Pontianak City Government Collaboration on the LARA EMAKK Policy

in Handling the Case of 'Cindy' - Victim of Online Gender-Based Violence

Publication Draft

Submitted in Partial Fulfillment of

the Requirements for
the master’s degree in public policy and management

Written by:
Muhammad Faqih Annshori
20/471536/PSP/07198

MASTER OF PUBLIC POLICY AND MANAGEMENT PROGRAM

FACULTY OF SOCIAL AND POLITICAL SCIENCES
GADJAH MADA UNIVERSITY
YOGYAKARTA
2022
 Pontianak City Government Collaboration on the LARA EMAKK Policy
in Handling the Case of 'Cindy' - Victim of Online Gender-Based Violence
Muhammad Faqih Annshori1, Muhadjir Muhammad Darwin2
1,2 Master’s degree of Management & Public Policy, Faculty of Social and Political Sciences, Gadjah Mada University
(Email: muhammadfaqih2020@mail.ugm.ac.id)

Abstract

The increase of online gender-based violence (KBGO) cases reached 300% of issues during the Covid-19
pandemic. This social, humanitarian problem encourages the urgency of collaborative governance to
reveal to the surface cases of victims of KBGO. The LARA EMAKK policy program is a policy breakthrough
that prioritizes collaboration systems and is a pilot project for Pontianak City's DP2KBP3A in disclosing
Cindy, the victim of KBGO. This research used a qualitative method with an instrumental approach to
case studies, namely to see how far the intensity and quality of handling the case of Cindy, the victim of
KBGO, was successfully controlled through a process of collaboration between stakeholders. Is it then
able to optimize the handling of KBGO by juxtaposing the theoretical criteria of the collaborative process
put forward by Ansell & Gash (2008), or at least the success of handling the Cindy case can be a role
model for the sustainability of the LARA EMAKK policy itself? The study results show that the quality of
the collaboration by LARA EMAKK policy collaboration instruments is processed in a collaborative
governance manner with stakeholders. Thanks to the success at the beginning, it became the cause of
the emergence of responsiveness factors in handling victims in a positive manner. However, some factors
still need to be improved, such as the lack of participation of the private sector, and there are still
inhibiting factors, like the existence of sectoral egos between internal and external stakeholders. In the
future, collaboration relations will increasingly work optimally and synergize to socialize evenly so that
the community and other local government policies feel it.

Keywords: online gender-based violence, collaborative governance policy

Introduction
The Indonesia Digital Report 2020 shows
that as many as 59% or 160 million people of
Indonesia's total population are active users of
social media with an age range of 25-34 years old
(Hootsuite, 2020). The Internet Governance
Forum mentioned that internet abuse can
contribute to a culture of sexism and online
misogynism, as well as creating gender inequality
within the online sphere (Ihsan, F., & Bintarsari,
N.K., 2019). The United Nations Population Fund
recorded 31 million cases of online gender-based
violence in the world during the first 6 months at
the start of the Covid-19 pandemic (Harper, S.
2019). The online gender-based violence case is
significant enough to cause psychological anxiety
for the younger generation, because the scouring
of the technological era can no longer be
protected manually or conventionally. However,
the effects of the sophisticated development and
dissemination of information and the use of
social media today will make it difficult to protect
or support gender equality (Jatmiko et al., 2020).
According to the 2020 Southeast Asia
Freedom of Expression Network (SAFEnet) press
release, it said that there is a phenomenon of
gender inequality, for example, gender-based
violence that is the same as violence that occurs
in the real world (Arawinda, S.H., 2019). This is
because the actions of the perpetrators both
have the goal of destroying the victim
psychologically based on their gender. As in
Indonesia, reports from Komnas Perempuan's
2021 Annual Notes show that there has been an
increase in cases of birth control, from 281 cases
in 2019 to 659 cases in 2020:
 Figure 1. Graph of Cyber Gender-Based
Violence in Indonesia
Sumber: Komnas Perempuan, 2021
The number of cases that occurred from the
phenomenon of online gender-based violence
increased by 378 cases or 300% from 2019 to
October 2020. It is interesting when researchers
take the case of 'Cindy' as a research object which
describes the instrumental case study of this
social phenomenon. Even though the problem of
online sexual issues is considered as a personal or
private issue, it is unique that 'Cindy''s case is
used as a humanitarian mission within the
framework of the collaborative governance
system of the LARA EMAKK policy (Optimalisasi
Layanan Perlindungan Respon Cepat Berempati
Perempuan dan Anak Korban Kekerasan).
Optimizing Quick Empathic Response Protection
Services for Women and Children Victims of
Violence). Therefore, the urgency of collaborative
governance system in handling the case of 'Cindy'
the victim of online genderbased violence is very
important as the government is not the sole actor
but collaborates with non-governmental actors in
uncovering cases with online sexual issues in
Pontianak City.
Literature Review
a. Online gender-based violence
Discussion about the discourse on
violence cannot be separated from the
definitions related to things that deviate
(Komnas Perempuan, 2021). Deviations
2
connected to violence are in the form of
strong online threats and become real actions.
Internet-facilitated sexual violence becomes
an interesting discussion as a new form of
gender mainstreaming studies. This is because
technological advances have disrupted the
impact of gender bias. Online genderrelated
violence can be defined as actions based on
certain gender gaps that occur in society to
give rise to crimes such as sexual violence both
online and offline (Fakih, 1997). Following are
some of the activities that can be categorized
as online gender-based violence (SAFEnet,
2020): a) violation of privacy (accessing, using,
and sharing private photos without consent);
b) Covert supervision and monitoring; b)
Irresponsible damage to reputation or
credibility; c) Harassment such as repeated
through unwanted messages, attention or
contact; d) Direct threats and violence such as
trafficking in women through the use of
technology; e) Attacks targeted to specific
communities (hacking websites, social media
etc).
b. Collaboration Governance
The existence of a collaborative process
can be seen from the beginning of the
formulation, then the implementation public
policies/programs, to practice of upholding
deliberative (deliberation) and consensus
approval of the stakeholders involved (Ansell &
Gash, 2008). As an alternative for the
government to deal with public problems, the
process of collaborative governance has
several stages, including a) Face-to-face
dialogue; b) Trust Building; c) Commitment to
Process; d) Shared Understanding; c)
Intermediate outcomes.
c. Pontianak City Government Collaboration
(LARA EMAKK)
The regional government in
implementing regulations forms a In providing strong explanations for the research,
government collaboration system. The
implementation of this collaboration policy is
an effort to develop systems and mechanisms
for cooperation in service programs that
involve outsiders with the aim of providing
easy access for victims. The policy is called
LARA EMAKK, which stands for Optimization of
Quick Emphatic Response Protection Services
for Women and Children Victims of Violence.
This policy is in accordance with the vision of
Pontianak City for 20202024. Through the
LARA EMAKK policy project, it is proposed that
there be concrete collaboration between
stakeholders in optimizing protection services
for women and children’s victims with a fast
and empathetic response.
d. Research Framework
Starting with the research object which
focuses 'Cindy' as a victim of cases in online
sexual issues that occurred in Pontianak City,
the quality collaborative governance element
will optimize the handling of online gender-
based violence (KBGO) by juxtaposing the
theoretical criteria of the collaborative
process put forward by Ansell & Gash (2008).
Therefore, the following is critical framework
model:
Gambar 2. Kerangka Pikir Penelitian
resource: by author, 2022
3
Research Methodology
The method in this study was carried out to
provide answers to the formulation of the
problem by referring to the research framework
and the conceptualization and theoretical use
from the experts. This study uses a qualitative
method with a case study instrumental approach.
researchers choose an instrumental case study
approach because it focuses on
issues/problematics, then chooses cases to
illustrate them (Cresswell, 2014). The main
subject of the research is the stakeholders
involved in handling the “Cindy” online
genderbased violence case. A subject that
develops as it is when in the field follows the
scope of related stakeholders but remains within
the limits of research. This is done by obtaining
primary data through interviews to obtain
information and/or explanations related to the
research topic based on obtaining direct online
observation data related to the LARA EMAKK
policy collaboration in the 'Cindy' case in
Pontianak City. As data have been obtained, this
research used analysis methods from Miles &
Huberman (2018). The stages of data analysis
carried out by the researcher are as follows: a)
Data collection, beginning with making
observations as a form of description of the
research location, data acquisition, and
formulation of problems that will be examined
more deeply and then obtaining complete
primary and secondary data as processed by
further researchers can be carried out; b) Data
reduction, the stage of reducing data by using
codes or other grouping methods; c) Presentation
of data obtained from processed data that
researchers have reviewed based on several
categories and are expected to be able to answer
research questions; d) Drawing conclusions,
obtaining conclusions based on the results of
presenting data that has been processed
comprehensively.
Discussion
a. The Findings of Online Sex Harassment
Victims
The finding found that the case of 'Cindy' as
a victim of online gender-based violence in
Pontianak City has become a public concern.
The researcher found a bright spot to obtain
some very crucial data to be used as research
data, namely the identity of the victim and the
chronology of the victim as well as a
description of the implications experienced by
the victim. It becomes an interesting
implication when discussing the phenomenon
of online gender-based violence with the
'Cindy' case in Pontianak City because by
disclosing cases of gender-based violence it is
rarely revealed and not even comprehensively
resolved. Through the disclosure of the 'Cindy'
case which began with an online connection,
she became a victim of the perpetrators of
those closest to her. The results of the
interview were delivered directly by the
biological mother of 'Cindy' as a victim of
online gender-based violence:
“… Rupenye si cindy nih ditawarkan duet
same kawannye. Ibu dah curige nih kenape
kawannye suke dtg yg tak pernah dtg. Ternyate
benar, nih ibu liat2 curige. Terus die lari same
kawannye. Terus ibu dapat terkahir itulah yee
di Hotel Ibis. Carenye si sinta tuh pintar die
download, cari2 di aplikasi sosial medianye.
Kemudian ketemu aktivitas si cindy nih…”
(WLA, 14 Oktober 2022)
The initial process of the finding that
gender-based violence took place through
online media intermediaries. This is then
proceeded to comment on the activity and
finally can communicate directly with the
perpetrator. The literal definition of online
gender-based violence according to SAFEnet
(2020) is an action that is facilitated by
technology and the act becomes serious if it
has a follow-up to real violence such as the
crime of trafficking in persons (tindak pidana
penjualan orang/TPPO). The beginning of the
implications of uncovering the case of 'Cindy'
as a victim of online gender-based violence
was the wish of the victim's parents. Not many
online sexual issues can be resolved properly
except in this case because of disgrace and
other internal considerations from the victim's
family.
4
b. Quality of Collaboration between
Stakeholders
The LARA EMAKK policy collaboration
seeks to build relationships between
stakeholders. According to Ansell & Gash
(2008), the collaboration process describes a
governance model that is developed in stages.
The collaboration process is an interconnected
cycle that involves strong collaboration,
communication, trust, commitment,
understanding and clear results. Therefore,
the collaboration process is viewed from the
processed results of collaboration models
between stakeholders which are then
juxtaposed with collaborative governance
models according to Ansell and Gash (2008).
Based on this, the following is an overview of
the pattern of collaborative relationships
between stakeholders:
Figure 3. The relationship pattern of the
collaborative process between stakeholders
Source: DP2KBP3A, by author 2022
From the Figure 3, it can be described the
importance of marked lines in the process of
collaboration between each stakeholder. Even
though there are many stakeholders who are
members of the LARA EMAKK policy, there is
still inactivity among the stakeholders.
Whereas by analyzing the five stages of the
collaboration process presented by Ansell &
Gash (2008), researchers obtained a specific
analysis description of the quality of the LARA
EMAKK policy initiated by the Pontianak City
P2KBP3A Service together with stakeholders
to handle a case of 'Cindy' the victim of online
gender-based violence (KBGO). The stages of
the collaboration process can provide clear
information on the implementation of a public
policy with a humanitarian mission orientation
by addressing the issue of gender sexual
harassment. As with the results of data
analysis previously collected by researchers,
the common thread of each component of the
LARA EMAKK policy collaboration process can
be said to be running smoothly. This can be
seen from the initial process of face-to-face
dialogue that has been built by the
government as the project leader, then the
face-to-face meetings also build trust and
strengthen commitments that are established
for a common understanding so that
temporary results can be obtained through
awards from the mayor and data handling
achievements. treated victims. Specifically
handling the case of 'Cindy', a victim of online
gender-based violence in Pontianak City.
c. Influencing Factors
The initial strong encouragement from
the victim's parents became a supporting
factor in disclosing the case of 'Cindy', a victim
of online gender-based violence in Pontianak
City. This is unique, because not many cases of
gender-based violence are hampered due to
family considerations which consider
disclosing cases of sexual violence to be a
family disgrace. But not in the case of 'Cindy'
which was revealed during the Covid-19
pandemic. The factor of responsiveness of
parents to immediately report to the police is
a good value judgment for disclosing this
KBGO case. However, there are factors that
hinder the LARA EMAKK policy, namely the still
minimal role of the private sector in
participating in collaboration and sectoral ego
between stakeholders, namely the
individualistic attitude of each stakeholder,
which is more concerned with the interests of
the organization than the shared interests that
have been agreed upon. However, as time
goes by, in this case the P2KBP3A Office of
Pontianak City, is still trying to find gender
observers and corporates in Pontianak City to
pay attention in the form of CSR.
5
Thus, the results of a comprehensive
thread analysis can be obtained by connecting
each component regarding the factors that arise
from LARA EMAKK policy collaboration. The
relationship starts from the responsiveness factor
in handling victims, the minimal role of the
private sector, and the existence of sectoral egos
between stakeholders which are the inhibiting
factors. This factor has become the starting point
that influences the disclosure of the case of
'Cindy' the victim of KBGO. This was the initial
factor, because there was reinforcement from the
parents who wanted to reveal this case to the
grassroots resolution and put aside the family
disgrace factor so that in the future cases like
'Cindy' could be handled better.
Conclusion
Disclosure of the case of 'Cindy', a victim of
online gender-based violence, can cause unique
events at the local level and has quite significant
implications for the Pontianak City government in
handling the case. These implications are
responded to by the LARA EMAKK policy. Asides
from that, there is strong information from
parents to reveal the KBGO case to the grassroots.
Collaboration between stakeholders carried out
by the Pontianak City government together with
the private sector, CSR, and the community
(companion cadres) can be said to have worked
well. This can be seen from the process of
collaborative relations starting from meetings
that are held regularly both during case handling
and outside case handling to strengthen system
of collaborative cooperation.
The are recommendations that can be
provided to follow up on policies, increasethe
collaboration mindset of LARA EMAKK policy to
the public, with the purpose that community can
become active pioneers for the surrounding
environment. And this is about synergy with the
private sector, with the purpose that the handling
of victims of gender-based violence can become
more optimal and comprehensive, starting from
upstream to downstream of victim settlement.
Even though incidents of online sex harassment
still occur, at least the government can maintain
the quality of collaboration that can influence the
handling of other online genderbased violence
and be able to become an example for other local Ihsan, F., & Bintarsari, N. K. (2021). Internet
governments. governance forum analysis on artificial
Bibliograhpy intelligence in cyber security. Insignia: Journal
Creswell, J. W. (2014). A concise introduction to of International Relations, 32-47.
mixed methods research. SAGE publications. Jatmiko, M. I., Syukron, M., & Mekarsari, Y.
Fakih, M. (1997). Analisis Gender dan (2020). Covid-19, harassment, and social
Transformasi Sosial (Cetakan Kedua). Pustaka media: a study of gender-based violence
Pelajar, Yogyakarta. facilitated by technology during the pandemic.
Islamy. (2018). Collaborative Governance Konsep The Journal of Society and Media, 4(2), 319-
dan Aplikasi. Yogyakarta: Deepublish. 347.
Keban, Yeremias T. 2008. Enam Dimensi Strategis SAFEnet. (2020). Sebuah Panduan: Memahami
Administrasi Publik: Konsep, Teori, dan Isu. dan Menyikapi Kekerasan Berbasis Gender
Gaya Media, Yogyakarta. Online. www.safenet.or.id.
Komnas Perempuan. (2021). Catatan Tahunan
2021.
Komnas Perempuan. (2021). Kajian dinamika
perubahan di dalam rumah tangga selama
Covid-19 di 34 provinsi di Indonesia. Executive
Summary.
Miles, M. B., Huberman, A. M., & Saldaña, J.
(2018). Qualitative data analysis: A methods
sourcebook. Sage publications.
Sugiyono. (2018). Metode Penelitian Kualitatif.
Bandung: Alfabeta.
Abidin. Taufik. Z. (2013). Analisis Pertumbuhan
Ekonomi Dan Pengembangan Sektor Potensial
Di Kabupaten Asahan. QE Jurnal. Vol. 02, hlm
1-33.
Ansell, C., & Gash, A. (2008). Collaborative
governance in theory and practice. Journal of
public administration research and theory,
18(4), 543-571.
Arawinda, S. H. (2021). Perlindungan Hukum
Terhadap Perempuan Korban Kekerasan
Berbasis Gender Online di Indonesia. JURNAL
YUSTIKA: MEDIA HUKUM DAN KEADILAN,
24(02), 76-90.
Emerson, K., Nabatchi, T., & Balogh, S. (2012). An
integrative framework for collaborative
governance. Journal of public administration
research and theory, 22(1), 1-29.
HOOTSUITE, W. A. S. Y. (2020). Digital 2020.
Global Digital Overview. The latest insights
into how people around the world use the
internet, social media, mobile devices, and
ecommerce.
Huxham, F., Gong, J., Baker, R., Morris, M., &
Iansek, R. (2006). Defining spatial parameters
for non-linear walking. Gait & posture, 23(2),
159-163.