ENCUESTA ESTUDIANTE
DATOS DE IDENTIFICACION ESTUDIANTE
IV. POLITICA EDUCATIVA
VSE development is also influenced by the power of the internal bureaucracy arrangement of the local government. In the local government organizational structure, the divisions below the head and vice-head, such as secretary or SEKDA or Dinas (Local Education Office or EOD), Board (BAPPEDA), Office and Assistants, as illustrated in Figure 7 above, are known as the ‘Instruments’ of the local government. This structure also reflects the different positions within the hierarchy, from the top, down to the lower managerial positions – each of which has a potential influence on the focus of VSE development programs.
The role of the regent secretary or Sekda (Sekretaris Daerah), as stated by law, is to act as a ‘supporting element’ to the local government head and vice-head. He or she is directly
468 Sugeng (2006), “The dismissal of the Head and the Vice Head of Bekasi District”, (original title “Bupati dan Wakil Bupati Kabupaten Bekasi Diberhentikan”), Available [online],
responsible to the head or vice-head in assisting with implementing the local government’s mission, plus providing managerial and administrative services to all local government ‘instruments’. The Secretary is appointed by the local government head, selected from amongst existing local government staff and approved by the governor, while positions below the secretary, such as the head of the Education Office (EOD), are decided by the secretary and endorsed by the head of the local government. The head and vice-head of the local government are elected political positions and are not civil servants in status, while the District Secretary (Sekda) is the senior government official at district administration level. Their relationship represents a critical point of interaction between the local political elite and the local civil servants.
The development of VSE programs is influenced by the policy making processes of local government. The Sekda acts as ‘mediator’ and also as ‘director’ of the local institutions beneath him/her. By focusing on the head of the local government’s mission, the Sekda drives the BAPPEDA in determining priorities and budget allocations for the EOD and other local institutions. In the same manner, the Sekda also guides the EOD to establish and implement the programs and activities to meet the local government’s mission in education. Unfortunately, as discussed in Chapter 4, the VSE has not been a priority of the local governments. This has necessitated EOD staff obtaining the support of the Sekda to secure the local government’s contribution to the shared funding of ‘block grants’, as part of the budget planned by BAPPEDA. It would seem that the position of Sekda is highly strategic in determining the priority given to VSE programs.
In many local governments, the interaction between the regent or mayor and the Sekda is critical, as each occupy powerful positions but have different backgrounds. Nurhandoko has suggested: “The Sekda is in the top local government management position and, therefore, he or she should be responsible for maintaining a highly-effective relationship”469. While Chandra Adhie Nugroho commented:
“… the status of positions such as that of local
government Secretary (Sekda), occupying the highest echelon under the regent/mayor
position…has of late become a hot issue in some regions, as many regents/mayors
have replaced the Sekda”
470.
The position of Sekda is sometimes considered ‘redundant’ in view of the existence of the vice-head position. The Sekda and vice-head functions, in469 Nurhandoko, (2005), “Differentiating Political Problems from the Management of Government”, (original title “Bedakan Masalah Politik dengan Manajemen Pemerintahan”), http://www.pikiran- rakyat.com/cetak/2005/0105/17/teropong/wawancara.htm, Available [online], [15 March 2007] 470 Nugroho, Chandra Adhie (2001), “The Era of Inflexible Relationship Executive-Legislative”,
(original title “Era Hubungan Kaku Eksekutif – Legislatif”), Available [online],
assisting the head, are almost the same. In many cases, as reported in the national newspaper, ‘PELITA’, this has caused confusion for local government heads and the relationship between
vice-head and Sekda can be one of conflict and cause a serious dilemma for the head. According to one newspaper report:
“In such a situation, usually the head prefers to protect the vice-head, as the head is aware that his appointment is dependent on the vice-head’s support. Thus, it is not surprising that, recently, many Sekdas’ positions have been replaced, ….a recent case
including that of the Secretary of Bekasi District …”471 .
However, operationally-speaking, the Sekda is seemingly more powerful than the vice-head. As the most senior civil servant, the Sekda has the right to select the heads of local institutions, including that of the Local Education Office (EOD). Unless an EOD head has sufficient experience and knowledge in the educational field and is capable of convincing the head and vice-head of the local government, future educational developments will face some difficulties. In this matter, as illustrated in Table 13 below, most of the EODs involved in this research have been led by recently appointed officials. Only one official - the EOD Head, Tangerang District - had a long-established background in education. As discussed earlier, the majority of EOD heads are still struggling with their new responsibilities, especially with regard to providing support for the VSE schools.
Table 13. EOD Heads
No Province District or City Background Appointment
1 West Java Bekasi District Education New
Bekasi City Religion New
2 Banten Tangerang District Economy Incumbent
Tangerang City Social New
3 Bangka Belitung Bangka District Education New
Pangkalpinang City Education New
Source, interview 2005
Another intra-organizational relationship is that between the BAPPEDA and the EOD. The functions of the local government institutions below the Sekda, such as the EOD and the BAPPEDA, are determined by law, (Law 22/1999). As stated in PP Number 8/2003
471 Turatno, Arief (2005), “Regional Autonomy, the Vice Head and the Secretary of the Local Government”, (original title “Otda, Wakil Bupati dan Sekda”), Available [online],
(Indonesian Government Regulation clarifying the content of Law 22/1999), the EOD is responsible for the implementation of decentralization in the education sector, including VSE, the formulation of technical policy regarding education and grant authorizations, such as for the opening of new schools472. BAPPEDA, as the ‘technical element’ of local governments, is responsible for planning, including formulating the technical policy of planning at local level, maintaining the coordination and cooperation of the establishment, local development planning, in which the VSE is also part of the scope of responsibilities. Thus, cooperation between the BAPPEDA and the EOD has significant influence on the development of VSE policies and programs in local governments.
The nature of the interaction between the various local institutions politically and organizationally is sensitive, as far as development of VSE programs is concerned. The political nature of the interaction between the DPRD and other local government institutions function-wise is that of legislative versus executive. The authority of the DPRD, as a legislature, is superior to that of the executive, when it comes to controlling programs and budgeting as well as in appointing and replacing local government heads. The status of the position of officials in the local government hierarchy determines the degree of influence wielded with regard to the VSE programs. The powers of top management (mayor or regent) to appoint the Sekda is similarly critical as is the power of the Sekda to appoint the head of the Local Education Office (EOD), Thus, VSE program operations are influenced by the local government hierarchy and the political relations between executive and legislature. The change of local leaders substantially affects the formation of this local government bureaucracy, including the EOD, as well as impacting on the working environment and the relationships between the institutions that coordinate and manage the VSE.