Oleh: Bagus Sulistiono, S.IP
(Mahasiswa Magister Kebijakan Publik Universitas Gadjah Mada)
Krisis identitas dalam hal pelayanan publik saat ini memang tengah terjadi. Krisis identitas menjadi sangat penting untuk dibahas karena adanya ketidakjelasan dalam hal pelayanan publik kepada masyarakat. Ketidakjelasan yang dimaksud adalah domain publik (pemerintah) saat ini tidak sepenuhnya menjadi pelayan bagi masyarakat seperti beberapa puluh tahun kebelakang. Saat ini dalam era digitalisasi pihak-pihak di luar pemerintah gencar dalam memberikan pelayanan publik. Menurut Setiawan (2017) dalam era digitalisasi, teknologi menjadi factor utama yang mampu membantu sebagian besar kebutuhan hidup manusia. Setiawan (2017) menambahkan bahwa teknologi telah terbukti mampu mempermudah manusia melakukan tugas dan pekerjaan apapun. Jika melihat fakta yang terjadi dilapangan, saat ini pihak swasta dapat memberikan pelayanan publik kepada masyarakat seperti apa yang telah dilakukan oleh pemerintah pada tahun-tahun kebelakang. Demikian juga dengan adanya relasi antara pihak pemerintah dengan swasta dalam hal pelayanan publik yang mana semakin mengikis batasan-batasan identitas diantara keduanya (Haque, 2001). Krisis identitas ini awalnya dikemukakan oleh Waldo dalam Pesch (2008) yang menyatakan bahwa kurangnya kerangka kerja konseptual yang konsisten dalam hal administrasi publik menyebabkan krisis identitas itu muncul. Hal ini diperburuk oleh pendapat Haque (2001) bahwa sekarang ini situasinya telah memburuk yang mana tidak hanya mencemari teori administrasi publik tetapi juga dalam praktik administrasi publik.
Memang jika kita melihat kembali secara teoritis dan konsep, administrasi publik menurut Keban (2008) dibagi kedalam tiga pemaknaan variasi, yaitu istilah administration of public, administration for public, dan administration by public. Keban (2008) menjelaskan istilah administration of public merujuk pada bagaimana pemerintah berperan sebagai pemain tunggal yang berkuasa (regulator) dalam mengatur dan mengambil langkah yang menurut mereka penting dan baik, karena mereka mengasumsikan masyarakat adalah pihak yang pasif, kurang mampu, dan harus tunduk serta menerima apa saja yang diatur oleh pemerintah. Lalu untuk istilah administration for public, Keban (2008) menjelaskan bahwa pemerintah lebih berperan dalam mengemban tugas pemberian pelayanan publik. Diasumsikan dalam konteks ini bahwa pemerintah lebih responsive atau lebih tanggap terhadap apa yang dibutuhkan oleh masyarakat dan mengetahui cara-cara yang terbaik untuk memenuhi kebutuhan mereka dalam hal pelayanan publik. Konteks ini sedikit lebih maju dari pada konteks sebelumnya. Yang terakhir adalah konteks administration by public, Keban (2008) menjelaskan dalam konteks ini masyarakat lebih diberdayakan yang mana mengutamakan kemandirian dan kemampuan masyarakat karena pemerintah telah memberikan kesempatan untuk itu. Dengan kata lain pemerintah dalam hal ini berupaya memfasilitasi masyarakat agar mampu mengatur dan mengurus hidupnya tanpa harus terus-menerus bergantung kepada pemerintah. Konsekuensi dari konteks ini adalah masyarakat dapat menciptakan peluang-peluang (enterprenuership) pemenuhan kebutuhan hidup termasuk di dalamnya pelayanan publik bagi mereka sendiri, sedangkan pemerintah hanya sebagai fasilitator serta dapat focus kepada urusan-urusan kenegaraan yang lain.
Kesimpulan dari teori tersebut jika dilihat penerapannya dengan kondisi Indonesia saat ini memang pemerintah pada awalnya bertindak sebagai agen tunggal yang mendominasi dalam hal pelayanan publik kepada masyarakat, namun demikian di era yang saat ini serba digital dan moderen, pemerintah memberi ruang dan fasilitas kepada masyarakat untuk ‘berkarya’ sehingga menciptakan peluang-peluang bagi mereka untuk memenuhi kebutuhan hidupnya sendiri. Outcome dari hal tersebut berindikasi bahwa saat ini pihak swasta bisa saja lebih ‘publik’ ketimbang pihak pemerintah. Jadi pandangan Haque (2001) yang berpendapat bahwa teori serta praktik dalam administrasi publik yang saat ini ‘tercemar’ memang benar adanya sehingga menyebabkan munculnya krisis identitas antara para penyedia pelayanan publik, antara pemerintah dengan swasta. Masalah selanjutnya yang kemudian menjadi pertanyaan penting bagi kita adalah siapakah yang lebih ‘publik’ dalam hal pelayanan kepada masyarakat, pemerintah atau swasta? Jika merujuk pada pendapat Haque (2001), selama pihak-pihak (pemerintah atau swasta) tersebut dapat memenuhi kepentingan dan kebutuhan banyak orang, mereka dapat dianggap lebih publik dari pihak manapun. Untuk melihat siapa yang lebih ‘publik’, kita dapat mengambil kasus yang terjadi akhir-akhir ini di Indonesia secara umum tentang hal pelayanan publik. Sehingga harapannya dapat dengan mudah dan focus dalam menjelaskan setelah memaparkan batasan-batasan dalam artikel ini.
Gambaran Umum Pelayanan Publik di Indonesia
Pelayanan kepada masyarakat sudah menjadi tujuan utama dalam penyelenggaraan administrasi publik. Di Indonesia penyelenggaraan pelayanan publik menjadi isu kebijakan yang semakin strategis karena perbaikan pelayanan publik di negara ini cenderung berjalan di tempat, sedangkan implikasinya sebagaimana diketahui sangat luas karena menyentuh seluruh ruang-ruang kepublikan baik dalam kehidupan ekonomi, sosial, politik, budaya dan lain-lain (Mahsyar, 2011).Pelayanan publik merupakan dasar dari pemenuhan hak-hak konstitusi setiap warga negara yang telah dipertegas oleh UU No. 25/2009 tentang Pelayanan Publik. Di dalam undang-undang tersebut dikatakan bahwa penyelenggara pelayanan publik adalah setiap institusi yang termasuk penyelenggara negara, korporasi, serta lembaga independent yang dibentuk berdasarkan undang-undang untuk kegiatan dalam pelayanan publik, dan badan hukum lain yang dibentuk semata-mata untuk kegiatan pelayanan publik. Di sisi lain, sektor swasta juga mempunyai peranan penting dalam hal penyediaan barang dan jasa yang bersifat privat (swasta). Situasi persaingan diprediksi akan selalu ada dalam penyelenggaraan penyediaan barang dan jasa oleh sektor swasta
Pada kenyataannya pelayanan publik di Indonesia dari tahun ke tahun menimbulkan masalah yang tak kunjung selesai. Dari press release sebuah LSM di Indonesia, setidaknya ada empat gambaran besar betapa buruknya pelayanan publik di Indonesia. Dijabarkan menurut YAPPIKA (2018), pertama adalah buruknya kualitas produk layanan publik. Buruknya kualitas layanan publik dapat dilihat dari beberapa sekolah negeri yang tidak layak bahkan mengkhawatirkan untuk kegiatan belajar mengajar. Selain itu dalam kasus yang lain beberapa kepala keluarga kesulitan mendapatkan air bersih disejumlah daerah. Ada pula permasalahan jalan rusak yang rasanya menjadi hal lumrah di Indonesia sampai saat ini. Kedua, rendahnya/ketiadaan akses layanan publik bagi kelompok rentan (miskin, perempuan, disabilitas, dan lain-lain). Masalah ini nampaknya sering dijumpai di Indonesia yang mana kebanyakan masyarakat rentan sangat sulit mengakses berbagai hal khususnya dalam hal pelayanan publik seperti kesehatan, pendidikan, ekonomi, dan sebagainya. Ketiga, buruknya kualitas penyelenggaraan pelayanan publik. Salah satu contohnya dapat dilihat dari bidang transportasi umum di Indonesia. Menurut Amelia (2016) tingkat pelayanan transportasi publik di Indonesia belum baik dan belum optimal, bahkan dapat dikatakan buruk, terutama di kota-kota besar. Banyak faktor yang menyebabkan buruknya pelayanan transportasi di Indonesia seperti aksesbilitasnya, keamanan, kenyamanan, dan sebagainya. Keempat, ketidakjelasan mekanisme komplain dan penyelesaian sengketa. Bagi masyarakat, kondisi pelayanan publik ini diperburuk pula dengan ketidakjelasan mekanisme pengaduan yang dapat mereka tempuh ketika mendapatkan layanan yang mengecewakan atau di luar standar. Padahal, layanan publik merupakan hak warga yang pemenuhannya menjadi kewajiban negara. Sebagai contoh sengketa lahan antara warga dengan pemerintah yang terjadi diberbagai daerah di Indonesia.
Dari empat gambaran tersebut dapat disimpulkan bahwa pelayanan publik di Indonesia masih jauh dari kata baik. Artinya negara dianggap gagal dalam pelayanan hak-hak dasar setiap warga negara dan juga dianggap tidak ‘publik’ jika melihat fakta-fakta permasalahan yang ada di Indonesia saat ini. Hal ini seperti yang disampaikan Lockean dalam Labolo (2012) bahwa negara disebut gagal apabila tak mampu dalam penegakan hukum, melindungi masyarakat, menjamin hak warga negara dan partisipasi politik, menjamin keamanan, memenuhi kebutuhan masyarakat dalam hal infrastruktur serta berbagai fungsi sosial. Sangat kontras apabila melihat hakekat fungsi utama negara adalah sebagai penyedia jasa (pelayanan publik).
Ketidakmampuan negara dalam melayani masyarakat memunculkan sebuah solusi alternative yang datang dari pihak luar negara (swasta/non-pemerintah). Di Indonesia saat ini telah banyak organisasi swasta yang ikut andil dalam pemenuhan pelayanan publik. Merupakan sebuah hukum alam apabila pemerintah tidak mampu memberikan sebuah pelayanan, maka muncullah pihak swasta dengan orientasi mencari keuntungan. Adapula solusi kemitraan antara pemerintah dengan swasta dalam pemenuhan layanan publik. Di sisi lain solusi tersebut tidak selalu dianggap baik, karena apabila semakin banyak swasta yang ikut ‘bermain’ dalam hal pelayanan publik, ini akan menimbulkan krisis identitas di ranah administrasi publik (Pesch, 2008). Haque (2001) menambahkan bahwa tantangan terhadap kepublikan yang ditimbulkan oleh erosi diferensiasi publik-swasta — terutama dalam hal mengganti norma publik (kewarganegaraan, perwakilan, imparsialitas, kesetaraan, dan keadilan) dengan nilai-nilai pasar (konsumerisme, persaingan, produktivitas, dan profitabilitas) – kemungkinan akan memperburuk “krisis identitas” yang ada dari layanan publik sebagai domain publik (negara/pemerintah). Menurut Pesch (2008) dalam mengatasi identitas yang ambigu dalam teori administrasi publik, penerapan pendekatan dimensional diperlukan untuk membedakan antara organisasi publik (pemerintah) dan swasta. Jika tidak, dapat dipastikan bahwa akan terus ada ketidakjelasan identitas penyedia pelayanan publik.
Publicness — Pemerintah atau Swasta?
Pertanyaan mana yang lebih ‘publik’ dalam hal pelayanan publik antara pemerintah atau swasta dapat dijawab oleh pernyataan dari Haque (2001) yang membaginya kedalam lima dimensi utama, yaitu perbedaan antara publik (negara) dengan swasta, komposisi penerima layanan, sifat peranan, akuntabilitas publik, dan kepercayaan publik.
Dimensi yang pertama menekankan pada perbedaan antara pihak negara dan swasta. Kepublikan pelayanan publik biasanya dipahami dalam hal fitur-fiturnya yang membedakan, termasuk norma-norma layanannya seperti keberpihakan dan keterbukaan, prinsip-prinsipnya seperti kesetaraan dan perwakilan, sifat monopolistik dan kompleksnya, dan dampak sosialnya yang lebih panjang serta lebih luas (Haque, 2001). Kepublikan dapat dipertanyakan apabila fitur-fitur tersebut dipinggirkan oleh prinsip-prinsip manajemen bisnis.
Dimensi kedua adalah komposisi penerima layanan. Haque (2001) menjelaskan bahwa kepublikan layanan publik juga tergantung pada komposisi penerima layanan — jumlah penerima layanan yang lebih besar atau lebih luas menyiratkan tingkat kepublikan yang lebih tinggi. Dengan kata lain, kepublikan pelayanan publik tergantung pada berapa banyak warga negara yang dikelola untuk melayani. Komposisi penerima layanan, bagaimanapun, terkait dengan faktor-faktor seperti ruang lingkup kepemilikan publik (kepemilikan publik yang lebih luas menyiratkan kepublikan yang lebih besar) dan sifat kewarganegaraan (ruang lingkup yang lebih luas dari hak warga negara terhadap layanan mewakili lebih banyak kepublikan). Ruang lingkup kepemilikan publik dan hak warga negara adalah penting untuk kepublikan.
Dimensi ketiga adalah tentang sifat dari peran yang dimainkan di dalam masyarakat. Haque (2001) mengatakan semakin luas peranan dan intensifnya maka dapat mewakili masyarakat sosial yang lebih luas, dengan demikian dapat mencapai derajat kepublikan yang sesungguhnya. Begitupun sebaliknya, apabila peranannya lebih sempit dan lemah, tentu derajat kepublikan atau dampak sosialnya akan terbatas. Bately dalam Haque (2001) mengatakan fitur utama barang publik adalah ruang lingkup yang luas agar dapat memberikan dampak yang lebih luas pula kepada lingkungan social.
Dimensi keempat adalah tentang akuntabilitas publik yang menjadi standar umum dari kepublikan dalam menerima pertanggungjawaban publik. Frederickson dalam Haque (2001) menjelaskan bahwa proses seperti audiensi publik, prosedur pengaduan, ombudsman sebenarnya mewakili sebagai alat pertanggungjawaban kepada publik.
Dimensi kelima yang terakhir menurut Gregory dalam Haque (2001) adalah kepercayaan publik dalam kredibilitas, kepemimpinan, dan responsif dalam layanan publik untuk melayani masyarakat. Jika layanan publik mulai bertindak seperti perusahaan bisnis, kredibilitasnya sebagai domain publik akan rusak; jika ia memainkan peran tidak langsung dan terbatas, kepemimpinan publiknya dipertanyakan; dan jika gagal menanggapi kebutuhan semua warga negara, respons publik secara keseluruhan dikompromikan. Semua faktor ini, termasuk perilaku seperti bisnis, peran sosial yang terbatas, dan daya tanggap kelas, pada akhirnya dapat mengikis kepercayaan publik terhadap layanan publik, dan demikian pula dengan kepublikannya. Faktanya, jaminan kepercayaan warga selalu menjadi tantangan kritis bagi administrasi publik.
Kelima dimensi tersebut jika dilihat penerapannya di Indonesia saat ini memang menimbulkan krisis identitas antara pemerintah dengan swasta sebagai penyedia pelayanan publik. Sebagai contoh dalam pelayanan transportasi umum, masyarakat saat ini memberikan ketidakpercayaan kepada pemerintah dikarenakan berbagai faktor. Menurut mereka pemerintah gagal dalam memenuhi tuntutan dari masyarakat akan hal pelayanan transportasi. Permasalahan yang tidak ditanggapi serius oleh pemerintah tersebut akhirnya membuat pihak dari luar pemerintah mencoba memberikan solusi penyelesaian masalah yang mana pemerintah tidak mampu menyelesaikannya. Pihak swasta mencoba meniru praktik dari pemerintah dalam hal pelayanan jasa transportasi yang mana berorientasi lebih ‘publik’ ketimbang pemerintah. Sebut saja dengan munculnya beberapa penyedia transportasi publik berbasis online yang membuat banyak masyarakat menggunakannya dari pada menggunakan transportasi publik konvensional yang diberikan oleh pemerintah. Menurut Amelia (2015) munculnya transportasi online merupakan sebuah bentuk inovasi transportasi publik dalam dinamika system transportasi di dalam negeri. Selanjutnya Amelia (2015) menambahkan bahwa inovasi tersebut muncul karena adanya ketidakpuasan pengguna transportasi akan minimnya kualitas dan kuantitas disebagaian besar daerah perkotaan di Indonesia. Terlepas dari permasalahan serta kontroversi dan legalitas transportasi online, pada kenyataannya transportasi online mampu memenuhi apa yang telah Haque katakan tentang lima dimensi utama untuk sebuah organisasi dapat dikatakan lebih ‘publik’. Contoh tersebut mengikis identitas penyedia pelayanan publik yang mana seharusnya pemerintah dapat lebih ‘publik’ ketimbang swasta, karena ini merupakan domain dari pemerintah. Pada kenyataannya saat ini, jika merujuk pada contoh tersebut, pihak swasta lebih bersifat ‘publik’ dibandingkan dengan pemerintah.
Kesimpulan contoh di atas adalah seperti yang pernah disinggung oleh Haque, Benn dan Gauss dalam Koppel (2010) bahwa organisasi yang melayani kepentingan bersama harus dianggap lebih bersifat publik, karena kepublikan lebih dari sekedar kolektivitas.
Jadi pada intinya suatu organisasi dalam melayani publik dapat dikatakan ‘publik’ apabila memenuhi dimensi-dimensi yang telah Haque sampaikan pada bab pembahasan. Entah itu pihak swasta atau pemerintah, asalkan mereka dapat memenuhi dimensi-dimensi tersebut, mereka dapat dikatakan lebih publicness. Krisis identitas memang menjadi sesuatu hal yang tidak dapat dihindari saat ini. Krisis identitas mungkin dapat diminimalisir dengan menerapkan pendekatan dimensional untuk membedakan antara organisasi publik (pemerintah) dan swasta. Jika tidak, dapat dipastikan bahwa akan terus ada ketidakjelasan identitas penyedia pelayanan publik. Sekarang tinggal bagaimana masyarakat dapat memilih dan memilah bentuk pelayanan mana yang lebih ‘publicness’ antara pemerintah dan swasta.
Daftar Pustaka
Amelia, L. (2016). Respon Kebijakan Terhadap Transportasi Berbasis Aplikasi di Jakarta. The Indonesian Institute.
Haque, M. S. (2011). The the Diminishing Publicness Current of Public Service under Mode of Governance. Public Administration Review, 61(1), 65–82.
Keban, Y. T. (2008). Enam Dimensi Strategis Administrasi Publik: Konsep, Teori dan Isu (2nd ed.). Yogyakarta: Gava Media.
Koppell, J. G. S. (2010). Administration Without Borders. Public Administration Review, 70(SUPPL. 1), 46–55. https://doi.org/10.1111/j.1540-6210.2010.02245.x
Labolo, M. (2013). Negara Gagal Versus Daerah Gagal. Retrieved March 3, 2019, from http://forumdoktor.ipdn.ac.id/wp-content/uploads/2013/08/Negara-Gagal-Vs-Daerah-Gagal.pdf
Mahsyar, A. (2011). MASALAH PELAYANAN PUBLIK DI INDONESIA DALAM PERSPEKTIF ADMINISTRASI PUBLIK. Otoritas : Jurnal Ilmu Pemerintahan, 1(2), 81–90.
Pesch, U. (2008). The Publicness of Public Administration. Administration & Society, 40(2), 170–193.
Republik Indonesia. Undang-Undang Nomor 25 Tahun 2009 tentang Pelayanan Publik, Pub. L. No. 112 (2009). Indonesia: Lembaran Negara Republik Indonesia Tahun 2009.
Setiawan, W. (2017). Era Digital dan Tantangannya. Seminar Nasional Pendidikan 2017, 1–9.
YAPPIKA. (2018). POTRET BESAR BURUKNYA PELAYANAN PUBLIK DI INDONESIA. Retrieved March 3, 2019, from https://yappika-actionaid.or.id/potret-besar-buruknya-pelayanan-publik-di-indonesia/
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