Bogor, 21-22 October 2015
636 International experience shows that once adopted, policies are not always implemented as
envisioned and do not necessarily achieve the intended goals because some parties have little attention to the activities that can contribute to broader policy objectives Bhuyan et al., 2010.
Gholipour, et al. 2012 revealed that there are three methods for studying the policy implementation, namely top-down approach, bottom-up approach, and synthesis approach. In
the top down approach, policy depends on the superior, legislation is determined by the elites and people had no involvement in it. Moreover, in the bottom-up approach, people hopes and
wishes should be involved. Individuals have an active part in the policy implementation and may have some diplomacy to reshape the policy and change the way of the implementation.
At last, synthesis approach combines top-down approach and bottom up approach. Van Meter and Van Horn 1975 suggested six aspects that can affect the success of program
implementat
ion called with τA Model of the Policy Implementation”. The aspects are standards and policy objectives, resources, inter-organizational communication and
enforcement activities, characteristics of the implementing agencies, economic-social-political conditions, and the dispositions of implementer. In 1980, George C. Edward III develop
policy implementation model called τDirect and Indirect Impact of Implementation”. In this model, there are four variables that determine the success of a policy, that is: communication,
resources, disposition and bureaucratic structure. Since there are some variables that can affect the implementation of policy, some research was
done to analyze the implementation of the government program. In 2013, Agustinus, et al explained that the implementation of reforestation activities in forest and land rehabilitation
program in West Kutai district is less than optimal because of the lack of supervision, mentoring, and guidance from the relevant agencies. Novo and Garrido 2015 identify some
constraint related to the implementation of a new water law in Nicaragua. They found that power configuration within government at local and national level became a major barrier.
This study aims to examine the implementation of KBR and factors that influence the effectiveness of policy implementation of KBR in Banyuasin Regency, South Sumatra
Province.
2. RESEARCH METHOD 2.1 Theoretical framework
Public policy implementation is a very complex process because many parties and interests involved in it. Van Meter and Van Horn 1975 revealed that Implementations are actions
performed by individualsofficials or groups of government or private sectors to achieve the goals which have been outlined in the policy decision. Furthermore, Van Meter and Van Horn
formulate six variables that can affect the success of an implementation. These variables create relations between implementation and policy. The variables are:
a. Standards and policy objectives
Standards and policy objectives serve to direct the implementation of policies so as to correspond to the planned program.
b. Resources Resources are indispensable for the success of a policy made by the government. It consists
of three aspects, human resources, capital and time. Human resources are the driving force
and implementer of policy. Furthermore, capital required to finance the policy so that the process of policy implementation will be smooth. Additionally, time is supporting the
success of the policy because time is a determinant of government in planning and implementing policies.
Bogor, 21-22 October 2015
637 c. Inter-organizational communication and enforcement activities
Communication plays an important role for the continuity of the coordination of policy implementation. Good communication between agencies and implementers are
indispensable. Therefore, the implementation of the policy can be in accordance with the expected goals.
d. Characteristics of the implementing agencies It includes bureaucratic structures, norms, and patterns of relationships within the
bureaucracy. The attitude of the implementers in performing their duties and responsibilities as an executor of policies can affect the successful of policies
implementation.
e. Economic, social, and political conditions Changes in economic conditions, social and political can affect the interpretation of the
problem and thus will affect the way of program implementation. Change in government may result in changes of policy implementation.
f. The dispositions of implementers Acceptance or rejections of the implementing agency policies greatly affect the success or
failure of public policy implementation. This happens because in general public policy is top down and not the formulation of local people who know the issues and problems that
occur in the community.
According to Gholipour 2012, model of the policy implementation by Van meter and Van Horn was top down approach where decision making is done by the elites without involving
the society. In case of the implementation of KBR policy in Banyuasin Regency, community involved as the implementer only, but they have no access in the planning activity.
Figure 1: A model of the policy implementation by Van Meter and Van Horn 1975
2.2 Data collection and analysis The research was done in Banyuasin Regency, South Sumatra Province using a case study
method. The existence of households who involved in the KBR Kebun Bibit Rakyatpeople nursery program was taken into consideration when choosing the study site. In this location,
KBR program applied since 2009. The Research was conducted on June and November 2014. Data collected by field observations and in-depth interviews to the informants, such as
P u
b li
c p o
li cy
Inter-organizational communication and
enforcement activities
Characteristics of the implementing agencies
Economic, social, and political conditions
The dispositions of implementers
Standards and policy objectives
Resources
P er
fo rma
n ce
o f P
u b
li c P
o li
cy
Bogor, 21-22 October 2015
638 farmers and stakeholders in Banyuasin Regency that is related to the Program, particularly
section head of rehabilitation at Department of Forestry and Plantation. Additionally, review of various documents related to KBR program was also done to support the research.
Data was analyzed descriptively and qualitatively to find out the condition of KBR
implementation and factors that influence the effectiveness of KBR’s policy implementation in Banyuasin Regency, South Sumatra Province. Model of policy implementation used in this
study is a model of the policy implementation by Van Meter and Van Horn 1975. In this model, there are six variables that influence the policyprogram implementation, namely:
standards and policy objectives, resources, inter-organizational communication and enforcement activities, characteristics of the implementing agencies, economic, social, and
political conditions, and the dispositions of implementers. To see how these variables influence the implementation of the policy can be seen at Figure 1.
3. RESULT AND DISCUSSION 3.1 People nursery programkebun bibit rakyat KBR program in Banyuasin
Regency
People nursery programKebun Bibit Rakyat KBR is a government program to provide forest seeds and Multi Purpose Tree Plant MPTS which implemented self managed by the
farmer groups, especially in rural communities. Seeds produced from KBR program used to rehabilitate degraded land and forest and also for the purpose of environmental greening
activities. In Banyuasin Regency, there are 34 groups of farmers involved in the KBR program in 2012 for planting in an area of 2,125 hectares. Table 1 shows the location of KBR in
Banyuasin Regency and groups of farmers who carry out the program.
3.2 The implementation of KBR policy in Banyuasin Regency
The implementation of KBR policy in Banyuasin Regency will be discuss based on 6 six variables formulated by Van Horn and Van Meter, namely standards and policy objectives,
resources, inter-organizational communication and enforcement activities, characteristics of the implementing agencies, economic-social-political conditions, and the disposition of
implementers.
3.2.1 Standards and policy objectives
The implementation of KBR policy in Banyuasin Regency refer to Regulation of Forestry Minister Permenhut Number P.24Menhut-II2010 and Permenhut Number P.12Menhut-
II2013 abou t the guidelines for the implementation of the people’s nurseries. The objective
of KBR policy was to provide forest seeds and Multi Purpose Tree Plant MPTS which implemented self managed by the farmer groups. KBR aims to improve the welfare of the
community as well as to support the recovery of the function and carrying capacity of the watershed. In the regulation of KBR, it is clearly mentioned about how the manufacture of
KBR and planting of seedlings from KBR. In detail, including lists of requirements of the prospective group of people who will be involved in KBR, the criteria of villages that will be
the candidates for the location of KBR, KBR allocation, the requirements of the prospective location of KBR, target of the use of KBR, how the process of submission of the proposal,
KBR verification, determination of KBR, preparation of proposed plan of group activities RUKK, KBR implementation pattern, letter of agreement, distribution of funds, financial
accountability, number of seeds standard, schedule of activities, handover of the results of KBR, and mentoring of KBR program. The regulation also set about planting the seedlings
from KBR program, as well as the control, supervision and reporting.
Bogor, 21-22 October 2015
639 The standards and policy objectives of KBR program serve to direct the implementation of
KBR so as to correspond to the planned program. When each of the activities in the KBR program refers to the standard and policy objectives, it is expected that KBR program can be
implemented in accordance with the planning.
Table 1: Groups of farmers involved in KBR program and the location of planting area in Banyuasin Regency
Sub-district Villages
Farmer groups Number of
seedlings Planting area
Rambutan Kebon Sahang
Usaha Tani 25,000
62.5 Rambutan
Plajau Harapan Jaya
25,000 62.5
Rambutan Suka Pindah
Maju Bersama 25,000
62.5 Rambutan
Tanjung Kerang Tunas Muda
25,000 62.5
Rambutan Tanah Lembak
Mekar Sari 25,000
62.5 Rambutan
Tanjung Marbu Tunas Jaya
25,000 62.5
Rambutan Parit
Barokah 25,000
62.5 Betung
Taja Raja II Teratai Jaya
25,000 62.5
Betung Sukamulya
Semar Jaya 25,000
62.5 Rantau Bayur
Rantau Harapan Semoga Makmur
25,000 62.5
Rantau Bayur Tanjung Menang
Tani Jaya 25,000
62.5 Rantau Bayur
Sungai Lilin Cipta Usaha
25,000 62.5
Rantau Bayur Srijaya
Mekar Harapan 25,000
62.5 Rantau Bayur
Suka Rela Sekate
25,000 62.5
Rantau Bayur Kemang Bejalu
Kemang Manis 25,000
62.5 Banyuasin III
Tanah Pilih Cinta Alam Mangrove
25,000 62.5
MA. Padang Air Gadis
Gading Makmur 25,000
62.5 MA. Padang
Sidorejo Sido Maju
25,000 62.5
MA. Padang Sido Mulyo
Asri 25,000
62.5 MA. Padang
Margo Mulyo Mulya Jaya
25,000 62.5
Banyuasin I Tirto Sari
Wijaya Kesuma 25,000
62.5 Banyuasin I
Rimba Jaya Tunas Baru
25,000 62.5
Banyuasin I Perambahan Baru
Tunas Harapan 25,000
62.5 Banyuasin I
Perambahan Sidomoro
25,000 62.5
Banyuasin I Cinta manis Baru
Cinta Wana 25,000
62.5 Banyuasin I
Mariana Karya Bakti
25,000 62.5
Banyuasin I Pulo Borang
Sumber Rejeki 25,000
62.5 P. Rimau
Wana Mukti Harapan Jaya
25,000 62.5
P. Rimau Sumber Rezeki
Sumber Rezeki 25,000
62.5 P. Rimau
Songo Makmur Maju Makmur
25,000 62.5
P. Rimau Bumi Rejo
Makmur Jaya 25,000
62.5 Banyuasin III
Tj. Beringin Karya Mulya
25,000 62.5
Banyuasin III Tj. Agung
Harapan baru 25,000
62.5 Sembawa
Pulau Harapan Tunas Muda
25,000 62.5
Total 850,000
2,125.0
Bogor, 21-22 October 2015
640 From the table above, we can see that as many as 850,000 seedlings will be planted in
Banyuasin Regency. The participation of 34 farmer groups was varies depending on the condition and the resources owned by each groups. Farmer groups that have sufficient
resources with a high level of responsibility can implement KBR program with satisfactory results. KBR program is expected to provide results in the form of wood, latex, fruits, leaves,
flowers, fiber, and fodder which can improve the local economy pro-growth, as well as create employment pro-job, reduce poverty pro-poor, and lower carbon emissions pro-
environment.
3.2.2 Resources
Resources consists of three aspects, human resources, capital and time. In order to achieve the objective of the program, the implementers often lack the time, human resources, technology
or financial resources needed to achieve program objectives Weaver, 2010. In Banyuasin Regency, h
uman resources as the driving force and implementer of policy is still limited. Therefore, some assistance and guidance activities to farmers groups are less effective due to
lack of knowledge and understanding of the program. Due to limitations in human resources, some farmers groups cannot produce seedlings with good quality. A group of farmers who do
not have the knowledge and technology of the manufacture of certain types of seedlings have to buy the seedlings to seed breeder to meet the quota that has been set.
In addition, funding for mentoring and coaching activities are also insufficient so that this activities are less intensive, particularly for remote locations and difficult to access.
Furthermore, capital required to finance the program are often not timely so that the process of policy implementation cannot be smooth. It resulted in difficulties for the implementers to
carry out the program on schedule. This condition has an impact on the type and quality of the seedlings because the time required for processing the seedling becomes limited.
3.2.3 Inter-organizational communication and enforcement activities
Some locations of KBR implementations in Banyuasin Regency are in remote area and difficult to access because of poor road conditions. In addition, some location cannot be
reached by road, so that to get in touch with the site, water transportation is necessary. As a consequence, direct coordination and assistance activities are rarely performed. Limited
funding also led to mentoring activities rarely done, either by the central and local government. Therefore, it takes time to deliver information or new policies to other
stakeholders in remote areas. These conditions resulted in a lack of communication between parties involved in the KBR program. Moreover, some errors in the delivery or interpretation
of information and policy often occur. Safitri and Fajarwati 2013 explained that the lack of understanding of the communities can be caused by two things, the quality of socialization
provided and people are less responsive in responding to policy. Finally, it affects the smooth implementation of KBR program in order to conform with the expected. For example the
types and the composition of the seedlings are not as expected and the planting site did not comply with the required.
3.2.4 Characteristics of the implementing agencies
The attitude of the implementers in the implementation of KBR program is very crucial because they act as executors of the policy. The implementing agencies should behave
responsibly and honestly including the use of funds, the selection of the type of seedlings, the determination of the number of seedlings, and planting the seedlings in the field. Because it
includes bureaucratic structures, norms, and patterns of relationships within the bureaucracy,
Bogor, 21-22 October 2015
641 the government also play an important role to control other implementing agencies and has
responsibility to provide examples of good and honest attitude to other parties. Lack
of responsibility of some parties leads to the quality of the seedlings are often incompatible with the expected qualification. Furthermore, at the end of KBR program, the
resulting seedlings are not grown as it should be. When this condition happens, the ultimate goal of KBR is not reached
3.2.5 Economic, social, and political conditions
The implementation of public policy can only thrive in a politically stable country Imurana, et al., 2014. In Banyuasin Regency, some social and political issue affect the implementation of
KBR policy. There are some political deals related to the distribution of funds for KBR implementation. This will ultimately affect the percentage of realization of KBR policy.
Change in government policy affect the amount of funds allocated and the way of program implementation. Since KBR program was launched in 2010 in Banyuasin Regency, the amount
of funds allocated in this regency is changing depend on the government policy. However, in the case of farmer groups, this condition does not affect the success of the program.
3.2.6 The dispositions of implementers
In general, KBR policy in Banyuasin Regency was top down and not the formulation of local people.
However, the communities in this regency are willing to accept the program well. When deciding on the type of seedling to be made, some community leaders participate in the
selection of the type of seedlings. Therefore the kind of seedlings which are included in the KBR program can meet the needs of the community.
The acceptance of the communities will affect the success of KBR implementation. Since the
people in Banyuasin Regency willing to accept this program well, they are also willing to be involved in the implementation of the program. Thus the dispositions of implementers in
Banyuasin Regency not be a problem in the implementation of KBR program.
3.2.7 Other factors
Inaccuracies target also become a problem in the implementation of KBR policy in Banyuasin Regency. In some cases, some group of farmers actually do not qualify to get the allocation of
funds because they do not have enough resources to implement the KBR program. Limited timber market for certain type of timber cause a decline of the eagerness of farmer groups to
plant certain types of seedlings, so that the seedlings ultimately abandoned and died before planting in the field. Environmental issues such as global warming was also pressure the
successful of the policy implementation. Lestari and Premono 2014 revealed that global warming
causes changes in the fruiting season, the quantity and quality of fruit from some species of timber. Some times the timber plants do not bear fruit at all throughout the year.
This causes difficulties for some groups of farmers to get seeds to plant in KBR program.
4. CONCLUSION
