Hasil Survey Korupsi Di Pelayanan Publik

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Hasil Survey Korupsi Di Pelayanan Publik HASIL SURVEY KORUPSI DI PELAYANAN PUBLIK (Studi Kasus di Lima Kota: Jakarta, Palangkaraya, Samarinda, Mataram dan Kupang) Disusun oleh: Tim Peneliti Departemen Riset dan Kajian Strategis Indonesia Corruption Watch Jakarta, 2000 Kata Pengantar Wacana anti korupsi mulai muncul kembali di Indonesia bersamaan dengan runtuhnya rejim Suharto. Korupsi, bersama dengan kolusi dan nepotisme, kemudian menjadi wacana baru yang menjadi dagangan politik utama di kalangan politisi. Secara deterministis KKN tersebut ditempatkan sebagai sumber utama krisis ekonomi yang terjadi di Indonesia. Wacana anti korupsi tersebut semakin berkembang pula dengan adanya organisasi- organisasi yang bergerak untuk memberantas korupsi. Dari wacana yang berkembang tersebut tersebut kemudian muncul gagasan untuk melakukan pendekatan legal dalam pemberantasan korupsi seperti perbaikan UU Anti Korupsi, UU Perlindungan Saksi, Ombudsman, dan lain-lain. Selain itu lahir pula ide-ide dari organisasi-organisasi anti korupsi untuk menempatkan gerakan anti korupsi sebagai sebuah gerakan sosial. Artinya, gerakan anti korupsi harus berjalan linier dengan demokratisasi. Gagasan ini mempercayai bahwa apabila masyarakat sipil terbentuk maka korupsi akan jauh lebih mudah diberantas. Transparansi dan demokratisasi sekaligus juga melahirkan elemen kontrol terhadap korupsi dan penyalahgunaan kekuasaan. Namun harus diakui bahwa segala gagasan untuk memberantas korupsi tersebut masih belum memiliki basis teoritis yang jelas. Teori mengenai korupsi yang berdasar pada realitas sosial yang ada di Indonesia masih kurang dalam memberikan semacam pemahaman yang jelas. Kurangnya pemahaman yang memadai dapat terlihat dari masih munculnya perdebatan mengenai target pemberantasan, apakah koruptor-koruptor kelas kakap yang melakukan korupsi padahal hidup mereka sudah berkecukupan atau koruptor-koruptor kecil yang tindakannya langsung bersentuhan dengan masyarakat. Padahal untuk menyusun langkah-langkah strategis maupun taktis dalam memberantas korupsi, perlu ada kajian yang mendalam mengenai pola-pola korupsi di Indonesia. Berdasarkan latar pemikiran tersebut, perlu dilakukan suatu kajian mengenai pola-pola korupsi di Indonesia. Di sini, Indonesia Corruption Watch bekerja sama dengan The Asia Foundations melakukan riset mengenai pola-pola korupsi di Indonesia. Tujuan dari riset ini adalah untuk mengembangkan sedikit pemikiran mengenai kompleksitas korupsi agar langkah- langkah strategis maupun taktis dapat dirumuskan. Korupsi di Indonesia melibatkan tiga elemen utama, yaitu negara, sektor bisnis dan sektor rakyat. Korupsi muncul dalam relasi diantara ketiga elemen tersebut. Namun kami menyadari bahwa korupsi merupakan persoalan yang kompleks, maka penelitian ini lebih difokuskan pada korupsi yang terjadi dalam relasi antara negara dengan rakyat. Relasi antara negara dengan rakyat, dengan rakyat yang seringkali berposisi sebagai korban dapat dilihat pada kehidupan seharihari pada sektor pelayanan publik (public service). Korupsi yang terjadi dalam relasi rakyat-negara ini menjadi penting, pertama karena persoalan korupsi tersebut langsung bersentuhan dengan kepentingan rakyat. Kedua, kajian terhadap korupsi dalam pelayanan publik ini mencoba mengelaborasi lebih jauh argumentasi bahwa korupsi yang dilakukan oleh kalangan menengah ke bawah, yang tentunya secara langsung merugikan rakyat, tetap tidak dapat diterima dengan justifikasi-justifikasi yang bersifat hanya ekonomis. Dalam penelitian ini, sektor pelayan publik yang begitu luas dibatasi pada pelayanan publik yang relatif rutin berinteraksi dengan rakyat, yaitu PLN, PAM/PDAM, Pembuatan SIM i dan Perpajakan, khususnya dalam proses pemeriksaan dan pemungutan pajak. PLN dan PAM/PDAM diambil sebagai representasi dari BUMN yang produknya langsung dikonsumsi oleh publik. Pembuatan SIM sebagai perwakilan dari pelayanan publik yang dilakukan oleh institusi POLRI. Sedangkan Perpajakan diasumsikan mewakili pelayanan publik yang dilakukan oleh aparat birokrasi. Sebagai sebuah tinjauan awal, tentunya banyak kelemahan yang muncul dalam penelitian ini. Di sini kami mengharapkan adanya kritik dan saran dari pembaca sebagai bagian dari dialektika yang berkembang demi perumusan strategi anti korupsi yang lebih substantif, struktural dan bersifat strategis. Tidak lupa kami atas nama tim peneliti “Pola-Pola Korupsi di Indonesia” ICW-TAF mengucapkan terimakasih kepada kawan-kawan di Badan Pekerja ICW, The Asia Foundations, para informan dan responden yang tidak bisa disebutkan namanya satu persatu, serta para sukarelawan yang bersedia membantu menjadi interviewer. Karena tanpa mereka, penelitian ini tidak akan bisa terlaksanan dengan baik. Jakarta, November 2000 Tim Peneliti ii TIM PENELITI POLA-POLA KORUPSI DI INDONESIA Koordinator: Donny Ardyanto Asisten Koordinator : Joko Oetoro Oemaryono Abdullah Kamil/Wasingatu Zakiah Adminstrasi: Fauziaa Binawati Rita Novela Staf Ahli: Hari Nugroho (Sosiolog, Staf Pengajar FISIP UI) Merly Khow (Kriminolog, Staf Ahli BPPN) M. Nawir Mesy (Ekonom, Peneliti INDEF) Rudy M. Harahap (Public Finance, Staf BPKP) Topo Santoso (Ahli Hukum, Staf Pengajar FH UI) Peneliti: Agam Fatchurrochman Y. Wasi Gede Puraka Asisten Peneliti: Ahmad Deni Murdani Dara Meutia Uning Dera Eharlina Dery Irmantara Satya B. Utama Sonny P. Wibisono iii Daftar Isi Kata Pengantar............................................................................................................................ i TIM PENELITI ........................................................................................................................ iii POLA-POLA KORUPSI DI INDONESIA.............................................................................. iii Daftar Isi................................................................................................................................... iv Daftar Tabel.............................................................................................................................. vi Daftar Gambar ......................................................................................................................... vii BAB I......................................................................................................................................... 1 PENDAHULUAN.....................................................................................................................1 I.1 Latar Belakang ................................................................................................................. 1 I.2 Permasalahan.................................................................................................................... 4 I.3 Kerangka Pemikiran......................................................................................................... 9 I.3.1 Menuju Pemahaman Ekonomi-Politik Korupsi ........................................................ 9 I.3.2 Birokrasi.................................................................................................................. 16 I.3.3. Sektor Pelayanan Publik ........................................................................................ 18 I.4. Tujuan dan Signifikansi Penelitian ............................................................................... 21 I.5. Metode Penelitian.......................................................................................................... 21 Bab II ....................................................................................................................................... 24 Sekilas Sejarah Korupsi Kontemporer di Republik Indonesia ................................................ 24 II.1 Periode Pasca-Kolonial 1945-1957............................................................................... 24 II.2 Demokrasi Terpimpin 1958-1965 dan Keruntuhannya. ............................................... 27 II.3 Periode Pemulihan Ekonomi Negara dan Politik Dua-Jalur 1966-1974 ...................... 29 II.4 Periode 1974 – 1982 Penguatan Negara dan Kebangkitan Politik Teknokrat.............. 33 II.5 Periode 1978 – 1986: Deregulasi Dan Arah Menuju Institusionalisasi Korupsi.......... 37 II.6 Periode 1986-1997 : Transformasi Patronase Individu Menuju Patronase Negara...... 41 Bab III...................................................................................................................................... 44 Korupsi Pada Sektor Pelayanan Publik Sebagai Warisan Orde Baru ..................................... 44 III.1. Deskripsi Korupsi Dalam Proses Pengelolaan Pembuatan SIM ................................ 44 III.1.1 Organisasi dan Pengelolaan SIM.......................................................................... 47 III.1.2. Pengelolaan dan Proses Produksi Surat Ijin Mengemudi.................................... 53 III.1.2. Prosedur Formal Pengurusan SIM....................................................................... 56 III.1.3. Korupsi dalam Pengelolaan Pembuatan SIM ...................................................... 58 III.1.3.1. Percaloan ...................................................................................................... 58 III.1.3.2. Celah-Celah Korupsi Pada Proses Pengurusan SIM .................................... 61 III.1.3.3. Aliran Dana dalam Jaringan Patronase Pada SIM........................................ 64 III.2 Deskripsi Korupsi Pada Sektor Perpajakan................................................................. 71 III.2.1. Personalia ...........................................................................................................
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