Community Empowerment Construction towards Independent Rural Areas

Ika Sartika, Alma’arif

Post Graduate Program, Institut Pemerintahan Dalam Negeri, Jl. Ampera Raya, Jakarta, Indonesia

Keywords: BUMDes (village-owned enterprise), construction of community empowerment, independent rural areas,

Saemaul Undong

Abstract: This research attempted to identify the causes of rural areas dependency on government and formulate the

construction of community empowerment towards independent rural areas. The research was conducted in

Garut District because this district has the lowest life expectancy rate and the highest amount of under-

developed rural areas in West Java. The research was using the constructivism research method through an

in-depth interview with informants, focus group discussion and an observation as well in research site. The

informants of this research were: Head of Community Empowerment Agency (BPMD) Garut District and

staffs also sub-district heads and village heads in several under-developed rural areas. The analysis was

conducted by adopting Saemaul Undong community empowerment model in South Korea. The reason of

rural areas dependency on government in terms of rural development are; the community empowerment

program is still partial; rural development indicators are changing; the large number of rural government

superiors; fund policies reduce community initiatives and roles in rural development. The construction of

rural community empowerment towards independent rural areas in Garut regency is carried out by the

establishment of community economic institution in the form of BUMDes (village-owned enterprise).

1 INTRODUCTION

Joko Widodo and Jusuf Kala’s election as President

and Vice President of Republic of Indonesia in 2014

gave new hope for rural development in Indonesia

by the enactment of nine priorities called Nawa Cita

program. One of Nawa Cita program is developing

Indonesia by strengthening the regions and villages

within the Republic of Indonesia’s framework. This

program was implemented by forming Ministry of

Village, Development of Disadvantaged Regions,

and Transmigration, the main duty of this ministry is

to facilitate rural development through community

empowerment in order to reach independent

villages.

The village existence as a whole community

which has the right of origin to manage its property

based on customs and can manage its own

household is regulated in Law No. 6 of 2014

concerning Village. Clause 18 of Law No. 6 of 2014

states the village authority includes the village

administration authority, the implementation of

village governance, village community

development, and empowerment of village

communities based on community initiatives, the

rights of origin and the village customs. Based on

this, all villages are enabled to make policy and

implement policies that have been made at the same

time for the development in the village which is

concerned by exploring and utilizing development

resources owned by the village.

In order to carry out those authorities, villages

should have allocation, and the allocation is obtained

from village revenues. On clause 72 (1) law number

6 of 2014 states that village revenues are sourced

from: (a) village original income consists of business

results, assets, self-help and participation, mutual

cooperation, and other village original income, (b)

allocation of State Revenue and Expenditure Budget,

fees, (d) the allocation of village funds which is part

of the balancing funds received by the district / city,

(e) Provincial, District/City Revenue and

Expenditure Budget, (f) grants and non-binding

donations from third parties, and (g) other legal

village income.

Indonesia has more than 74,754 villages

(Regulation of the Minister of Home Affairs

56/2015), and some of them are classified as

disadvantaged villages (26 % or 19.436 Villages). In

Presidential Regulation No. 131 of 2015 concerning

Sartika, I. and Alma’arif, .

Community Empowerment Construction towards Independent Rural Areas.

DOI: 10.5220/0009022200002297

In Proceedings of the Borneo International Conference on Education and Social Sciences (BICESS 2018), pages 429-435

ISBN: 978-989-758-470-1

429

the Determination of Disadvantaged Regions, Garut

District and Sukabumi District in West Java

Province are still classified as disadvantaged

regions. Another indicator whether a region is

disadvantaged or not is can be seen from the life

expectancy of the area's people. Garut regency is the

district that has the lowest life expectancy in West

Java Province in the period of 1996-2013. In

addition, the number of disadvantaged villages in

Garut District is considerably high, so this research

will be more focused on Garut District of West Java

Province.

As a follow-up to Law No. 6 of 2014 and the

implementation of point 3 of the Nawa Cita above,

the government has provided financial assistance to

villages throughout Indonesia that come from the

State Budget Revenues totalling 20 trillion (2015),

46.98 trillion (2016) and 60 trillion (2017). The

funding is intended as a stimulus for infrastructure

development and economy so the development

activities in the village can grow and develop in

terms of physical and non-physical. Hence, a strong

and independent village will be achieved in turn as

the basis of national development.

The efforts to empower rural communities

through financial assistance from the government

have actually begun since the beginning of the Five

Year I Development in 1969 during the Soeharto

regime with the BANDES INPRES program

(Presidential Instruction on Village Assistance), IDT

(Presidential Instruction on Increasing Poverty

Reduction) and other programs. Those efforts have

carried out in the context of empowering and self-

reliance of village communities through and among

other things, transforming the structure of

community social activities, economic and

institutional which was originally traditional and

agrarian patterned towards a modern patterned

economic structure.

Contrary with description above, the construction

of a community-based society empowerment model

is needed to achieve an independent and sustainable

village community structure particularly in the

economic field. In particular, this research will

answer these questions: (1) Why is there still a

dependency of village government to government

and local government in execution of village

development especially on economic aspect? (2)

How is the suitable community empowerment

construction in order to create an independent

society?

2 LITERATURE REVIEW

The research on community empowerment within its

relation to create independent village actually has

been done by many government observers and

academics in Indonesia, such as (Fuad Muchlis,

2009), (Abdul Wahid, 2006), (Sony Kristanto 2009),

(Erizal Jamal, 2009), (Valerina Darwis dan I Wayan

Rusastra, 2011), and (Agus Sugiyono, 2012).

Several main issues which are often becoming the

theme of research namely Sectoral Empowerment,

Empowerment Strategies, and Empowerment Policy

Implementation.

Based on previous literature view, there are

several main issues which are often becoming the

theme of the research namely Sectoral

Empowerment, Empowerment Strategies, and

Empowerment Policy Implementation. There is also

a difference from the results summary of previous

research which can be seen that most of the research

was conducted on empowerment strategy aspects.

The position of this research is in the same aspect.

However, what makes the difference is when the

previous research constructing the village

community empowerment strategy was carried out

using a top-down approach where empowerment

was carried out based on the regional government

perspective. While on this research, construction of

community empowerment of village in Garut

District based on input from society then constructed

by researcher as recommendation for local

government even become model of village

community empowerment to independent village.

3 METHODOLOGY

This study uses a constructivist descriptive method,

which is an approach that confirms the assumption

that individuals always try to understand the world

in which they live and work. The constructivism

approach is used in this study due to the complexity

of the view and the understanding of the meaning of

the rural community empowerment towards the

independence of the village. So it is demanded to

seek meaning more broadly than to narrow the

meaning through categorization and ideas,

explaining and illustrating why and how the research

problem takes place.

The informants of this study were officials and

the community determined by purposive sampling

consisting of:

BICESS 2018 - Borneo International Conference On Education And Social

430

(1) Head of the Village Community

Empowerment Agency (BPMD) of Garut

District;

(2) Head of Banyuresmi Sub-district, sub-district

with the most disadvantaged villages;

(3) Head of the Division of Institutional

Strengthening and Community Participation

Development;

(4) Head of the Division of Indigenous

Empowerment and Community Social

Culture Development;

(5) Head of Community Economic Business

Empowerment Division;

(6) Head of the Division of Village Government;

(7) Head of Community Empowerment Village

Section;

(8) Head of Social Welfare Section;

(9) Head of Sub-division of Community

Participation and Village Profile Data

Stabilization;

(10) Head of Sub-division of Socio-Cultural

Development;

(11) Head of Sub-division of Economic Business

Development and Financial Institutions;

(12) Head of Sub-division of Production

Development and Marketing of Business

Results;

(13) Head of Sub-division of Village Government

Facilitation;

(14) Head of Sub-division of Village Financial,

Asset and Development Management;

(15) Some Village Heads which become locus of

research;

(16) Civilian whose determination uses snowball

techniques.



Data were collected through in-depth interviews

of the informants as mentioned above either

individually or collectively (focus group discussion),

while data analysis was carried out by triangulation.

4 ANALYSIS

4.1 Reasons behind Village

Dependency to Local Governments

in Economic Aspects

In this study, the reason for the village dependency

on the government in the economic aspects will be

analysed based on the opinion of (Adisasmita, 1999)

who stated that community empowerment is an

effort to use and manage rural communities more

effectively and efficiently, based on:

a. Input aspects (Human resources, fund,

infrastructure, data, plan, technology);

b. Process aspects (implementation, monitoring

and supervision);

c. Output aspects (goal achievement,

effectiveness and efficiency)

Based on in-depth interview with informants,

valuable information related to these three aspects

was obtained. The high number of responsible

parties in community empowerment, instead of

raises some fundamental problems that ultimately

lead to villages becoming more dependent on the

government, both central and regional. There is a

pattern error that is applied, so the number of parties

and the amount of budget disbursed are not

proportional to the welfare of the village

community. One of the reasons is that the village

community empowerment program is carried out by

many components and institutions which are

implemented partially, without seeing the unique

potential in each village. Village supervisors in

implementing community empowerment are:

Ministry of Home Affairs, Ministry of Village,

Development of Disadvantaged Regions, and

Transmigration, Provincial Government,

District/City Government, Village Community

Empowerment Agency, and Head of Sub-district.

Overlapping programs and policies often occur in

the village community empowerment process, so

village policy is eroded by central policy. The

village is only used as the object, for the sake of

certain parties. In the end the village remained

independent and heavily dependent on government

assistance. The concept of independent village is just

a discourse and finished on paper alone.

Even indicators of independent villages are

set by many standards (self-sufficient villages,

independent villages, developed villages) by

different components. There is also a new

nomenclature, namely the village building. The

concept of village building is directed to the village

authority which benefits the village and its people, in

the sense of entering into villages such as village

roads, village bridges, village infrastructure, and

touching the village community. The role of the

government present in the village is included in the

concept of building villages. The development of

rural areas was born. The parties who can cooperate

in realizing a building village, including the

province, or the Regional House of Representatives,

can be private sector, it can also be from the local

government. Coordination is needed here, so that the

ideals of realizing a building village can be achieved

and in accordance with the mandate of the Law.

Community Empowerment Construction towards Independent Rural Areas

431

The concept of village building is in line with

the village fund program distributed by the central

government to all villages in Indonesia. With this

village fund, it actually raises new problems, for

example, the assumption that the central government

is stronger and more powerful. It seems that villages

are much less powerful. The community is

increasingly distant in the presence of village funds.

Some cases occur such as village roads here already

planned with village funds. All of sudden, aspiration

comes from local government, so the village

succumbed because village planning can be easily

adjusted and directed to other programs. This case

shows how powerless the village is, whereas the

village building will be actualized if the village has

become more empowered. It cannot be denied that

there are several people who think that village funds

already exist so that the community does not need to

help, just to see the development in the village

without being able to participate in the development.

Still, society is just an object, yet it cannot be a

subject that determines the success of development.

Another problem that arises is the readiness

of the village to receive this huge amount of fund.

Need human resources who are reliable and

accustomed to managing village funds. The biggest

difficulty that will often be felt is when

accountability and facing the examiner, in this case

is the Supreme Audit Agency (BPK), related to the

allocation of village funds received from the central

government. Meanwhile, like it or not, village funds

are in the form of money that the village has to

spend, according to the planned needs. The village

cannot receive aid in the form of goods because of

the difficulty of accountability. Even if in the form

of goods, it must be in the form of a grant from a

legal entity.

4.2 Rural Community Economic

Empowerment Construction

towards Independent Villages in

Garut District

By now, the government is incessantly embarking

on the fourth point of Nawa Cita, which is

development starting from the village. Economic

aspects, community empowerment in village are

carried out by local government and government

through the forming of village-owned enterprise

(BUMDes) assisted by village government with the

expectation can be a stimulation of community

economic movement in village.

The eagerness to create independent village

constrained by these rules: one of the criteria of

independent village is to have BUMDes. Aside from

infrastructure grant, there must be community

empowerment through BUMDes. In practice, the

management of BUMDes involves many parties,

such as: BPMPD, official, BPD, position of village

head as a coach, Chairman of BUMDes and

BUMDes supervisory board, and head of sub-

district. The forming of BUMDes formally on paper

have been actualized in most villages in Indonesia,

but the implementation is still far from expectations.

Legal entities have been formed, but BUMDes

cannot yet run as an economic wheel in the village.

The classic problem encountered is the lack of

reliable human resources in the village. Need

solutions and guidance from various parties so that

BUMDes not only formed, but also able to become

an engine of economic driving in the village.

The figure of the village head as the leader

seems not enough to be able to move the community

to become more empowered and independent. Let

alone to move the economy, in terms of mutual

cooperation, it sometimes still depends on the

leadership of the village head. If the village head

figure is good, then it is a way. It is similar with

other mutual assistance. The community's response

is still highly dependent on the leadership of the

village head. Similarly, to mobilize BUMDes, aside

from the human resources that must be reliable and

the aspects of leadership of the village head is also a

determinant of the way BUMDes.

The data show that from 15 villages in

Banyuresmi Subdistrict, 9 BUMDes have different

characteristics and readiness. Furthermore, the

construction of a community empowerment model

in Banyuresmi sub-district focuses on villages which

do not have BUMDes, namely:

(1) Sukaratu Village

(2) Sukasenang Village

(3) Sukaraja Village

(4) Cipicung Village

(5) Bagendit Village

(6) Karyasari

Village

Based on data above, Karyasari Village is a

disadvantaged village from the Village Build Index.

Moreover, the development of BUMDes should

follow the vision and mission of the village

concerned and the potential of the village as has

been disclosed in the previous sub-section. So, the

formed BUMDes is not solely formed by the

government and local government but the formation

of villages on the aspirations of village communities

BICESS 2018 - Borneo International Conference On Education And Social

432

instead. The development of BUMDes can be seen in

Figure 1 below:

Sources: processed by researchers, 2016

Figure 1: Direction of BUMDes Establishment

The figure above shows that village potency

is the most considerable aspect in terms of

establishing BUMDes. After all, BUMDes is an

established village institution to improve the

economy of the community. Thus, the potential of

the village which can be developed and can be added

values for the economic improvement of society can

be managed together in a BUMDes.

Some aspects that determine the

independence of village communities through

BUMDes as revealed in the previous sub-section are

leadership, financial governance, participation,

supervisory institutions and institutional structures

of BUMDes itself. In terms of the leadership of the

village head, it was mentioned in the previous sub-

section that the activities of community participation

in voluntary development activities are highly

dependent on the leadership of the village head. This

shows that voluntary community participation in

each village varies according to the figure of a

village head. Therefore, government and local

government interventions are required in

establishing the leadership standards of village heads

through training of village heads. It is as revealed by

(Choe, 2005) that:

... Accuracy in choosing leaders at the

village level, which are those who want to

sacrifice their time and thoughts for the

prosperity of the community, also determine

the success of Saemaul Undong. The

selection of the right people as leaders of the

Saemaul Undong movement at the village

level is a determinant of success in addition

to continuous support from the government.

In addition, a special institution should be set

up to manage BUMDes whose devices are not from

village government apparatus but those who have

been trained by the government in the management

of BUMDes. Thus, there are two leaderships that can

work in synergy, a village head and the BUMDes

chairman. Both will include synergy in coordination

and assistance by the government and local

governments. This model can be called a two tier

system. The communication model of this system in

the management of BUMDes can be seen in Figure 2

below:

Source: adapted from Yi (2016) and modified by

researcher

Figure 2:

Integration Two Tier System Model of BUMDes

Based on figure above, it is obvious that the

authority of the government and regional

government is in the context of village community

mobilization through Village Head as BUMDes

chairman. Prior to the deployment, leadership

training was carried out by the government and local

government to the village head and the chairman of

the BUMDes. So hopefully the role of society will

bring its position close to the government in the next

development policy.

Associated with the supervision system,

supervisory model can be divided into two, which

are macro surveillance system and micro

surveillance system. Macro monitoring system is a

supervisory relationship formed by the

implementation of a two-tier system in the

communication process. This system can be

generally accepted in a unitary state. The village

which is a unit of the legal community based on the

rights of origin and customs is the object and subject

of development. In addition, there are other

stakeholders namely the government and local

governments. So, the pattern of macro supervision in

the management of BUMDes in Garut District can

be seen in Figure 3 below:

Government

Authority

(Central and

Village

community

Village

Head and

Village

BUMDes

Chairman

Two tier s

ste

Community Empowerment Construction towards Independent Rural Areas

433

Source: adapted from Yi, 2016

Figure 3: Macro Surveillance Pattern

Based on figure above, the government

provides education to the village community

(Village Head and its Device and Chairman of

BUMDes and its Devices) for the management of

BUMDes. After that, accompaniment is carried out

by local government (can be carried out by Sub

District Head or BPMD) after obtaining training

from former government. In addition, micro-

supervision can be established by a supervisory

agency whose structure may be included in the

Village Consultative Agency (BPD) or as it is now

with the supervisory Agency of BUMDes. The

structure of BUMDes surveillance agency consists of

community representatives of BUMDes users,

village government representatives, local

government representatives, representatives of BPD,

as well as private representatives (if the management

of BUMDes cooperates with the private sector).

5 CONCLUSIONS

(1) The reason behind the village and village

community's dependency on the government in

village development is due to the partial

implementation of the village community

empowerment program by many implementers.

In addition, the indicators of village

development are still structured by different

agencies with different indicators that have

different standards and will result in confusion

among village governments. The large number

of village government superiors coupled with

village fund policies reduces community

initiatives and roles in rural development.

(2) The construction of rural community

empowerment towards independent villages in

Garut District is carried out by establishing

community economic institutions in the form

of BUMDes (village-owned enterprise) which

is a national program. The formulation of

BUMDes is carried out by a two-tier system

(village and government/local government)

mechanism in which village government

assistance, training and education can be

effectively implemented. In addition, BUMDes

are arranged based on village potential, vision

and mission of village head. While supervision

is carried out by the local government and

government as well as BUMDes supervisory

institutions consisting of stakeholders from

BUMDes itself.

ACKNOWLEDGEMENTS

Thank you to the Director of the IPDN Postgraduate

Program for giving us the opportunity to research

and publish the results of this study. Hopefully it can

be useful for academics and practitioners of rural

development in Indonesia.

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