Complexity and Adaptive System of Television Broadcasting: the Reﬂ Ection of Autopoetic Mechanism of Indonesian Television Broadcasting System

Hermin Indah Wahyuni, Complexity and AdaptiveJurnal System Ilmu Sosialof Television dan IlmuBroadcasting: Politik The Reﬂ ection of Autopoetic MechanismVolume of Indonesian 20, Issue Television 3, March Broadcasting 2017 (189-203) System ISSN 1410-4946 (Print), 2502-7883 (Online)

Complexity and Adaptive System of Television Broadcasting: The Reﬂ ection of Autopoetic Mechanism of Indonesian Television Broadcasting System

Hermin Indah Wahyuni•

Abstract This article aims to describe a model of a robust adaptive system which suits the context of situation in Indonesian as an archipelago, as well as developing and democratic values-based country. It mainly focuses on how the autopoetic mechanism in Indonesian television broadcasting system is. Autopoetic mechanism is self-reference orientation. The process in which the system orient to reduce their problem by building the internal structure to cope with it. The research process was done in 2014 until 2016. Methods applied in this research is qualitative research. Several methods that were employed are observation, in-depth interview, and focus group discussion. It would be measured and analysed with three aspects: communication, temporal and diff erentiation aspect. The fi ndings suggest that building a robust system means establishing a “strong and adaptive” broadcasting system in Indonesia that strengthens each sub-system in the Indonesian broadcasting system in order to capture what the public demands. In this level it takes a comprehensive view of the decision-makers to design a broadcasting system that continues to answer the demanding environment through its communication function, growing temporal through continuous evolution and develop functions through a process of diff erentiation. If these three functions can work continuously, Indonesian broadcasting system will be stronger and more adaptive with their complex external environment. The main argument of this paper is Indonesian Broadcasting System faces a very complex environment television, however their adaptive and autopoetic mechanism is still weak to cope with the challenges.

Keywords: television broadcasting system; complexity; adaptive; autopoetic-mechanism; diﬀ erentiation.

Abstrak Sistem penyiaran televisi Indonesia saat ini berada dalam situasi krisis, sangat lemah dan tidak adaptif dengan situasi lingkungan yang melingkupinya. Tujuan penulisan artikel ini adalah untuk mendeskripsikan mengenai pengembangan sistem yang kuat dan adaptif disesuaikan dengan konteks situasi Indonesia sebagai negara kepulauan, sedang berkembang, dan berbasis pada nilai-nilai demokratis. Fokus artikel adalah menggambarkan mekanisme autopoetic tereﬂ eksikan dalam sistem penyiaran Indonesia. Mekanisme autopoetic adalah mekanisme yang berorientasi pada kebutuhan sistem sendiri. Sistem akan berorientasi untuk mereduksi problem mereka dengan membangun struktur internal untuk mengatasi problem di luar dirinya. Riset dilaksanakan mulai tahun 2014 hingga 2016. Metode yang diterapkan adalah riset dengan paradigma kualitatif. Metode pengumpulan data yang diterapkan adalah observasi, wawancara mendalam secara intensif, diskusi dengan kelompok terfokus, dan analisis isi kebĳ akan yang relevan. Sistem penyiaran akan diukur dan dianalisis dengan menggunakan tiga aspek reﬂ eksi cybernetic yaitu aspek komunikasi, pertumbuhan dari waktu ke waktu (evolusi) dan kemampuan diferensiasi internal. Hasil penelitian menunjukkan bahwa kebĳ akan penyiaran Indonesia yang tangguh bermakna ketika sistem dan sub elemen sistemnya “kuat dan adaptif” menangkap apa yang dibutuhkan publik. Argumen utama dalam artikel

• Department of Communication Science, Faculty of Social and Political Sciences, Universitas Gadjah Mada. Email: [email protected].

189 Jurnal Ilmu Sosial dan Ilmu Politik, Volume 20, Issue 3, March 2017 ini adalah sistem penyiaran Indonesia menghadapi lingkungan yang sangat kompleks. Namun sayang sekali bahwa kemampuan adaptif dan mekanisme autopoetiknya masih sangat lemah untuk menghadapi tantangan lingkungan tersebut.

Kata Kunci: sistem penyiaran televisi; kompleksitas; adaptif; mekanisme autopoetic; diferensiasi.

Introduction Concerns about public interest in a broad Television broadcasting is the most sense in Indonesia cannot be avoided when dominant mass media in the media landscape Indonesia sky is marred by programs which in Indonesia. According to the latest data, simply erode ‘citizenship’. Citizenship in this the number of households who have TV in context related with position in which audience Indonesia has reached 86.7 percent, equivalent is not only viewed as consumer but also as to 56.4 million households (Kominfo, 2015). part of Indonesian community. In this position It means television is watched by almost the they have a rights to receive useful information entire population of Indonesia. Nevertheless, that they can use it to take decison for living this massive audience reach is not supported in social context. Thus, the impression that by the broadcasting-product quality that is very Indonesian television presents ‘waste-land’ is far from ideal. People hope that broadcasting hard to neglect. institution should set up a forum to provide Complaints and negative comments healthy information. Instead, Indonesian regarding the quality of Indonesian television broadcasting system is often regarded as a cannot be separated from the broadcasting trigger for major social and political issues. policy which constitutes the core of the national Indonesian television broadcasts oft en become broadcasting regulation system in Indonesia. the subject of discussion in political-economic This article aims to analyze Indonesian studies with analyses that intend to uncover broadcasting system by using a systemic the relations between economics and politics perspective; to illustrate the gap between the (Mosco, 2010) which affect the quality of existing and the ideal conditions; and to oﬀ er Indonesian broadcasting system. Intensive the optimum broadcasting system to achieve studies on the Indonesian broadcasting have those expectations. The main argument of this been conducted by some scholars (e.g., Sudibyo, paper is Indonesian Broadcasting System faces 2004; Wahyuni, 2006; Hollander et al., 2009; a very complex environment, however their Hendriyani et al., 2011; Nugroho et al., 2012; adaptive and autopoetic mechanism is still Sudibyo and Patria, 2013). weak to cope with the challenges. The portrait of private television broadcast programs in Indonesia shows how the market Theoritical Framework logic dominates the products generated by This study applies theories on media television programs. All programs have been policy as a basis for its analysis. These theories driven by market, lead by rating. They produce basically illustrates two important dimensions, and reproduce program that favour by the namely the normative dimension of the media people, although its very far from good quality policy and the decision-making process itself. standard. Unfortunately this market logic Based on the normative aspect, the media does not only characterize non-informative policy implemented by a country cannot be programs (entertainment), but also has dictated separated from its historical context and socio- the informative programs (Thussu, 2007). political norms which are applied amidst the

190 Hermin Indah Wahyuni, Complexity and Adaptive System of Television Broadcasting: The Refl ection of Autopoetic Mechanism of Indonesian Television Broadcasting System community. According to Gerhard Vowe (1999), of feedback. It is closely related to the way a media policy is a tug of war among at least three system orientates towards an eff ect and the way main norms, namely security, freedom and it estimates a specifi c goal (West and Turner, equality. This article will use these three norms 2010). Using a more detailed perspective, to explore Indonesian media policy. The second Griffi n (2012) described cybernetics as a study dimension of a media policy is an emphasis on of how a system determines its eff ect and makes the media policy-making process itself. This necessary adjustments. The fundamental dimension att empts to describe the dynamic output-feedback-adjustment processes are the processes in media policy formulation. The core of cybernetics (Griffi n, 2012). concepts of ‘rational choice’ and ‘public choice’ The cybernetics capability referred here are two important concepts which can describe is related to the ability of a system to retrieve the tug of war between political actors and information from its environment which is actors from the media themselves (Fleck, 1983; relevant to the system’s specifi c development. Creech, 2007; Tassel, 2011; Papathanassopoulos, A broadcasting system is assumed to begin 2010). with determining problems and a variety To understand the important points of uncertain conditions, determining and of the Indonesian broadcasting media policy, selecting any existing information, processing three important aspects of the ‘regulatory using the system and providing feedback on regime’ concept, namely ideas, institutions the environment as the output of the system and policies of a policy were selected as the operation. The types and specifi cations of the main points of the analysis. The problems feedback cycle are described in Walter Buckley’s and challenges of the broadcasting policy in “Morphogenic Process” model of social system an att empt to realize democratic broadcasting (Johnson, 2008). In this model, there are processes in Indonesia will be analyzed based several concepts such as: Morphogenesis, may be on several critical perspectives on media and considered as deviation-amplifying feedback democracy (May, 2009). Some of those which cycle: a deviation-amplifying feedback cycle is are relevant and aff ecting the analysis of this one in which some deviations are reinforced and study are the writings of James Curran on thereby provide the foundation for additional Democracy and Power (2002), Television and the foundations in the same directions (Johnson, crisis of Democracy by Douglas Kellner (1990), 2008). Morphostasis, refers to mechanism as well as the writings of Philip Kitley (2003) that tend to preserve or maintain a system’s on the dynamics of television, regulations and given for organization or state (Johnson, the strengths of civil society movements to 2008). Entropy refers to the process of decay or understand the typical context of the television decline of a social system or simplifi cation of system in Asia. TV system in Asia coloured by its structure (Johnson, 2008). Negentropy is a spesifi c situation related with the dynamic of system which overcomes the eff ects of entropy socio-cultural and economy-politic that will by importing suffi cient energy and resources to infl uence the character of broadcasting system prevent decay and maintain their basic patt erns in this region. of organization if they are to survive (Johnson, 2008). System Perspective The second most important concept System theories stemmed from two key namely self-autopoetic. It is the key concept concepts, namely the cybernetics concept and from social system theory developed by the autopoetic concept. Cybernetics is a study Niklas Luhmann, a sociologist from Germany. of system regulations and control. It is the study Luhmann (1995) gave special defi nition in the

191 Jurnal Ilmu Sosial dan Ilmu Politik, Volume 20, Issue 3, March 2017 concept of self-autopoetic. Etymologically, the Evolution simply is the process of trial-and- word autopoietic comes from two Greek words, error. Evolution then explained further through namely auto meaning itself and poiein which the implementation of three functions in a means creating. Thus, it can be interpreted set of processes namely variation, selection that autopoietic is the process of self-creation and stabilization (Ritzer & Goodman, 2004). performed by a system. Autopoietic, initially Meanwhile, related to functional dimension, was a term introduced by Humberto Maturana the working of diff erentiation is the main way and Francisco Varela to define biological of working in the theory of social systems systems or living creatures such as cell system, by Luhmann. Diff erentiation is a replication nervous system, and immune system and so process that takes place within a system, on. (Luhmann,1995) referring on the diff erence between a system Luhmann made a breakthrough by using with its environment. Diff erentiation process autopoetic concept to explain the social systems increases the complexity of the system and (community). To be precise, Luhmann explained will generate a lot of variation in the system to that autopoietic concept is the social systems. In respond to variations in the environment. Thus, general, autopoietic is defi ned as the process of there arises a paradoxical statement that only continous diff erentiation carried out by diff erent complexity can reduce complexity. systems or environments (Luhmann,1995). If the concepts are derived on the Autopoietic system creates its own elements (self- Indonesian broadcasting system, then the creation) through self-reference mechanism and capacity of Indonesian broadcasting system to diff erentiation (self-diff erentiation) between itself refl ect communication, temporal, and social and the environment. As a future perspective functions will appear. The communication in this study later on, Indonesian broadcasting element refl ects the system competence in the system will be viewed from its ability to produce information selection from the environment. and reproduce the diff erentiation in response to Temporal element refl ects the evolution process its environment. of Indonesian broadcasting system and fi nally Luhmann system theory boils down functional system refl ects the competence of the to three basic components that later becomes system in adapting to its environment through a core part of his last book, Die Gesellschaft der the diff erentiation function. Gesellschaft , namely: communication, evolution and differentiation (Lee, 2000). These three Methods components are linked to the social dimension Method in this research is qualitative (communication), temporal (evolution), research, which emphasizes on inductive and functional (differentiation). Functional exploration in Indonesian broadcasting system. dimension produces the diff erence between Qualitative research is a type of research that the system and the environment. Temporal highlights the principle of understanding- dimension is associated with past and future, verstehen the phenomenon (Wimmer and while social dimension produces diff erence Dominick, 2011). Qualitative research has between ego and alter (Mattheis, 2012). characters: known as interpretation/responsive, Everything started from communication. usually inductive, identifi es concept, outcome For Luhmann, communication is a illuminates the situation, and truth search as sui generis situation born from the synthesis context bound (socially constructed) (Flick, of three different selection process, namely 2005). selection of information, selection of utterance, Two units of observation were set up and selective understanding (Mattheis, 2012). as guidance for research execution. First

192 Hermin Indah Wahyuni, Complexity and Adaptive System of Television Broadcasting: The Refl ection of Autopoetic Mechanism of Indonesian Television Broadcasting System unit explores the sub-systems in Indonesian analysis policy). The style of triangulation broadcasting system and their present condition. method was implemented to get comprehensive The sub system in Indonesian broadcasting data about the object. Researchers held system, namely Public broadcasting Institution, observation about the latest situation in public Private – commercial broadcasting, Pay TV, and broadcasting TV and private commercial community TV. The second unit is analysing broadcasting TV. The field research had the possibilities and the most likely solution been executed in public broadcasting system for the construction of a strong and adaptive TVRI on local level (Yogyakarta, Bandung) broadcasting system to meet the existing and national level in Jakarta. While the fi eld challenges. research was done on two private tv stations The first focus of this research is to in Jakarta; Indosiar and TV One. explore the various sub-elements in the To collect more data, in-depth interviews Indonesian broadcasting system. Each sub- had been conducted with key persons in public system within Indonesian broadcasting system broadcasting TVRI, namely the supervisory would be described using systemic refl ection. board and directors of TVRI. In private Each elements of the broadcasting system commercial broadcasting in-depth interviews is compared with the ideal norms that must were held with the directors of news and be optimized. In this fi rst focus, the analysis entertainment programs. In order to get has aim to determine the critical points that comprehensive view focus group discussion cause weaknesses in Indonesian television that invited several key persons in private broadcasting system. The determination of commercial broadcasting from the internal the critical points obtained by comparing the institutions and also the broadcasting expert, facts exist in the fi eld with the environmental was conducted. The aim of using several demands around the external broadcasting methods here is an eff ort catch comprehensive system which should be answered. The data and perspective in this issue. second focus of this research is to analyze the possibilities and the potentialy adaptive solution The Indonesian Broadcasting System: for the construction of strong broadcasting Complexity of Sub-System and the system to meet the challenges. Autopoetic Refl ection The research was conducted from Broadcasting system in Indonesia since March 2014 until the middle of 2016. Data the beginning of its birth is characterized collection in 2014 was focused on mapping the by strong dynamics. First, the broadcasting problems in the public broadcasting system sector is characterized by strong government and the community broadcasting. Meanwhile, regulations that control and dominate until 1989. throughout 2015 the researchers focused on Indonesian broadcasting system experienced the exploration of the private commercial a strong market deregulation in allowing broadcasting system and Pay-TV. In 2016 private television operation since 1989, until the researchers explored the latest condition its development today. in Indonesian broadcasting TV about the Eff orts to build a democratic broadcasting preparation to face digitalization. system that pays att ention to the public gained To get the required data, some methods its momentum in 1998/1999, coincided with of collecting data have been done, namely data Indonesia’s political transformation. The whole collection through observation / fi eld research, pressure and advocacy in broadcasting led to the Focus Group Discussion (FGD), in depth- birth of the Broadcasting Law No.32 /2002 with interview and a study document (content a variety of new hope coloring them. According

193 Jurnal Ilmu Sosial dan Ilmu Politik, Volume 20, Issue 3, March 2017

Kitley (2008), “In political terms we can read in the regime’s transition of authority, from the enactment of Broadcasting Law 32/2002 Sukarno to Suharto, TVRI was no exception as a victory for parliamentary processes and to undergo a signifi cant impact of New Order power over the executive”. This Law ensures regime under Soeharto, making TVRI as a fairness of various interests by dividing the Technical Implementation Unit (UPT) of the broadcasting system through four institutions: Ministry of Information. More specifically, public TV, community TV, Commercial-private TVRI is under the Directorate of Radio, TV and pay-TV. But in reality, the legislation Television and Film, or more widely known as writt en in the background of transformation RTF. TVRI became a television of government’s is not long-lived. Critics continue to roll, until ‘mouthpiece’. Within 32 years, TVRI had been the demands to change the Law. used as a medium for propaganda by the New From the perspective of public interest, Order government (Wahyuni, 1998). this situation is not so favorable. Broadcasting Following the Reformation in 1998, regulation which optimize the broader President Abdurrahman Wahid or was public interest, has many obstacles in its familiarly called Gus Dur, decided to dismiss implementation. Indonesian broadcasting the Ministry of Information serving as the system has serious weaknesses as frequently host for TVRI on October 16, 1999. With the employed by various parties placed as political dismissal of Ministry of Information, the legal and economic agents. The increasing number status of TVRI turned into Bureau Company of television stations owned by political under the Ministry of Finance. It was stipulated actors, as well as the gigantic media business by Government Regulation number 36 in 2000. development aff ect the complex economic and When Government Regulation number 9 of political constellation, as well as the lifestyle 2002 was issued during the reign of President and culture of Indonesia society. Megawati, TVRI’s status was altered once again into Limited Liability Company (PT). TVRI’s A. Complexity of 4 Sub-Systems as Pillars status alteration into PT at that time made this of Indonesian Broadcasting System institution to run in the logic of profi t-oriented 1. The Problem of Public Broadcasting – TVRI (FGD TVRI, 2014). System Once Broadcasting Law No. 32 2002 was put into eff ect, TVRI returned to its “ideal form” TVRI or Republic of Indonesia Television as a broadcasting agency which was oriented is the first television station in Indonesia. to public interest. In Chapter 14 of this Law, TVRI was established on the initiative of the it is mentioned that the Public Broadcasting fi rst President of Indonesia, Ir. Sukarno. The Institution is comprised of Republic of Indonesia premiere broadcasting of TVRI was in the form Radio and Republic of Indonesia Television. of trial broadcast on August 17, 1962, namely Subsequently, TVRI as Public Broadcasting a special broadcast coverage of the memorial Institution was more specifi cally set out in the service of Independence Day of Republic of Government Regulation (PP) No. 11 of 2005 on Indonesia. Then, on August 24, 1962, TVRI LPP and Government Regulation (PP) No. 13 officially broadcasted the official opening of LPP TVRI. of ASIAN GAMES IV. When the President In 2016, TVRI had one national issued Presidential Decree No. 215 of 1963, a broadcasting station in Jakarta and 28 regional foundation was then established, namely the broadcasting stations. TVRI had 380 transmitt ers Foundation of Republic of Indonesia Television distributed in numerous parts of Indonesia, but as the manager of this station. Following the out of them, there were only 120 transmitt ers in incident on September 30, 1965, which resulted

194 Hermin Indah Wahyuni, Complexity and Adaptive System of Television Broadcasting: The Refl ection of Autopoetic Mechanism of Indonesian Television Broadcasting System operation. With such quantity of stations and Indonesia. There are some evidences that TVRI transmitt ers, TVRI apparently only had a range is weak as the public broadcasting institution, power of 34% (see htt p://www.dpr.go.id/id/). namely the audience share of TVRI is very Local stations of TVRI throughout Indonesia low, the program can not compete with other include Western Indonesia, central or middle private-commercial broadcasting, and has many Indonesia and Eastern Indonesia territory. TVRI burdens in managing their organisations. Some appears to have not yet escaped from the issues confl ict between supervision board of TVRI occurring to it related to its organization’s with parliament, and also unclear mechanism structure and culture. Internally, TVRI is as public broadcasting institution shows that yet capable of developing a reliable system there are still many problems burden TVRI. of public strengthening. The organizational Under President Jokowi’s administration culture that remains strong as the government there are some eff orts to make TVRI become broadcasting organization has complicated the central again, such as pointing out TVRI as organizational transformation supporting the the pilot project coordinator for digitalization spirit of public. process in Indonesia. However, to make TVRI As the public broadcasting, TVRI is substantially strong, it needs numerous eff orts directly responsible to the President. However, and policies in this context. it needs certain ministries as the partners in technical level. By the end of 2016 the 2. The Problem of Private-Commercial TV mechanism regarding the governance of public System broadcasting TVRI and RRI is still unclear. Since their emersion in 1989, private- At least 3 ministries always mentioned as the commercial televisions in Indonesia have broadcasting partners in the discussion with been receiving huge easiness in running their the member of Commission I of Indonesian operation. After being dominated by state- House of Representative (DPR-RI), namely the owned television for a long time, private Ministry of Communication and Information, televisions have become a major alternative Ministry of Finance, Ministry of Defence. The for television viewers in Indonesia. One commission has diff erent reasons why they of several reasons for the establishment of mentioned certain ministries as the partners of Indonesian private televisions is to provide public broadcasting. However, the solutions in alternative shows for Indonesian public in the the technical level are still unclear. The unclear border area with foreign countries. Initially, position in national level brings so many private television operated in several regions implications in the performance of TVRI. The in Indonesia, for example, AN-TV in Lampung burden of its history as the government agent and SCTV in Surabaya, but with the opening makes it very diffi cult for TVRI to transform of broadcasting possibility from Jakarta, nearly their image as a public TV. The burden of all private televisions were broadcasted from its numerous officers with their status as Jakarta. Until 2015, there are approximately government offi cers while TVRI as the public 13 private stations - commercial operating in broadcasting institutions also influence the Jakarta and airing with an infi nite range from quality of organization. Jakarta to Papua. The demand and hope from the society to The emersion of local commercial the existence of TVRI as a public broadcasting private TV stations became a response of institution is still unfulfilled (Intani, 2012). disappointment towards the performance The internal requirements are very weak to of national television that was considered realize good public broadcasting governance in too dominant and controlled ads circulation

195 Jurnal Ilmu Sosial dan Ilmu Politik, Volume 20, Issue 3, March 2017 throughout Indonesia. Private commercial is due to several aff ecting factors, one of them broadcasting can advertise with national range is the fi nancial and managerial resources that from Jakarta to all region in Indonesia. The are considered promising. Those are the great parties considered that in any given area where overview of private commercial television ads circulation with tremendous potential system, both at national and local level in exists and will be more primary if utilized by Indonesia. Private television stations are adored actors of local media. but also hated at the same time. These TV Looking back at the history of private stations are very popular for its programs and televisions in local regions, the emergence of has high audience share, however in the same local televisions had to cope with the power time people criticize its program quality as is of private televisions at the national level. deemed to be far from having good quality At that moment, supporting groups of local (Rianto, 2012). private televisions fought for the presence of In Indonesia, the entire technical matt ers, local private televisions on the rationalization such as licensing and procedure for broadcasting to ensure diversity and promote the style of implementation, are regulated through Minister localities in Indonesia. Local TV stations bring Regulation and Decree, in this case is the Minister their specific local value in their programs. of Communication and Information. Specifi cally, They founded the Association of Indonesian private commercial broadcasting is further Local Televisions (ATVLI) that later must regulated by Government Regulation (PP) No. 50 deal with Association of Indonesian Private of 2005 on Private Broadcasters, and Government Televisions (ATVSI). They considered that Regulation (PP) No. 52 of 2005 on Subscribed private televisions in local region should also Broadcasters. When explored further, there is get a portion also to try and optimize the no systematic controlling system to regulate industry at the local level. the practices private televisions organization, Since their emersion until 2016, 75 thus they can perform their role optimally and local televisions have been developed are more benefi cial to the public interest. In the throughout Indonesia (see www.atvli.or.id). In existing regulations, private broadcasters are its development, local private televisions are given optimal space in profi t-oriented television not entirely able to maintain their referred business. On its journey, this logic of the private localities. The business practice of which its broadcasting system is what dominates the batt le has moved to a more local level is a less practice of TV organization in Indonesia, and encouraging phenomenon. Another thing that public interest automatically, doesn’t become later happened is a phenomenon when national priority anymore (Rahayu, 2014). televisions also take part and do business The state, particularly the Government cooperation with local actors. Hence what that should become the protector of public happened is the lack of local programs that interest is having an aff air with the capitalists ought to dominate local TV stations. instead. Law 32/2002 which was further Not only engaged in the world of derived into a number of regulations, such television at the national level, major media as Government Regulation and Decree of company group in Indonesia increasingly Minister, now only becomes words without begin to expand to local regions. There are two meaning. A number of law derivatives are ways of expansion, either by building new local in contrast to the spirit to realize democratic media or acquiring (join group) of the media broadcasting existing on the Law itself. Private existed in the region. The agreement of local broadcasters cannot control the dominance media in the region to join major media group of commercial interest in their shows so

196 Hermin Indah Wahyuni, Complexity and Adaptive System of Television Broadcasting: The Refl ection of Autopoetic Mechanism of Indonesian Television Broadcasting System that the communication with public content The Problem of Pay-TV and Community is extremely low. Market interest and the TV System dominance of fi nanciers cannot be controlled The role of Pay-TV in supporting public with the ethical expectations of idealistic media interest isn’t signifi cant enough to discuss. It is as a social institution. because Pay-TV stations only provide service Commercial private television for limited public or only for their subscribers. in Indonesian broadcasting system has a In the following years, the competition in pay complicated problem. All of the problems TV industry increased and gets tougher. As were caused by the regulator, that since the of December 2014, there were 17 big pay TV beginning of broadcasting industry, came up operators in operation. Indovision is the main with no concepts and unclear broadcasting actor in this domain. The competition between blueprints (Wahyuni, 2006). The existence of pay or subscription TV providers tightened broadcasting regulation can not guide the when several other new providers entered the clear mechanism of broadcasting process, domain.1 Number of pay TV subscribers in the weak of implementation is also another Indonesia in 2012 is 2.4 millions, and predicted serious problem. The influence of dynamic will increase to 7.1 millions in 2017 and 8.7 market in global economy is another factor millions in 2020.2 Pay-TV in Indonesia seems to but not the primary factor. The role of public be oriented towards entertainment. It is set to be as part of system is never as the primary TV which specifi cally provides entertainment concern in Indonesian Broadcasting System. for those who subscribe. The Government has no suffi cient readiness to comprehensively regulate the system of The Problem of Community TV System Indonesian national broadcasting, even over According to Association of Indonesia 19 years after political reform. A healthy Community TV (ATVKI), the number of commercial private broadcasting system that community TV stations in Indonesia is 31 ensures the quality of strong public information televisions. Some of community tv stations at least should fulfi ll some conditions: ensuring in Indonesia are Grabag TV in Magelang, certainty business competition environment, Rajawali TV in Bandung, Madani TV in Depok, clear rules, ensuring healthy relationship Al Washilah TV Kebon Jeruk-Jakarta, and between actors in accordance with its role and some community tv of senior high school and function, all players in the private commercial universities. Community televisions emerge broadcasting system should comply with the based on the mandate of Law No. 32 of 2002 ethics as a guide in every steps to run the on broadcasting, particularly article 21 clause 2 business. In this context, business and ethics point 2 which states that LPK is held to educate should go hand in hand so that both can be and reinforce the society in achieving welfare optimized in accordance with the expectations through their programs which include culture, of society, and commitment to public interest education and information which describe needs to be kept alive in every step taken the identity of the nation. Community tv also and breakthrough business done. Sett ing the regulate by Government Regulation (PP) No. television business is unlike regular business. 51 of 2005 of LPK. In fact, the development In order to avoid communities at risk (risk society) it will require courage from each party to discuss the weaknesses of existing 1 See htt p://www.thejakartapost.com/news/2015/01/22/ broadcasting system to further reinforce the pay-tv-market-too-crowded-operators-say.html. 2 See htt ps://www.statista.com/statistics/257298/pay-tv- television broadcasting system. subscribers-in-indonesia/.

197 Jurnal Ilmu Sosial dan Ilmu Politik, Volume 20, Issue 3, March 2017 of community television in Indonesia, faced by interpretations of political system or some internal and external problems. Internal economic system which probably has seen problem related with the quality of human broadcasting system as a very strategic media resources and management issue in community for its interests. The political system which broadcasting. While external problem related tends to be dominant in the atmosphere of with the regulation issue in macro level. the social system in Indonesia has made Regulations do not accommodate this type broadcasting a signifi cant subsystem to reach of broadcasting institution (community TV). specifi c objectives of the political system. At The prepared system is not reliable enough the same time, the development of television to embody community TV as a media that industry makes broadcasting system a very strengthens public. Community media (TV) productive economic subsystem in encouraging has to face serious technical problems, funding capital movements. The competing system issue, and community involvement in the makes television a specifi c arena which blurs management. its position as social and cultural systems. From the beginning, public, social and cultural B. Indonesian Broadcasting Policy from systems have a small role so that the input from the System Perspective both public social and cultural systems which From the system perspective, especially ought to be the basis of broadcasting system using Buckley’s perspective (Johnson, 2008), development is not well accommodated. Indonesia broadcasting system tends to have Indonesian broadcasting system communicates minimum morphostatic process. This fact related with political system and economic system more with the limited feedback to the existence intensely and displays it in their programs, but problem within the system. Instead, it tends its role and power in social and cultural aspects to have morphogenesis process (amplifying are almost invisible. deviation feedback) and create entropy condition. Based on temporal element, the growth Generally, the system develops to respond the of Indonesian broadcasting system in the system with numerous deviations, yet doesn’t past 19 years post-political reformation 1998 produce any breakthrough. The system cannot showed evolutionary achievements. There adaptively give feedback to its very dynamic are some important moments which mark environment. The system shows signs of this phase. 2002 marked the birth of Law of entropy or shrinkage condition. The external Broadcasting No 32/2002. This law is the basis environment is more developed and can’t be of Indonesian broadcasting system organization matched by the internal system. Feedback which becomes the compass of Indonesian cycle can’t guarantee the system to develop in broadcasting system organization post-political achieving its purpose optimally or negentropy transition in 1998. Aft er a lengthy argument condition. Conversely, it is static and moves since 1999 until it has passed in 2002, the Law further from the ideal system. of Broadcasting shows various interests in its From the autopoetic system, especially practice. At least three main actors, from the in communication element, Indonesian government to business groups to civil society broadcasting system failed to communicate joined dynamic debates, and many intermediary with external environment. Relationship actors who had equal roles in infl uencing the between the sub element of broadcasting system end result of Indonesian broadcasting system. with the environment (stakeholders) has not Political caucuses were formed based on the been managed. In this communicating system, character of legislative political dynamic of broadcasting system has been dominated DPR at that time. Unfortunately, politically

198 Hermin Indah Wahyuni, Complexity and Adaptive System of Television Broadcasting: The Refl ection of Autopoetic Mechanism of Indonesian Television Broadcasting System strong dynamics didn’t produce optimal broadcasting system affects market failure compromise or consensus. in presenting quality information which is Soon, in 2004 this Law was judicially expected in the life of democratic society. reviewed by a private group, and then various The imbalance between pro-market other groups, so that Indonesian Broadcasting structure and weak public system in Indonesian Commission also performed a judicial review broadcasting system results in the quality on the Law of Broadcasting. Crucial articles of information which represents this kind which changed after the judicial review of structure atmosphere. Public sphere in were articles which reduce the authority of Indonesia strongly coloured by market Indonesian Broadcasting Commission and and politic interest. Finally, public trust on enable the government to determine and make the performance of Indonesian television policies on frequency and various policies in broadcasting which is very politically and broadcasting with Indonesian Broadcasting economically biased declines sharply. From Commission. this perspective, temporal evolution seriously As an evolution, political transformation regresses in terms of democracy and further, can 1998 encouraged a new direction in broadcasting not fulfi ll public’s expectation for the creation of system but then had revision in the structure, ideal broadcasting system for Indonesia. relation, and authority in the pool of economic Since 2012 Indonesian broadcasting and political interests. Unfortunately, in terms system also prepares themselves to meet of evolution, it is clear how the public missed the planned digital broadcasting systems many things. Stories on ownership of private which will be implemented in 2017/2018. In television stations and how to monitor their this context, the development of technology performance are diffi cult to trace. Concerns are that is an unstoppable force toward the only raised in limited discussions in the society development of Indonesian broadcasting is which aren’t represented in the macro structure in logic technology. The regulations from the of policy makers. The performance of Indonesian beginning are dominated by the economic and broadcasting system allows commercial political logic back to be tested along with the private groups to operate, as shown in various inevitable logic technology. Portrait of digital information and entertainment productions broadcasting system evolution in Indonesia from the private domain. Mainstream media is until 2016 has not been able to reach the stages the most reliable reality construction agent and which had been planned to achieve optimal is a strong infl uence in forming opinions in the point in 2017/2018. This plan has re-tested society. Freedom to do business in the media because of the protests from various circles also causes privatization logics in information that are concerned about the implementation management unavoidable. of digital systems in the broadcasting system Concentrations of ownership, whether in Indonesia. vertical or horizontal, cannot be avoided. From the differentiation element, The ownership of around 10 televisions the main question, how will Indonesian which air nationally through terrestrial broadcasting system diff erentiate functions to network is narrowed to a certain group which address existing problems? Can Indonesian unfortunately grows stronger and inseparable broadcasting system be said to be dynamic from political interests (Nugroho, 2012). or static in answering the complexity of Information is commodity and rationality environmental problems? Looking at the construction is handed to market and political facts before, it can be said that the ability of logics. Interestingly, the evolution of Indonesian Indonesian broadcasting system in performing

199 Jurnal Ilmu Sosial dan Ilmu Politik, Volume 20, Issue 3, March 2017 functional differentiation to address the oriented toward the interests of the wider public complexity of existing problems is very weak. needs to be continually sought and optimized. The functions in the system have not been able Broadcasting system with the new direction is to reflect the optimal differentiation which broadcasting systems that adaptively solve the should be refl ected in the internal system. In problems that had been raised and addressed Indonesian broadcasting system, several crucial in a variety of public discussion. functions that should present to answer the Structuring and re-regulating Indonesian challenges of the broadcasting environment television broadcasting industry approximately and the achievement of national goals can 28 years since its birth in the period 1989, leaves fi nally be formulated into diff erentiation main a lot of homeworks. The issue of how television functions as follows: could produce cultural products with high 1. The function of national broadcasting quality, the issue of how to reduce the strong system strengthening a multicultural desire of politicians to maintain control over perspective of Indonesia. media operations, eff orts to reduce violations 2. The function of regulatory and monitoring and negative implications of media, building mechanisms strengthening for democratic a reduction system concentration, diversity, broadcasting system. national culture, and integrity of minorities, 3. The function of the digital broadcasting fairness distribution of new communication system to gain optimized principle of channels, and the strength of an increasingly public protection in accordance with the globalized media ownership. Solutions are character of Indonesian society namely seriously needed to solve all of these issues so agrarian, industrial, post-industrial, and that the presence of private television commercial informative. in Indonesia can mobilize the community bett er Weakness in the three elements of and if possible, to transform the lives of the cybernetics as described above carries a Indonesians for a higher quality of life. portrait of autopoetic-mechanism very weak. Indonesian broadcasting system is still not able Conclusion to develop a communication system that maps Expectations for the realization of the problem optimally. democratic broadcasting system that puts the Ultimately the perspective from Luhmann public interest in priorities by the presence of autopoetic indeed signaled an evolution broadcasting Law number 32/2002 still can not without end, he offered how to keep the happen. The fact that seems exactly alarming, system continue to grow and find a way when the market becomes the new ruler of dynamic system that optimally answers the real Indonesian broadcasting world, is assisted by challenges faced. In this logic there is hope that the Government. Competition is very fi erce Indonesian broadcasting system continues to and dominated by commercial private groups sharpen the ability to capture the problem, build at the same time have been able to dominate evolution diff erentiation and develop a system the sphere of public discourse in Indonesia. that ensures goal achievement system. There On the other hand, public areas are managed is no perfect recipe for solving broadcasting by the public media are less able to dominate Indonesia problems, what can be done is to the discourse because of various limitations continue to evolve in developing functional facing the public media (Public Broadcasting differentiation in Indonesian broadcasting television and Community TV). system. The new direction of the broadcasting The eff ort to develop robust broadcasting system development is more equitable and system that reinforces public absolutely

200 Hermin Indah Wahyuni, Complexity and Adaptive System of Television Broadcasting: The Refl ection of Autopoetic Mechanism of Indonesian Television Broadcasting System necessary. The communication policy makers protect the public through the stronger national need to continue to develop a discourse broadcasting system which bring the benefi t about the importance of strengthening public of the broader Indonesian community. The broadcasting system. Currently, Indonesian public discussion to strengthen the governance government is developing the new broadcasting of broadcasting system should be continued regulations especially Public Media Act which is to create broadcasting system which is more being awaited. The portray shows the weakness adaptive with real problem that they should of public broadcasting institutions in Indonesia face. really needs a breakthrough alternative to existing broadcasting system that offers a References dynamic and novelty in broadcasting world Broadcasting Regulation No 32/2002. of Indonesia. Public needs to be ignited by Creech, K. C. (2007). Electronic Media Law and the implementation of stronger public sectors. Regulation. USA: Focal Press. Public sector currently exists institutionally but Curran, J. (2002). Media and Power. London: has not been properly implemented. Concerns Routledge. on public system in Indonesia unfortunately Farhat, S. (2013). TVRI butuh 130 Milyar only come from certain limited circles, so for untuk Maksimalkan Jangkauan Siaran. the foreseeable future has to continue to look Retrieved from htt p://www.dpr.go.id/id/ for an alternative system to the development of berita/komisi1/2013/jul/02/6264/tvri-butuh- bett er Indonesian broadcasting system. 130-milyar-untuk-maksimalkan-jangkuan- Policy makers for television broadcasting siaran-. Indonesia are expected to perform the steps Fleck, F.H. (1983). Klassische, Magische Vielecke and breakthroughs to a variety of problems in Wirtschaft spolitik – und in Medienpolitik? that are very complicated and increasingly In: Rühl, Manfred and Stuiber, Hans- sophisticated in the regulation of Indonesian Werner (eds.), Kommunikationspolitik in broadcasting system. With the condition in Forschung und Anwendung. Festschrift für which every element has specifi c problems, to Franz Ronneberger (pp. 77-86). Düsseldorf: reduce the complications, regulator should take Droste. a look in each sub system. They need to place Flick. U. (2005). An Introduction to Qualitative all sub systems in the corridor of the initial Research. London: Sage Publications. objectives in the general level. Government Regulation (PP) No. 11 of 2005 The government’s role as coordinator of on LPP. policy decisions need to be taken seriously to Government Regulation (PP) No. 13 of LPP be capable of providing a discussion platform TVRI. between numerous different parties. Each Government Regulation (PP) No. 50 of 2005 system has diff erent goal so they can be united on LPS. for a greater purpose. The government’s Government Regulation (PP) No. 51 of 2005 attitude wich tends to allow each actor to on LPK. translate and execute their willingness sector Government Regulation (PP) No. 52 of 2005 for their own aims should be stopped. The on LPB. Government should have clear directions to Griffi n, E.M. (2012). A First Look at Communication regulate all interests because it will have a bad Theories. Eight Edition. USA: Mc Graw Hill impact that brings Indonesians in conditions Company. of risk communication. Broadcasting policy Hendriyani, Hollander, E., d’Haenens, L., & makers, should immediately consider to Beentjes, J. (2011). Children’s Television

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