INTRODUCTION
One of the environmental issues of concern around the world is waste management. The amount of waste produced continues to increase along with the increase in human population. Report published by the World Bank in 2012 revealed that the amount of solid waste generated by cities in the world will continue to increase by 70% from 2012 to 2025, from 1.3 billion tons per year to 2.2 billion tons per year. The majority of the increase in waste generation occurs in cities in developing countries (Hoornewg and Tata, 2012). Proper waste management needed to control waste generation and does not cause adverse effects to the health of society at large (Tchobanoglous, et.al, 1993).
Municipality of Depok as one of the buffer cities for the State Capital has a serious problem in terms of waste management. The city is geared to be a residential city, education city, center for trade and services, tourism city, and as a city of water infiltration (BPS of Municipality
of Depok, 2011). As one of buffer cities for Jakarta, the Municipality of Depok grows and develops quite rapidly.
The increasing development activity and population growth have direct impacts on increasing waste or waste production. Based on the data from the Sanitation and Park Service of the Municipality of Depok in 2010, the estimated produced-waste in Municipality of Depok is 4,250 m³ per day and the result of Population Census (PC) of Municipality of Depok of 2010 shows that the number of population of the Municipality of Depok is 1,736,565 people (BPS [Central Bureau of Statistics] of Municipality of Depok, 2011). The number of population in the Municipality of Depok keeps increasing, which until 2011 reaches 1,813,612 people, namely consisting of 918,835 male people and 894,777 people with population growth rate of 4.32% (BPS of the Municipality of Depok, 2011). The following graph shows the comparison of the projected population and the volume of waste generated in the municipality of Depok in the year 1999 to 2011:
The Design of Change in Waste Management Policy:
Application of Soft Systems Methodology
MARIA DIKA PUSPITA SARI AND UMANTO
Public Administration, Faculty of Social and Political Sciences, Universitas Indonesia [email protected] and [email protected]
Abstract. Municipality of Depok faces complex waste problems. The amount of waste continues to grow with the increasing population and people’s activities. The Local Government has established a policy to deal with the waste problems by applying the Integrated Waste Management System (SIPESAT) since 2006. However, there are some resistances in the implementation of the waste management system. This study aims to give recommendation about policy changes of waste management policy in Municipality of Depok. This research applies soft systems methodology. The use of the hierarchical policy process as proposed by Bromley (1989) indicating the role of institutions that guiding the actors at each level to perform their roles to achieve the integrated waste management system. The Local Government needs to strengthen the policy by changes the waste management policy based on the policy process that are the making of legislation on waste management at the policy level, the arrangement of SOP-UPS and optimizing the roles of Sanitary Task Force at the organizational level and the establishment of public involvement system at the operational level.
Keywords: policy change, policy process as a hirarchy, soft systems methodology, waste management, the integrated waste management system
Abstrak. Kota Depok menghadapi persoalan sampah yang kompleks. Jumlah timbulan sampah terus meningkat seiring bertambahnya jumlah penduduk dan aktivitasnya. Pemerintah Kota Depok telah menyusun kebijakan untuk menangani permasalahan sampah itu, yaitu dengan menerapkan Sistem Pengelolaan Sampah Terpadu (SIPESAT) sejak tahun 2006.
Namun demikian, pelaksanaan kegiatan pengelolaan sampah tersebut masih menemui sejumlah kendala. Penelitian ini bertujuan untuk memberikan rekomendasi desain perubahan kebijakan pengelolaan sampah di Kota Depok. Penelitian ini menggunakan metodologi serba sistem lunak. Penggunaan kerangka proses kebijakan sebagai hirarki yang dikemukakan oleh Bromley (1989a) menunjukkan adanya peran institution atau aturan (kebijakan) yang menjadi pedoman para aktor di setiap level dalam menjalankan perannya sehingga mencapai sistem pengelolaan sampah yang terpadu. Pemerintah Kota Depok perlu melakukan penguatan kebijakan melalui perubahan kebijakan pengelolaan sampah berdasarkan hirarki proses kebijakan tersebut, yaitu penyusunan Perda tentang pengelolaan sampah pada tingkat kebijakan, penyusunan SOP-UPS dan optimalisasi peran Satgas Kebersihan pada tingkat organisasional, dan pembentukan sistem keterlibatan masyarakat pada tingkat operasional.
Kata kunci: perubahan kebijakan, proses kebijakan sebagai hierarki, metodologi serba sistem lunak, pengelolaan sampah, sistem pengelolaan sampah terpadu (SIPESAT)
said opinion, it is clear that institution does not refer to the definition of organization. Further, Common (1968) in Bromley (1989a, p. 43; 1989b; 1993) mentioned institution as ‘working rules’. It is not appropriate to call schools, companies, and markets as institutions, but rather they gain their meaning from institution (as rules) itself.
Bromley (1989b) affirms that: ‘such organizations only exist because there is a set of working rules that defines them. A corporation only exist as a separate legal entity by virtue of a set of working rules that define what is, and what is not, a corporation.’ (p. 740)
According to Bromley (1989a, p. 49) there are 3 institutional characteristics, namely being able to (1) define the choice sets of independent economic actors; (2) define the relationship among individuals; and (3) indicate who may do what to whom. Bromley sees institution as consensual arrangements or behavior patterns agreed upon through mutual convention (informal rules) and regulations (formal rules or entitlements) which give clear defining of choice sets applicable to individuals and groups. Such institution has the function to guarantee a transaction.
A similar opinion also had been revealed by Schmid (1972, p. 893) stating that ‘institutions are sets of ordered relationship among people, which define their rights, exposures to the rights of others, privileges, and responsibilities.’. this definition had clarified that school, company and market may not be called as institutions, but, it more have meaning from institutions as such self rules.
According to Bromley (1989a, p. 49) there were three institutional characteristics, those are able to (1) define the choiced sets of independent economic actors; (2) define the relationship among individuals; and (3) indicate who may do what to whom. Bromley assume institution as consensual arrangements or behavior pattern agreed by joint convention (informal rules) and regulation (formal rule or entitlements) giving clear definition on choice sets applied for individuals and groups. The meaning of such institution has function to guarantee any transaction.
Then, such opinion had been strengthened by Baldwin and Cave (1999) in (Dill and Berkeens, 2010, p.7), regulation concept pertaining to binding governmental regulation and conducted by pubic agent.
In explaining about the importance of an institution, Bromley (1989a) gives explanation in general about the policy process. According to Bromley (1989a, p. 32), process of public policy can be seen as a hierarchy which has 3 (three) levels, namely policy level, organizational level, and operational level (see Figure 2). Public policy in each level is embodied in the form of institutional arrangement which covers, among other things, regulation that is appropriate with its hierarchical level. In democracy, policy level is represented by the functioning of legislative and judicative bodies, while the organizational level is represented by the executive body.
Various kinds of aspirations are debated and formulated at policy level. The implementation of such aspirations is conducted by organizations developed and based on rules and laws that determine how such organizations operate to perform their duties. Rule and law that link such policy level and organizational level are called institutional
arrangements. Institutional arrangements are made by considering the operational level, where working units in the public (household and corporate) do their daily activities so that they produce certain outcome which can be enjoyed. Public policy is democracy type (Mardiyanta, 2013).
Operational level is an operational unit that exists within the public. It is this level which subsequently interacts directly with the public so that the outcome of its interaction does not only pay attention on the output, but also must pay attention on outcomes (impacts) that are caused by its activities. Pattern of interaction (behavior) that appears on the operational level continues to be observed and such pattern of interaction will produce outcomes that are assessed by the public as being good or bad. If the result is found to be bad (has not been able to solve the problem in the public), collective response will be made through a political process and effort to change institutional arrangements defined based on individual claims at the operational level. Input from the public will be directly directed to the policy level to find new constellation of rules and laws (institutions) that will change the domain of selection for the operational level.
Waste treatment condition in Depok City through UPS it had indicated interaction pattern of inter actor to be increased in policy process and target group, ie., community. In this context should be conducted reconstruction against waste treatment policy through UPS. Based on such problem, the research question is how the design of change in waste treatment policy in Depok City through UPS within framework policy process as hierarchy by Soft System Methodology
Figure 2. The Policy Process as a Hierarchy Source: Bromley, 1989a, p.33
The seriousness of the Government of the Municipality of Depok to overcome the sanitation problem is shown by, among other things, making sanitation service as the second priority in the mainstay program of the Municipality of Depok of 2011-2016, namely ‘Depok the Clean and Green City’. Additionally, cleaning service also included in third mission of Depok City, that is
‘to manifest comfort environment and Infrastructure’.
Such Infrastructure related with cleaning management increasing (Local Developmental Planning Agency of Depok City, 2011). Allocation cleaning handling as one of main priorities in work program of such City Government may indicate that really, such problem had been concern of Depok City Government.
The incoming problem from policy side specially, Local Ordinance of Depok City on waste treatment had not been passed yet. Indeed, the forceful regulation to set forth waste treatment in Depok City specially is required so that, waste treatment implementation may be directed in better. Currently, Depok City Government applied Local Ordinance in terms of Public Order in order to enforce some citizens who throw waste haphazardly (Jurnal Nasional, 2010).
Unless by Local Ordinance on Public Order, regulation on waste treatment also had been set forth by Local Ordinance of Depok City No.5 of 2012 on Cleaning/
Waste Service Retribution. This Local Ordinance as substitutue of Local Ordinance No.41 of 2000 on Retribution of Waste Service in Depok City. By such new Local Ordinance on Retribution, Depok City Government had increased tariff of waste retribution. Some citizens had refused the increasing of such waste retribution
Waste Treatment System in Depok City called Integrated Waste Treatment System (Sistem Pengelolaan Sampah Terpadu: SIPESAT) (Pusat Komunikasi Publik Depok City, 2006). Depok City Government had launched such SIPESAT since 2006. Implementation of SIPESAT conducted by three approaches. Firstly, approach of Final Dumping Site (Tempat Pembuangan Akhir: TPA) scale.
Secondly, area scale approach representing a change of old waste treatment paradigm, that is : collect-carry-dispose to be collect-proceed-benefit. Thirdly, community scale approach in order to motivate and involve community, at household level specially.
There is obstacle in implementation of those three waste treatment approaches applied by Depok City Government.
Firstly, it is related with TPA scale approach, currently, Depok City just have one TPA, i.e, TPA of Cipayung located at Sub District of Cipayung. Secondly, area scale approach is less effective. Depok City Government had implemented it by building and operating Waste Treatment Unit (Unit Pengelolaan Sampah: UPS). Based on data from Cleaning and gardening Service of Depok City, through December 2011 had been built 44 UPS.
Yet, total operated UPS was less than 50%, it was only 19 UPS. Waste may be treated at UPS was only 570 m3 per day or around 13.41%. Some 1.296 m3 wastes per day or around 30,49% just may be transported solely, and those may not be treated at UPS. It indicates that UPS role is less effective. Thirdly, the household which participate in waste treatment by waste sorting is so little. Depok City Government had conducted household scale approach by socialization of Depok Sorting Movement (Gerakan Depok Memilah: GDM). GDM realized by socialization of awarening and involving community, khususnya di tingkat rumah tangga, at household level specially. This sctivities conducted since. Through May 2012, such activities had been conducted at 55 RW (Citizenship Unit) in Depok City. Gradually, such program conducted at all RW throughout Depok City .
Of those three approaches conducted by Depok City Government, implementation of area scale approach by building and operating UPS to be governmental main strategy, directly and rapidly it may reduce waste accumulaion discarded to TPA directly. Waste Treatment Unit (UPS) is any policy of Depok City Government within framework to overcome waste problems. UPS as manifestation of old paradigm change of government to treat/manage waste from collect-transport-dispose to be collect-proceed-benefit. The existence of this UPS ini is very important because at UPS all wastes at Depok City area, it may be treatet from its resource directly. Nevertheless, implementation of such area scale approach by such UPS operation in Depok City, really, it had resulted in some problems from headwaters/upstream (policy making) through downstream (distribution of UPS output). In this case such built UPS optimally, it had not been operated in accordance with its objective. Some problems had hindered UPS operations either input, process or even output/outcome
In relation to the policy process, Bromley (1989a) proposes a conceptual basis of public policy. Bromley’s idea starts from a process of institutional changes in the frame of reallocating the economic opportunity and redistributing the income, at the same time for institutional efficiency and effectiveness (Bromley, 1989b, p. 736). According to Davis and North (1970), by institution means ‘the legal rules that define the economic relation between people (private property), and to a person or a position (the presidency)’. Further, Davis and North (1970) mentioned the term of institution using the term of institutional arrangement. Davis and North (1970) argue that institution constitutes an agreement among economic units that determine that such units can cooperate or compete with each other. From the Figure 1. Comparison of population and waste vol-
ume in the Municipality of Depok in 1999 to 2011 Source: (BPS [Central Bureau of Statistics] of Munici-
pality of Depok, 2011
At organizational level, there are several complaints about the lack of cooperation among SKPDs. DKP as a leading sector in the waste management activity feels overwhelmed and expects active cooperation of the other SKPDs, namely Sub-Districts. Meanwhile, Sub- Districts still consider that it is DKP that should be active in waste management activity. Sub-Districts are waiting for coordination from DKP. Relating with community advancement in waste management, BLH also land a hand. Whereas such activity is not the formal main duty and function of BLH. Relating with the problem that occurs at UPS, DKP feels it is pressed from 2 sides, namely the public and the range of the Municipality Government (Mayor and DPRD). DKP feels that it has the desire to serve the public to the most maximum possible, but frequently rejection to the activity (development of UPS) exactly comes from the public. On the other hand, the activity of GDM socialization that has been carried out by DKP still requires time in for its result to be cimply seen. In addition, DKP also feels the high demand for performance from the management of the Government of Depok Municipality. Meanwhile, there are only limited resources, either human resources (HR) or facility and infrastructure. Proposal for additional facility (such trucks) is also accompanied with the demand for improved attainment of services in the form of waste levy revenue.
At the operational level, UPS personnel feel the lack of attention given by the government to its prosperity.
According to the personnel, the high risk of the work is not
appropriate with the salary, which is still below the UMR (Regional Minimum Pay) of the Municipality of Depok.
In addition, the different work load between one UPS and the other also causes jealousy among the personnel.
Personnel in an UPS with heavier work load (bigger volume of waste that must be processed) obtain the same salary with personnel in other UPS with smaller work load. Relating with such big quantity of produced-waste aforesaid, personnel of UPS expects public participation in reducing the waste that enters the UPS, namely by firstly sorting the garbage before being disposed of. This is because UPS has limited capacity of waste processing machines.
In addition to UPS personnel, at operational level there is also Village, which feels having no power to conduct advancement activity for the community related with waste management. Village has no budget to make such socialization as a routine activity program and rely on environmental-caring community groups which have moved independently to conduct socialization in the public. Village is basically prepared to carry out advancement more seriously, to the extent that it be given the operational fund.
. From such problematic problem situation, the researcher chooses 4 (four) systems that work in it and have systemic impact. The researcher gives the names to the four systems so selected as follows: the Making of Perda (Regional Regulation) on Waste Management, the Making of Standard Operating Procedure for UPS, Figure 4. Rich Picture of Waste Management Policy in the Municipality of Depok
RESEARCH METHODS
This research applies Soft System Methodology (SSM) (Checkland, 1999; Checkland and Scholes, 1990; Checkland and Poulter, 2006). SSM is used in this research since the condition of waste management in the Municipality of Depok shows that the real world of waste management in the Municipality of Depok is complex, messy, and portrays all-human activity systems.
The problem that arises in the implementation of waste management activity on site implicitly shows that within the context of waste management policy in the Municipality of Depok there are problematic situations that need to be improved.
As an problem solving interest cycle, in this research, we have identified conceptual framework (F), real world problem situation (P), real world problem situation owned by the researcher (A), and method for problem solving interest (Mps) cycle as follows in table 1 (see McKay and Marshall, 2001).
SSM consists of two parts of activities, namely ‘real- world’ and ‘systems thinking’, as well as seven stages, namely (1) problem situation considered problematic, (2) problem situation expressed, (3) root definition of relevant purposeful activity, (4) conceptual models of the systems named in the root definition, (5) comparison of models and real world, (6) changes systematically desirable, culturally feasible, and (7) action to improve the situation. Stages 1, 2, 5, 6, and 7 are the activities within the ‘real-world’ containing problem situation, while stages 3 and 4 are ‘systems thinking’ which may be involved in such problem situation, depending on the individuals that conduct such research (see Checkland, 1999, p.163-164). From stages 1, 2, 5, 6, and 7, we would obtain perception about the real world. While at stages 3 and 4, we would obtain feeling about the real world. This research focused only on the stage 1 to stage 6. Whereas, the seventh stage is the stage for repairs, improvements, and didn’t changes the situation problematic.
This research is conducted at UPS, DKP (Dinas Kebersihan Pertamanan), BLH (Badan Lingkungan Hidup), Bappeda (Regional Development Supervisory Agency), DPRD (Local Parliaments), Sub-district, village, and the community surrounding within the Municipality of Depok. In this research, we conduct data collection either for primary data or secondary data.
Primary data collection is conducted through in-depth
interviews with selected informants in accordance with the criteria required and observation. Secondary data are obtained through literature study through written sources relating to the objective of the research. Such written sources are in the form of books, journals, academic works, government’s documents, or websites (internet).
The validity standard principle in the SSM is recoverability (Uchiyama, 2009). Checkland and Poulter (2006, p.17) also confirm the principle of recoverability for SSM as follows in figure 3: “This makes it possible for anyone outside the work to ‘recover’ it, to see what was done and how the conclusions were reached. This
‘recoverability’ requirement is obviously not as strong as the ‘repeatability’ criterion for scientific findings within natural science”.
RESULT AND DISCUSSION
Problem situation expressed in this research is conducted by exposing the general description of the Municipality of Depok relating with waste management policy and problem situation expressed using SSM (Intervention, Social, and Political Analysis). Such unstructured problem situation is subsequently structured through rich picture in Figure 4.
At the policy level, Bappeda and DPRD proposed the need of socialization on waste management activity for the public. Through such socialization Bappeda and DPRD expect understanding with the public about waste processing, programs and the government’s limited ability in waste management, and finally the public will be willing to participate actively. DPRD also proposed the expectation relating to the importance of socialization activity by preparing a bigger budget at socialization activity than addition of facility and infrastructure. In addition, Bappeda also expects cooperation among SKPDs (Satuan Kerja Perangkat Daerah) in the handling of waste problem, especially between DKP and Sub-Districts. Relating with UPS management, Bappeda expressed its disappointment about the activity management in UPS. This is because the objective of UPS itself has not been attained. Performance standard that may become monitoring tool and evaluation to the activity in UPS itself are not available and according to Bappeda, there is a tendency that UPS personnel gives priority to its economic interest more than its obligation to process waste. According to Bappeda, UPS activity planning must also be coordinated with the other fields, especially those which are under DKP. Compost produced from waste processing activity at UPS should be able to be utilized by the Park Section. Bappeda emphasizes the importance of internal coordination of DKP.
F Policy process as a hierarchy consisting of policy level, organizational level, and opera¬tional level Mps Soft Systems Methodology
A Developing the policy in the frame of policy pro- cess as a hierarchy that consists of policy level, organizational level, and operational level at waste management in the Municipality of Depok P Waste management policy in the Municipality of
Depok
Source: adapted from McKay and Marshall (2001) Tabel 1. Elements of Action Research Intervention
Model(s) relevant re implementing
(1) Finding out (2)Model building (3)Discussing/debaring
(4)Defining/ ranking action
Figure 3. Typical pattern of activities during SSM research Source: Checkland and Poulter, 2006, p. 14
Optimizing of Role of Sanitary Task Force, and the Establishment of System of Public Involvement in Waste Management. Such systems are chosen with the same worldview, namely the importance of institutions in forming the behavior of the actors. At each level of policy process, public policy is materialized in the form of institutional arrangement or laws and regulations that are adjusted with its hierarchical level (Bromley, 1989a).
The four systems have the same objective, namely to develop hierarchy of policy process in order to guarantee the attainment of changes in waste management policy in the Municipality of Depok.
Method of Making of Perda (Regional Regulation) on Waste Management explains about formal law and informal convention that are used at the policy level in designing a rule, namely Regional Regulation of the Municipality of Depok on Waste Management. This Perda (Regional Regulation) is designed to clarify the distribution of the main duty and function (tupoksi), obligations, rights, and sanction to the respective stakeholders involved in the waste management activity in the Municipality of Depok in order to attain the change in waste management policy in the Municipality of Depok.
Method of the making of Standard Operating Procedure of UPS explains about formal law and informal convention used at the organizational level in designing a rule, namely Standard Operating Procedure of Waste Processing Unit (SOP-UPS), as manifestation of the interrelatedness of the policy made among the policy level, organizational level, and operational level. This SOP-UPS serves as the standard either in the planning, implementation, or evaluation of waste processing activity in all UPS in the Municipality of Depok, so that it can attain a change in the waste management policy in the Municipality of Depok.
Method of Optimizing of Role of Sanitary Task Force explains about formal law and informal convention
conducted at the organizational level, namely Sub- District, in preparing an action, namely Optimizing the Role of Sanitary Task Force. Sanitary Task Force plays the role as supervisor to waste management activity at the level of public and advancement relating with the sanitary activity in the public. Like the second system chosen, this system is also selected as a system that has interrelationship with the system that works at the policy level and operational level.
The fourth system chosen, namely the Establishment of Public Involvement System in Waste Management, shows a system that works at operational level, namely showing pattern of interaction at operational level with the public in the effort to improve Public Involvement in waste management at household.
Further, the four systems are used to develop an epistemological model in the form of a series of activities that take place in each system so selected. The following Figure 5 – Figure 8 show a conceptual model in the four systems so selected.
Perda on Waste Management provides for waste management system carried out in the Municipality of Depok, especially tupoksi (main duties and function) which are the responsibility of the related SKPD and participation that must be conducted by the public.
The authority to prepare Perda at the level of Regency/
Municipality is at the Government of Regency/
Municipality and the local DPRD. Before a Perda is prepared, Regional Government and DPRD prepare a Prolegda (Regional Legislation Program) planning. This Perda on Waste Management constitutes a perda that is originated in the initiative of the Government of the Municipality of Depok by considering the condition of the area as well as the order of the higher level of laws and regulations, among other things Law Number 18 of 2008 on Waste Management, PP (Government Regulation) Number 81 of 2012 on Management of Domestic Waste and Waste of the same type of Domestic Waste, and Permendagri (Regulation of Minister of Domestic Affairs) Number 33 of 2010 regarding Guideline to Waste Management. Perda on Waste Management has been included in the list of Prolegda that will be carried out by the Government and DPRD of the Municipality
Figure 5. Conceptual Model of Preparation of Perda
on Waste Management Figure 6. Conceptual Model of the Making of SOP-UPS
Define Criteria: 3E Monitoring 1-8 Take Control Action 4. Arranging the SOP-UPS draft
2. Doing research to arrange the Standard Operating Procedure (SOP) of UPS (SOP-UPS)
5. Discussing theSOP- UPS draft
6. Consulting the SOP-UPS draft
7. SOP-UPS establishment
8. SOP-UPS socialization to the UPS officers 3. Follow up the research output
1. Evaluating the efectiveness of waste processing in UPS
Define Criteria: 3E Monitoring 1-10 Take Control Action 4. Regional Regulation Drafting 3. Academic Paper Arrangement 2. Arrangement of Regional
Legislation Program (Prolegda) 1. The background of Regional regulation
(Perda) making:
9. Regional Regulation Enactment
10. Regional Regulation Sosialization
5. Consultation of Regional Regulation Draft
6. Regional Regulation Draft Submission
7. Regional Regulation Draft Discussion 8. Regional Regulation Establishment
a. The existence of higher legislation orders
b.Local development planning;
c.The implementation of regional autonomy and co-administration (medebewind) ; d.Local aspiration
of Depok in the year 2013. After being included in the list of Prolegda, the Municipality Government of Depok will subsequently prepare an academic paper and Raperda (Draft of Regional Regulation), and process the said Raperda until it becomes a Perda that is lawful and ready for publication in accordance with the provision of Law Number 12 of 2011 regarding the Establishment of Laws and Regulations and Permendagri (Regulation of Minister of Domestic Affairs) Number 53 of 2011 regarding the Formation of Regional Law Product. Coordination of main duties and function (tupoksi) among SKPDs in waste management can be conducted at the fifth stage, namely consultation of Raperda together with Regional Secretary. Regional Secretary may give input on distribution of tupoksi of SKPD relating with waste management system that has been designed in order to materialize an integrated waste management.
SOP-UPS regulates the mechanism of waste processing that must be conducted in all UPSs within the Municipality of Depok. Therefore, the performance of waste processing in each UPS can be evaluated and improved. This SOP- UPS is prepared by the Section of Sanitation Service - Sanitation and Park Service of the Municipality of Depok, especially Waste Processing Section which indeed subordinates UPS operation. SOP-UPS preparation is commenced by conducting evaluation to the performance of UPS and study on SOP-UPS. The result of the study is in the form of draft of proposed SOP-UPS will subsequently be discussed at the level of leaders of Field of Sanitation Service relating with the follow up to the result of study on SOP-UPS preparation. Upon agreement on SOP-UPS preparation, SOP-UPS preparing team will be established.
This team will make a draft of SOP-UPS based on result of such study. This draft will subsequently be discussed together with the members of the management in the Field of Sanitation Service as well as coordinator of UPS all over the Municipality of Depok. Input that is obtained in the said discussion will serve as input for the improvement of draft of SOP-UPS that has been prepared by the team.
The improved draft will subsequently by consulted with the members of the management of DKP, in this matter is chairman of agency. Input from chairman of agency will subsequently be accommodated in the draft of SOP-UPS and becomes a final text of SOP-UPS. This text of SOP-UPS will be passed and stipulated by chairman of agency and
socialized to all UPSs in the Municipality of Depok which have been in operation as well as those which will operate.
Every sub-district has established a Sanitary Task Force. However, the performance of the Sanitary Task Force is presently still not optimum. Therefore, sub- district as an actor at the organizational level may establish an institutional arrangement to optimize the role of the said Sanitary Task Force at the operational level. This may be conducted by involving Village. The first step to be conducted is holding a meeting between personnel of Sub-District and Village to discuss the role of Sanitary Task Force that has been established and the follow up to the result of evaluation over the performance of the Sanitary Task Force at present. The next step is the recruitment of Sanitary Task Force at the level of Village. The result of recruitment at this level of Village will subsequently become a proposed material to be reported to Sub-District. Based on the proposal from every Village, Sub-District conducts stipulation and assignment of Sanitary Task Force formally through Letter of Assignment made by Sub-District Head.
Members of Sanitary Task Force that have been stipulated will subsequently be assembled in a meeting to be given elucidation on the implementation of the duties as Sanitary Task Force. Following such elucidation, Sanitary Task Force personnel will then carry out their duties in terms of supervision and assistance relating to the problem of sanitation, especially garbage, in the territory of Village.
This Sanitary Task Force personnel must give a periodic report to Sub-District, through Village. Based on such report, Sub-District conducts a periodic meeting for evaluation and coordination of activity of Sanitary Task Force in the subsequent month.
Gerakan Depok Memilah (Sorting Depok Movement) constitutes one of the activity programs conducted by the Government of the Municipality of Depok through DKP with a view to improving Public Involvement in waste management activity. The role of the public in waste management activity has actually been regulated in
Figure 7. Conceptual Model of Sanitary Task Force
Optimization Figure 8. Conceptual Model of the Establishment of System of Public Involvement in Waste Management
3. Discussion between village government and community leaders
(RW, RT, and environmental care groups) 4.
4. Socialization about
“Gerakan Depok Memilah” (Depok Sorting Movement) at
household level
5. Supplying the facilities/ infrastructures
to support the waste processing implementation in
community 6. Forming the Waste
Bank
8. Mentoring Waste Bank operation 9. Follow up (advancement
process) the Waste Bank output/outcome
7. Waste processing at household
Define Criteria: 3E Monitoring 1-10 Take Control Action 10. Establish community
involvement system in waste management system 1. The existance of Mayor Instruction (regulation) to build a community participation system in waste management system
2. The existance of Sub-district Head Instruction to Village Head to formWaste Bank (Bank Sampah)
Define Criteria: 3E Monitoring 1-8 Take Control Action 2. Discussing the role of Sanitary
Task Force at district and village region 3.
3. Recruiting Sanitary Task Force officers at village level
4.
4. Determination and assignment of Sanitary Task
Force at district level 5.
5. Briefing about Sanitary Task Force role and duty
6.
6. Monitoring the cleaning process in village region
7. Regular raport to the district government
8. Evaluation by regular meeting 1. Evaluate the Sanitary Task Force
(Satgas Kebersihan) effectiveness
Law Number 18 of 2008 regarding Waste Management, namely that the community is obliged to reduce and overcome the waste it produces. However, in addition to not many community members being aware of the said regulation, the objective of this government program that is conducted through the giving of socialization has neither been an optimum success. One of the methods that can be applied is by involving all elements of the community. In this matter, DKP and Village can cooperate to conduct the activity of socialization and elucidation to the community. Before conducting such activity, Village must have clear instruction about the implementation of the activity. This instruction comes from Mayor and Sub-District Head, considering that the status of Village is under the coordination of Sub-District. By such instruction, Village has the obligations and is given budget allocation for the implementation of the activity.
In implementing the socialization activity, the early stage that needs to be conducted is a meeting among DKP, the management of Village, and community leaders (RW, RT, and environmental-caring groups) to discuss the role of the community and the government in waste management based on the existing regulation. In such meeting, the community is given understanding about the importance of their involvement in the waste management activity. In addition, the government (DKP and Village) also receives inputs from the community for the improvement of the system that has been carried out by the government thus far.Socialization may be in the form of elucidation and training on waste sorting and processing at the level of household. Besides conducting socialization activity, the government also needs to provide the community with facility and infrastructure. This is aimed as an effort to encourage the community to apply the knowledge that is obtained from the socialization activity of GDM. Not only being provided with facility, the community is also encouraged to form independent Waste Banks as a form of collective commitment to conducting useful waste management activity. The next stage is mentoring and advancement, both in the activity of domestic waste sorting and processing, and in the Waste Bank operating.
This mentoring and advancement constitutes a means of communication between the government and the community in the implementation of waste management activity within the community. Besides mentoring and advancement, the government also needs to make a follow-up mechanism to the product produced in the Waste Bank so that the benefit cycle of this Waste Bank can continue. By the continuance of such benefit cycle, waste management activity within the community is also expected to continue and will create a Public Involvement system in waste management.
The four sets of activities of the system which constitute epistemological models aforesaid will be compared with the real world that is happening. In this stage of comparison, the said Conceptual Model will be debated so that the expected change can fulfill 2 requirements, namely systematically desirable and culturally feasible.
Frame of thought of policy process as a hierarchy affirms that at each level, public policy is manifested in the form of institutional arrangement that is adjusted with its level of
hierarchy and interrelated with each other. Every level has its own system that works so that the function of each level can function appropriately, but every level is also affected and affects the other levels. One level and the other are interconnected through institutional arrangements. The regulations prepared by the policy level determine how organizational level will work. Such arrangement will certainly also be conducted by considering the situation faced at the level below it, namely the operational level.
At the next level, organizational level also determines the action that must be taken by the operational level. This institutional arrangement provides for the behavior of the actors and minimizes transactional cost that may be incurred repeatedly by creating a status quo or agreement among actors. Operational level will directly face with the community and form a pattern of interaction with the community that is observed continuously. If the community feels that the said status quo is not longer relevant in dealing with the problems existing in the community, then the community will make a collective response to the policy level or organizational level in accordance with the political process operated to change such institutional arrangement. This process occurs repeatedly and systemically, and applies to all parties.
If it is the government that determines such institutional arrangement, then the impact will be felt by all the community members. Institutional arrangement is prepared based on condition of the community, and at the same system, collective response will arise out of the community because such institutional arrangement is no longer relevant with the problems that occur within the community.
In its relation with waste management policy in the Municipality of Depok, Perda (Regional Regulation) on Waste management prepared at the policy level will determine the action that must be taken at the organizational level and operational level. It means that the policy that is made must also contain explanation about the system that operates at each level. Perda on Waste Management that is made by the Municipality Government and DPRD must refer to the activity that takes place, either within the government or the community, and so on.
Actors at organizational level and operational level work in accordance with the institutional arrangement determined by the higher level. All actors at each level act in accordance with the institutional arrangement that regulates them. Such institutional arrangement may be in the form of SOP or decree of SKPD Chairman that must be performed. Such rule may provide for choice sets of the actors, so that the actors perform their respective roles. On the other hand, these actors maintain norms and culture that may be in contrary with the institutional arrangement that has been determined. Therefore, these actors seem frequently act not in accordance with the rules that regulate them. The institutional arrangement made by the authorized party should also be based on the norms and values that form the behavior of such actors.
The use of SSM-based action research in this research is aimed to give recommendation for positive changes and give benefits for long term in a problematic situation of waste management studied. The frame of policy process as a hierarchy divides the reality of waste management policy within the Municipality of Depok into three
levels of system of policy making process that is in operation. The systems existing in the three levels are interconnected and influence each other to form a system with the same objective. In each level the system having the strongest influence to influence the current systems, either at its level or at the other level, must be identified.
Identification process to the system that is in operation at each level must see the network that is used as connector among such levels, namely institutional arrangements in accordance with their levels. In addition, it is also necessary to identify what mechanism of values and norms which are current in every system at every level, so that the changes that are made will give positive changes in the long term. Figure 8 below shows the changes that are expected to occur at the waste management policy in the Municipality of Depok.
The changes that are expected to occur at the system existing at the respective levels have interrelationship with each other. Institutional arrangements existing at higher levels become determinants for the continuance of the activities of the systems at the lower levels and the lower systems become inputs for the establishment of institutional arrangements at the higher levels.
Figure 9 shows that Perda on Waste Management made at the policy level should also cover the systems that work at organizational levels and operational levels. SOP-UPS and optimization of the Sanitary Task Force established by the organizational level are also prepared by understanding the systems that work at the operational levels. Pattern of interaction that occurs at operational levels will determine the outcome of the policy. At a certain time when the outcome is considered being no longer relevant and other problematic issues arise, the community will make collective response as a form of effort to change the institutional arrangements that are effective. This shows the learning process that continues to occur in the waste management system policy in the Municipality of Depok.
CONCLUSION
The result of this research has expose the existence of role of the institution or rule (policy) that serve as a guideline for the actors at all levels (policy level, organizational level, and operational level) in performing their role so as to attain an integrated waste management.
Relevant human activity chosen at the policy level is the preparation of Perda on Waste Management that regulates the main duties and function among SKPDs in waste management as well as the role of the community. At organizational level, it is the Making of SOP on waste processing activity at UPS and optimization of the role of Sanitary Task Force established by Sub-District. At operational level, it is the improvement of role of the community through provision of waste management facility and formation of Waste Bank. The section of these four relevant systems affirm that an integrated waste management can be attained by the existence of an integrated institutional arrangements at policy level, organizational level, and operational level. Such system shows a connectivity at the policy process as a hierarchy.
Based on the result of the research, several recommendations can be formulated, namely as follows:
(1) the Government of the Municipality of Depok needs to conduct policy reinforcement through changes in waste management policy based on the hierarchy of policy process. At policy level, the Municipality Government and DPRD (Regional Parliament) need to expedite the realization of the integrated waste management by preparing a Perda on Waste Management that regulates main duties and function among SKPDs in waste management as well as the role of the community.
At organizational level, DKP needs to prepare a Standard Operating Procedure (SOP) for the effective implementation of waste processing activity at UPS and Sub-District should optimize the role of Sanitary Task Force that has been formed so that it can serve as actuator for the community to get involved in the waste management activity. At operational level, Village needs to make approach to the community so that Public Involvement in the waste management activity in its territory can be improved. Village should cooperate with Sub-District and DKP to form a waste management system that involves the community. The activity of advancement to the community by giving socialization, provisioning of facility, formation of Waste Bank, and continuous mentoring must be conducted comprehensively within the territory of Depok Municipality. (2) As a result of the study using Soft Systems Methodology-based action research, the preparation of this design of change in waste management policy in the Municipality of Depok is an experience based knowledge that can be categorized as a primary research and can be used as the basis for further test for the exploration of other scientific studies.
REFERENCES
Bappeda Kota Depok. 2011. Peraturan Daerah Kota Depok Nomor 13 Tahun 2011 tentang Rencana Pembangunan Jangka Menengah Daerah Kota Depok Tahun 2011- 2016. Badan Perencanaan Pembangunan Daerah.
Figure 9. Changes expected to occur at waste management policy in the Municipality of Depok
Institutions in policy level:
Regional Regulation ofWaste Management
Institutions in organizational level:
1. SOP-UPS 2. Optimizing the Role
of Sanitary Task Force
Institutions in operational level:
Establish of the Public Involvement System in Waste Management
BPS Kota Depok. 2011. Kota Depok Dalam Angka Tahun 2011. Badan Pusat Statistik Kota Depok.
Bromley, Daniel W. 1989a. Economic interests and institutions: The conceptual foundations of public policy. New York: Basil Blackwell.
Bromley, Daniel W. 1989b. Institutional change and economic efficiency. Journal of Economic Issues, Vol.
23. No. 3 (September).
Bromley, Daniel W. 1993. Institutional economics revisited: Discussion. American Journal of Agricultural Economics, Vol. 75. No. 3 (August).
Checkland, Peter.1999. Systems Thinking, Systems Practice. Chichester: John Wiley and Sons, Ltd
Checkland, Peter and Scholes, Jim.1990. Soft Systems Methodology in Action. Chichester: John Wiley
&Sons, Ltd
Checkland, Peter dan John Poulter. 2006. Learning for action: A short definitive account of Soft Systems Methodology and its use for practitioners, teachers, and students. England: John Wiley & Sons Ltd.
Davis, Lance E. dan Douglas C. North. 1970. Institutional change and American economic growth. Cambridge:
Cambridge University Press.
Dill, David D. dan Maarja Berkeens. 2010. Public Policy for Academic Quality: Analyses of Innovative Policy Instruments. New York: Springer Science.
Jurnal Nasional. 2010. Depok Siapkan Perda Pengelolaan Sampah, http://digilib-ampl.net/4 Januari 2010 Hoornewg, Daniel dan Perinaz Bhada-Tata. “What a
Waste: A Global Review of Solid Waste Management”
yang diterbitkan oleh Bank Dunia. (Maret, 2012).
Urban Development Series Knowledge Papers no.15.
Juni 29, 2012. http://www-wds.worldbank.org/
external/default/WDSContentServer/WDSP/IB/2012/
07/25/000333037_20120725004131/Rendered/PDF/6 81350WP0REVIS0at0a0Waste20120Final.pdf.
Mardiyanta, Antun. 2013. Restore Public Trust Through Deliberative Public Policy Formulation. Jurnal Ilmu Administrasi dan Organisasi, Bisnis & Birokrasi, Vol 20.No.1 (Januari).
McKay, Judi., dan Peter Marshall. 2001. The dual imperative of action research. Information Technology
& People, Vol.14, No.1, 2001, pp.46-59, MCB University Press, 0959-3845. Edith Cowan University, Churchlands, Australia.
Republik Indonesia, Peraturan Daerah Kota Depok Nomor 5 Tahun 2012 tentang Retribusi Pelayanan Sampah/Kebersihan, www.jdih.setjen.kemendagri.
go.id/.
Republik Indonesia, Peraturan Pemerintah Nomor 81 Tahun 2012 tentang Pengelolahan Sampah Rumah Tangga dan Sampah Sejenis Sampah Rumah Tangga, www.menlh.go.id/dataSchmid, A. 1972.
The Economic theory of social institution. American Journal of Agricultural Economics. 54:893-901.
Republik Indonesia, Permendagri Nomor 53 TAhun 2011 tentang Pembentukan Produk Hukun Daerah, www.
kemendagri.go.id.
Republik Indonesia, Permendagri: Nomor 33 Tahun 2010 tetang Pedoman Pengelolahan Sampah, www.
kemendagri.go.id.
Republik Indonesia, Undang-Undang Nomor 12 Tahun 2011 tentang Pembentukan Peraturan Perundang- Undangan, http:/dki.kemenag.go.id.
Republik Indonesia. Undang-Undang Nomor 18 Tahun 2008 tentang Pengelolahan Sampah, www.menlh.
go.id/data.
Schmid, A. 1972. The Economic theory of social institution. American Journal of Agricultural Economics. 54:893-901.
Tchobanoglous, G., Theissen, H., &Vigil, Samuel A.
1993. Integrated solid waste management (Engineering principles and management issues). Singapore:
McGraw-Hill.
Uchiyama, Kenichi. 2009. Concise theoretical grounding of action research: Based on Checkland’s Soft Systems Methodology and Kimura’s Phenomenological Psychiatry. Institute of Business of Daito Bunka University, Japan, March 2009.