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

 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.

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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

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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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