MK TEKNIK EVALUASI

PERENCANAAN

RENCANA DAN IMPLEMENTASI

PROGRAM
(PLAN AND PROGRAMME IMPLEME NTATION)

PENGAMPU:
JAMILLA KAUTSARY
 PLANNING/POLICY FORMULATION/ANALYSIS
WITH IMPLEMENTATION IN MIND

1. We cannot assume plans/policies will be carried out

2. Good implementation cannot overcome bad plan/policy
3. We must think of implementation throughout plan/policy
continuum
a. Ex ante plan evaluation
b. Implementation Analysis
c. Plan/policy Implementation
d. Plan/policy monitoring
e. Ex post evaluation
f. Plan/policy termination
 TIPS FOR EFFECTIVE PLAN FORMULATION/
IMPLEMENTATION

• Identify Real Problems

• Devise Real Alternatives that Can Be Implemented
• Seek Clear, Simple Solutions
• Incorporate Political Factors into Analysis
• Test Plans/Policies through Demonstration and Exper
• Incorporate Policy Maintenance and Policy Mon.Efforts
• Seek for Target Groups Supports
 INSTRUMENT IMPLEMENTASI
PRODUK PERENCANAAN PUBLIK

KEWENANGAN UNTUK MELAKUKAN INTERVENSI

• Kewenangan untuk membuat, melaksanakan dan enforcement kebijakan,
peraturan, prosedur
• Kewenangan untuk menguasai lahan, sumber daya alam menyangkut
hajat hidup orang banyak
• Kewenangan untuk mencari (melalui pajak dan ketentuan lainnya) dan
membelanjakan dana publik
• Kewenangan untuk menyusun dan melaksanakan program dan proyek
bagi masyarakat
 PRECONDITIONS FOR EFFECTIVE
POLICY/ PROGRAM IMPLEMENTATION

• Enabling legislation or other legal directives that mandate clear and

consistent policy directives
• Sound theory that links policy objectives to target groups behavior
• An implementation process structured to maximize the probality that
implementing officials and target groups will comply with directives
• Agency commitment to goals and confodence in staff managerial and
political skills
• Active support by constituency groups and key legislators
• No new policies or changing socio-economic conditions to undermine
the policy
• No strong opposition from advocacy coalition in political arena
• Existence of key actors that bridge the gaps between implementers and
target groups
• Tidak ada masalah pertanahan yang significan
 INSTRUMEN IMPLEMENTASI RENCANA - PROGRAM
KRITERIA YANG HARUS INSTRUMEN YANG MENGATUR
DIPENUHI OLEH CONSTITUENTS/GRUP
RENCANA/PROGRAM YANG
•Peraturan: Land subdivision,
BAIK
zoning, FAR, ketinggian bangunan,
•Data yang lengkap rooi jalan, prosedur ijin
membangun, uu tata air, polusi air,
•Landasan teori yang benar
polusi udara, monitoring, evaluasi
•Objektif yang jelas
•Perpajakan: PBB
•Konsistensi
•Kelembagaan: kewenangan
•Teknik/metoda yang benar berbagai lembaga formal terkait,
lembaga yang memecahkan konflik
•Instrumen informal: adat yang
mengatur hubungan antar anggota
masyarakat, adat dalam
pengelolaan SDA, peran informal
leader, fixer
INSTRUMENT YANG MENGATUR
IMPLEMENTOR
•Petunjuk: Petunjuk umum,
petunjuk teknis pelaksanaan
•Peraturan: alokasi penggunaan
dana, tender
•Prosedur/mekanisme:
prosedur/mekanisme alokasi
dana, koordinasi antar lembaga,
monitoring, evaluasi
•Kelembagaan: tugas pokok
dan kewenangan lembaga, rule of
conduct
•Instrument informal:
leadership, kewibawaan, fixer
 THE VARIABILITY OF IMPLEMENTATION
(Goggin et. al. 1990)

• Has the implementors carried out the intent of the policy/program?

• If the intent has benn carried out, at what point in time did the implementor put the
policy/program into effect?
• Has the implementor modified the policy/program in the course of implementation, and if
it has, has the modifications helped or hurt the chanches of satisfying clients demand?

• DEFIANCE : delay modifications that hurt the chances of achieving goals

• DELAY : delay with no modifications
• STRATEGIC DELAY : delay with no modifications that help the chances of achieving
goals
• COMPLIANCE : prompt implementation with or without modifications that help the
chances of achieving goals
 UPAYA PENINGKATAN EFEKTIVITAS PELAKSANAAN
PROGRAM PEMBANGUNAN : KASUS PENGELOLAAN
SUMBER DAYA ALAM

PRECONDITIONS FOR EFFECTIVE IMPLEMENTATION

Adequate theory underlying the formulation and implementation of

management program.
1. Adequate theory emploed in the formulation and implementation of management
program can give guidelines to effective coordination for achieving integration.
In this regard, ecological theory and principles as the basis of management
activities help to identify the roles and functions of coastal resources/components
and their relationship within and among coastal ecosystems.
2. Coordination in the management of coastal resources based on those principles.
Therefore, is more likely to contribute to achieving the goal of integrated
management program – i.e. sustaining the coastal ecosystems function for
supporting long term economic development in the zone.
LANJUTAN: KASUS PENGELOLAAN SUMBER DAYA ALAM

2. The policy objectives and statutes contain clear and consistent

directives. Clarity of policy objectives and statutes may not directly
affect coordination in implementation processes.
• Clear legal objectives, however, are viewed as providing both
unambiguous directive and important legal resources to implementing
agencies, and accordingly could provide adequate basis for better
coordination (Pressman and Wildawsky, 1973).
• The clearer the policy objectives and statutes, the more straightforward
the implementation becomes.
• Clarity can be defined in terms of means and ends. Borrowing from
Goggin et. al. (1990) the policy objectives and statutes could be
categorized as : merely prescribe in vague terms some desired future
state of task; contain straightforward statements of their standards and
targets; set forth specific procedures; and embracing clarity with both
means and ends.
LANJUTAN: KASUS PENGELOLAAN SUMBER DAYA ALAM

3. The statute structures implementation to enchance interagency

coordination and maximize the probability of compliance from
implementing agencies and target groups. Implementation process
legally structured to enhance interagency coordination and compliance by
implementing agencies and target groups is another factor necessary for
achieving program objectives. The ability of statute to do so is largely
determined by a combination of the following pre-requisites.
• The degree of hierarchical integration of implementation is a crucial
determinant for management success, according to Mazmanian and
Sabatier (1981,1983). The experiences of the U.S. and other countries
showed that for a given program, states that designated a “lead agency”
for implementation exhibit a more trouble-free and more rapid
implementation processes than those which did not. Implementation
processes can be simplified by providing one of the units with some
authority to induce a degree of integration
• Adequate procedures and coordination mechanisms for inducing two
way communication among related agencies and bargaining/negotiating
among contending parties to achieve consensus may contribute to effective
implementation of the program.
LANJUTAN: KASUS PENGELOLAAN SUMBER DAYA ALAM

• Sufficient geographic jurisdiction of the program which enables

implementing/regulatory agencies to insist on, and enforce if necessary,
resource users to comply with environmental rules/regulations is one
necessary pre-requisite for achieving management success (Crains, 1971;
Mazmanian and Sabatier, 1983; Sorensen, 1984).
• Sufficient funding available on time for implementing the program is
another prerequisite for effective coordination to achieve integration in
coastal resource management.
• Adequate sanctions –with regard to violation– and incentive –to
overcome resistance– may also encourage success during implementation
(Goggin et. al., 1990).
• Target groups for coastal management are numerous. They include land
developers, commercial recreation entrepreneurs, fishing community,
tourist industry, farmers. Much of the early success or failure in the
United States is due to the involvement of target groups and the
early evidence from developing countries also suggests that participation
of target groups in implementation processes is crusial to management
success (Sorensen, 1984). Turner (1984) has suggested that involvement
of residents of magrove-coastal areas is a strong precondition for
successful coastal program implementation.
LANJUTAN: KASUS PENGELOLAAN SUMBER DAYA ALAM

4. Implementing officials are strongly committed to attainment of

statutory objectives and have the skills necessary to ensure
achievement of the goals. Successful coastal management program
demands both executive skill and strong staff level capabilities to deal with a
wide variety of issues e.g.: marine and terrestial biology, hydrology, and
socio-economid development. Leaders of the implementing agencies should
possess substansial managerial skill and be committed to achieving the
management objectives. Without strong, politically adept leadership, it is
doubtful that a program for integrated coastal management will be
successful.

5. The presence of key actors (O,Toole, 1990) who are well connected to
the communication channels among implementors and target groups, and
capable of inducing cooperative actions tends to reduce impediments of
implementation processes.
LANJUTAN: KASUS PENGELOLAAN SUMBER DAYA ALAM

6. The strength of support or opposition from advocacy coalitions may

influence the relative success of policy and program implementation (Goggin et.
al., 1990; Sabatier, 1987). Interest groups and other actors at the operational
level may form advocacy coalitions in order to get access to political power to
influence the pplicy making and implementation processes. Each advocacy
coalition consists of politicians, interest group leaders, agency officials, and
intellectuals who share a set of belief regarding particular policy issues or
problems.
7. Eacg coalition adopts a strategy envisaging changes in governmental
institutions perceived to further its policy objectives (Sabatier, 1987). Conflicting
strategies from different coalitions are mediated by government agencies.
8. Reasonable compromise will be obtained to reduce intense conflict. The end
rseult is legislation or government decrees modifying government action
programs. The number of advocacy coalitions and their strength, therefore, are
indicators that may support or constrain the achievements of management
success. The strength of advocacy coalition is a function of three characteristics
(Sabatier, 1987; Goggin et. al, 1990), they are skill of the leaders (education,
expertise, leadership), cohesiveness (influenced by internal and external forces
and the leadership of the leaders) and access to resources and power
(availability of funding, access to international funding organization).
POLICY/PLAN MAKING PROG/PROJ PROG/PROJ BENEFECERIES
FORMULATION IMPLEMENTATION (TARGET GROUPS)

IMPLEMENTATORS
POLICY/PLAN
MAKERS

B
POLICY/PLAN
C

D
PROG/PROY PROG/PROY

PROG/PROJ DELIVERY
POLICY/PLAN PROG/PROJ PROG/PROJ BENEFECERIES
MAKING FORMULATION IMPLEMENTATION (TARGET GROUPS)

Relationship between Procedures, mechanisms, statutes for

plan/program formulation and structuring implementation processes
program implementation (maximizing compliance of implementors and
target groups)

Underlying sound theory Managerial skill, technical competence and

commitment implementors

Availability of adequate budget for impl.

Clear and consistent program
objectives and directions
Presence of fixers

No strong opposition from

advocacy coalitions
 IMPLEMENTATION THEORY

1st generation
Pressman & Wildawsky (1973)

2nd generation Top down :

Mc Laughlin, Bardach, Nakamura,
Mazmanian & Sabatier

Bottom Up

3rd generation
Sabatier (1987), Goggin et. al. (1990)
PROSES PERENCANAANADOPSI DAN IMPLEMENTASI
PENYUSUNAN OUT PUT OUT COME
•FUNDING
PROGRAM
•ENFORCEMENT

REGULASI SEKTOR 1

RENCANA TAX SEKTOR 2

PERDA LAHAN SEKTOR 3

PROGRAM SEKTOR 4

FEEDBACK

AKTORS

LINGKUNGAN SOS POL EK

 •PERGESERAN
PARADIGMA INST. SEKTORAL LOCAL ADMIN.
•PERUBAHAN EKONOMI JURISDICTIONS
GLOBAL
•PERUBAHAN
KEBIJAKAN NASIONAL

DANA, KEPENTINGAN,
INTERVENSI VALUES

RENCANA TATA 1. PERATURAN DAN

RUANG DAERAH, PERUNDANGAN OUTPUT (HASIL OUTCOME (DAMPAK
KAWASAN RENCANA) THD MASY.&
2. PERPAJAKAN
LINGKUNGAN)
3. EMINENT DOMAIN
KUALITAS 4. PROGRAM DAN DANA, KEPENTINGAN, VALUES
RENCANA PROYEK

•PARADIGMA YG
DIANUT
DUNIA
•KELENGKAPAN TARGET
USAHA/
INFORMASI GROUPS/
SWASTA
•PENDEKATAN/
APPROACH
•TEKNIK DAN METODA
YG DIPAKAI

IMPLEMENTASI PEMANFAATAN RUANG, OUTCOME/ DAMPAK

PERENCANAAN PENGENDALIAN PEMANFAATAN RUANG OUTPUT

IMPLEMENTASI RENCANA TATA RUANG

 KOMPLEKSITAS KONDISI/SISTEM
PERMASALAHAN POLITIK

Kompleksitas
KONDISI/SISTEM
Keragaman
EKONOMI
# target grup

SISTEM ADM. PUBLIK GOOD GOVERNANCE

BIROKRASI
OTONOMI/DESENT TRANCPARANCY
PUSAT-DAERAH ACCOUNTABILITY
ALOKASI DANA SUSTAINABILITY
PEM - SWASTA

PROBLEM EKSTERNAL KUALITAS IMPLEMENTOR INSTRUMENT DANA TARGET

IMPLEMENTASI FAKTOR RENC/ IMPLEMENTASI GRUP
PROGRAM
Program tidak
mencerminkan
kebutuhan masyarakat

Setiap program jalan

sendiri
 Variables Involved in the Implementation Process

Tractability of the Problem

1. Technical difficulties
2. Diversity of target group behavior
3. Target group as percentage of the
population
4. Extent of behavioral change required

Ability of Statute to Structure Implementation Non-statutory Variables

1. Clear and consistent objectives Affecting Implementation
2. Incorporation of adequate causal theory 1. Socio-economic conditions and technology
3. Initial allocation of financial resources 2. Public support
4. Hierarchical integration within and among 3. Attitudes and resources of constituency
implementing agencies groups
5. Decision rules of implementing agencies 4. Support from sovereigns
6. Recruitment of implementing officials 5. Commitment and leadership skill of
7. Formal access by outsiders implementing officials

Stages (Dependent Variables) in the Implementation Process

Policy outputs of Compliance with Actual impacts Perceived impacts Major

Implementing agencies policy outputs by of policy of policy outputs revision in
target groups outputs statute
 Flow Diagram of the Variables and Stages Affecting the Implementation of a Statute
Tractability Diversity of Target Technical Behavioral Percent of Population
Variables Group Behavior Difficulties Change Required in Target Group

Non-statutory Socioeconomic
Conditions and Technology
Variables

Public Support Attitudes and Resources of

Constituency Groups
Support for Statute
from Sovereigns

Commitment and
Leadership of Agency
Officials

Statutory Consistent Objectives Formal Access and

Variables Causal Theory Decision Evaluation by Outsiders
Rules Recruitment Financial
Resources
Enactment of
Hierarchical
Statute Integration: Veto
Points and Sanctions

Stages of Policy Outputs of Perceived Impacts (by

Implementation Compliance of Changes in
implementing Target Groups Actual Impact sovereigns and
Process (Dependent Statute
Agencies Constituency groups)
Variables)
1 2 3 4 5
 DIAGNOSIS OF PROBLEMS ASSOCIATED WITH IMPLEMENTATION : FINDINGS

The Adequacy of
Institutional Variables for
Institutional Variables Inducing Effective Notes
Implementation

Clarity and consistency of program

objectives and legal directives
 Clarity
 Consistency There were several potential conflicts between program
objectives and legal directives; mechanisms and instruments
for resolving conflicts, however, had been formulated

Adequacy of statutes to structure the

implementation process  The formation of SATF as a coordination mechanism,
 The adequacy of financial support theoretically could enhance coordination in implementation;
 The adequacy of statutes to induce however, problems associated with lack of budget for its
coordination operation and of skillful staffs reduced its adequacy
 The organizational capacity of the coordinating unit to
induce coordination was quite weak

The adequacy of incentives, sanctions  Inadequate sanctions and weak enforcement of

and the strength of enforcement environmental laws/regulation

Commitment and skills of leaders of

implementing agencies  There was a growing awareness among executives of
 Commitment implementing agencies regarding the importance of
protecting the natural resources
 Skills  Inadequate skills of implementing agencies to implement
integrated resources management program
Participation of target groups
The presence of key actors for
facilitating implementation processes
Support/opposition from advocacy
coalitions
Notes :
very inadequate
quite inadequate
The public participation was intended to encourage local
people to participate in the decision making process of
policies/programs which have direct effects on their socio-
economic condition
1. Local leaders were included as members of SATF, and the
VCB was employed as an instrument for bargaining and
negotiation between local people and implementing
agencies
2. This favorable precondition however, was weakened by;
(1) lack of power of local people to influence the
decisions; (2) resistant to change of local people, and (3)
implementing agencies tended to see public participation
only as a formalization process in policies/programs
implementation
Those actors werw present
1. The bupati played important roles in closing the gaps
among implementing agencies
2. Informal leaders and priest Charlie played important roles
in closing the gaps between implementing agencies and
local people
1. Supports from ecologists
2. No strong opposition from advocacy coalition
somewhat adequate very adequate
quite adequate
 TABLE
MEAN SCORES AND RANKING OF FACTORS WHICH CAUSED PROBLEMS IN PROGRAM
IMPLEMENTATION
(the case of Segara Anakan CZM Program)

Factors Mean Score Rank

1. Inadequate financial support provided by statutes 4.42 1

2. Inadequate penalties and poor enforcement of regulations to enhance the 2.94 2
probability of compliance of target groups
3. Lack of skills of implementing agencies to implement the program 2.06 3
4. Lack of commitment of leaders of implementing agencies to the objectives of 1.58 4
the ICZM program
5. Inadequate to induce coordinated actions among semi autonomous 1.47 5
implementing agencies
6. Natural factors
1.34 6
7. Poor public participation
1.15 7
8. Unclear and inconsistent program objectives and legal directives
0.34 8
9. The absence of skillful key actors for facilitating implementation process
0 9
10. Strong opposition from advocacy coalitions
0 10
Sumber:
Sabatier, P., & Mazmanian, D. (1980). The
implementation of public policy: A framework of
analysis. Policy studies journal, 8(4), 538-560.
Mazmanian, D. A., & Sabatier, P. A.
(1983). Implementation and public policy. Scott
Foresman.
Goggin, M. L. (1990). Implementation theory and
practice: Toward a third generation. Scott Foresman &
Co.
Kawik Sugiana, (2004) Implementasi Kebijakan

TERIMAKASIH