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Irdam Ahmad

STEKPI School of Business and Management


e-mail: irdam@stekpi.ac.id
Abstract
Fiscal dependence has been critized as one of the obstacles in the success of economic develop-
ment post the regional autonomy. This paper evaluates the level of fiscal independence in districts
and cities in East Java Province and the impact of General Allocation Fund and Special Allocation
Fund on tax effort of regional government in East Java Province. The result shows that General
Allocation Fund significantly affects tax effort, while Special Allocation Fund does not signifi-
cantly affect tax effort. It also finds that General Allocation Fund influences economic growth,
where for one percent increase in General Allocation Fund, regional economic growth increase by
0.28 percent.
Keywords: Fiscal independence, general allocation fund, special allocation fund, tax effort
JEL classification numbers: H21, H53, H71, H72

Abstrak
Ketergantungan fiskal telah ditengarai sebagai salah satu penghalang keberhasilan pembangunan
pasca pelaksanaan otonomi daerah. Makalah ini mengevaluasi tingkat kemandirian fiskal di kabu-
paten dan kota di Provinsi Jawa Timur dan dampak dari Dana Alokasi Umum dan Dana Alokasi
Khusus pada upaya pajak pemerintah daerah (kabupaten dan kota) di Provinsi Jawa Timur. Hasil-
nya menunjukkan bahwa Dana Alokasi Umum secara signifikan mempengaruhi upaya pajak, se-
mentara Dana Alokasi Khusus tidak mempengaruhi upaya pajak secara signifikan. Penelitian ini
juga menemukan bahwa Dana Alokasi Umum mempengaruhi pertumbuhan ekonomi, dimana un-
tuk satu persen peningkatan di Dana Alokasi Umum, pertumbuhan ekonomi daerah tumbuh 0.28
persen.
Keywords: Kemandirian fiskal, dana alokasi umum, dana alokasi khusus, upaya pajak
JEL classification numbers: H21, H53, H71, H72
INTRODUCTION be more fiscally independent, where each
Since the enactment of Act No. 22/1999 on region is expected to experience acceler-
Regional Governance, and Act No. 25/1999 ated economic growth, which in turn can
on Equalizing Funds between Central and increase local financial capacity and im-
Local Government, which then both acts prove its service to the community. The
were updated to Act No. 32 and Act No. implementation of regional autonomy is
33/2004, respectively, Indonesian central also expected to reduce local dependence
government has been giving greater au- on central government, where local gov-
thorities to local governments to manage ernments are expected to become more in-
more resources. dependent in terms of fiscal management,
These greater authorities through and able to finance regional development in
regional autonomy demands the districts to accordance with the fiscal capabilities
sourced from its own potential.
190

One of the constraints in imple- Research on the fiscal independence


menting regional autonomy is the fiscal pre and post the implementation of regional
capability gap across districts. To over- autonomy has been done by many authors.
come this obstacle, the central government A fairly comprehensive study on the impact
provides assistance in the form of transfers of fiscal decentralization and economic
to local governments through various fi- growth and income inequality across re-
nancing schemes, namely the General Al- gions in Indonesia has been carried out by
location Funds (GAF), the Special Alloca- Waluyo (2007), using a panel data from 33
tion Fund (SAF) and Revenue Share Funds provinces during the 2001-2005, employing
(RSF). In accordance with the regulations, a simultaneous equation model. Income
districts with a relatively low fiscal capac- inequality among regions is approximated
ity will get a larger share of GAF, com- by Williamson weighted index. Waluyo
pared to those with high fiscal capacity. assumes that there is no linkage between
Thus, through the provision of GAF, it is regions, namely, there is no migration and
expected that fiscal disparities across re- movement of capital and goods between
gions can be reduced. regions. He applies a two-stage least square
In addition, the GAF is also ex- (TSLS) technique. Evaluation of the quality
pected to increase local government capa- of the model is done by using the RMSE,
bility in allocating these funds to produc- MAE, MAPE, and TIC.
tive sectors which could increase invest- Waluyo finds that fiscal decentrali-
ment in the region, which in turn increase zation increases economic growth in the
economic growth, thus increasing the con- districts government, where an increase in
tribution of the community in terms of the central business district and regions rich
taxes and or retribution. In such a case, the in natural resources is higher than that of in
district governments will be more inde- an area that is not a business centre and
pendence as their fiscal capacity increase. with poor natural resources. He suggests
However, after several years, most that it is influenced by the mechanism of
districts still not able to increase their fiscal transfer of funds Balancing Regional Fi-
independence. The contribution of RII on nancial Centre through the mechanism of
their total spending has not increased sig- sharing of natural resources. This is be-
nificantly. In some districts, the contribu- cause the allocation of funds for the natural
tion of GAF to the total spending is greater resources used for investment in key sec-
than the contribution of RII to total spend- tors in the economy will improve regional
ing. Local governments tend to retain the economic growth. Revenue Share Funds
receipts GAF. It seems that the GAF (RSF) are more profitable for urban areas
scheme has made these local governments which is the centre of business and indus-
become more dependence on central gov- try, due to higher local tax base, while for
ernment, and therefore discourage the local the district with poor natural resources and
tax effort. not the centre of business and industry,
Based on the aforementioned ex- they should rely solely on local revenues
planation, this paper investigates the nature from the GAF and SAF.
of fiscal independence. It also finds out He also finds that fiscal decentrali-
whether the implementation of the GAF zation reduces the income inequality be-
and SAF could stimulate regional tax effort. tween regions, especially between the re-
Last but not least, it also investigates the gions in Java and outside Java, and be-
impact of RII, GAF, and SAF on economic tween the western and eastern regions of
growth. Indonesia. This is caused by the Equalizing
Funds transfer mechanism intended to re-
Regional Fiscal Independen … (Ahmad) 191

duce the impression of Java-centric eco- Meanwhile, Muliana (2009) finds


nomic development. The scarcity of natural that partially, the RII has a positive impact
resources (such as oil, gas, and forestry) on on the level of local financial independ-
the island of Java have an impact on natural ence, while the GAF and SAF have a nega-
resources revenue-sharing funds in Java is tive influence on the level of local financial
relatively smaller than the area which are independence. Simultaneously, each of the
rich in natural resources outside Java, al- RII, GAF, and SAF has a positive effect on
though it is offset by the Revenue Sharing local financial independence.
Tax, GAF, and SAF. Sihite (2009) examines the effect of
Another important research on the RII, GAF, SAF, and capital spending on
field, conducted in East Java Province, is economic growth in 15 regions in North
that of Makrifah (2010). She investigates Sumatra Province, from 2004 to 2007. The
the effects of changes in financial man- results show that partially, RII, GAF and
agement, both in terms of revenue and ex- SAF have a positive impact on economic
penditure, on economic development in growth, but the variable of capital expendi-
some districts and cities in East Java prov- ture has no effect on economic growth.
ince. She found that the ratio of RII to total Chotimah (2006) describes the fi-
revenues is increasingly convergent, even nancial performance of the district Luma-
though the trend is negative. One of the jang before decentralization (1997-2000)
reasons is that the increase in RII is smaller and after decentralization (2001-2004). She
than the increase in total revenue. The slow concludes that the level of financial inde-
increase in RII is caused by the inability of pendence in Lumajang district after decen-
the region in exploring the potential of RII, tralization (8.5%) is smaller than the level
which stems from the limited natural and of independence before the regional auton-
human resources. Some regions such as omy (14.3%). However, the effectiveness
Surabaya and Gresik, Sidoarjo, and Kediri, and efficiency after decentralization is
have a ratio of RII to total revenue is higher than those of before the regional
greater than the other districts. This is due autonomy. The growth in revenue, total
to the dominance of industry and trade sec- revenue, routine expenditure and develop-
tor in the district, which is a major con- ment expenditure has been good.
tributor of tax revenues. Meanwhile, Wulansari (2006) dis-
From the aspect of spending, almost cusses the calculation of budget reports be-
all district or cities in East Java province fore and after decentralization. She finds
have ratios above 50 percent of routine ex- that the average fiscal independence post
penditure, which means that most budgets regional autonomy implementation is 7.51
are still used for routine expenditures. percent, lower than that of pre regional
Thus, the increased ratio of RII to total autonomy, which was 9.60 percent. The
revenue, which is one of the goals of fiscal ratio of growth in RII after decentralization
decentralization, cannot be realized. is 14.07 percent, lower than that of before
Yuliati (2001) measures and ana- regional autonomy, which was 25.36 per-
lyzes the degree of autonomy of Malang cent. From the analysis, we can conclude
district. She emphasizes on the degree of that the financial performance of Asahan
decentralization, aid and fiscal capacity. district after decentralization does not sig-
She finds that the dependence of Malang nificantly different from that of before de-
Districts on the central government in fiscal centralization. This is caused by high de-
year 1995/1996 to 1999/2000 are still very pendency of this region to the central gov-
high. ernment.
192

This study analyzes the degree of capability of that region will be to finance
fiscal independence of local governments its own expenditures. The higher the con-
in East Java province. The study also ana- tribution of local revenues and the higher
lyzes the effect of GAF and SAF to tax ef- the ability to fund its own merits, the better
fort undertaken by the regions. In addition, the financial performance of the region will
this study looks at the influence of RII, be.
GAF and the SAF to economic growth of Fiscal decentralization is a process
the regions. of budget distribution from the higher lev-
Before further analysis, this paper els to lower levels of government to sup-
will explain the definition of some key port the delegated functions or duties. Fis-
variables in this study. Regional autonomy, cal decentralization is a logical conse-
according to Act No. 32/2004, is the right, quence of the implementation of regional
authority, autonomous regions and obliga- autonomy. The income sharing is done
tions to regulate and administer their own through the mechanism of equalization
affairs and interests in accordance with funds, namely the distribution of funds
laws. across levels of government. The problem
The implementation of regional of income sharing becomes a serious prob-
autonomy has to face the fact that districts lem because the central government does
in Indonesia have different situation. Some not allow local governments to conduct
are more than ready for the implementa- publicdebt .
tion, while some others need a lot of things The implementation of fiscal decen-
to prepare. Two things cause this differ- tralization can be done using expenditure
ence. The first is the differences in fiscal assignment and revenue assignment ap-
capacity between regions. The second is the proach (Waluyo, 2007). This approach
existence of differences in managerial abil- states that the transfer of some tasks of
ity to manage a variety of resources, in public services from central government to
terms of human resources, biological re- local governments increases the role of lo-
sources and funds. cal public goods. This policy was carried
According to Halim (2004), there out in two stages. The first is to determine
are some key characteristics that need to be the limits of central and regional tasks.
considered if we are to evaluate the ability Second is to explicitly divide the central
of a region in implementing regional and regional government tasks. This ap-
autonomy. The first is the ability of local proach requires that the Minimum Service
finance, namely the ability and authority to Standards (MSS) for any matters delegated
explore the area of financial resources and to local governments has been identified, so
manage its own finances to fund the gov- the magnitude of the Standard Spending
ernment activities. The second characteris- Assessment (SSA)can be known .
tic is the minimum dependency on assis- The main characteristic of revenue
tance from the central government. In other assignment approach is to improve the re-
words, the RII becomes the largest regional gional financial capability in order to fi-
financial resources. nance the decentralized functions (Waluyo,
The performance of regional fi- 2007). The determination of the financing
nance can be measured using a degree of sources which are given to regions is con-
fiscal decentralization between central and ducted using the tax assign. More on the
local governments (detail on fiscal decen- five principal in conducting tax assignment
tralization and fiscal relations can be seen can be read in Waluyo (2007).
in De Mello, 2000). The higher the degree There are at least three functions of a
of independence of a region, the higher the govnerment, namely the function of distri-
Regional Fiscal Independen … (Ahmad) 193

bution, allocation, and stabilization. Distri- of District Budget (=Anggaran Pendapatan


bution function aims to ensure fairness in dan Belanja Daerah = APBD) data and the
the distribution of income. Allocation of realization of the District Budget, obtained
functions aimed at improving the efficiency from the Directorate General of Fiscal Bal-
of the allocation of economic resources. ance, Ministry of Finance and Regional
Stabilization function aims to maintain eco- Gross Domestic Product (RGDP) from the
nomic stability as a whole, including em- Indonesia Central Bureau of Statistics.
ployment, unemployment, economic growth The variables uses in this paper are
and price stability (more on government TE (Tax Effort), GAF (General Allocation
function, please see Thai, 2001; and Bram- Funds), SAF (Specific Allocation Funds),
mer and Wakjer, 2011). RII (Regional Initial Income) and Eco-
According to Act No. 33/2004, the nomic Growth based on Regional Gross
Equalizing Funds is funds from the central Domestic Product (RGDP). Tax Effort is
government which is allocated to the re- measured by finding the ratio of RII and
gions to fund local needs in the context of RGDP, as follows:
decentralization. Equalizing Funds includes
Revenue Share Funds (RSF), General Allo- RII
cation Funds (GAF), and Special Alloca- TE = (1)
RGDP
tion Funds (SAF). RSF is allocated to re-
gions based on a specific percentage figure where TE is Tax Effort, RII is Regional Ini-
to fund needs of the region within the tial Income, in the form of tax revenue, and
framework of decentralization. GAF is al- RGDP is Regional Gross Domestic Prod-
located for the purpose of inter-regional uct, as the proxy for RII potential.
equity finance capabilities. Special Alloca- Fiscal Independence, FI, is formu-
tion Fund (SAF) is allocated to a particular lated as
area to help fund special activities that are
regional affairs and in accordance with na- RII
tional priorities. FI = (2)
Tax effort is the effort to increase TR
regional tax, measured from the ratio be- where TR is Total Regenue in the region.
tween return from all resources of regional
initial income (RII) with all potential of re- Economic growth (EGt) is measured
sources of RII. Tax effort is important in as the change in Regional Gross Domestic
boosting regional independence, measured Product (RGDP) divided by the initial
by RII, in which tax and retribution are the RGDP.
main sources.
Regional Gross Domestic Product
is the total of added value resulted from RGDPt − RGDPt −1
EGt = x100% (3)
all economic sectors available in a region RGDPt −1
for a certain period, or the sum of all in-
come gained from all production factors This paper uses both descriptive and infer-
in that region in a certain period. ential methods to analyse the data. The de-
scriptive analysis includes the presentation
METHODS of tables and graphs. The inferential analy-
sis includes estimation of multiple regres-
This study uses a panel data from all dis- sion models using panel data.
tricts/cities in East Java Province during the To determine the effect of GAF
period 2003-2008. The data are in the form and SAF to tax effort in East Java province,
194

the paper uses a multiple regression equa- relevant region. This ratio reflects the re-
tion using panel data as follows: gion's fiscal capacity in financing the de-
velopment activities from its own sources.
ln TE it = i + 1 ln GAFit The data on fiscal independence of the dis-
(4) tricts in East Java province during the pe-
+ 2 ln SAFit + t riod 2003-2008 can be seen in Figure 1 (in
the form of bar charts) and Figure 3 (in the
To determine the effect of GAF, SAF and form of box plots).
RII to the economic growth of dis- From Figure 1 we can see that the
tricts/cities in East Java province, the paper degree of fiscal independence of most dis-
uses a multiple regression equation using tricts in East Java province is between 0.05
panel data as follows: to 0.10, except the districts of Gresik, Jom-
bang, Tuban and Surabaya, which has a
ln RGDP it = i + 1 ln GAFit degree of fiscal independence between
12.15 until 12.20. This means that in gen-
+ 2 ln SAFit + 3 ln RII it (5) eral, these districts could only fund a
+ t maximum of 20% of local expenditures,
which is come from the regional initial in-
RESULTS DISCUSSION come (RII). Districts which have higher
degree of fiscal independence are Tuban,
Fiscal independence is the ratio of Regional Jombang, Gresik and Sidoarjo.
Initial Income (RII) to Total Revenue of the

0.12
0.1 2003
0.08
0.06 2004
0.04
0.02 2005
0 2006
NG RTO

2007
MA AN

MA G

GE N
MA AN

NG K

N
KE G

PA AWI
JU
MA DIU

TA
N

JO AN
LU NG

T
JA

AN

2008
CI
MO L
MO
LA

(i) The first 9 Districts: Bangkalan to Kediri

0.2
0.15 2003
0.1 2004
0.05
0 2005
2006
OW O

GR O
GI
UW AN

G
BO NEG AR

MB R
JE SIK

RI
ND OR
OS

AN
JO BE

2007
AN

DI
NY AL

E
JO LI

KE
M
BA GK

2008
N
BA

BO

(ii) The second 9 Districts: Lamongan to Pacitan


Regional Fiscal Independen … (Ahmad) 195

0.25
0.2 2003
0.15
0.1 2004
0.05
0 2005
2006

SIDOARJO
SITUBONDO

TUBAN
TULUNGAGU
PROBOLING

TRENGGALE
PASURUAN
PONOROGO

SAMPANG
PAMEKASA

SUMENEP
2007
2008

(iii) The Third 9 Districts: Pamekasan to Tulungagung


Source: Ministry of Finance.
Figure 1: Fiscal Independence, Districts in East Java Province, 2003-2008

To make things worst, Figure 1 also Java province has decreased over the pe-
shows that the degree of fiscal independ- riod 2003-2008.
ence is getting lower from 2003 to 2008. When the situation is described in
This means that the level of financial de- the form of box plots, as in Figure 3, it can
pendence of these districts is getting bigger. be seen that the fiscal independence of Su-
Thus, it can be interpreted that one of the rabaya and Sidoarjo regency in 2007 are far
purposes of the implementation of regional above the average and median degree of
autonomy, namely increasing local inde- fiscal independence of districts/cities.
pendence and gradually reduce regional Overall, the average degree of fiscal inde-
dependence, is not reached. pendence of all districts/cities in East Java
The degree of fiscal independence is very low, namely below 0.10, and tended
of the cities in East Java can be seen from to decline during the period of 2003-2008.
Figure 2 (in the form of bar charts) and This can be seen from the position of the
Figure 3 (in Box Plots). It can be inferred box plot that continues to decline and
from the figures that degree of independ- shrinking, especially after 2005.
ence in most cities is less than 0.10. This Fiscal independence in a region
means that the ability of these cities to fi- cannot be separated from the tax effort un-
nance its expenditure, namely based on its dertaken by local governments. Tax effort
Regional Initial Income (RII), is less than is an attempt to increase taxes by a local
10%, while the rest comes from central government that is measured through a
government assistance, in the form of GAF comparison between the proceeds (realiza-
and the SAF. Some cities with a quite high tion) of RII with the potential RII. Because
degree of fiscal independence, namely be- the data of potential RII is not available and
tween 0.10 to 1.2, is the city of Kediri and is hard to measure, it is approximated by
Malang. The only city in East Java which Gross Regional Domestic Product (RGDP)
has a degree of fiscal independence be- from the corresponding districts. Tax effort
tween 0.20 to 0.40 is the city of Surabaya. demonstrates the government's efforts to
It can be concluded that the degree of fiscal obtain income for the district considering
independence of most cities in East Java is its potential sources. Potential is the target
very low. Furthermore, the degree of fiscal to be achieved within the budget year that
independence in the urban areas in East area.
196

0.45
0.4
0.35
0.3
0.25 2003
0.2
0.15 2004
0.1 2005
0.05
0 2006

O
2007

OL AN

YA
O G
AR

K_ IUN
RI

GG
RT
OJ N
DI

OB U

BA
IT

M LA
2008
AD

IN
KE

PR UR
KE
BL

RA
K_ MA
M

K_ PAS
K_
K_

SU
K_

K_

K_
Source: Ministary of Finance.
Figure 2: Bar Chart for Fiscal Independence of District and Cities in
East Java Province, 2003-2008
.4
Surabaya Surabaya Surabaya

.3 Surabaya
Surabaya
Surabaya
.2 Sidoarjo

.1

.0
T2003 T2004 T2005 T2006 T2007 T2008
Source: Ministry of Finance.
Figure 3: Boxplot Diagram for Fiscal Independence of District and
Cities in Est Java Province, 2003-2008
.020
Pacitan Pacitan
.016 Pacitan
Pacitan
.012

.008

.004

.000
T2003 T2004 T2005 T2006 T2007 T2008
Source: Ministry of Finance and Indonesia Bureau of Central Statistics.
Figure 4: Boxplot Diagram for Tax Effort of District and Cities in
East Java Province, 2003-2008
Regional Fiscal Independen … (Ahmad) 197

The box plot diagram in Figure 4 adj R2 = 0,9052


shows that the tax effort rises slightly in Prob(F_Stat) = 0,0000
2004, but generally declines, especially * signifikan α = 0,01
from 2004 to 2008. Except for Pacitan dis-
trict, the tax effort is far above the dis- The Impact of RII and Equalizing Funds
tricts/city, which is between 0.12 to 0.20, on Regional Economic Growth
the average ratio of tax effort of dis-
tricts/cities is between 0.04 to 0.08. The impact of RII, the GAF and SAF on
economic growth (RGDP) can be seen
Impact of Funds Transfer on Tax Effort from the following regression equation.
Transfer Funds from the central govern- ln RGDP = 9.7485* + 0.2767 * ln GAF
ment include the General Allocation Fund
(GAF), the Specific Allocation Fund (SAF), + 0.00003 ln SAF (8)
and Revenue share funds (RSF). The study − 0.0008 ln RII
considers only GAF and SAF, because not
all regions get RSF. The results of GAF and adj R2 = 0.9985,
the estimated effect of SAF on Tax Efforts Prob(F-stat) = 0.0000,
are as follows:
where * indicates significant at α = 1% .
ln TE = −5.2605 + 0.3847 ln GAF
* *
(6) From the above equation, it can be seen
− 0.0029 ln SAF
that GAF significantly influence economic
adj R2 = 0,9294 growth. However, SAF and RII do not sig-
Prob(F-stat) = 0,0000 nificantly influence economic growth. As it
is known that the use of the GAF is left en-
where * indicates significant at α = 1% . tirely to each local government, and appar-
ently giving GAF for all districts/cities in
The estimation results show that GAF has a East Java can be used by the local govern-
positive and significant impact on tax ef- ment for development purposes.
fort. However, the transfer of SAF does not
significantly affect tax effort. Thus, GAF is CONCLUSION
expected to be a stimulus for local govern- In this study, the design of Equalizing
ments in East Java to explore the potential Funds between central and local govern-
fiscal districts/cities. ments applies money-follows-function
In another word, if these policies principle, namely, financial resources have
continue, the region's fiscal independence to be given to the regions following the
is expected to be higher in the future. It is delegated authority to the districts/cities in
also evident from the results of simple re- the context of decentralization. After seven
gression between the variables of tax effort years of regional autonomy, the degree of
(TE) with Fiscal independency (FI) which fiscal independence of most districts/cities
shows that if local governments could in- in East Java province ranged only between
crease tax effort (TE) of 1 unit, then the 5-10 percent. This reflects the high fiscal
degree of fiscal independence of the area dependence.
will increased by 1.93 units. This study found that GAF had a
significant positive effect on tax effort
FI = 0.0769* + 1.9278* TE (7) made by local governments. However, the
transfer of SAF did not significantly in-
198

crease local tax effort. This means that in independence. Second, the central govern-
the long run, central government should ment can continue the transfer of GAF.
focus more on GAF to increase the regional However, it needs to investigate on how far
fiscal independency. In addition, the trans- the grant will increase the tax effort before
fer of GAF also had a positive and signifi- it will eventually stop. Third, local gov-
cant impact on regional economic growth. ernments should be more careful in using
Regarding the results of the analy- GAF. It should consider the use of such
sis, a couple of suggestions could be made. funds for capital expenditures associated
First, districts/cities with a low level of fis- with the development of facilities and in-
cal independence need to be more creative frastructure that support the economy, so
in exploring potential sources of initial re- the economy can grow even larger.
gional income levels to increase their fiscal

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