Collaboration Model Between Stakeholders in Implementing Law
Number 2 Year 2021 Concerning Papua Special Autonomy
Suriadin
Doctoral Program of Social Science, Postgraduate Program, Universitas Cenderawasih,
Jl. Raya Abepura Padang Bulan 99352, Jayapura, Indonesia
Keywords: stakeholder collaboration, Papuan special autonomy, the welfare of the Papuan people
Abstract: One of the passions of the amendment of Law Number 21 of 2001 to Law Number 2 of 2021 concerning
Special Autonomy for Papua after 20 years has been in improving the welfare of Indigenous Papuans. Mainly
regarding the resolution of the integration conflict in Papua, overcoming poverty, increasing the Human
Development Index and catching up with Papua's backwardness through infrastructure development. The
purpose of this study is to explain the model of collaboration between stakeholders in implementing Law No.
2 of 2021 concerning Special Autonomy for Papua. This research method is qualitative with descriptive
analysis. The results of this study explain how to overcome conflict in Papua, increase the Human
Development Index and collaboration models between stakeholders, namely the central government, local
governments, the Indonesian National Army, Indonesian National Police, Academics, Community Social
Institutions, Customary Heads (Ondoafi) and Indigenous Papuans in the successful implementation of Law
Number 2 of 2021 concerning Special Autonomy for Papua.
1 INTRODUCTION
One of the passions of the 1998 Reformation was the
realization of a decentralized government in
Indonesia. Every region in Indonesia, whether at the
provincial and district or city levels, can carry out
regional development with the aim of being
independent for the direction of regional
development. Law number 22 of 1999 concerning
Regional Government is a major breakthrough for the
people in the regions to have the space to participate
in every public policy making. Every individual and
group in the community in the region is expected to
have the same opportunities and opportunities in
expressing their aspirations with the aim that the
government that was previously centralized during
the New Order government which focused on Java
Island could be more evenly distributed to areas that
had not been touched at all by development (Scott,
2006).
In line with the spirit of decentralization, after the
second amendment to the 1945 Constitution, in 2001
through Law No. 21 of 2001, the Government
together with the House of Representatives finally
assigned the Special Autonomy status to the Papua
Province. Of course, the step of establishing Papua as
a special autonomous region is a big step taken by the
central government not only to solve many lagging
development problems, integration conflicts to the
level of poverty in Papua. However, this law is
expected to be a new beginning in building the trust
of the Papuan people, which has experienced many
dynamics since the process of integration into the
Unitary State of the Republic of Indonesia in 1969
(Chauvel, Richard & Bhakti, 2004).
Law Number 21 of 2001 concerning Special
Autonomy for Papua is certainly a step forward in
laying the basis for a strong argument in solving many
social, economic and political problems in Papua.
Moreover, in the past, there were many issues related
to the rights of the Indigenous Papuans which were
not accommodated by the central government, thus
causing a lot of prolonged turmoil (Ansell & Gash,
2007). This does not include the racist and
discriminatory treatment of individuals who are
indigenous Papuans which often make it difficult for
them to interpret themselves and their identity as
Indonesians. So that the spirit of the Special
Autonomy law is a maximum effort from the central
government, which has just undergone a democratic
transition from the New Order era of President
Soeharto's government to the Reformation era.
202
Suriadin, .
Collaboration Model Between Stakeholders in Implementing Law Number 2 Year 2021 Concerning Papua Special Autonomy.
DOI: 10.5220/0011564100003460
In Proceedings of the 4th International Conference on Social and Political Development (ICOSOP 2022) - Human Security and Agile Government, pages 202-208
ISBN: 978-989-758-618-7; ISSN: 2975-8300
Copyright
c
2023 by SCITEPRESS – Science and Technology Publications, Lda. Under CC license (CC BY-NC-ND 4.0)
The Special Autonomy Law for Papuans is
actually the embodiment of the central government's
commitment to dialogue and reconciliation efforts
against many disputes and misunderstandings in the
policy process that are taken through alternative
policies that are expected to provide solutions for the
welfare of the Indigenous Papuans (OAP).
Conceptually, special autonomy is part of the
asymmetrical implementation of decentralization in
Indonesia. In a simple understanding, asymmetric
decentralization is not only an ordinary delegation of
authority but also a special transfer of authority that
is only given to certain regions, which in this case is
Papua. Historically, the meaning of asymmetric
decentralization was intended as an effort from the
Central Government in order to protect the Unitary
State of the Republic of Indonesia from separatist
movements that wanted to separate themselves from
Indonesia (Haryanto, Lay & Purwoko, 2018).
The hope is of course that this asymmetric
decentralization policy is able to provide solutions to
all problems in the region which of course require
many roles from stakeholders, both from the central
government, regional governments, police, military,
Community Social Institutions to indigenous peoples
in Papua (Febrianti, Dermawan, & Akim, 2019).
Where every policy in Special Autonomy in Papua
which is asymmetrical decentralization is pursued by
maintaining Indonesia as a unitary state as its basic
foundation (Iryanti, Pangkey & Londa, 2014). Then
every policy instrument from the product of the law
which later gave birth to regional regulations must
accommodate the uniqueness and differentiation of
Papuan culture, history and natural resources in order
to protect all indigenous people in Papua. The aim is
in the context of dialogue and achieving
reconciliation in protecting indigenous peoples and
overcoming conflicts in Papua.
Of course, at the beginning of the implementation
of the Special Autonomy law in Papua, it did not run
smoothly because there were several things that had
to be re-diagnosed regarding equitable development
and affirmative action from the central government.
For this reason, the Special Autonomy Fund for
Papua is one of the progressive steps taken by the
central government to strengthen Papua's capacity.
This instrument was taken of course with measurable
considerations because the poverty base and the
backwardness of Papua from the western part of
Indonesia are the main problems that must be
resolved.
So that Article 1 of Law Number 21 of 2001
concerning Special Autonomy for Papua states that
Special Autonomy is “a special authority that is
recognized and granted to the Papua Province to
regulate and manage the interests of the local
community according to its own initiative based on
the aspirations and basic rights of the Papuan people”.
Departing from this, the regulation is of course
expected to be able to act as a policy that has positive
and strategic value in the context of improving
services, accelerating development, and empowering
all Indigenous Papuans so that progress steps to
compete with communities outside Papua can be
realized more competitively. In addition, Papuan
people from the beginning of the establishment of
Special Autonomy have been able to gain recognition
of their customary rights and local wisdom in every
transition of leadership in Papua. That's why
explicitly, this regulation also emphasizes that anyone
who wants to advance to become a leader in Papua,
be it as Governor or Deputy Governor, Mayor or
Deputy Mayor and Regent or Deputy Regent has the
obligation to respect, protect, empower and maintain
every local wisdom and identity of Papuan people.
During the 20 years of implementing Papua's
Special Autonomy through Law Number 21 of 2001,
on July 19, 2021, the Papua Special Autonomy Law
Number 2 of 2021 was issued as an amendment and
improvement to the previous law. The amendment to
the Papua Special Autonomy Law issued in 2021 is a
step forward for the government and the House of
Representatives towards the dynamics that are
happening in Papua. Not only that, Law Number 2 of
2021 concerning Special Autonomy for Papua is an
evaluation of many policies taken by the central
government as well as the provincial governments of
Papua and West Papua in the framework of welfare.
The paradigm of the Special Autonomy Law No.
2 of 2021 does not only focus on special autonomy
funds, but also the accessibility of the indigenous
Papuan community as a whole. They can feel the
presence of the state as a solution to the problems of
poverty, underdevelopment, development, low
Human Development Index to conflict issues that are
still ongoing. occurred in several areas in Papua that
need to get the attention of every policy maker.
The importance of collaboration between
stakeholders is a major consideration for the passage
of Law Number 2 of 2021 concerning Special
Autonomy for Papua. Collaborative steps between the
central government, regional governments, the
Indonesian National Police, the Indonesian National
Armed Forces, Community Social Institutions,
Academics and Indigenous Papuans or indigenous
peoples are steps that must be carried out in a
participatory no longer passive manner. So that the
indigenous Papuan people who previously acted
Collaboration Model Between Stakeholders in Implementing Law Number 2 Year 2021 Concerning Papua Special Autonomy
203
passively can be stimulated to be more active in every
policy process and action taken by the government in
maintaining the dignity, human rights and resources
of the Indigenous Papuans themselves.
Therefore, the research entitled: Model of
Collaboration Between Stakeholders in
Implementing Law Number 2 of 2021 concerning
Special Autonomy for Papua aims to explain and
explore what steps for participation and collaboration
can be taken by stakeholders in Papua in
implementing Law Number 2 Year 2021 Concerning
Papua's Special Autonomy so that the goals of
Papua's welfare, independence and progress can be
realized.
2 RESEARCH METHODS
The writing of this article uses a descriptive analytical
research method with a qualitative approach. The use
of this method is intended to focus on phenomena that
occur on actual problems or phenomena, namely
collaboration between stakeholders in implementing
Law Number 2 of 2021 concerning amendments to
Law Number 21 of 2001 concerning Special
Autonomy for Papua (Moleong, 1998). The
researcher will examine in detail the facts related to
the dynamics of problems related to poverty, the low
human development index and development
problems in Papua. The facts investigated as they are,
are accompanied by rational and accurate
interpretations of the problem solving model in Papua
after 20 years of the Special Autonomy Law.
This method will help researchers to understand
the reality that occurs in finding solutions to
problems. Research data collection is also carried out
through the process of reviewing journals and news
reports as primary data for this research. Then the
secondary data of this research was obtained by the
author from books and documents or reports related
to the research focus. The author then analyzes the
phenomenon of the case inductively regarding how
the Collaborative Model among Stakeholders in
Implementing Law Number 2 of 2021 concerning
Papua's Special Autonomy.
3 RESULTS AND DISCUSSION.
3.1 Conflict Problems in Papua
The issue of conflict in Papua is a classic problem that
has still occurred since the process of integrating
Papua into one of the provinces in Indonesia in 1969.
The central government's policy during the New
Order era that placed Papua as a Military Operations
Area (DOM) with repressive actions was one of the
mistakes in policy making for 32 years the Suharto
government was in power. Not only that, a series of
problems of poverty, disadvantaged areas,
discrimination and racism received by the Papuan
People have resulted in the emergence of a desire to
break away from the Unitary State of the Republic of
Indonesia. As a result, a separatist movement called
the Free Papua Organization (OPM) has emerged,
prolonging the problems on Earth of Cenderawasih.
The promulgation of Law Number 21 of 2001
concerning Papua's Special Autonomy from the
outset had the enthusiasm to reduce conflict issues in
Papua (Syaukani & Rasyid, 2001). This step was
further strengthened by the provision of an
affirmative budget for Papua from the Central
Government from the State Revenue and Expenditure
Budget, namely the Special Autonomy Fund which
based on data from the Ministry of Finance recorded
the flow of special autonomy funds or Otsus and
additional infrastructure funds (DTI) from 2002 to
2021 for Papua. and West Papua has reached
Rp138.65 trillion (Bisnis.com, 8 April 2021).
This figure is certainly not a small number
considering that this fund exceeds that obtained by
the Province of Aceh which also received a special
autonomy fund of Rp. 92 trillion which is also part of
the asymmetric decentralization policy product from
the central government to local governments. Various
developments ranging from roads, bridges to the
construction of buildings for health, education and
sports facilities were then carried out in Papua to
catch up with other regions. This is of course the
central government's answer to the demands of the
Papuan people as well as the government's efforts to
reduce conflict in Papua.
However, during the 20 years that the Special
Autonomy Law in Papua has been running, the
conflict issue has not yet reached a resolution, which
has resulted in the central government and the House
of Representatives of the Republic of Indonesia
having to find a solution for this. The problems that
develop in Papua arise because of the dissatisfaction
of the indigenous Papuans towards the policy choices
taken by the central government, which considers that
every policy related to special autonomy in Papua has
not touched the lowest level, namely the indigenous
Papuan people.
Therefore, in Law Number 2 of 2021 concerning
Special Autonomy for Papua in Article 76 paragraph
2, it is stated that the government and the House of
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Representatives can divide provincial and district/city
regions into autonomous regions to accelerate
equitable development, improve public services, and
improve welfare. the community, as well as elevating
the dignity of the Papuan Indigenous People by taking
into account the political, administrative, legal
aspects, socio-cultural unity, readiness of human
resources, basic infrastructure, economic capacity,
future developments, and/or the aspirations of the
Papuan people.
Of course, this expansion goal is not part of
returning the government to a centralized state like
the New Order era, but so that any policies taken by
local governments in the future can be more
measurable and touch all levels of society that have
not been touched by local governments so far due to
budget constraints, infrastructure readiness and other
problems related to the security of the region itself
because it is vulnerable to conflict between one
community and another (Kellas & James, 1998).
Of course, this expansion policy in the future is
expected to reduce conflict and increase
conduciveness in Papua considering that when
division occurs the level of security in a district,
district to village in Papua will be stronger. Moreover,
when a new province or district is formed
automatically the Papuan People's Representative
Council (DPRP) which is the legislative body in
Papua will also increase following the number of
existing provinces as stipulated in the formation of
new regions. Then the Governor and the existence of
the Papuan People's Assembly (MRP) which is a
cultural representation of the indigenous Papuan
people can be maximized because the regional
government of Papua province which previously
numbered 29 regencies/cities and West Papua
Province with 13 regencies/cities can be divided
according to statutory provisions.
Of course, the regulations governing the new
Papua Special Autonomy will give the Papua
Provinces the authority over all areas of government
and how to carry out development based on humanity
and civility in Papua. This mechanism is certainly a
wise choice in overcoming conflict problems caused
by poverty, disadvantaged areas, discrimination,
racism to dissatisfaction with the policies taken so far.
Of course, in dealing with the conflict in Papua, the
main approach taken is dialogue with every
stakeholder based on human rights and respect for the
values and culture of the Papuan people.
3.2 Low Human Development Index in
Papua
Law Number 2 of 2021 as an amendment to Law
Number 21 of 2021 concerning Special Autonomy for
Papuans actually also aims to improve welfare and
the Human Development Index in Papua. The goal is
to catch up with the provinces of Papua and West
Papua from the Indonesian territory in the central and
western parts. The problem in Papua today is that
there are still indigenous Papuans who have not been
able to recognize numbers and spell words because of
the complexity of problems in the world of education
that have not yet touched remote areas of Papua
(Sollosa, 2005).
Meanwhile, according to data from the Ministry
of Education and Culture (2019), nationally the
number of illiterates reached 1.78% of the total 270
million Indonesian population or approximately
equal to 4.8 million people. Papua is the province
with the highest illiteracy rate, which is 21.9% of the
total population of around 3.3 million. This means
that around 722 thousand people cannot read, count
and write which results in the Papua Province Human
Development Index being only 60.44 or the lowest of
all provinces in Indonesia.
In simple terms, the Human Development Index
can be understood as an indicator to measure the
comparison of life expectancy, literacy, education
and living standards which implicitly explains how
people's accessibility to work, income, health and
education is. The Indonesian Human Development
Index nationally in 2020 is 71.94.
This data confirms the fact that there is a
fundamental gap between Papua and other provinces
in Indonesia. Moreover, the Human Development
Index in Papua is far below the national average
Human Development Index. Even when compared to
DKI Jakarta, where the Human Development Index
reaches 80.77, it further emphasizes the disparity in
human development in the western and eastern
regions of Indonesia.
This problem stems from the low quality of
education in Papua, ranging from limited study space,
inadequate number of teachers, no fees for schools to
reasons for geographical location which are difficult
to access. The situation is exacerbated by poor road
infrastructure which has resulted in the isolation of
several mountainous areas in Papua. The impact is
that the community does not get a proper education
due to a lack of socialization regarding the
importance of science in promoting welfare and
overcoming poverty issues for the Papuan people.
Collaboration Model Between Stakeholders in Implementing Law Number 2 Year 2021 Concerning Papua Special Autonomy
205
Through Law Number 2 of 2021 concerning
Special Autonomy for Papua, it is certainly expected
to be a breath of fresh air for Papuan education. In
addition to emphasizing innovation, this law is
expected to make the alternative to achieving
education more practical, flexible and easier to
understand for Indigenous Papuans. This means that
every stakeholder must have the same paradigm on
how to improve education and health quality in Papua
as the main factor in pushing Papua to become a
region that can move on from backwardness
(Theodor, 2006).
Of course, the success of Law Number 2 of 2021
concerning Papua's Special Autonomy must be
supported by Papuan people as the main driving force
for development in Papua. Policies that were
previously far from indigenous Papuans must provide
new space so that there is affirmative action from the
central government and local governments to find
solutions to the problem of the low Human
Development Index in Papua whose indicators are
education, health and welfare (Rochendi & Saleh,
2017).
Apart from Papua, there are hundreds of local
indigenous cultures, different languages and diverse
customs. Every Indigenous Papuan must be
understood as the main object, not the subject as
before, so that every policy in implementing Law
Number 2 of 2021 concerning Special Autonomy for
Papua can be achieved through collaboration between
stakeholders that is affirmative in nature for
Indigenous Papuans. Affirmative action in the short
term of course must be taken in order to implement
Law No. 2 of 2021 concerning Special Autonomy for
Papua in collaboration between stakeholders, in this
case the central government, provincial governments,
regional governments, Community Social
Institutions, police, military, university institutions in
providing resources for the Papuan people. In
addition, to support success in the passage of Law
Number 2 of 2021 concerning Special Autonomy for
Papua, consistency is required in carrying out policies
that do not change but are consistent with the main
goal of the welfare of the Papuan people. The reason
is that the second amendment to Law Number 2 of
2021 concerning Special Autonomy for Papua will
continuously only waste energy if it is only based on
individual interests but will be successful if
collaborative actions are taken in the desire for
mutual success.
3.3 Stakeholder Collaboration
Every policy that comes from a legal product cannot
actually stand alone. There must be a strong system
and a desire for togetherness in sustaining the success
of a law (Mulyawan, 2012). Therefore, it is important
for collaborative efforts between stakeholders to
succeed in every policy taken. The prerequisites in the
collaborative process are participation, equality of
power and competence. The collaborative process at
the orchid consortium is based on prerequisites in the
collaborative process through content analysis and
communication network approaches (Innes, &
Booher, 2010).
A collaborative process between stakeholders in
the implementation of Law Number 2 of 2021
concerning Special Autonomy for Papua, namely the
central government, provincial or district and city
governments, university academics, community
social institutions, security forces namely the
Indonesian National Army and the Indonesian
National Police, institutions Papuan customs and
Papuan indigenous peoples are an inseparable part.
Therefore, to fulfill the prerequisites for the
success of Law Number 2 of 2021 concerning Special
Autonomy for Papua in a collaborative process there
must be the participation of these stakeholders whose
goal is to create conditions where there is equality of
power or there is no domination by certain parties,
every actor in dialogue is not hindered by hierarchical
boundaries, and there is mutual respect.
In this position, the central government must
understand what the wishes of the Indigenous
Papuans are to improve their welfare. The central
government, which previously emphasized physical
development, must focus more on the education and
health aspects of Papuan Indigenous People by
constructing school buildings and hospitals complete
with human resources, namely teachers and health
workers, doctors and nurses.
The regional government through the Provincial
Government and Regency Government as well as the
City Government should actually support the policies
of the central government through the establishment
of regional regulations following the issuance of Law
Number 2 of 2021 concerning Special Autonomy for
Papua. Of course, by involving competent actors,
namely actors who have the competence to
communicate, understand the substance, and have an
orientation towards achieving goals for the common
good.
In line with that, both the central government and
local governments must of course carry out a
collaborative process (Marshall, 1995) in
ICOSOP 2022 - International Conference on Social and Political Development 4
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implementing Law Number 2 of 2021 concerning
Special Autonomy for Papua. the ability to dialogue
by involving the Indonesian National Army and the
National Police of the Unitary State of the Republic
of Indonesia to provide maximum care and protection
to the indigenous Papuan people. Mainly about
overcoming conflicts from elements that have the
potential to damage an already good order. So with a
policy that is open and acceptable to the local
community, the Papuan People place their trust in the
Indonesian National Army and the National Police of
the Republic of Indonesia as protective institutions.
In addition, both academics, Community Social
Institutions and the Media must actively monitor the
implementation of policies based on Law Number 2
of 2021 concerning Special Autonomy for Papua by
not ignoring the aspirations of the traditional leaders
(ondoafi) and the Papuan People themselves. Of
course, the collaboration process between
stakeholders in the implementation of Law Number 2
of 2021 concerning Special Autonomy for Papua
must be in conditions that meet the prerequisites for a
collaborative process, with a high level of
participation, high competence, and equality between
stakeholders in Papua.
4 CONCLUSIONS
The enactment of Law Number 2 of 2021 as an
amendment to Law Number 21 of 2001 concerning
Special Autonomy for Papua has the spirit of
increasing the welfare of Indigenous Papuans.
Conflict resolution within the framework of dialogue
is an important foundation that is followed by
increasing the Human Development Index in Papua
through improving education and health quality as
well as the life expectancy of Indigenous Papuans as
the main foundation. Then the construction of road
infrastructure, school buildings, hospital buildings
and resource facilities for teachers and health workers
becomes an important part of the welfare of the
Papuan people through this second volume of the
Special Autonomy Law.
Of course, in implementing Law No. 2 of 2021
regarding Papua's Special Autonomy, it cannot be
done alone. There should be collaborative actions
between stakeholders such as; Central Government,
Regional Government, Indonesian National Army,
Indonesian National Police, Community Social
Institutions, Academics, Customary Heads (Ondoafi)
and the Papuan Indigenous People themselves in the
desire to advance Papua and improve the welfare of
the Papuan people. This process of collaboration
between stakeholders in Papua is the main element of
planning for the successful passage of the Special
Autonomy Law with elements of participation,
equality of power, and adequate competence from
stakeholders for the progress of Papua.
Through this collaboration, the results to be
achieved in the implementation of Law Number 2 of
2021 concerning Special Autonomy for Papua will
have the same direction and objectives and can
eliminate misunderstandings about the subject and
object of the policy. If this is carried out, it is hoped
that the collaboration between the relevant parties can
run optimally and the spirit of the formation of Law
Number 2 of 2021 concerning Special Autonomy for
Papua can be achieved.
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