POLICY BRIEF KAJIAN KEBIJAKAN AKSELERASI PEMBANGUNAN PERTANIAN WILAYAH TERTINGGAL MELALUI PENINGKATAN KAPASITAS PETANI PENDAHULUAN 1. Masyarakat di daerah tertinggal umumnya masih bertumpu pada sektor ekonomi konvensional, baik dalam bidang pertanian, perkebunan, peternakan, perikanan, industri dan sumberdaya potensial lainnya yang belum dikelola secara optimal. 2. Dalam upaya memacu pembangunan dari sisi aspek sosial dan ekonomi di daerah tertinggal, maka program pembangunan pedesaan harus memproritaskan tiga aspek utama, yaitu: (1) peningkatan ekonomi rakyat untuk mengentaskan kemiskinan, (2) peningkatan kualitas sumber daya manusia, dan (3) pembangunan infrastruktur. PERMASALAHAN 3. Kondisi SDM petani di wilayah tertinggal terdapat kesenjangan antara kondisi ideal yang diharapkan dengan kondisi di lapangan. Kesenjangan lebih signifikan terjadi antardaerah. Salah satu penyebab timbulnya kesenjangan antardaerah adalah bias dan distorsi pembangunan yang lebih banyak tertuju pada daerahdaerah yang aksesibilitasnya sudah baik, terutama daerah perkotaan. 4. Pembangunan di wilayah tertinggal tidak berarti bahwa sumber daya manusia di wilayah tersebut langsung berubah sikap secara positif. Perlu dipahami bahwa perubahan sikap tidak dapat terjadi dalam waktu cepat, melainkan membutuhkan waktu yang relatif lama disertai dengan upaya penumbuhan yang berulang-ulang, sehingga menghasilkan sikap yang positif terhadap perubahan terencana berupa pembangunan. TEMUAN-TEMUAN POKOK 4. Desa tertinggal di Kabupaten Garut dan Sukabumi terletak di wilayah lahan kering, jauh dari ibukota kecamatan serta infrastruktur jalan yang sangat terbatas. Desa tertinggal di wiayah di Kabupaten Lebong Provinsi Bengkulu merupakan daerah sawah irigasi, infrastruktur jalan telatif baik, dekat dengan ibukota kecamatan, namun memiliki sumber daya manusia terbatas. Desa tertinggal di wiayah di Kabupaten Barito Kuala, Provinsi Kalimantan Selatan merupakan wilayah lahan gambut, infrastuktur jalan terbatas, jauh dengan ibukota kecamatan, serta memiliki sumber daya manusia terbatas. 5. Rata-rata umur petani contoh adalah 48 tahun, dengan tingkat pendidikan formal kurang dari 7 tahun. Rata rata jumlah anggota keluarga laki-laki (1,34) yang bekerja dalam pertanian lebih sedikit daripada perempuan (1,53). Banyak tenaga kerja laki-laki beralih bekerja ke bidang nonpertanian seperti menjadi kuli bangunan atau bekerja di sektor angkutan. 1
6. Bappenas tidak terlibat langsung dengan pembangunan daerah tertinggal karena substansi kegiatannya dilakukan oleh kementerian terkait (mitra Bappenas). Dalam implementasi pembangunan (termasuk daerah tertinggal), kendala yang dihadapi adalah masalah koordinasi. Beberapa Kementerian/Lembaga berhubungan dengan petani tetapi boleh dikatakan jarang yang mengkonsolidasikan atau mengkoordinasikan kegiatannya dengan Kementerian Pertanian. 7. Program Pengembangan Penghidupan Secara Berkelanjutan (P2SB) merupakan program nasional yang digulirkan oleh Bappenas, di antaranya dilakukan di Kabupaten Rejang Lebong dan Seluma, Provinsi Bengkulu. Tujuan program tersebut langsung ke masyarakat miskin. Tenaga fasilitator berasal dari tenaga Program Nasional Pemberdayaan Masyarakat (PNPM) yang bertugas mendata masyarakat miskin. 8. Tingkat kapasitas petani di daerah tertinggal tergolong rendah, baik dilihat dari pengetahuan petani terhadap aspek lingkungan pertanian, keterlibatan petani dalam organisasi petani, maupun pengalaman petani dalam mengimplementasikan program pembangunan pertanian. 9. Petani di wilayah tertinggal tidak pernah mendapatkan sosialisasi tentang peraturan pertanian seperti kebebasan memilih jenis tanaman yang dibudi dayakan, adanya undang-undang tentang perlindungan dan pemberdayaan petani. Keterbatasan jumlah penyuluh menyebabkan intensitas kegiatan penyuluhan relatif rendah, itupun terbatas pada kegiatan pendampingan program pertanian. 10. Pengetahuan maupun keterampilan yang dimiliki petani yang terkait dengan aspek teknis pertanian tergolong sedang. Pengetahuan dan keterampilan petani tentang pengolahan tanah, perbenihan/pembibitan, penanaman, pemupukan, pengendalian hama penyakit, dan panen telah diperoleh secara turun temurun. 11. Sebagian besar di lokasi penelitian keikutsertaan petani, penilaian petani, formulasi, monitoring dan evaluasi, serta tindak lanjut pengembangan dalam peningkatan kapasitas petani tergolong rendah. 12. Faktor-faktor yang secara nyata berpengaruh positif terhadap keikutsertaan petani dalam peningkatan kapasitas petani di lokasi penelitian adalah hubungan petani dengan kekuasaan, manfaat utama keikutsertaan petani dalam organisasi, pengalaman petani dalam implementasi program pembangunan pertanian, dan keterampilan petani dalam penerapan teknis pertanian 13. Semakin erat hubungan petani dengan pemimpin formal seperti kepala desa, aparat desa/pamong, pemimpin informal seperti tokoh masyarakat, tokoh adat, ataupun petugas dinas teknis maka kecenderungan petani untuk ikut dalam peningkatan kapasitas petani, semakin tinggi. Kondisi ini menunjukkan lemahnya sikap adaptif petani, dominasi kepentingan politik praktis, dan ketergantungan petani terhadap bantuan pemerintah. 14. Faktor-faktor yang secara nyata berpengaruh positif terhadap keikutsertaan petani dalam monitoring dan evaluasi peningkatan kapasitas petani di lokasi penelitian adalah pengetahuan petani tentang peraturan pertanian, hubungan petani dengan kekuasaan, keikutsertaan petani dalam organisasi petani, pengalaman petani dalam implementasi program pembangunan pertanian, dan pengetahuan petani tentang aspek teknis pertanian. 2
15. Dengan menggunakan analisis SWOT, diperoleh setidaknya 11 alternatif strategi kebijakan di Jawa Barat, 10 alternatif strategi kebijakan di Bengkulu, dan 11 alternatif strategi kebijakan di Kalimantan Selatan. 16. Berdasarkan hasil penapisan, diperoleh masing-masing empat prioritas kebijakan dalam peningkatan kapasitas petani, terutama dalam kemampuan petani meningkatkan produksi pertanian. Dari empat prioritas di masing-masing provinsi, strategi kebijakan gerakan penerapan inovasi teknologi PTT secara berkelanjutan merupakan prioritas pertama di tiga provinsi contoh. 17. Prioritas lainnya antara lain adalah peningkatan fasilitas dan kesejahteraan penyuluh disertai sanksi pelanggaran disiplin, bimbingan teknis melalui SLPTT, program Demfarm di tiap desa, skim kredit lunak, penerapan HPP, dan peningkatan partisipasi petani dalam pembangunan pertanian. IMPLIKASI KEBIJAKAN 18. Penanganan wilayah tertinggal yang menjadi kewenangan Kementerian Desa, Pembangunan Daerah Tertinggal, dan Transmigrasi masih perlu diintegrasikan dengan baik antarsektor (Kementerian Pertanian, Kementerian Dalam Negeri, Kementerian Pekerjaan Umum, dan Pemerintah daerah), bahkan termasuk antarsubsektor dalam sektor pertanian. 19. Perlu ada program khusus pemberdayaan petani untuk meningkatkan kapasitas SDM petani dengan melakukan pembenahan pada faktor kelemahan internal dan berupaya mengatasi ancaman eksternal serta menggunakan kekuatan untuk memanfaatkan peluang yang ada. Pemerintah Pusat maupun Daerah perlu melakukan penguatan regulasi dan pemberian insentif kepada pihak swasta dalam pengembangan iklim usaha di daerah tertinggal, yang memungkinkan petani dapat bermitra dengan pihak swasta dalam memasarkan hasil pertanian.
3
POLICY BRIEF STUDY ON ACCELERATION POLICY OF AGRICULTURAL DEVELOPMENT IN UNDERDEVELOPED AREAS THROUGH FARMERS CAPACITY BUILDING INTRODUCTION 1. The people in disadvantaged areas are generally still rely on conventional economic sectors, both in the field of agriculture, plantation, animal husbandry, fisheries, industry and other potential resources are not optimally managed . 2. In an effort to spur the development of the social and economic aspects in underdeveloped areas, the rural development program should put priorities to the three main aspects, namely: (1) improvement of the people's economy to alleviate poverty, (2) improving the quality of human resources, and (3) infrastructure development. ISSUES 3. In the underdeveloped areas, there is a gap between the ideal expected condition of farmers with the actual conditions. More significant gaps occur among regions. One of the causes of the gap between regions is the biased development that is more focused on areas that have good accessibility, especially in urban areas. 4. Development in the disadvantaged areas does not mean that the human resources in the region immediately changed his attitude is positive. It should be understood that the change in attitude can not occur in quick time, but require a relatively long time accompanied by growth efforts are repeated, resulting in a positive attitude toward the planned change in the form of development. MAIN FINDINGS 5. The underdeveloped villages in Garut and Sukabumi located in the area of dry land, far from the capital sub-district and the road infrastructure is very limited. The underdeveloped villages in Lebong Bengkulu Province is an area of irrigated land, relatively good road infrastructure, close to the capital sub-district, but has limited human resources. The underdeveloped villages in Barito Kuala, South Kalimantan Province is an area of peatland, limited road infrastructure, far from the capital sub-district, with limited human resources. 6. The average age of farmers was 48 years, with the formal education level of less than 7 years. Average number of male family members (1,34) who work in agriculture which was less than women (1.53). Many male labor switch their work to non-agricultural fields such as being a construction worker or work in the transport sector. 7. Bappenas not directly involved with the development of underdeveloped areas because of the substance of the activities carried out by the relevant Ministry (Bappenas partners). In the implementation of development (including 4
8.
9.
10.
11.
12. 13.
14.
15.
16.
underdeveloped areas), the constraints encountered was the problem of coordination. Some Ministries/Institutions related to farmers but rarely consolidated or coordinated their activities with the Ministry of Agriculture. The sustainable Livelihoods Development Programme (P2SB) was a national program launched by Bappenas in Rejang Lebong and Seluma, Bengkulu Province. The program was directly targeted to the poor. Facilitators come from personnel of the National Program for Community Empowerment (PNPM), which served the poor record. The level of the capacity of farmers in underdeveloped areas was low, in terms of knowledge of farmers on environmental aspects of agriculture, farmer involvement in the farmers organization, as well as the experience of farmers in implementing agricultural development programs. Farmers in the underdeveloped areas never get the socialization of agricultural regulations such as the freedom to choose the type of crops cultivated, the law on the protection and empowerment of farmers. The limited number of extension workers caused the relatively low intensity of extension activities, and even then limited to the activities of the cultivation assistance. The knowledge and skills of farmers associated with the technical aspects of agriculture were moderate. Knowledge and skills of farmers in land preparation, seed/seedling, planting, fertilization, pest and disease control, and the harvest has been obtained from their parents. In the study sites, most of farmers participation, farmers evaluation, formulation, monitoring and evaluation, and follow-up development of the capacity of farmers was low. Factors that significantly and positively affect participation of farmers in increasing the capacity of farmers in the study area were farmers relationship with the local power, the main benefits of participation in the organization, farmers' experience in the implementation of agricultural development programs, and technical skills of farmers in the application of agricultural. The more closely the relationship of farmers with local formal leaders such as village heads, village officials, informal leaders such as community leaders, traditional leaders, or official technical service personnel, the higher is the tendency of farmers to participate in capacity building. This indicated a weak adaptive attitude of farmers, the dominance of political interests, and the dependence of farmers on government assistance. Factors that significantly and positively affect participation of farmers in the monitoring and evaluation of capacity building of farmers in the study area were the farmers 'knowledge about the agricultural regulation, farmers and local power relationship, participation of farmers in organizations, farmers' experience in the implementation of agricultural development programs, and knowledge of farmers on the technical. By using SWOT analysis, at least 11 alternative policy strategies in West Java, 10 alternative policy strategies in Bengkulu, and 11 alternative policy strategies in South Kalimantan were obtained.
17. Based on the screening results, 4 (four) policy priorities were obtained in each province in improving the capacity of farmers, particularly in the ability of 5
farmers to increase agricultural production. Of the four priorities in each province, the movement of the application integrated crop management (ICM or PTT) technology innovation in a sustainable manner is the first priority in the three provinces. 18. Other priorities included: Improvement of extension’s facilities and welfare followed by sanctions for violations of discipline, technical guidance through field school of IPM (SLPTT), Farm demonstration (Demfarm) program in each village, the soft loan scheme, the application of government purchasing price (HPP), and increased farmer participation in agricultural development. POLICY IMPLICATIONS 19. The management of underdeveloped areas is presently under the authority of the Ministry of Rural, Development of Underdeveloped Regions and Transmigration. It still need to be integrated among The Ministry of Agriculture, Ministry of Interior, Ministry of Public Works, and local government), even including inter sub-sectoral in the agricultural sector. 20. There should be a special program to empower farmers to increase the human resource capacity of farmers through corrections on internal weaknesses and external threats as well as seeking to address the use of strengths to take advantage of existing opportunities. Central and regional governments need to strengthen the regulation and provision of incentives to the private sector in the development of the business in underdeveloped areas, which allow farmers to be a partner of the private sector, especially in marketing of agricultural products.
6
