Collaborative Governance of Waste Management in Dki Jakarta Province

INTERNATIONAL JOURNAL OF SOCIAL SCIENCES
20th July 2019. Vol.76. No.1

© 2012-2019 TIJOSS & ARF. All rights reserved
ISSN 2305-4557 www.Tijoss.com
COLLABORATIVE GOVERNANCE OF WASTE MANAGEMENT
IN DKI JAKARTA PROVINCE
Horas M. Panjaitan, H. M Aries Djaenuri, Reydonnyzar Moenek, Marja Sinurat
ABSTRACT
The focus of this research is to study governance collaboration in waste management by

taking a case in the city of DKI Jakarta. This study is important because empirically,
collaborative governance in waste management is implemented through the involvement of
BUMD (PT. Jakpro), Private Sector, Community, Local Parliament (DPRD), and related
stakeholders. The formulation of the problem in this research is detailed in several
questions, which are collaborative governance, internal and external factors that support,
strategies and models of institutional design in collaborative management of modern waste
management that are expected to be applied in the region in the future. The results of this
study are: 1) initial conditions readiness, collaborative governance processes, facilitative
leadership and institutional design in modern waste processing; and 2) Development of
collaborative organizational design models in waste management. The result of the
analysis found collaborative governance model of institutional design between government,
private sector and society by applying the MAURITS Model covering Modern, Authority,
Understanding, Review, Innovation Process, Transparency and Sustainable Development
Goals to realize the goal of collaborating modern waste management in DKI Jakarta.
I. PREFACE has had a Waste Master Plan compiled in

1987 for the period of 1987–2005 and 2005–
DKI Jakarta as the capital city of 2025. To accommodate changes such as the
Indonesia has a high level of growth both in current condition of the City of Jakarta and
terms of economy, population, social carry out the mandate of Republic of
development and so on. The economic Indonesia Law Number 18 Year 2008
growth requires the existence of adequate concerning Waste Management and DKI
supporting infrastructure to sustain the rapid Jakarta Provincial Spatial Planning in 2030,
progress and needs in increasing investment adjustments to policies in the management
in DKI Jakarta Province. Regarding efforts of DKI Jakarta Province waste are needed as
to organize and provide adequate and a reference for the implementation.
qualified infrastructure services, DKI Jakarta One of the problems faced by the
Provincial Government currently has 6 (six) Provincial Government of DKI Jakarta
(strategic) infrastructure projects whose related to waste services includes the waste
targets will be built in stages with the that is not maximally managed in an
required investment of IDR 492 trillion, integrated manner as stipulated in Regional
ONE of the strategic mega projects is the Regulation Number 5 Year 1988 concerning
management of Waste and Wastewater, Hygiene in the Special Capital Region of
which has a budget allocation of 40 trillion Jakarta. Judging from the process, the waste
Rupiah. DKI Jakarta Provincial Government is transported to the Final Processing Site
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20th July 2019. Vol.76. No.1
(TPA) to then be stockpiled. Waste Efforts to overcome various DKI

originates from households, markets, Jakarta waste problems are very much
industries, etc., which are transported to needed by enterprise and response through a
TPA without going through the sorting and form of cooperation by involving relevant
handling process first. In addition, waste stakeholders. Forms of cooperation between
management carried out so far has not been stakeholders that involve local governments,
in accordance with the mandate of Law private sector, and the community can be
Number 18 of 2008 concerning Waste interpreted as collaborative governance.
Management, because it has not paid Collaboration prioritizes interaction,
attention to the process of sorting and compromise of several actors involved, both
handling in a sustainable and individuals, groups, organizations or
environmentally sound manner, so that it can institutions both directly and indirectly who
have negative impact on public health. accept the consequences or benefits.
Waste management carried out in Regarding the problems of
DKI Jakarta through PT JAKPRO as a state- collaborative governance as stated above,
owned enterprise (BUMD) has become an this research is based on the Collaborative
investment vehicle for the private sector in Governance Theory presented by Ansell and
investing in waste management in DKI Gash (2007: 534) which states that:
Jakarta. The strategy is a solution for DKI collaborative governance is very well done
Jakarta waste management, which has been by involving multi-parties (government,
carried out entirely by the government, private and community) in public services.
which is directly handled by technical areas, This is also in line with the principle of
in the form of retribution collection, implementing regional autonomy to
collection from waste sources to temporary overcome the problem of range control
disposal site, and transportation to the final services to the community. In line with the
processing site. Even though waste collaborative governance model as stated
management by relying on handling by the (Ansell, Chris & Gash, 2007: 550–561), it
local government in a self-managed manner consists of 4 (four) main variables, namely
without involving other parties will not be 1) initial conditions, 2) collaborative
effective, so that the involvement of the processes, 3) facilitative leadership, and 4)
private sector and the community in institutional design.
collaboration is needed. In fact, DKI Jakarta
Provincial Government has had poor II. RESEARCH METHODOLOGY
experience in implementing collaborative This research uses qualitative
policies in waste management governance, approach, which is a research that produces
Mulyadin, Iqbal, Ariawan (2018: 179) significant research according to data and
arguing that the collaboration policy in the information in the field. The research
management of waste management in DKI process includes the process of drafting
Jakarta Provincial Government has caused research designs, listing statements /
conflict. The conflicting parties in the policy research questions and collecting data
include the Provincial Government of DKI sourced from informants and respondents
Jakarta, Commission D of the DKI Jakarta through qualitative interviews, qualitative
DPRD, PT. Godang Tua Jaya, and observation , inductive data analysis,
Commission A of the Bekasi City DPRD constructing partial data into themes and
(Mulyadin, Iqbal and Ariawan, 2018: 179). then giving analysis and interpretation of
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data in the form of data collectors, data dialogue, building trust and moving
processing and writing findings. participation for all actors involved or
III. WASTE MANAGEMENT stakeholders can run optimally. The Fourth
COLLABORATION Dimension, is the institutional design or
GOVERNANCE IN DKI organizational design that supports the
JAKARTA PROVINCE collaboration process, which is designed so
Collaborative Governance, the that the organization has clarity of authority,
First dimension is to analyze the starting working relationship patterns, implementing
conditions, namely to examine whether e-Government and e-Communication, in
there are asymmetric power-knowledge or order to encourage participation,
gaps that are very high in power and accountability and transparency in the
strength, resources or knowledge among process collaboration to achieve goals.
various stakeholders who will collaborate Which are discussed as follows:
and whether there is a history of the past,
both factors that support and inhibit A. Starting Condition
collaboration. This is needed to find out if Analysis of the initial conditions,
there is a gap that is too large, so that it can that the problem of capability and quality of
be assessed whether the starting condition human resources is still coloring the
will determine from the start that the collaboration of WTE / ITF waste
collaboration runs to the maximum or vice management and the early history and
versa. The Second Dimension is analyzing background of collaboration in waste
the collaboration process itself which is management at TPST Bantargebang (Bekasi
carried out through a dialogue process or City) until now still cause conflict and
face to face, so that it is expected to build leaving various problems that have an
the same trust and understanding with all impact on the sustainability of the strategic
stakeholders. The Third dimension concerns plan for the implementation of the regional
facilitative leadership. Leadership is the development program of DKI Jakarta
thing that holds the key in realizing the goals Province. Considering that at present, the
of the organization or institution in directing DKI Jakarta Provincial Government through
or empowering members or groups of the Office of Environment has collaborated
organizations to be able to carry out their with PT. Jakarta Propertindo (PT Jakpro)
duties and responsibilities. In the context of which was appointed as the project
the management of waste management in implementer and PT Jakpro collaborated
DKI Jakarta, several parties involved in the with Fortum Finland as a strategic partner
collaboration are the Department of for the construction of the Sunter ITF waste
Environment, State-owned enterprise (PT. management facility. This is in line with the
Jakpro) and the Joint Venture Company PT. Grand Design of the DKI Jakarta Waste
Jakarta Solusi Lestari (JSL) with private Management System and Presidential
business partners (Fortum) and the Regulation Number 35 of 2018, which
community. The relevant stakeholders are appoints Jakarta as a pilot project for the
the Ministry of Maritime Affairs, Ministry implementation of Environmentally Friendly
of Home Affairs, Ministry of Forestry and Waste-Based Power Plant Installation.
Environment, Ministry of Finance, The WTE / ITF project will be
Community Environment and Community known to anyone who has an interest in the
Observer. It is hoped that the collaboration governance process in waste management
process in leading each meeting, face to face (WTE / ITF project). For this reason,
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20th July 2019. Vol.76. No.1
stakeholders must also be sensitive to the and are currently in the process of signing a
problems that are present around the area, contract agreement (within a 25-year
care about problems and deal wisely so that contract period) which according to the
collaborations that are successful are in contract schedule is signed in June 2019.
accordance with what is expected together.
In addition, in conducting a collaborative B. Collaboration Process
process, the actors or stakeholders The collaboration process must
concerned need to create situations and always describe the stages of developing
conditions that are objective, fair, wise and agreements that explain how the phases of
open. This is to make it easier to produce a collaborative activities or cooperation are
decision and reach consensus. These carried out between the Regional
stakeholders are the Provincial Government Government and Business Entities and
of DKI Jakarta through the Office of Business Partners as well as Investors /
Environment, Bappeda, State-owned Private and between Regional, Private and
enterprise (PT. Jakpro and Joint Venture Community Governments starting from the
Company PT. Jakarta Solusi Lestari, Private pre-negotiation process, negotiation phase,
(PT. Fortum), and NGOs Observing the arrived at the program / project
Environment and Society. Relationships implementation stage in this context in the
between Provincial Government, State- context of organizing the DKI Jakarta WTE
owned enterprise, the community, private / ITF project. Collaborative Governance
sector and related stakeholders obtained process as a concept must be able to
equal position and formulated inputs for integrate concepts in waste management
decision making, but opinions and associated with conditions and problems that
suggestions from community members occur both from the legality aspects of State-
through Walhi still need dialogue and owned enterprise, feasibility of partnerships
socialization related to Amdal, because the with the private sector, choosing the right
community in general needs their opinions technology with the concept of Waste to
and complaints to be heard. This is because Energy based on environmentally friendly
the community, including investors, and no and stakeholder involvement in decision
exception in collaboration have the influence making while still paying attention to social
and strength to bargain with local conditions, characteristics of organizational
governments both in the decision-making culture, innovative thinking and taking risks.
process and in the implementation of the The waste management collaboration has
intended WTE / ITF project. been carried out based on the views of
In addition, in carrying out the Ansell and Gash as follows:
collaboration between the Provincial 1. The existence of face to face dialogue
Government of DKI Jakarta and the Private through meeting forums involving the
Sector, it is necessary to have rules that are Environmental Services, Bappeda,
made to run the project, in this case is the State-owned enterprise (PT. Jakpro)
Cooperation on the Implementation of WTE with business partners (PT. Jakarta
/ ITF Projects in DKI Jakarta. In the process Solusi Lestari), Private Sector (Fortum)
of collaboration between the DKI Jakarta and actors who are part of the internal
Provincial Government and State-owned Institutional Organization , investors,
enterprise (PT. Jakpro) in partnership with Ministries / Institutions (Central
PT. Jakarta Solusi Lestari (JSL) and Fortum Government Agencies), and other
have started to be prepared starting in 2012 stakeholders. This process has fulfilled
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20th July 2019. Vol.76. No.1
several collective agreements that have management ineffective and had not yet
a positive impact on the development achieved the objectives. The foregoing
of the WTE / ITF project. means that the process of socializing new
2. Participants in the forum also include knowledge or new policy directions on
actors outside the DKI Jakarta collaboration in the implementation of WTE
Provincial Government, such as Media, / ITF (modern waste management) in DKI
Universities, Notaries, NGOs, and the Jakarta has been running, so that members
Association of Environmental or groups of organizations present already
Observer. have good understanding so that it helps in
3. Participants from Ministries / facilitating its implementation in work unit
Institutions (K / L) who are involved or organization respectively.
and have direct interest and influence
in decision making and policy making, C. Leadership
such as the Maritime Coordinating Collaboration in decision making
Ministry, Ministry of Environment, in a policy is needed so that a strategic plan
Ministry of State Secretary, that is prepared can be achieved in a
Government Goods / Services consensus agreement by taking into account
Procurement Policy Agency, Ministry the aspects of togetherness, trust and
of Energy and Mineral Resources and acceptable to all parties involved in decision
PT. PLN. making. Related to this is facilitative and
4. Formally organized forums and democratic leadership. Facilitative
meetings which are held to produce leadership models in solving strategic issues
consensus and agreements towards WTE / ITF projects are needed
accompanied by minutes of joint between through regulation arrangements
agreements or Memorandums of that are used as operational bases for
Understanding (MoU). implementation, building trust, conducting
5. Collaboration that focuses on decision- regular and ongoing meetings to build
making which oriented to problem dialogue and discussion for democratic
solving such as solving legal product decision making through deliberation and
problems (regulation), land use and can be accepted by all stakeholders
assets / regional property, feasibility concerned, so that it can be beneficial for all.
studies and technology selection, The leadership that took place in
contents of contract material, the development of the Project began in the
agreements electricity buying and transition process of the Governor's
selling with PT. PLN and so on. leadership, where the implementation of the
The collaboration process by Presidential Regulation 35 of 2018 was
conducting face to face dialogue is to carried out by the Governor's Acting at that
equalize understanding between actors or time, namely Sumarsono who signed a
stakeholders, can be done through a process Memorandum of Understanding between
of knowledge management as well as the PT. JAKPRO, DKI Environmental Agency
NonI SECI Model. However, in the and FORTUM. Furthermore, the
implementation there were obstacles to the development of the project was continued in
absence of participants or actors involved in the Period of Definitive Governor
decision making, resulting in socialization of Leadership of Anies Baswedan which was
new things or new understandings related to marked by the placing of the first stone
the collaboration of WTE / ITF waste attended by all interested parties. This
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20th July 2019. Vol.76. No.1
proves that the collaborative process has hierarchical structure to other institutions
begun, only requires commitment and involved in collaboration, and even
seriousness between the Chairperson and prioritize the relationship between the DKI
related actors or stakeholders so that they Jakarta Provincial Government and state-
can truly realize the development of the owned enterprise, PT. Jakpro and Joint
WTE / ITF, because the process and stages Venture Company (PT. Jakarta Solusi
have been delayed long enough. Lestari), Fortum, Ministry of Energy and
Mineral Resources, PT. PLN and investors
D. Organization Design or lenders who are only vertically. While
Organizational design in the horizontally with the involvement of
context of collaborative governance in waste elements, other related Ministries /
management is the third dimension that Agencies, the private sector and the
explains that collaborative governance is a community (Ministry of Home Affairs,
system designed by involving many actors Ministry of Maritime Affairs, Ministry of
or subject involved or multi-stakeholders, Finance, Ministry of Environment, Attorney
both government, local government, private General's Office, Notaries, Community
sector, community, media, environmentalists Observers, NGOs, Universities, Consultants
, notary, state-owned enterprise related to and Communities) have not been explicitly
modern waste management (WTE / ITF) seen . Whereas the institutional relations
issues in DKI Jakarta. Organizational design involved in the collaboration process can
that is prepared in the collaborative fail, because there is a tendency that there is
governance is no longer conventional (non- no multi-stakeholder involvement and
partnership), which is only limited to generally tends to be vertical, so it is not
cooperation between the government as a suitable for collaboration which requires the
work owner and state-owned enterprise, need for horizontal organization between
business partners or the private sector as government, non-government, private
vendors or contractors. The importance of sector, community, university and even
appropriate and effective organizational media.
design in addition to supporting the
resolution of obstacles, constraints and IV. COLLABORATION
problems also provides clarity of each GOVERNANCE
stakeholder in collaborative management of INSTITUTIONAL MODEL
waste management in DKI Jakarta, Based on the previous discussion,
including clarity as a Regional Work Unit the researcher designs the concepts that were
responsible and becoming an actor involved discussed earlier to become the
in the implementation and control , clarity of Collaborative Governance Institutional
legitimacy and access to the authority or Model in DKI Jakarta Modern Waste
power that underlies WTE / ITF waste Management, namely: MAURITS MODEL.
management, the assignment given, the role The dimensions of the MAURITS MODEL
of the facilitator and the ability of capability can be explained as follows:
in determining how the collaboration 1. Modern, namely organizational or
process will work. institutional design that members and
Regarding the collaboration actors involved in decision making
between the implementation of the WTE / must have an organizational culture
ITF project mentioned above, in general, the that eliminates slow, rigid and
institutions involved only tend to apply a mechanistic bureaucratic behavior, but
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20th July 2019. Vol.76. No.1
must be more flexible, capable, aims to gather various information on

networking, professional and follow ongoing stages and progress and
the dynamics of the New Public decision making involving various
Management. Organizational design actors or groups of organizations and
must also be supported by facilitative related stakeholders. In conducting a
leadership to provide reinforcement in review can be seen from the aspects of
realizing trust between stakeholders input, process and results (product).
and actors involved in collaborating Review inputs include input in helping
with modern waste management. to organize decisions, determine
2. Authority, which is to give authority existing resources, what alternatives
to actors or stakeholders in accordance are taken, what plans and strategies to
with the background of their respective achieve goals, and how procedures and
organizations to act and make decisions work procedures to achieve them. The
with various risks and implement input review component includes: 1)
discretionary authority of the regional Human resources, 2) Supporting
head while taking into account the facilities and equipment, 3) Funds or
principles of transparency and budget, and 4) Various procedures and
accountability. In the division of rules needed.
authority is accompanied by a clear 5. Transparency. In general,
division of tasks, but in the division of transparency emphasizes that the
tasks is not interpreted as a division of government, the public and the private
work, but as a work unit, all of which sector together can know or gain access
are directed towards achieving goals to all information regarding
accompanied by the principle of government actions and policies. The
accountability. institutional management of
3. Understanding, which is to build collaboration in waste management is
knowledge management to realize the very concerned with transparency,
similarity of attitudes, views and considering transparency is one of the
understandings between actors or important things and the most risky is
stakeholders, so that various dynamics, causing problems so that transparency
obstacles and problems faced can be can be avoided corruption, suspicion
found the solutions together through among parties and can maintain trust
consensus and deliberation. With the between stakeholders concerned.
same understanding, it is expected to 6. Sustainable Development Goals,
build trust between the government, namely the concept of collaboration
local government, the private sector must be understood as a process that
and the community in all policies, steps has a long grace period. This is what
and actions taken through mutual distinguishes between collaboration
agreement while still adhering to the and collaboration in a team. As a
principle of accountability. process, collaboration is an interaction
4. Review, namely: evaluating all between several people, groups and
dimensions and collaborative processes sustainable stakeholders. For this
comprehensively as feedback for reason, collaboration aims to create in a
improvement, so as to produce output sustainable development goals any
and outcomes as expected. In decision-making in collaborative
reviewing the collaboration process, it governance of modern waste
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20th July 2019. Vol.76. No.1
management that is aimed at realizing universities and the community

national strategic development policies observing the environment.
through the development of electricity The institutional design of
generation that is sourced from collaborative governance in waste
environmentally friendly and management with the "MAURITS"
sustainable waste energy, and involves Institutional Design Model is a modification
collaboration with non-governmental of the model applied in Anshell and Gash's
or private elements, the media, collaborative governance, as illustrated
below:
Picture 4.1. MAURITS MODEL
Source: Processed by Researchers.
The "MAURITS" Institutional Design governance, where there are communities,

Model was developed to realize the there are government and business or private
competency and quality of regional sector. the role of the government in
government implementation from Anshel accordance with the position of the image in
and Gash's approach and the combination of a small box, gives the meaning that in the
Kybernologi development, because in every future the role of the government will no
interest related to the government, business longer be dominant, but should emphasize
or private sector and society is a cultural the function of the facilitator. The
unit. This is driven by three subcultures, institutional design model "MAURITS"
namely economic subculture (SKE), power above at the stage of its application in the
subculture (SKK), and social subculture implementation of modern waste
(SKS). With the development of interactions management in Indonesia, can be explained
between the three subcultures it is called through the following scheme.
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20th July 2019. Vol.76. No.1
Picture 4.2 Stages of Development of Modern Waste Management Institutions in Indonesia
Private
Institutional
Design:
Central
facilitation  Modern
 Autority
State-  Understan- Objective
owned ding Goals:
Actor
Gov enterpr
Participation  Review Prosperous
ise society
 Innovative
 Transparancy
penugasa  Sustainable
n Development
Regional
Goals
Governm
ent
Community
Source: Processed by Researchers, 2018.
The institutional design model 2. Dialogue communication patterns and

"MAURITS is a strategy designed to meet face-to-face, discussion or forum
the needs in the context of Collaborative meetings that result in mutual agreement.
Governance of Modern Waste Management 3. Supported by facilitative and democratic
in Regions by fulfilling the formulated leadership.
criteria based on the development of 4. Applying transparency in supporting the
Collaborative Governance theory, so as to collaboration process between the actors
produce the model adopted in other involved or stakeholders, especially in
countries and adjust the dynamics , the making decisions, both budget
complexity and problems that are being and transparency, transparency of program
will be faced by regional governments in the goals and objectives, transparency of
management of collaborative management information needed, thus creating a sense
of modern waste in the future. of mutual trust between the government,
The similarity of the institutional the private sector and the community.
design model "MAURITS" with the 5. Regional governments in cooperating
Collaborative Governance theory from with business entities or the private
Anshell and Gash are as follows: sector and the community, each party
1. Elements that synergize in collaborative collaborates with equalization of
governance are generally the same, understanding, unification of policies,
namely: regional government, business strategies, programs and activities in
world and non-government or order to achieve common goals.
community. 6. Community, business world and
community are integrated because of the
mutually agreed upon values.
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20th July 2019. Vol.76. No.1
7. The object of collaboration includes https://www.jstor.org/stable/pdf/25

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ISSN 2305-4557 www.Tijoss.com