International Journal of Administrative Science & Organization, September 2013 Volume 20, Number 3

Bisnis & Birokrasi, Jurnal Ilmu Administrasi dan Organisasi

ISSN 0854 - 3844, Accredited by DIKTI Kemendiknas RI No : 64a/DIKTI/Kep/2010

The Design of Change in Waste Management Policy:

Application of Soft Systems Methodology

MARIA DIKA PUSPITA SARI AND UMANTO

Public Administration, Faculty of Social and Political Sciences, Universitas Indonesia
maria.dika@gmail.com and umanto.eko@gmail.com

Abstract. Municipality of Depok faces complex waste problems. The amount of waste continues to grow with the increasing
population and people’s activities. The Local Government has established a policy to deal with the waste problems by applying
the Integrated Waste Management System (SIPESAT) since 2006. However, there are some resistances in the implementation
of the waste management system. This study aims to give recommendation about policy changes of waste management policy
in Municipality of Depok. This research applies soft systems methodology. The use of the hierarchical policy process as
proposed by Bromley (1989) indicating the role of institutions that guiding the actors at each level to perform their roles to
achieve the integrated waste management system. The Local Government needs to strengthen the policy by changes the waste
management policy based on the policy process that are the making of legislation on waste management at the policy level, the
arrangement of SOP-UPS and optimizing the roles of Sanitary Task Force at the organizational level and the establishment of
public involvement system at the operational level.

Keywords: policy change, policy process as a hirarchy, soft systems methodology, waste management, the integrated
waste management system

Abstrak. Kota Depok menghadapi persoalan sampah yang kompleks. Jumlah timbulan sampah terus meningkat seiring
bertambahnya jumlah penduduk dan aktivitasnya. Pemerintah Kota Depok telah menyusun kebijakan untuk menangani
permasalahan sampah itu, yaitu dengan menerapkan Sistem Pengelolaan Sampah Terpadu (SIPESAT) sejak tahun 2006.
Namun demikian, pelaksanaan kegiatan pengelolaan sampah tersebut masih menemui sejumlah kendala. Penelitian ini
bertujuan untuk memberikan rekomendasi desain perubahan kebijakan pengelolaan sampah di Kota Depok. Penelitian ini
menggunakan metodologi serba sistem lunak. Penggunaan kerangka proses kebijakan sebagai hirarki yang dikemukakan
oleh Bromley (1989a) menunjukkan adanya peran institution atau aturan (kebijakan) yang menjadi pedoman para aktor di
setiap level dalam menjalankan perannya sehingga mencapai sistem pengelolaan sampah yang terpadu. Pemerintah Kota
Depok perlu melakukan penguatan kebijakan melalui perubahan kebijakan pengelolaan sampah berdasarkan hirarki proses
kebijakan tersebut, yaitu penyusunan Perda tentang pengelolaan sampah pada tingkat kebijakan, penyusunan SOP-UPS dan
optimalisasi peran Satgas Kebersihan pada tingkat organisasional, dan pembentukan sistem keterlibatan masyarakat pada
tingkat operasional.

Kata kunci: perubahan kebijakan, proses kebijakan sebagai hierarki, metodologi serba sistem lunak, pengelolaan
sampah, sistem pengelolaan sampah terpadu (SIPESAT)

INTRODUCTION of Depok, 2011). As one of buffer cities for Jakarta, the

One of the environmental issues of concern around
the world is waste management. The amount of waste
produced continues to increase along with the increase
in human population. Report published by the World
Bank in 2012 revealed that the amount of solid waste
generated by cities in the world will continue to increase
by 70% from 2012 to 2025, from 1.3 billion tons per
year to 2.2 billion tons per year. The majority of the
increase in waste generation occurs in cities in developing
countries (Hoornewg and Tata, 2012). Proper waste
management needed to control waste generation and does
not cause adverse effects to the health of society at large
(Tchobanoglous, et.al, 1993).
Municipality of Depok as one of the buffer cities for
the State Capital has a serious problem in terms of waste
management. The city is geared to be a residential city,
education city, center for trade and services, tourism city,
and as a city of water infiltration (BPS of Municipality
Municipality of Depok grows and develops quite rapidly.
The increasing development activity and population
growth have direct impacts on increasing waste or waste
production. Based on the data from the Sanitation and
Park Service of the Municipality of Depok in 2010, the
estimated produced-waste in Municipality of Depok is
4,250 m³ per day and the result of Population Census
(PC) of Municipality of Depok of 2010 shows that the
number of population of the Municipality of Depok is
1,736,565 people (BPS [Central Bureau of Statistics] of
Municipality of Depok, 2011). The number of population
in the Municipality of Depok keeps increasing, which
until 2011 reaches 1,813,612 people, namely consisting of
918,835 male people and 894,777 people with population
growth rate of 4.32% (BPS of the Municipality of Depok,
2011). The following graph shows the comparison of the
projected population and the volume of waste generated
in the municipality of Depok in the year 1999 to 2011:
154 International Journal of Administrative Science & Organization, September 2013 Volume 20, Number 3 SARI AND UMANTO, THE DESIGN OF CHANGE IN WASTE MANAGEMENT POLICY 155
Bisnis & Birokrasi, Jurnal Ilmu Administrasi dan Organisasi

Figure 1. Comparison of population and waste vol-
ume in the Municipality of Depok in 1999 to 2011
Source: (BPS [Central Bureau of Statistics] of Munici-
pality of Depok, 2011
The seriousness of the Government of the Municipality
of Depok to overcome the sanitation problem is shown
by, among other things, making sanitation service as
the second priority in the mainstay program of the
Municipality of Depok of 2011-2016, namely ‘Depok
the Clean and Green City’. Additionally, cleaning service
also included in third mission of Depok City, that is
‘to manifest comfort environment and Infrastructure’.
Such Infrastructure related with cleaning management
increasing (Local Developmental Planning Agency of
Depok City, 2011). Allocation cleaning handling as one of
main priorities in work program of such City Government
may indicate that really, such problem had been concern
of Depok City Government.
The incoming problem from policy side specially,
Local Ordinance of Depok City on waste treatment had
not been passed yet. Indeed, the forceful regulation to
set forth waste treatment in Depok City specially is
required so that, waste treatment implementation may
be directed in better. Currently, Depok City Government
applied Local Ordinance in terms of Public Order in order
to enforce some citizens who throw waste haphazardly
(Jurnal Nasional, 2010).
Unless by Local Ordinance on Public Order, regulation
on waste treatment also had been set forth by Local
Ordinance of Depok City No.5 of 2012 on Cleaning/
Waste Service Retribution. This Local Ordinance
as substitutue of Local Ordinance No.41 of 2000 on
Retribution of Waste Service in Depok City. By such new
Local Ordinance on Retribution, Depok City Government
had increased tariff of waste retribution. Some citizens
had refused the increasing of such waste retribution
Waste Treatment System in Depok City called
Integrated Waste Treatment System (Sistem Pengelolaan
Sampah Terpadu: SIPESAT) (Pusat Komunikasi Publik
Depok City, 2006). Depok City Government had launched
such SIPESAT since 2006. Implementation of SIPESAT
conducted by three approaches. Firstly, approach of Final
Dumping Site (Tempat Pembuangan Akhir: TPA) scale.
Secondly, area scale approach representing a change of old
waste treatment paradigm, that is : collect-carry-dispose
to be collect-proceed-benefit. Thirdly, community scale
approach in order to motivate and involve community, at
household level specially.
There is obstacle in implementation of those three waste
treatment approaches applied by Depok City Government.
Firstly, it is related with TPA scale approach, currently,
Depok City just have one TPA, i.e, TPA of Cipayung
located at Sub District of Cipayung. Secondly, area
scale approach is less effective. Depok City Government
had implemented it by building and operating Waste
Treatment Unit (Unit Pengelolaan Sampah: UPS). Based
on data from Cleaning and gardening Service of Depok
City, through December 2011 had been built 44 UPS.
Yet, total operated UPS was less than 50%, it was only 19
UPS. Waste may be treated at UPS was only 570 m3 per
day or around 13.41%. Some 1.296 m3 wastes per day or
around 30,49% just may be transported solely, and those
may not be treated at UPS. It indicates that UPS role is
less effective. Thirdly, the household which participate in
waste treatment by waste sorting is so little. Depok City
Government had conducted household scale approach
by socialization of Depok Sorting Movement (Gerakan
Depok Memilah: GDM). GDM realized by socialization
of awarening and involving community, khususnya di
tingkat rumah tangga, at household level specially. This
sctivities conducted since. Through May 2012, such
activities had been conducted at 55 RW (Citizenship
Unit) in Depok City. Gradually, such program conducted
at all RW throughout Depok City .
Of those three approaches conducted by Depok City
Government, implementation of area scale approach
by building and operating UPS to be governmental
main strategy, directly and rapidly it may reduce waste
accumulaion discarded to TPA directly. Waste Treatment
Unit (UPS) is any policy of Depok City Government
within framework to overcome waste problems. UPS as
manifestation of old paradigm change of government
to treat/manage waste from collect-transport-dispose
to be collect-proceed-benefit. The existence of this
UPS ini is very important because at UPS all wastes
at Depok City area, it may be treatet from its resource
directly. Nevertheless, implementation of such area scale
approach by such UPS operation in Depok City, really, it
had resulted in some problems from headwaters/upstream
(policy making) through downstream (distribution of
UPS output). In this case such built UPS optimally, it had
not been operated in accordance with its objective. Some
problems had hindered UPS operations either input,
process or even output/outcome
In relation to the policy process, Bromley (1989a)
proposes a conceptual basis of public policy. Bromley’s
idea starts from a process of institutional changes in
the frame of reallocating the economic opportunity
and redistributing the income, at the same time for
institutional efficiency and effectiveness (Bromley,
1989b, p. 736). According to Davis and North (1970),
by institution means ‘the legal rules that define the
economic relation between people (private property), and
to a person or a position (the presidency)’. Further, Davis
and North (1970) mentioned the term of institution using
the term of institutional arrangement. Davis and North
(1970) argue that institution constitutes an agreement
among economic units that determine that such units
can cooperate or compete with each other. From the
said opinion, it is clear that institution does not refer to arrangements. Institutional arrangements are made by
the definition of organization. Further, Common (1968) considering the operational level, where working units
in Bromley (1989a, p. 43; 1989b; 1993) mentioned in the public (household and corporate) do their daily
institution as ‘working rules’. It is not appropriate to call activities so that they produce certain outcome which can
schools, companies, and markets as institutions, but rather be enjoyed. Public policy is democracy type (Mardiyanta,
they gain their meaning from institution (as rules) itself. 2013).
Bromley (1989b) affirms that: ‘such organizations only Operational level is an operational unit that exists
exist because there is a set of working rules that defines within the public. It is this level which subsequently
them. A corporation only exist as a separate legal entity interacts directly with the public so that the outcome of its
by virtue of a set of working rules that define what is, and interaction does not only pay attention on the output, but
what is not, a corporation.’ (p. 740) also must pay attention on outcomes (impacts) that are
According to Bromley (1989a, p. 49) there are 3 caused by its activities. Pattern of interaction (behavior)
institutional characteristics, namely being able to (1) that appears on the operational level continues to be
define the choice sets of independent economic actors; (2) observed and such pattern of interaction will produce
define the relationship among individuals; and (3) indicate outcomes that are assessed by the public as being good or
who may do what to whom. Bromley sees institution as bad. If the result is found to be bad (has not been able to
consensual arrangements or behavior patterns agreed solve the problem in the public), collective response will
upon through mutual convention (informal rules) and be made through a political process and effort to change
institutional arrangements defined based on individual
regulations (formal rules or entitlements) which give
claims at the operational level. Input from the public
clear defining of choice sets applicable to individuals and
will be directly directed to the policy level to find new
groups. Such institution has the function to guarantee a
constellation of rules and laws (institutions) that will
transaction.
change the domain of selection for the operational level.
A similar opinion also had been revealed by Schmid
Waste treatment condition in Depok City through
(1972, p. 893) stating that ‘institutions are sets of
UPS it had indicated interaction pattern of inter actor
ordered relationship among people, which define their
rights, exposures to the rights of others, privileges, and to be increased in policy process and target group,
ie., community. In this context should be conducted
responsibilities.’. this definition had clarified that school,
company and market may not be called as institutions, but, reconstruction against waste treatment policy through
UPS. Based on such problem, the research question is how
it more have meaning from institutions as such self rules.
According to Bromley (1989a, p. 49) there were three the design of change in waste treatment policy in Depok
City through UPS within framework policy process as
institutional characteristics, those are able to (1) define the
choiced sets of independent economic actors; (2) define hierarchy by Soft System Methodology
the relationship among individuals; and (3) indicate who
may do what to whom. Bromley assume institution as
consensual arrangements or behavior pattern agreed by
joint convention (informal rules) and regulation (formal
rule or entitlements) giving clear definition on choice
sets applied for individuals and groups. The meaning of
such institution has function to guarantee any transaction.
Then, such opinion had been strengthened by Baldwin and
Cave (1999) in (Dill and Berkeens, 2010, p.7), regulation
concept pertaining to binding governmental regulation
and conducted by pubic agent.
In explaining about the importance of an institution,
Bromley (1989a) gives explanation in general about the
policy process. According to Bromley (1989a, p. 32),
process of public policy can be seen as a hierarchy which
has 3 (three) levels, namely policy level, organizational
level, and operational level (see Figure 2). Public policy
in each level is embodied in the form of institutional
arrangement which covers, among other things,
regulation that is appropriate with its hierarchical
level. In democracy, policy level is represented by the
functioning of legislative and judicative bodies, while the
organizational level is represented by the executive body.
Various kinds of aspirations are debated and formulated
at policy level. The implementation of such aspirations is
conducted by organizations developed and based on rules
and laws that determine how such organizations operate
to perform their duties. Rule and law that link such policy Figure 2. The Policy Process as a Hierarchy
level and organizational level are called institutional Source: Bromley, 1989a, p.33
156 International Journal of Administrative Science & Organization, September 2013
Bisnis & Birokrasi, Jurnal Ilmu Administrasi dan Organisasi
RESEARCH METHODS
This research applies Soft System Methodology
(SSM) (Checkland, 1999; Checkland and Scholes,
1990; Checkland and Poulter, 2006). SSM is used in
this research since the condition of waste management
in the Municipality of Depok shows that the real world
of waste management in the Municipality of Depok is
complex, messy, and portrays all-human activity systems.
The problem that arises in the implementation of waste
management activity on site implicitly shows that
within the context of waste management policy in the
Municipality of Depok there are problematic situations
that need to be improved.
As an problem solving interest cycle, in this research,
we have identified conceptual framework (F), real world
problem situation (P), real world problem situation owned
by the researcher (A), and method for problem solving
interest (Mps) cycle as follows in table 1 (see McKay and
Marshall, 2001).
SSM consists of two parts of activities, namely ‘real-
world’ and ‘systems thinking’, as well as seven stages,
namely (1) problem situation considered problematic,
(2) problem situation expressed, (3) root definition of
relevant purposeful activity, (4) conceptual models of
the systems named in the root definition, (5) comparison
of models and real world, (6) changes systematically
desirable, culturally feasible, and (7) action to improve
the situation. Stages 1, 2, 5, 6, and 7 are the activities
within the ‘real-world’ containing problem situation,
while stages 3 and 4 are ‘systems thinking’ which may
be involved in such problem situation, depending on the
individuals that conduct such research (see Checkland,
1999, p.163-164). From stages 1, 2, 5, 6, and 7, we would
obtain perception about the real world. While at stages 3
and 4, we would obtain feeling about the real world. This
research focused only on the stage 1 to stage 6. Whereas,
the seventh stage is the stage for repairs, improvements,
and didn’t changes the situation problematic.
This research is conducted at UPS, DKP (Dinas
Kebersihan Pertamanan), BLH (Badan Lingkungan
Hidup), Bappeda (Regional Development Supervisory
Agency), DPRD (Local Parliaments), Sub-district,
village, and the community surrounding within the
Municipality of Depok. In this research, we conduct
data collection either for primary data or secondary data.
Primary data collection is conducted through in-depth
Tabel 1. Elements of Action Research Intervention
F Policy process as a hierarchy consisting of policy
level, organizational level, and opera¬tional level
Mps Soft Systems Methodology
A Developing the policy in the frame of policy pro-
cess as a hierarchy that consists of policy level,
organizational level, and operational level at
waste management in the Municipality of Depok
P Waste management policy in the Municipality of
Depok
Source: adapted from McKay and Marshall (2001)
Volume 20, Number 3 SARI AND UMANTO, THE DESIGN OF CHANGE IN WASTE MANAGEMENT POLICY 157
interviews with selected informants in accordance with
the criteria required and observation. Secondary data are
obtained through literature study through written sources
relating to the objective of the research. Such written
sources are in the form of books, journals, academic
works, government’s documents, or websites (internet).
The validity standard principle in the SSM is
recoverability (Uchiyama, 2009). Checkland and Poulter
(2006, p.17) also confirm the principle of recoverability
for SSM as follows in figure 3: “This makes it possible
for anyone outside the work to ‘recover’ it, to see what
was done and how the conclusions were reached. This
‘recoverability’ requirement is obviously not as strong as
the ‘repeatability’ criterion for scientific findings within
natural science”.
RESULT AND DISCUSSION
Problem situation expressed in this research is
conducted by exposing the general description of the
Municipality of Depok relating with waste management
policy and problem situation expressed using SSM
(Intervention, Social, and Political Analysis). Such
unstructured problem situation is subsequently structured
through rich picture in Figure 4.
At the policy level, Bappeda and DPRD proposed
the need of socialization on waste management activity
for the public. Through such socialization Bappeda and
DPRD expect understanding with the public about waste
processing, programs and the government’s limited
ability in waste management, and finally the public will
be willing to participate actively. DPRD also proposed Figure 4. Rich Picture of Waste Management Policy in the Municipality of Depok
the expectation relating to the importance of socialization
activity by preparing a bigger budget at socialization
At organizational level, there are several complaints appropriate with the salary, which is still below the UMR
activity than addition of facility and infrastructure. In about the lack of cooperation among SKPDs. DKP as (Regional Minimum Pay) of the Municipality of Depok.
addition, Bappeda also expects cooperation among a leading sector in the waste management activity feels In addition, the different work load between one UPS
SKPDs (Satuan Kerja Perangkat Daerah) in the overwhelmed and expects active cooperation of the and the other also causes jealousy among the personnel.
handling of waste problem, especially between DKP other SKPDs, namely Sub-Districts. Meanwhile, Sub- Personnel in an UPS with heavier work load (bigger
and Sub-Districts. Relating with UPS management, Districts still consider that it is DKP that should be active volume of waste that must be processed) obtain the same
Bappeda expressed its disappointment about the activity in waste management activity. Sub-Districts are waiting salary with personnel in other UPS with smaller work
management in UPS. This is because the objective of for coordination from DKP. Relating with community load. Relating with such big quantity of produced-waste
UPS itself has not been attained. Performance standard advancement in waste management, BLH also land a aforesaid, personnel of UPS expects public participation
that may become monitoring tool and evaluation to the hand. Whereas such activity is not the formal main duty in reducing the waste that enters the UPS, namely by
activity in UPS itself are not available and according to and function of BLH. Relating with the problem that firstly sorting the garbage before being disposed of. This
Bappeda, there is a tendency that UPS personnel gives occurs at UPS, DKP feels it is pressed from 2 sides, is because UPS has limited capacity of waste processing
priority to its economic interest more than its obligation namely the public and the range of the Municipality machines.
to process waste. According to Bappeda, UPS activity Government (Mayor and DPRD). DKP feels that it has the In addition to UPS personnel, at operational level
planning must also be coordinated with the other fields, desire to serve the public to the most maximum possible, there is also Village, which feels having no power to
especially those which are under DKP. Compost produced but frequently rejection to the activity (development of conduct advancement activity for the community related
from waste processing activity at UPS should be able to UPS) exactly comes from the public. On the other hand, with waste management. Village has no budget to make
be utilized by the Park Section. Bappeda emphasizes the the activity of GDM socialization that has been carried such socialization as a routine activity program and
importance of internal coordination of DKP. out by DKP still requires time in for its result to be cimply rely on environmental-caring community groups which
seen. In addition, DKP also feels the high demand for have moved independently to conduct socialization
performance from the management of the Government of in the public. Village is basically prepared to carry out
(1) Finding out
Depok Municipality. Meanwhile, there are only limited advancement more seriously, to the extent that it be given
Model(s) relevant
(2)Model building re implementing
resources, either human resources (HR) or facility and the operational fund.
infrastructure. Proposal for additional facility (such . From such problematic problem situation, the
(3)Discussing/debaring
trucks) is also accompanied with the demand for improved researcher chooses 4 (four) systems that work in it and
(4)Defining/ ranking action attainment of services in the form of waste levy revenue. have systemic impact. The researcher gives the names
At the operational level, UPS personnel feel the lack to the four systems so selected as follows: the Making
Figure 3. Typical pattern of activities during SSM research of attention given by the government to its prosperity. of Perda (Regional Regulation) on Waste Management,
Source: Checkland and Poulter, 2006, p. 14 According to the personnel, the high risk of the work is not the Making of Standard Operating Procedure for UPS,
158 International Journal of Administrative Science & Organization, September 2013 Volume 20, Number 3 SARI AND UMANTO, THE DESIGN OF CHANGE IN WASTE MANAGEMENT POLICY 159
Bisnis & Birokrasi, Jurnal Ilmu Administrasi dan Organisasi

Optimizing of Role of Sanitary Task Force, and the
Establishment of System of Public Involvement in
Waste Management. Such systems are chosen with the
same worldview, namely the importance of institutions
in forming the behavior of the actors. At each level of
policy process, public policy is materialized in the form
of institutional arrangement or laws and regulations that
are adjusted with its hierarchical level (Bromley, 1989a).
The four systems have the same objective, namely to
develop hierarchy of policy process in order to guarantee
the attainment of changes in waste management policy in
the Municipality of Depok.
Method of Making of Perda (Regional Regulation) on
Waste Management explains about formal law and informal
convention that are used at the policy level in designing
a rule, namely Regional Regulation of the Municipality
of Depok on Waste Management. This Perda (Regional
Regulation) is designed to clarify the distribution of the
main duty and function (tupoksi), obligations, rights, and
sanction to the respective stakeholders involved in the
waste management activity in the Municipality of Depok
in order to attain the change in waste management policy
in the Municipality of Depok.
Method of the making of Standard Operating
Procedure of UPS explains about formal law and informal
convention used at the organizational level in designing
a rule, namely Standard Operating Procedure of Waste
Processing Unit (SOP-UPS), as manifestation of the
interrelatedness of the policy made among the policy
level, organizational level, and operational level. This
SOP-UPS serves as the standard either in the planning,
implementation, or evaluation of waste processing
activity in all UPS in the Municipality of Depok, so that
it can attain a change in the waste management policy in
the Municipality of Depok.
Method of Optimizing of Role of Sanitary Task Force
explains about formal law and informal convention
1. The background of Regional regulation
(Perda) making:
a. The existence of higher legislation
orders
b.Local development planning;
c.The implementation of regional
autonomy and co-administration
(medebewind) ;
d.Local aspiration
8. Regional Regulation Establishment
2. Arrangement of Regional
Legislation Program
(Prolegda)
3. Academic Paper Arrangement
4. Regional Regulation Drafting
5. Consultation of Regional
Regulation Draft
6. Regional Regulation Draft
conducted at the organizational level, namely Sub-
District, in preparing an action, namely Optimizing the
Role of Sanitary Task Force. Sanitary Task Force plays
the role as supervisor to waste management activity at
the level of public and advancement relating with the
sanitary activity in the public. Like the second system
chosen, this system is also selected as a system that has
interrelationship with the system that works at the policy
level and operational level.
The fourth system chosen, namely the Establishment
of Public Involvement System in Waste Management,
shows a system that works at operational level, namely
showing pattern of interaction at operational level with
the public in the effort to improve Public Involvement in
waste management at household.
Further, the four systems are used to develop an
epistemological model in the form of a series of activities
that take place in each system so selected. The following
Figure 5 – Figure 8 show a conceptual model in the four
systems so selected.
Perda on Waste Management provides for waste
management system carried out in the Municipality of
Depok, especially tupoksi (main duties and function)
which are the responsibility of the related SKPD and
participation that must be conducted by the public.
The authority to prepare Perda at the level of Regency/
Municipality is at the Government of Regency/
Municipality and the local DPRD. Before a Perda is
prepared, Regional Government and DPRD prepare a
Prolegda (Regional Legislation Program) planning. This
Perda on Waste Management constitutes a perda that
is originated in the initiative of the Government of the
Municipality of Depok by considering the condition of
the area as well as the order of the higher level of laws and
regulations, among other things Law Number 18 of 2008
on Waste Management, PP (Government Regulation)
Number 81 of 2012 on Management of Domestic
Waste and Waste of the same type of Domestic Waste,
and Permendagri (Regulation of Minister of Domestic
Affairs) Number 33 of 2010 regarding Guideline to
Waste Management. Perda on Waste Management has
been included in the list of Prolegda that will be carried
out by the Government and DPRD of the Municipality
1. Evaluating the efectiveness of waste
processing in UPS
2. Doing research to arrange the
Standard Operating Procedure
(SOP) of UPS (SOP-UPS)
of Depok in the year 2013. After being included in the
list of Prolegda, the Municipality Government of Depok
will subsequently prepare an academic paper and Raperda
(Draft of Regional Regulation), and process the said
Raperda until it becomes a Perda that is lawful and ready
for publication in accordance with the provision of Law
Number 12 of 2011 regarding the Establishment of Laws
and Regulations and Permendagri (Regulation of Minister
of Domestic Affairs) Number 53 of 2011 regarding the
Formation of Regional Law Product. Coordination
of main duties and function (tupoksi) among SKPDs
in waste management can be conducted at the fifth
stage, namely consultation of Raperda together with
Regional Secretary. Regional Secretary may give input
on distribution of tupoksi of SKPD relating with waste
management system that has been designed in order to
materialize an integrated waste management.
SOP-UPS regulates the mechanism of waste processing
that must be conducted in all UPSs within the Municipality
of Depok. Therefore, the performance of waste processing
in each UPS can be evaluated and improved. This SOP-
UPS is prepared by the Section of Sanitation Service
- Sanitation and Park Service of the Municipality of
Depok, especially Waste Processing Section which indeed
subordinates UPS operation. SOP-UPS preparation is
commenced by conducting evaluation to the performance
of UPS and study on SOP-UPS. The result of the study is in
the form of draft of proposed SOP-UPS will subsequently
be discussed at the level of leaders of Field of Sanitation
Service relating with the follow up to the result of study
on SOP-UPS preparation. Upon agreement on SOP-UPS
preparation, SOP-UPS preparing team will be established.
This team will make a draft of SOP-UPS based on result
of such study. This draft will subsequently be discussed
together with the members of the management in the Field
of Sanitation Service as well as coordinator of UPS all
over the Municipality of Depok. Input that is obtained in
the said discussion will serve as input for the improvement
of draft of SOP-UPS that has been prepared by the team.
The improved draft will subsequently by consulted with
the members of the management of DKP, in this matter is
chairman of agency. Input from chairman of agency will
subsequently be accommodated in the draft of SOP-UPS
and becomes a final text of SOP-UPS. This text of SOP-UPS
will be passed and stipulated by chairman of agency and
5. Discussing theSOP- UPS
draft
1. Evaluate the Sanitary Task Force
(Satgas Kebersihan) effectiveness
6. Consulting the SOP-UPS
draft
2. Discussing the role of Sanitary
6. Monitoring the cleaning process in
Task Force at district and village
region
socialized to all UPSs in the Municipality of Depok which
have been in operation as well as those which will operate.
Every sub-district has established a Sanitary Task
Force. However, the performance of the Sanitary Task
Force is presently still not optimum. Therefore, sub-
district as an actor at the organizational level may
establish an institutional arrangement to optimize the
role of the said Sanitary Task Force at the operational
level. This may be conducted by involving Village. The
first step to be conducted is holding a meeting between
personnel of Sub-District and Village to discuss the
role of Sanitary Task Force that has been established
and the follow up to the result of evaluation over the
performance of the Sanitary Task Force at present. The
next step is the recruitment of Sanitary Task Force at the
level of Village. The result of recruitment at this level of
Village will subsequently become a proposed material
to be reported to Sub-District. Based on the proposal
from every Village, Sub-District conducts stipulation
and assignment of Sanitary Task Force formally through
Letter of Assignment made by Sub-District Head.
Members of Sanitary Task Force that have been stipulated
will subsequently be assembled in a meeting to be given
elucidation on the implementation of the duties as Sanitary
Task Force. Following such elucidation, Sanitary Task
Force personnel will then carry out their duties in terms
of supervision and assistance relating to the problem of
sanitation, especially garbage, in the territory of Village.
This Sanitary Task Force personnel must give a periodic
report to Sub-District, through Village. Based on such
report, Sub-District conducts a periodic meeting for
evaluation and coordination of activity of Sanitary Task
Force in the subsequent month.
Gerakan Depok Memilah (Sorting Depok Movement)
constitutes one of the activity programs conducted by
the Government of the Municipality of Depok through
DKP with a view to improving Public Involvement in
waste management activity. The role of the public in
waste management activity has actually been regulated in
1. The existance of
Mayor Instruction 2. The existance of 3. Discussion between village
Sub-district Head government and community leaders
(regulation) to build a
community Instruction to Village (RW, RT, and environmental care
participation system Head to formWaste
Bank (Bank Sampah)
groups)
in waste management
system 4.
5. Supplying the
5. Briefing about Sanitary Task Force facilities/ infrastructures 7. Waste processing
role and duty 4. Socialization about
“Gerakan Depok to support the waste at household
processing
6. Memilah” (Depok
implementation in
Sorting Movement) at
community
village region household level

9. Regional Regulation Enactment Submission 7. SOP-UPS establishment 3.

8. Mentoring Waste Bank
3. Follow up the research output 6. Forming the Waste
3. Recruiting Sanitary Task Force 7. Regular raport to the district government Bank operation
officers at village level
10. Establish community
10. Regional Regulation Sosialization 7. Regional Regulation Draft involvement system in waste
8. SOP-UPS socialization to the 4.
9. Follow up (advancement
Discussion UPS officers management system
4. Determination and 8. Evaluation by regular meeting process) the Waste Bank
4. Arranging the SOP-UPS draft assignment of Sanitary Task output/outcome
Force at district level

5.
Define Criteria: 3E Monitoring 1-10 Take Control Action
Define Criteria: 3E Monitoring 1-8 Take Control Action Define Criteria: 3E Monitoring 1-10 Take Control Action
Define Criteria: 3E Monitoring 1-8 Take Control Action

Figure 5. Conceptual Model of Preparation of Perda Figure 7. Conceptual Model of Sanitary Task Force Figure 8. Conceptual Model of the Establishment of
on Waste Management Figure 6. Conceptual Model of the Making of SOP-UPS Optimization System of Public Involvement in Waste Management
160 International Journal of Administrative Science & Organization, September 2013
Bisnis & Birokrasi, Jurnal Ilmu Administrasi dan Organisasi
Law Number 18 of 2008 regarding Waste Management,
namely that the community is obliged to reduce and
overcome the waste it produces. However, in addition to
not many community members being aware of the said
regulation, the objective of this government program
that is conducted through the giving of socialization has
neither been an optimum success. One of the methods
that can be applied is by involving all elements of the
community. In this matter, DKP and Village can cooperate
to conduct the activity of socialization and elucidation to
the community. Before conducting such activity, Village
must have clear instruction about the implementation
of the activity. This instruction comes from Mayor
and Sub-District Head, considering that the status of
Village is under the coordination of Sub-District. By
such instruction, Village has the obligations and is given
budget allocation for the implementation of the activity.
In implementing the socialization activity, the early stage
that needs to be conducted is a meeting among DKP, the
management of Village, and community leaders (RW, RT,
and environmental-caring groups) to discuss the role of
the community and the government in waste management
based on the existing regulation. In such meeting, the
community is given understanding about the importance
of their involvement in the waste management activity. In
addition, the government (DKP and Village) also receives
inputs from the community for the improvement of the
system that has been carried out by the government thus
far.
Socialization may be in the form of elucidation and
training on waste sorting and processing at the level of
household. Besides conducting socialization activity, the
government also needs to provide the community with
facility and infrastructure. This is aimed as an effort to
encourage the community to apply the knowledge that
is obtained from the socialization activity of GDM. Not
only being provided with facility, the community is also
encouraged to form independent Waste Banks as a form
of collective commitment to conducting useful waste
management activity. The next stage is mentoring and
advancement, both in the activity of domestic waste
sorting and processing, and in the Waste Bank operating.
This mentoring and advancement constitutes a means
of communication between the government and the
community in the implementation of waste management
activity within the community. Besides mentoring and
advancement, the government also needs to make a
follow-up mechanism to the product produced in the
Waste Bank so that the benefit cycle of this Waste Bank
can continue. By the continuance of such benefit cycle,
waste management activity within the community is also
expected to continue and will create a Public Involvement
system in waste management.
The four sets of activities of the system which constitute
epistemological models aforesaid will be compared
with the real world that is happening. In this stage of
comparison, the said Conceptual Model will be debated
so that the expected change can fulfill 2 requirements,
namely systematically desirable and culturally feasible.
Frame of thought of policy process as a hierarchy affirms
that at each level, public policy is manifested in the form of
institutional arrangement that is adjusted with its level of
Volume 20, Number 3
hierarchy and interrelated with each other. Every level has
its own system that works so that the function of each level
can function appropriately, but every level is also affected
and affects the other levels. One level and the other are
interconnected through institutional arrangements. The
regulations prepared by the policy level determine how
organizational level will work. Such arrangement will
certainly also be conducted by considering the situation
faced at the level below it, namely the operational level.
At the next level, organizational level also determines the
action that must be taken by the operational level. This
institutional arrangement provides for the behavior of
the actors and minimizes transactional cost that may be
incurred repeatedly by creating a status quo or agreement
among actors. Operational level will directly face with
the community and form a pattern of interaction with
the community that is observed continuously. If the
community feels that the said status quo is not longer
relevant in dealing with the problems existing in the
community, then the community will make a collective
response to the policy level or organizational level in
accordance with the political process operated to change
such institutional arrangement. This process occurs
repeatedly and systemically, and applies to all parties.
If it is the government that determines such institutional
arrangement, then the impact will be felt by all the
community members. Institutional arrangement is prepared
based on condition of the community, and at the same system,
collective response will arise out of the community because
such institutional arrangement is no longer relevant with the
problems that occur within the community.
In its relation with waste management policy in the
Municipality of Depok, Perda (Regional Regulation)
on Waste management prepared at the policy level will
determine the action that must be taken at the organizational
level and operational level. It means that the policy that
is made must also contain explanation about the system
that operates at each level. Perda on Waste Management
that is made by the Municipality Government and DPRD
must refer to the activity that takes place, either within the
government or the community, and so on.
Actors at organizational level and operational level
work in accordance with the institutional arrangement
determined by the higher level. All actors at each level
act in accordance with the institutional arrangement that
regulates them. Such institutional arrangement may be in
the form of SOP or decree of SKPD Chairman that must
be performed. Such rule may provide for choice sets of
the actors, so that the actors perform their respective
roles. On the other hand, these actors maintain norms
and culture that may be in contrary with the institutional
arrangement that has been determined. Therefore, these
actors seem frequently act not in accordance with the
rules that regulate them. The institutional arrangement
made by the authorized party should also be based on the
norms and values that form the behavior of such actors.
The use of SSM-based action research in this research
is aimed to give recommendation for positive changes and
give benefits for long term in a problematic situation of
waste management studied. The frame of policy process
as a hierarchy divides the reality of waste management
policy within the Municipality of Depok into three
SARI AND UMANTO, THE DESIGN OF CHANGE IN WASTE MANAGEMENT POLICY
Institutions in policy
level:
Regional Regulation
ofWaste Management
Institutions in
organizational level:
1. SOP-UPS
2. Optimizing the Role
of Sanitary Task
Force
Institutions in
operational level:
Establish of the Public
Involvement System in
Waste Management
Figure 9. Changes expected to occur at waste management
policy in the Municipality of Depok
levels of system of policy making process that is in
operation. The systems existing in the three levels are
interconnected and influence each other to form a system
with the same objective. In each level the system having
the strongest influence to influence the current systems,
either at its level or at the other level, must be identified.
Identification process to the system that is in operation at
each level must see the network that is used as connector
among such levels, namely institutional arrangements
in accordance with their levels. In addition, it is also
necessary to identify what mechanism of values and
norms which are current in every system at every level, so
that the changes that are made will give positive changes
in the long term. Figure 8 below shows the changes that
are expected to occur at the waste management policy in
the Municipality of Depok.
The changes that are expected to occur at the system
existing at the respective levels have interrelationship
with each other. Institutional arrangements existing at
higher levels become determinants for the continuance of
the activities of the systems at the lower levels and the
lower systems become inputs for the establishment of
institutional arrangements at the higher levels.
Figure 9 shows that Perda on Waste Management made
at the policy level should also cover the systems that work
at organizational levels and operational levels. SOP-UPS
and optimization of the Sanitary Task Force established by
the organizational level are also prepared by understanding
the systems that work at the operational levels. Pattern
of interaction that occurs at operational levels will
determine the outcome of the policy. At a certain time
when the outcome is considered being no longer relevant
and other problematic issues arise, the community will
make collective response as a form of effort to change the
institutional arrangements that are effective. This shows
the learning process that continues to occur in the waste
management system policy in the Municipality of Depok.
161
CONCLUSION
The result of this research has expose the existence
of role of the institution or rule (policy) that serve as
a guideline for the actors at all levels (policy level,
organizational level, and operational level) in performing
their role so as to attain an integrated waste management.
Relevant human activity chosen at the policy level is the
preparation of Perda on Waste Management that regulates
the main duties and function among SKPDs in waste
management as well as the role of the community. At
organizational level, it is the Making of SOP on waste
processing activity at UPS and optimization of the role
of Sanitary Task Force established by Sub-District. At
operational level, it is the improvement of role of the
community through provision of waste management
facility and formation of Waste Bank. The section of
these four relevant systems affirm that an integrated
waste management can be attained by the existence of
an integrated institutional arrangements at policy level,
organizational level, and operational level. Such system
shows a connectivity at the policy process as a hierarchy.
Based on the result of the research, several
recommendations can be formulated, namely as follows:
(1) the Government of the Municipality of Depok
needs to conduct policy reinforcement through changes
in waste management policy based on the hierarchy
of policy process. At policy level, the Municipality
Government and DPRD (Regional Parliament) need
to expedite the realization of the integrated waste
management by preparing a Perda on Waste Management
that regulates main duties and function among SKPDs in
waste management as well as the role of the community.
At organizational level, DKP needs to prepare a
Standard Operating Procedure (SOP) for the effective
implementation of waste processing activity at UPS
and Sub-District should optimize the role of Sanitary
Task Force that has been formed so that it can serve as
actuator for the community to get involved in the waste
management activity. At operational level, Village needs
to make approach to the community so that Public
Involvement in the waste management activity in its
territory can be improved. Village should cooperate with
Sub-District and DKP to form a waste management system
that involves the community. The activity of advancement
to the community by giving socialization, provisioning
of facility, formation of Waste Bank, and continuous
mentoring must be conducted comprehensively within
the territory of Depok Municipality. (2) As a result of
the study using Soft Systems Methodology-based action
research, the preparation of this design of change in waste
management policy in the Municipality of Depok is an
experience based knowledge that can be categorized as a
primary research and can be used as the basis for further
test for the exploration of other scientific studies.
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