District Position in the Implementation of Special Autonomy in

Jayapura Regency, Papua Province

Elphyna Erna Dameria Situmorang

Doctoral Program of Social Science, Universitas Cenderawasih, Jl. Raya Abepura Padang Bulan 99352,

Jayapura, Indonesia

Keywords: District Position, Building District, Special Autonomy

Abstract: One of the important policies after the end of the New Order regime which was in power for 32 years was the

implementation of the widest possible autonomy in the form of decentralization. Where was the birth of Law

Number 21 of 2001 concerning Special Autonomy for Papua as a form of asymmetric decentralization.

Government Regulation Number 106 of 2021 concerning Authorities and Institutions for the Implementation

of the Special Autonomy Policy for Papua Province is the implementation of Law Number 21 of 2001 in

conjunction with Law Number 2 of 2021. In order to increase the capacity of District administration, the

Regional Government of Papua Province provides assistance tasks to the District government. District/City

Regional Governments are required to delegate some of their authority in matters relating to public services

to the District government with support from human resources, funding, and financing by taking into account

geographical conditions, effectiveness of public services, and span of control of services. Jayapura Regency,

is one of the 29 regencies/cities in Papua Province, and is also the parent district of several new regencies

such as Jayapura City, Keerom Regency and Sarmi Regency. Jayapura Regency consists of 19 districts, 139

villages and 5 sub-districts spread over the Sentani lake area, the coast to the valley and mountainous areas

that can be reached by land, lake, sea or air transportation. The position of the district through the concept of

District Building-Developing Districts in Jayapura Regency is the main in the selection of research locations

based on Presidential Instruction No. 9 of 2020 concerning the Acceleration of Welfare Development in Papua

Province and West Papua Province. By making the district a role model in Papua Province, especially

Jayapura Regency, qualified human resources are needed.

1 INTRODUCTION

One of the important policies after the end of

Suharto's 32-year rule was the implementation of the

widest possible autonomy in the form of

decentralization. Where was the birth of Law Number

21 of 2001 concerning Special Autonomy for Papua

as a form of asymmetric decentralization. The

application of the concept of asymmetric

decentralization gives special treatment to Papua with

different status degrees from other regions based on

aspects of specificity and privilege. This is because

Indonesia is a very diverse country which is very

complex (Strong, 2015). The special autonomy policy

in Papua is basically an inseparable part of efforts to

decentralize (political) authority, followed by

institutional decentralization, coupled with financial

(fiscal) assistance through special allocation funds to

ensure that the needs of the special autonomous

regions are met.

The practice of administering special autonomy

that Papua has received has actually been guaranteed

by the Indonesian constitution. Practically what is

aspired to improve the welfare of the people in Papua

after the passage of the Special Autonomy Law raises

hope for the welfare of the Papuan Indigenous People

(Sani, 2010).

The role of the government in paying special

attention to Papua as a region with special autonomy

has not been fully implemented in Papua, this is

because the readiness of resources is far from

expectations (Silo & Ohoiwutun, 2018). In carrying

out and managing their government, the Papuan

regional government is still rated as lacking in various

aspects that refer to bureaucratic reform (Silo, 2013).

Initially, Papua was known as Irian Jaya. During

Gus Dur's leadership from 1999 to 2001, two months

122

Situmorang, E.

District Position in the Implementation of Special Autonomy in Jayapura Regency, Papua Province.

DOI: 10.5220/0011541500003460

In Proceedings of the 4th International Conference on Social and Political Development (ICOSOP 2022) - Human Security and Agile Government, pages 122-128

ISBN: 978-989-758-618-7; ISSN: 2975-8300

 2023 by SCITEPRESS – Science and Technology Publications, Lda. Under CC license (CC BY-NC-ND 4.0)

after his inauguration, on December 30, 1999, Gus

Dur visited Papua which was then still called Irian

Jaya. Gus Dur opened a space for dialogue for all

citizens, including the leadership of the Free Papua

Movement (Pratiwi, 2015). After all opinions were

conveyed, Gus Dur gave a response, one of which

was Gus Dur changing the name of Irian Jaya to

Papua. Another case is the change in the name of

West Irian Jaya to West Papua based on the Letter of

the Governor of West Irian Jaya Number

120/175/GIJB/2007 dated February 19, 2007

regarding the proposal to change the name of West

Irian Jaya Province to West Papua Province based on

the approval of the Provincial People's Representative

Council (DPRD). West Irian Jaya as stated in the

Decree of the DPRD of West Irian Jaya Province

Number 1 of 2007 dated 18 February 2007

concerning the Approval of the Change of Name of

West Irian Jaya Province to West Papua. On that

basis, President Susilo Bambang Yudhyono issued

Presidential Regulation Number 24 of 2007 dated

April 18, 2007 concerning the Change of Name of

West Irian Jaya Province to West Papua Province.

Previously there were Article 72 paragraph (3),

Article 76, Article 77, and Article 78 letter d, of Law

Number 5 of 1974 dated July 23, 1974 concerning the

Principles of Regional Government. This law

confirms that the district and municipality areas are

divided into sub-districts. Each region is led by a

regional head, namely the province and the state

capital are called governors, districts are called

regents, municipalities are called mayors,

administrative cities are called mayors, and sub-

districts are called subdistrict head. In carrying out his

duties, the Head of the District is responsible to the

Head of the Regency or Municipality or

Administrative City concerned. Provisions regarding

the appointment and dismissal of the Head of the

Administrative City Region and the Head of the

District are regulated by a Regulation of the Minister

of Home Affairs.

Entering the beginning of reform, the

implementation of Regional Autonomy, it is deemed

necessary to place more emphasis on the principles of

democracy, community participation, equity and

justice, and pay attention to regional potential and

diversity. Thus, the 1945 Constitution is a strong

basis for implementing autonomy by giving broad,

real, and accountable authority to regions, as stated in

People's Consultative Assembly of the Republic of

Indonesia Decree Number XV/MPR/1998

concerning the Implementation of Regional

Autonomy, Regulation, Distribution, and Utilization.

Equitable National Resources, as well as Central and

Regional Financial Balance within the framework of

the Unitary State of the Republic of Indonesia. Based

on these considerations, Law Number 5 of 1974 was

revoked and declared invalid by Law Number 22 of

1999 dated May 7

, 1999 concerning Regional

Government.

Article 1 letter, and Article 66, Law Number 22 of

1999, change the position of sub-districts to become

Regency or City Region officials. The sub-district is

an apparatus for the district and city areas led by the

sub-district head. The head of the sub-district is called

the sub-district head. Then the subdistrict head or

Camat is appointed by the Regent on the

recommendation of the Regency/City Regional

Secretary from a Civil Servant who meets the

requirements.

The Camat or subdistrict head receives the

delegation of part of the government's authority from

the Regent/Mayor. Furthermore, the Camat or

subdistrict head is responsible to the Regent or

Mayor, and in the formation of the District, it is

determined by a Regional Regulation. Subsequently,

Law Number 22 of 1999 was revoked and declared

invalid by Law Number 32 of 2004 dated October 15,

2004 concerning Regional Government. In 10 years

later, Law Number 32 of 2004 was revoked and

declared invalid by Law Number 23 of 2014 dated

September 30, 2014 concerning Regional

Government. Then it was revised by Law Number 9

of 2015 dated March 18, 2015 concerning the Second

Amendment to Law Number 23 of 2014 concerning

Regional Government, most recently by Law Number

11 of 2020 concerning Job Creation.

In particular, the implementation of special

autonomy for Papua related to districts in making

programs and running them really requires the

involvement of the district government as well as

community characteristics so that there is

transparency or openness in making programs and

running them openly and honestly, so that the

implementation of special autonomy policies can run

well at the district level (Suroto, 2021).

This means that the role of the District in Jayapura

Regency is very important and very strategic in the

development of the current Special Autonomy era,

moreover the District Work area is an extension of the

central government which is an element of the

regional apparatus that receives the delegation of

authority from the Jayapura Regency Regent to carry

out some regional autonomy affairs and general

government. In addition, the District Head in

Jayapura Regency in carrying out his duties is

assisted by district government officials and is

responsible to the Regent through the Regional

District Position in the Implementation of Special Autonomy in Jayapura Regency, Papua Province

123

Secretary. The District Government apparatus is

responsible to the District Head. Therefore, the

research entitled: "The Position of the District in the

Implementation of Special Autonomy in Jayapura

Regency, Papua Province" would like to explain the

extent to which the district plays a role in the process

of implementing special autonomy in Jayapura

Regency, Papua Province.

2 RESEARCH METHODS

This research is a qualitative research with positivism

paradigm with descriptive analysis (Nazir, 2003).

Researchers collected data related to the District's

Position in the Implementation of Special Autonomy

in Jayapura Regency, Papua Province with the

method. The primary data in this research are

journals. Then secondary data from books,

documents and media releases (Sugiyono, 2005). The

collection of research data is then carried out through

a process of reviewing documents or reports related

to the focus of research related to how the District's

Position in the Implementation of Special Autonomy

in Jayapura Regency, Papua Province.

3 RESULTS AND DISCUSSION

3.1 District Position in Regional

Autonomy in Jayapura Regency

Each region has different characteristics from one

region to another, including the sub-district area

(Papua calls it a district), ranging from ethnicity,

culture to geographical aspects, natural resources,

human resources and geopolitics (Mardani, 2011).

This difference can also be an obstacle in running the

wheels of government and development in the district

when the government realizes a democratic

government as a manifestation of the decentralized

system mandated by Law no. 32 of 2004, where the

head of the sub-district government is given two

powers at once (attributive and delegative) to carry

out several affairs related to the demands of Regional

Autonomy in the Province/Regency/City area in

Indonesia, especially matters in the form of public

services, governance and community empowerment.

The position of the sub-district government has

undergone a change, which was originally the

administrative center of government so that it has

power has now turned into a service center carried out

by the sub-district government which can provide

services according to the needs of the community at

the district level, especially in the era of regional

autonomy (Labolo, 2010).

The implementation of regional autonomy in

Indonesia tends to be more focused on regencies and

cities, with the reason being to bring services closer

to the community optimally. On the other hand, this

regional autonomy is also for regencies/cities which

have very wide area coverage (coverage), very wide

distance (orbitation), and low public access to various

public services. For the implementation of Regional

Autonomy, the government tends to take a sectoral

approach and fails to make sub-districts the twin

spearheads of government strategy.

The implementation of the Regional Autonomy

policy has succeeded in creating an essential change

in the administration of regional government, namely

regarding the position, main tasks and functions of the

sub-district which was previously a regional

apparatus with the principle of deconcentration,

changed its status to a regional apparatus based on

decentralization. The change in the position of the

sub-district from a government administrative area to

the work environment of local government apparatus,

opens opportunities for the sub-district to develop

themselves through innovation and creativity

according to the needs and demands of the

community.

Regional autonomy is an act of delegation from

the central and provincial governments. Regency/city

to the government which is one level below it to make

household arrangements in accordance with

applicable regulations (Fadhly, 2017). As stated by

Karim, Abdul Gaffar, et al (2003) that the concept of

regional autonomy leads to the concept of

decentralization in 4 main forms, namely:

a. Deconcentration is Transfer of administrative

authority and responsibility within the internal scope

of the ministry. The switch in this model is not very

visible. Subordinates exercise their authority on

behalf of the leader and are responsible to their leader.

b. Delegation is responsibility for functions to

organizations outside the government organizational

structure and indirectly controlled by the central

government.

c. Devolution is This type of decentralization

relates to the establishment and empowerment of

government units at the local level by the central

government and is limited to certain fields.

d. Debureaucratization, also called privatization

is the release and handover of all responsibility for

government assets to other parties within the scope of

government or private parties (privatization).

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Based on this type of decentralization, supported

by applicable laws and regulations, it is deemed

necessary to give authority to local governments, in

the form of autonomy with the aim of providing

welfare to all people fairly and equitably, as mandated

by Law Number 23 of 2014. In line with that, the

bureaucratic system in parts of the region in Indonesia

must adapt and respond to the characteristics of their

own regions according to their local wisdom,

including gatra: geographical, demographic, natural

wealth, politics, economy, and socio-culture. Based

on that thought, with the specificity of the gatra in this

land, we should be able to witness the Papuan-faced

bureaucracy, framed in Bhinneka Tunggal Ika (Erik,

2012).

The Papuan Provincial Government which has 29

regencies/cities with a high level of heterogeneity,

accompanied by differences in geographical factors,

geopolitics and population conditions as well as a

very large area, has been given authority in the form

of Special Autonomy for 20 years through 2001. Law

Number 21 of 2001 has been amended several times,

most recently by Law Number 2 of 2021 dated July

19, 2021. During the Special Autonomy era, the

Papua Provincial Government and City Regency

Governments were given full authority to regulate

their own households, especially in the fields of

public services, such as education, health, economy

and infrastructure. So that the development progress

that has been achieved can be said to be almost the

same and evenly distributed in all regencies/cities in

Papua Province.

District/City Regional Governments are required

to delegate some of their authority in matters relating

to public services to the District government with

support from human resources, funding, and

financing by taking into account geographical

conditions, effectiveness of public services, and span

of control of services.

Article 26, PP Number 106 of 2021, the authority

for affairs related to public services, at least consists

of: (a). issuance of population documents in

underdeveloped, remote, and frontier areas; (b).

issuance of business license registrations submitted

by business actors in underdeveloped, leading,

outermost, and/or uninterrupted districts; (c).

community empowerment; d maintenance of peace

and public order; (e). maintenance of public facilities

and facilities; and (f). supervision and assistance in

the administration of village/customary villages. The

District Head is appointed from a civil servant who

meets the requirements and has served in the District

for at least 2 (two) years. In order to strengthen the

Districts, the Regional Government of Papua

Province and the Regional Government of

Regency/City together with the ministry that

administers domestic government affairs conduct a

study and prepare a master plan to increase the

capacity of the District government in Papua

Province.

Previously, on September 29, 2020, President

Joko Widodo gave special instructions to ministries

and institutions cq. The Minister of Home Affairs is

stated in the Fourth Dictum, number 5, letter k,

Presidential Instruction Number 9 of 2020, to

increase the role of the district to become a role model

for regional-based development approaches through

the concept of District Building-Building Districts

through policy affirmations to the Regents/Mayors to

delegate their authority including :

a. Implementation of district scale basic services

(population data center, regional database

b. Implementation of local community

empowerment;

c. Guidance and supervision of village

government (district as a mentor/coaching clinic for

village government);

d. As a data, information and knowledge center,

basic service center, community empowerment

center;

e. As a center for the development of innovation

and entrepreneurship, a center for managing natural

resources and the environment; and

f. As the center of district/city economic growth

(Cahyo, 2021).

Jayapura Regency, is one of the 29

regencies/cities in Papua Province, and is also the

parent district of several new regencies such as

Jayapura City, Keerom Regency and Sarmi Regency.

Jayapura Regency is the capital city of Sentani City,

consisting of 19 Districts, 139 Villages and 5 Sub-

Districts spread over the Lake Sentani area, the coast

to the valley and mountainous areas that can be

reached by land, lake, sea or air transportation. Based

on this description, the position of the district through

the concept of the District Building-Building District

in Jayapura Regency is the main in the selection of

research locations based on Presidential Instruction

No. 9 of 2020 concerning the Acceleration of Welfare

Development in Papua Province and West Papua

Province. By making the district a role model in

Papua Province, especially Jayapura Regency,

qualified human resources are needed.

According to Article 221 paragraph (1), Law no.

23 of 2014 states that the formation of sub-district

areas is intended to improve coordination related to

governance, provision of public services and

empowerment of people who live in all villages. In

District Position in the Implementation of Special Autonomy in Jayapura Regency, Papua Province

125

contrast to other regions in Indonesia, the provinces

of Papua and West Papua have separate names in the

naming of administrative areas under districts/cities.

Where in other regions in Indonesia use sub-districts

while in Papua and West Papua Provinces use

districts for the designation of the region.

3.2 District Administration Challenge

The Jayapura Regency Government has given full

authority to each district head to regulate and manage

the Jayapura District as their own household, in this

case in connection with the mandate of the Special

Autonomy Law No. 21 of 2001 concerning Special

Autonomy for the Papua Province. Judging from the

law that opens great opportunities for regional

leaders, the district head plays an important role in

giving the widest possible authority to the district

government to develop various fields according to the

needs of the existing community. The inhibiting

factor in the implementation of infrastructure

development in the District of Jayapura Regency so

far is mainly related to the limited authority they

have, especially in budgets and policies making it

difficult to execute policies (Ali, 2017).

Human resources are also very influential in terms

of regional development, so in the District of

Jayapura Regency, training is still needed. It does not

mean that the District in Jayapura Regency does not

have people with higher education but in fact very

many have succeeded in lower level education to

higher education but the problem is that those who

have finished their studies do not return to their

hometowns as regional children but instead they also

live in In the city, there is no educated person who has

qualities who have never managed the community as

educational staff, economic development facilitators

or medical personnel. To support the problem of

obstacles as an inhibiting factor for infrastructure

development, there is a lack of public awareness in

participation during development implementation

because public awareness is very important as a form

of direct support from the community as development

consumers.

The use of the district nomenclature as referred to

in Article 1 letter k, Law Number 21 of 2001 is a

special form of the Province of Papua and West

Papua, but regarding its position and function it is the

same as that of a sub-district, so changes must be

made. Although the use of district nomenclature is a

specialty for the provinces of Papua and West Papua,

the position and function are the same as for the sub-

districts. Because it is still the same, changes must be

made, both adjusted to the specifics of the Provinces

of Papua and West Papua and adjusted to the

provisions of regional government arrangements

(Adryamarthanio, 2021).

In the 20-year period of Special Autonomy in

Jayapura Regency, it appears that there has been a

transformation in various sectors of physical and non-

physical development. However, it cannot be denied

that there are still lags in certain sectors, which

experience delays in the development process,

especially at the village level (Papua calls it

Kampung) which consists of 139 villages

(Government Villages and Traditional Villages) from

19 Districts in Jayapura Regency.

3.3 Success Indicator

One of the success factors of development that can be

used as a benchmark is the development of the quality

of human resources (HR), which the World Bank uses

the Human Development Index (Human

Development Index) and the Gender Development

Index (HDI disaggregated by men and women). The

Human Development Index in Jayapura Regency

continues to increase from year to year, although

there are components that increase slowly.

Meanwhile, the economic growth of Jayapura

Regency is dominated by the agricultural, forestry,

marine and fishery sectors which can contribute to the

regional economy by creating 2006,68 business

fields. After that, it was followed by the

transportation and warehousing sector at 1502.10,

and the construction sector at 1312.11 (BPS, 2021).

As in the real condition of Jayapura Regency, the type

of authority that should be exercised deserves to be

adjusted to the implementation pattern that varies

based on 3 aspects:

1. Characteristics of each District including

population, geographical, economic, infrastructure,

socio-cultural conditions, and so on;

2. Quality of District Apparatus Resources; and

3. Assets and facilities (technology) available in

each District.

In addition, the types of authority mandated by

Permendagri Number 158 of 2004 and the concept

put forward by Wasistiono (2011) are formulated into

7 Authorities, consisting of:

1. Coaching;

2. Supervision/Control;

3. Licensing./Recommendations;

4. Implementation;

5. Facilitation;

6. Coordination;

7. Residue.

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If you observe the data and the concepts that have

been described, it can be seen that there are quite

crucial problems related to the delegation of authority

to the sub-district as a regional apparatus in order to

provide government services, services to the

community (public service delivery). This is because

there are still differences in perceptions among

Regional Apparatus regarding the importance of

delegating the authority of the Regent to the District,

in addition to facilitating various affairs related to

efforts to improve community welfare in Jayapura

Regency. Therefore, the aspects of the Regent's

political will and good will are important in

determining various strategies that can be taken to

improve the welfare of the village community in the

Jayapura Regency area.

The role and function of the District in Jayapura

Regency is very important to increase the role of the

district to become a role model for a regional-based

development approach through the concept of District

Building-Building Districts within the framework of

Special Autonomy. This distinguishes the District or

called by another name in Indonesia from the District

in Papua, especially Jayapura Regency, Papua

Province.

4 CONCLUSIONS

The role and function of the district in the

implementation of Special Autonomy in Jayapura

Regency needs to be optimized, to increase the

Human Development Index of district officials. In

addition, it is necessary to improve the coordination

and optimization of district functions to increase the

role of the district to become a role model for a

regionally-based development approach through the

concept of District Building-Building Districts.

Human Resources are needed to realize good district

governance within the framework of Special

Autonomy in Jayapura Regency, Papua Province. .

With the allocation of the special autonomy budget,

the role of the district as a role model for a regional-

based development approach through the concept of

District Building-Developing Districts within the

framework of Special Autonomy can be realized.

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