage of seats obtained by each political party is equivalent to the percentage of valid votes obtained.
3) Proportionality, translated as a principle of equal distribution of seats, by paying attention to the number of seats between electoral districts so that balance is maintained.
4) Regional Integrality, is realized by paying close attention to each province, district/city, or sub-district which will be organized into 1 (one) unitary electoral district located on the border, while still prioritizing regional integrity and integration, as well as paying attention to geographical conditions, transportation
facilities, and other aspects. ease of transportation as a consideration.
5) Are in the Same Area Coverage. The preparation of electoral districts for Regency/Municipal DPRD members, which consist of 1 (one), several, and/or sub- districts, must be completely included in an electoral district for Provincial DPRD members.
6) Cohesiveness, which is translated as the preparation of electoral districts by considering historical factors, socio-cultural conditions, customs, and minority groups.
7) Continuity, translated as Efforts to Arrange electoral districts based on the electoral district design in the previous Election, unless the Allocation of Seats in the Dapil is more than the maximum limit of Allocation of Seats for each Dapil, or if it is contrary to the six rules above.
Figure 7. Calculation of Seats Using 2019 Election Constituencies in Boyolali Regency Source: Boyolali Regency KPU
In the process, the KPU uses the Electoral District Information System (Sidapil). Sidapil is an information system and technology that is used as a support tool in the preparation process and arrangement of electoral districts and distribution of seats. Sidapil is an information portal for electoral districts (Dapil) which is presented in digital form and is
continuous with the general election information system. Sidapil is also used as a means for the Regency/City KPU to convey event reports and notes on the results of scrutiny of the Electoral District Arrangement and Seat Allocation in the form of digital copies.
As a means of openness, the KPU also provides access to reading Sidapil data to Bawaslu.
First of all, the Boyolali Regency KPU calculated the seat allocation using the Election Dapil used in 2019, with the BPPd value calculated based on the latest population of Boyolali Regency, namely 21,670. With the addition of a population of 93,748 people, the number of seat allocations for the 2024 elections has increased to 50 seats. The following is a table of seat allocation calculation results with BPPd 21,670 using the 2019 electoral electoral district scheme.
Bang pilih saGladagsari subdistrict originates from the division of Ampel subdistrict. Therefore, this sub-district is included in the Boyolali 1 electoral district.
Tamansari District was formed from the expansion of Musuk District, so it is included in the Boyolali 2 electoral district. Meanwhile, Wonosamodro District was formed from the expansion of Wonosegoro District, so it is included in the Boyolali 3 electoral district.
Based on the simulation results of calculating seat allocation using the 2019 electoral electoral district scheme, it can be seen that the Boyolali 1 electoral district exceeds the maximum number of seats, namely
13 seats. As regulated in Article 192 paragraph (2) of Law Number 7/2017, the number of seats for each district/city DPRD member electoral district is at least 3 (three) seats and a maximum of 12 (twelve) seats (Law 7 concerning Elections, 2017). In this way, the Boyolali 1 electoral district exceeds the maximum limit for the number of seats.
Meanwhile, Dapil Boyolali 2 and Dapil Boyolali 3 still fulfill their quota of seats.
Because the Electoral District Scheme in the previous election did not meet the requirements, the Boyolali Regency KPU carried out a realignment and proposed two schemes for structuring electoral districts and seat allocation as a basis for carrying out the 2024 Election. Each of these schemes was determined based on population conditions and regional dynamics in Boyolali Regency.
The first electoral district design and seat allocation scheme is to divide the Boyolali Regency area into five electoral districts. Each electoral district consists of four to five sub- districts, as depicted in the following draft map 1 of the electoral district arrangement and seat allocation.
Figure 8. Design Map 1 Arrangement of Electoral Districts and Allocation of Seats (5 Electoral Districts) Source: Boyolali Regency KPU
Figure 9. Plan 1 for Calculating Seats with BPPd 21,670 using the 2024 Election Constituencies Source: Boyolali Regency KPU
The second electoral district design scheme and seat allocation are to divide the Boyolali Regency area into six electoral districts, each of which varies in the number of
sub-districts, ranging from two to five sub- districts, as shown in the following draft map of 2 electoral electoral districts and seat allocation.
Figure 10. Design Map 2 of Electoral District Arrangement and Seat Allocation (6 Electoral Districts) Source: Boyolali Regency KPU
Figure 11. Plan 2 for Calculating Seats with BPPd 21,670 using the 2024 Election Constituencies Source: Boyolali Regency KPU
Next, the Boyolali Regency KPU held a public examination of the draft electoral proposal and seat allocation. This Public Test is a means for related stakeholders such as regional government, political parties in Boyolali, Bawaslu Boyolali, election observers, academics, community leaders/traditional leaders, and also other stakeholders. This activity summarizes several things related to the process of preparing electoral districts and calculating seats, which includes the draft arrangement of electoral districts that have been prepared, the methods used, and a recapitulation of input and responses from the community. Each stakeholder provides input and responses to the proposed design. After receiving input and suggestions, the Boyolali Regency KPU then finalized the design for the electoral district arrangement and seat allocation by taking into account the results of public tests, input, and responses from the community, as well as the results of consultations with the KPU. The final document was then presented at a plenary meeting, where 2 (two) plans for the arrangement of electoral districts and seat allocation were approved and determined. The results of the plenary are presented in the form of minutes (BA), and submitted to the KPU via the Provincial KPU, in the form of a digital copy via the Sidapil
Application, accompanied by supporting documents, such as public test results reports, and recapitulation of public input and responses.
The Provincial KPU then examines the documents to see whether they fulfill the electoral and seat allocation rules, such as the provisions for calculating seat allocations for each electoral district, the provisions for preparing electoral districts, reports on the results of the Public Test, along with other supporting documents that can be accounted for. Next, the Provincial KPU forwards the document to the Indonesian KPU.
The Indonesian KPU receives the proposed draft arrangement for electoral districts and seat allocation from the Provincial KPU and then checks the documents sent by the Provincial KPU and Regency/City KPU for each electoral district. An examination was carried out on the suitability of the provisions for calculating the Allocation of Seats for each Dapil, the suitability of fulfilling the principles for preparing Dapil, the report on the results of the Public Test, naming and determining the order of Dapil; and notes on the results of observations from the Provincial KPU.
After reviewing it, the KPU then consulted on the results of the electoral district arrangement and seat allocation with the
People's Representative Council (DPR). The results of the observation and consultation are then determined in a plenary meeting, as well as outlined in the BA and promulgated in the KPU Decree regarding electoral districts and seat allocation for all districts/cities.
Implementation of Seven Principles for Structuring Electoral Districts and Allocation of Seats in Boyolali Regency
On February 6, 2023, the Chairman of the Indonesian KPU stipulated KPU Regulation Number 6 of 2023 concerning Electoral
Districts and Allocation of Seats for Members of the DPR, Provincial DPRD, and Regency/City DPRD for the 2024 Election. This KPU Regulation contains decisions regarding the determination of electoral districts and allocation of seats for the 2024 elections in all regions of the Republic of Indonesia, for the election of members of the People's Representative Council (DPR), Provincial Regional People's Representative Council (Provincial DPRD), and Regency/City Regional People's Representative Council (Regency/City DPRD).
Table 4. Comparison of Electoral Districts and Allocation of Seats for the 2024 and 2019 Boyolali Regency DPRD Member Elections
2024 ELECTION 2019 ELECTION
2024 ELECTI
ON DISTRIC
T
CHAIRS AMOUN
T
NUMBE R OF SEATS
PER DISTRIC
T
DISTRICT AREA
2019 ELECTI
ON DISTRIC
T
CHAIRS AMOUN
T
NUMBE R OF SEATS
PER DISTRIC
T
DISTRICT AREA
1 2 3 4 5 6 7 8
Boyolali
1 50 10 Ampel, Boyolali,
Mojosongo, Teras Boyolali
1 45 11 Ampel, Boyolali,
Mojosongo, Teras Boyolali
2 9 Selo, Cepogo, Musuk,
Tamansari, Gladisari Boyolali
2 6 Selo, Cepogo, Musuk,
Boyolali
3 9 Karanggede, Kemusu,
Wonosegoro, Juwangi, Wonosamodro
Boyolali
3 8 Karanggede, Kemusu,
Wonosegoro, Juwangi, Boyolali
4 11 Nogosari, Simo, Klego,
Andong Boyolali
4 10 Nogosari, Simo, Klego,
Andong Boyolali
5 11 Sawit, Banyudono,
Sambi, Ngemplak Boyolali
5 10 Sawit, Banyudono,
Sambi, Ngemplak Source: KPU Regulation No. 6 of 2023 and KPU Decree No. 276/PL.01.3-Kpt/06/KPU/IV/2018
As in the table above, the Indonesian KPU has determined and ratified the electoral districts and seat allocation for the Boyolali Regency. This scheme is the first proposal submitted by the Boyolali Regency KPU. Apart from that, the differences in electoral district schemes and seat allocation between the 2024
Election and the 2019 Election (the previous election) are also clearly visible as shown in the table, that changes in administrative areas and population changes affect the composition of each electoral district and changes in the number of seat allocations given.
Figure 12. Electoral District Map and Seat Allocation for the 2024 Boyolali Regency DPRD Member Election as determined by the Indonesian KPU
Source: Sidapil
By Article 2 of KPU Regulation Number 6 of 2022 concerning the Arrangement of Electoral Districts and Allocation of Seats for Regency/City DPRD Members in Elections, in structuring Dapils and Allocation of Seats, the Regency/City KPU must pay attention to seven rules/principles. The following is an analysis of the fulfillment of the seven principles for drafting the 2024 electoral district in the Boyolali Regency.
1) Equal Value of Votes
This rule is an effort to realize equality in the value of votes or seat prices between 1 (one) electoral district and other electoral districts, guided by the principle of 1 (one) person-one vote-one value. (OPOVOV), which boils down to the equal value of each voter's vote. The value of voters' votes in determining their representatives should be the same as other voters wherever they are (Reynolds, Reilly, and Ellis 2005). This is to the values that everyone is equal in law and government so
that in a democracy it is defined as fulfilling the rights of the nation through representation.
Fulfillment of the principle of equal vote value can be determined by calculating the bias towards an equal population. Before determining the equal population, the quota population must first be known, which is then known as the Voter Dividing Number (BPPd) in KPU Regulation number 16/2917 (Subhan, 2019). The BPPd then becomes a reference for whether an electoral district and another electoral district have seat prices that are equal to the population divisor number (BPPd) for each electoral district.
The principle of equal vote value is applied by taking into account the distribution of seats in the electoral district. By the Technical Guidelines for Structuring Electoral Districts and Allocation of Seats for Regency/City DPRD Members, as stated in KPU Decree No. 488, the distribution of seats in electoral districts is said to be equal if the electoral district BPPd is still within the range
KOMISI PEMILIHAN UMUM PEMILIHAN UMUM TAHUN 2024
BOYOLALI 1
BOYOLALI 2
BOYOLALI 3
BOYOLALI 4
BOYOLALI 5 AMPEL
BOYOLALI MOJOSONGO TERAS
SELO CEPOGO MUSUK GLADAGSARI TAMANSARI
KARANGGEDE KEMUSU WONOSEGORO JUWANGI WONOSAMODRO
NOGOSARI SIMO KLEGO ANDONG
SAWIT BANYUDONO SAMBI NGEMPLAK
Inset Peta Kabupaten/Kota
U
10
Km PETA DAERAH PEMILIHAN DAN ALOKASI KURSI ANGGOTA DEWAN PERWAKILAN RAKYAT DAERAH KABUPATEN/KOTA
BOYOLALI PROVINSI JAWA TENGAH 50 KURSI - 5 DAERAH PEMILIHAN JUMLAH PENDUDUK : 1,083,524 JIWA
BPPd : 21,670 JIWA DAERAH PEMILIHAN
LAMPIRAN II.10
KEPUTUSAN KOMISI PEMILIHAN UMUM NOMOR : 156 TAHUN 2023
KETUA KOMISI PEMILIHAN UMUM,
HASYIM ASY'ARI
INSET PETA PROVINSI
∎
∎
∎
∎
∎
00000 55555 10km10km10km10km10km
of less or more than 10% of the Regency/City BPPd. In other words, if the parameters between BPPd Dapil and BPPd Regency/City are in the range of 90% to 110%, or close to 100%, then they can still be called equal (KPU Decision No. 488, 2022).
After determining the BPPd at the Regency/City level, the BPPd per Dapil is then
calculated and the percentage of BPPd for the Dapil to the district/city BPPd is calculated.
BPPd per electoral district is obtained by dividing the population by the allocation of DPRD seats per electoral district, to obtain the values as shown in the following table.
Table 5. Calculation of BPPd per electoral district DAPIL
NUMBER OF POPULATION
per-district
NUMBER OF SEATS
Per District
BPPd PER DAPIL (population divided by seat
allocation)
DEVIATION VALUE towards BPPd District Level.
Boyolali
1 2 3 4 5
Boyolali 1:
Ampel, Boyolali, Mojosongo, Teras 227,028 10 22,702 104.76%
Boyolali 2:
Selo, Cepogo, Musuk, Tamansari, Gladisari 198,786 9 22,087 101.92%
Boyolali 3:
Karanggede, Kemusu, Wonosegoro, Juwangi,
Wonosamodro 191.245 9 21,249 98.05%
Boyolali 4:
Nogosari, Simo, Klego, Andong 239,297 11 21,754 100.39%
Boyolali 5:
Sawit, Banyudono, Sambi, Ngemplak 227,168 11 22,716 95.29%
Regency. Boyolali 1,083,524 50 21,670
Source: Author's Process The population per electoral district is the
total population of each sub-district in an electoral district composition. Based on the calculations in the table above, it can be seen that the comparison between the BPPd in each electoral district and the BPPd at the Boyolali Regency level is still in the range of 90% to 110%. Thus, by KPU Decree Number 448 of 2022, the distribution of seats for each electoral district is considered to be still equal. This also proves that the principle of equality of vote value can be fulfilled.
2) Adherence to a Proportional Election System
This is a principle that prioritizes the arrangement of electoral districts with a large number of seats. This is intended to achieve equality between the percentage of seats obtained by each political party and the percentage of valid votes obtained. Efforts are made for each electoral district to have a minimum of 3 seats and a maximum of 12 seats.
Fulfillment of this principle can be seen from the comparison between the average size of electoral districts and the difference between the highest and lowest seat allocations. Based on the arrangement of electoral districts and
seat allocations that have been determined by the Indonesian KPU, electoral districts and seat allocations for the Boyolali Regency can be said to have fulfilled the rules of compliance with a proportional election system. This can be seen from a large number of seat allocation schemes, namely: Dapil 1 with 10 seats, Dapil 2 with 9 seats, Dapil 3 with 9 seats, Dapil 4 with 11 seats, and Dapil 5 with 11 seats.
3) Proportionality
This principle is fulfilled by examining the median value of the district/city seat allocation, which is obtained by dividing the number of seats by the number of electoral districts to be formed. The assumption is that if the distribution of seats in each electoral district is close to or equal to the average value of seat allocation, then the electoral district is considered to be close to proportional. Apart from that, the proportional principle also carries a mission so that the difference in seat allocation between electoral districts is not too large, by calculating the difference between the electoral district with the highest seat allocation and the electoral district with the lowest seat allocation. The smaller the
difference, the more proportional the electoral district is considered to be.
In the Electoral District Arrangement and Seat Allocation determined by the Indonesian KPU for Boyolali Regency, the highest electoral district seat allocation is 11 seats, while the lowest electoral seat allocation is 9 seats, so the disproportionality index is only 2 seats.
Meanwhile, the average seat allocation is calculated from the comparison between the number of seats (50 seats) and the number of electoral districts (5 electoral districts), so that an average seat figure of 10 is obtained.
From these figures, it can be concluded that the composition of the proposed electoral district is close to fulfilling the rule of proportionality. This is shown by the disproportionality index value of 2 and the number of seat allocations approaching an average of 10 seats, namely Dapil 1 with 10 seats, Dapil 2 with 9 seats, Dapil 3 with 9 seats, Dapil 4 with 11 seats, and Dapil 5 as many as 11 seats.
4) Regional Integrality
The principle of regional integrality is realized by considering regional unity and integration, geographical situation, transportation infrastructure, and aspects of ease of population mobility in the form of transportation, as considerations in uniting several sub-districts into one electoral district.
The arrangement of electoral districts and seat allocation in Boyolali Regency has taken into account border areas, regional unity and integration, geographical conditions, transportation infrastructure, and aspects of population mobility in the form of transportation. This can be seen from the shift in Gladagsari District which was separated from Ampel District. Gladagsari District and Ampel District are in an area separated by the main provincial highway, making it possible for Gladagsari District to be moved to Dapil 2, while Ampel District remains in Dapil 1.
Gladagsari District is combined with Dapil 2 along with Selo District, Cepogo District, Musuk District, and Tamansari District which are geographically located around the slopes of Mount Merbabu. Thus, the principle of regional integrity has been fulfilled.
5) Are in the Same Area Coverage
Fulfillment of this rule is realized in the arrangement of electoral districts for Regency/City DPRD members, which consist of
1 (one), several, and/or sub-districts, which are completely included in an electoral district for Provincial DPRD members. The arrangement of electoral districts and allocation of seats for Boyolali Regency has fulfilled the principle of being in the same area. This can be seen from the preparation of electoral districts which are formed from several sub-districts, where each sub-district is still included in the same electoral district for Provincial DPRD Members.
The electoral districts that have been mapped are within the electoral district coverage area with a higher level, namely Dapil Jateng 8 for the DPRD of Central Java Province.
6) Continuity
This principle is translated by looking at historical factors, socio-cultural conditions, customs, and minority groups, and paying attention to existing electoral districts in the 2019 elections. The Boyolali Regency KPU is making efforts to prepare electoral districts by maintaining the number of electoral districts and the composition of existing sub-districts or sub-district parts. or at least the same as the 2019 Election.
By Boyolali Regency Regional Regulation No. 18 of 2018 concerning the formation of Gladagsari District, Tamansari District, and Wonosamodro District, the expansion of the Boyolali Regency area took effect on November 12, 2018. However, the arrangement of electoral districts with a 22-district scheme will only be implemented in the 2024 election. In 2019, it still uses the electoral district scheme with 19 sub-districts. This is because the schedule for the submission of Aggregate Population Data per Subdistrict (DAK2) as the basis for preparing Regency/City DPRD Dapil for the 2019 Election, is scheduled for 17 December 2017, so the preparation of electoral districts and seat allocation for the 2019 Election in Boyolali Regency is still using regional data in 2017 (KPU Regulation Number 7/2019 concerning the Third Amendment to KPU Regulation Number 7 of 2017 concerning Stages, Programs and Schedules for the 2019 Election, 2019). Meanwhile, for the 2024 elections, Boyolali Regency has used the 22 sub- district scheme. The expansion of the region in Boyolali Regency, from the original 19 sub- districts to 22 sub-districts, means that the principle of continuity cannot be applied.
Simulations using the 2019 election electoral districts have been carried out, using
the latest BPPd for Boyolali Regency. As a result, the Boyolali 1 electoral district received 13 seats. As regulated in Article 192 paragraph (2) of Law Number 7/2017, the number of seats for each district/city DPRD member electoral district is at least 3 (three) seats and a maximum of 12 (twelve) seats (Law 7 concerning Elections, 2017). In this way, the Boyolali 1 electoral district exceeds the maximum limit for the number of seats.
Meanwhile, Dapil Boyolali 2 and Dapil Boyolali 3 still fulfill their quota of seats.
In the end, adjustments had to be made to the electoral district and seat allocation for Boyolali Regency, so that it changed from the previous election. The principle of continuity cannot be fulfilled due to regional expansion and population growth which has an impact on increasing the number of seats.
7) Cohesiveness
This principle is fulfilled by studying the history, socio-cultural conditions, customs, and minority groups in the Boyolali Regency.
Grouping areas into one electoral district should pay attention to similarities in culture, customs, and history, to minimize conflicts that may arise. The arrangement of electoral districts and seat allocation for Boyolali Regency has taken into account history, socio- cultural conditions, and customs so that the principle of cohesiveness is fulfilled. This can be seen from the composition of the electoral districts, where electoral district 1 is an area with typical urban and peri-urban characteristics, as well as a transition area.
Electoral District 2 is located on the slopes of Mount Merapi and Merbabu, which are considered to have similar cultures. Electoral District 3, which is in the northern region of Boyolali Regency, has almost the same social culture. Electoral District 4 is in a regional unit and has almost the same social culture.
Electoral District 5 has an agrarian social culture and some of it borders other districts/cities.
CONCLUSION
A study of the electoral district structuring process and seat allocation for the 2024 elections in Boyolali Regency shows that there is a need to make changes to the sub- district composition and seat allocation in some electoral districts. There are three basic references for structuring and changing
electoral districts in Boyoali Regency. The first is an increase in the number of seat allocations in one electoral district that exceeds the maximum limit and/or is less than the minimum limit determined by law. Second, there is a regional expansion from the original 18 sub-districts to 22 sub-districts in Boyolali Regency. Third, there is an electoral district structure and seat allocation that is contrary to the principles of electoral district structuring in the previous election, which required changes and rearrangement of the regional structure within the electoral district.
In an election system, the arrangement of electoral districts and seat allocation is a very technical stage. Many factors influence each other, not only revolving around the core value of representation but also political aspects in the micro-scope of election administration. The size of the electoral district influences the number of representatives elected, and this is an important factor that determines the ability of an electoral system to convert votes proportionally into seats, so that there is no over-representation or, conversely, under- representation. The electoral district that is formed is expected to be able to represent the population in the area, to avoid what is called inequality between the population and the distribution of seats.
The guidelines for the 7 principles for structuring electoral districts and allocation of seats prepared by the KPU are the basis for realizing the trust of voters in candidates to fight for the aspirations of voters in each electoral district. The study of electoral district structuring and seat allocation in Boyolali Regency shows that, first, the principle of equal vote value as a whole is still within the corridor that meets the requirements. The application of this principle can be seen in the process of calculating seat allocation, where each electoral district is allocated seats according to the number of residents domiciled in that area. This is to prevent the creation of conditions in electoral districts that are "under-represented"
or electoral districts that are "over- represented".
The dynamics of the population in Boyolali Regency have resulted in an increase in the number of seat allocations from a total of 45 seats to 50 seats. The population of the Boyolali Regency for the 2024 elections is 1,083,524 people. This number increased by
93,748 people compared to the 2019 election, namely 989,776 people. Meanwhile, the determination of the number of seats is based on Article 191 paragraph 2 of Law Number 7 of 2017, where for a population of 1,000,000 to 3,000,000 people, the seat allocation is 50 seats.
The Boyolali Regency KPU simulated electoral district arrangement and seat allocation using electoral districts and seat allocation in the 2019 Election but using the latest BPPd which is in numbers 21,670, which is obtained from the division between the latest total population for the 2024 Election (1,083,524 people), divided by the total number of seats obtained (50 seats). The simulation results of calculating the allocation of seats, which are the same as the 2019 Election Dapil, show that the Boyolali 1 Dapil exceeds the maximum number of seats, namely 13 seats. As regulated in Article 192 paragraph (2) of Law Number 7/2017, the number of seats for each district/city DPRD member electoral district is at least 3 (three) seats and a maximum of 12 (twelve) seats. Therefore, it is necessary to reorganize the composition of sub- districts in each electoral district.
Based on the deviation values obtained, Dapil Boyolali 1 is the over-representative electoral district, followed by Dapil Boyolali 2, Dapil Boyolali 4, Dapil Boyolali 3, and Dapil Boyolali 5. However, the principle of Equality of Vote Value is still fulfilled because the comparison between the BPPd of each Dapil with BPPd at the Boyolali Regency level is still in the range of 90% to 110%.
Second, adherence to a proportional electoral system, is intended to ensure that the percentage of seats obtained by each political party is proportional to the percentage of valid votes obtained. This expansion caused there has been a change in the composition of sub- districts and a shift in the allocation of seats for the 2024 Election. The scheme for the number of seat allocations has changed in all electoral districts. In the 2019 election, the seat allocation scheme sequentially starting from electoral district 1 onwards was 11, 6, 8, 10, and 10, for a total of 45 seats. Meanwhile, for the 2024 election, the seat allocation scheme is 10, 9, 9, 11, and 11, for a total of 50 seats.
Comparison between the average size of electoral districts and the difference between the highest (11 seats) and the lowest (9 seats) seat allocation is 2 seats, so this also fulfills the
principle of compliance with a proportional electoral system and the principle of proportionality.
Third, the principle of regional integrality must consider the integrity and integration of the region, geographical conditions, means of transportation, and aspects of ease of transportation in organizing several sub- districts into one electoral district. Fulfillment of this principle can be seen from the change in the composition of sub-districts in Dapil 2 and Dapil 3. Gladisari Subdistrict, which is geographically located around the slopes of Mount Merbabu, was placed in Dapil 2, where previously it was in Dapil 1 along with Ampel Subdistrict which had not been expanded in the 2019 Election.
Meanwhile, the Tamansari sub-district, which is a division of the Musuk sub-district, is still placed in the same electoral district as the 2019 election, namely in electoral district 2.
Likewise, the Wonosamodro sub-district, which is a division of the Wonosegoro district, remains in the same electoral district, namely Electoral District 3, considering that each -Of these sub-districts is still in adjacent area coverage. This arrangement also fulfills the principle of being in the same area, where each sub-district is still included in the same electoral district for members of the Provincial DPRD.
Fourth, the principle of continuity cannot be fulfilled, because the composition of electoral districts and allocation of seats for the 2019 Election no longer fulfills the principles of arrangement of electoral districts and allocation of seats due to the increase in population and expansion of sub-district areas.
The gap in seat prices between electoral districts has had contradictory impacts. On the one hand, election participants are given the ease of winning the people's vote, but on the other hand, some find it difficult to get a seat because the price is more expensive. Therefore, the arrangement of electoral districts and the allocation of seats for all elections should be based on the dynamics of population and administrative areas at a certain time, approaching the implementation of the voting and vote-counting stages. An electoral district arrangement scheme that is not balanced with the development of population and regional administrative boundaries will have far- reaching implications, not only on the value of
people's representation (proportionality) and accountability of people's representatives but also on the party system and people's representation system that will later be produced.
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