Violence against Indonesian Migrant Workers - A Causal Analysis

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Violence against Indonesian Migrant Workers - A Causal Analysis Ardli Johan Kusuma, Michael Ryan York, Rizki Hari Wibowo Postgraduate Faculty of Politics and International Relations, Universitas Muhammadiyah Yogyakarta Ringroad Barat Tamantirto, Kasihan, Bantul 55183 Email: [email protected] Diterima pada 12 November 2014, Disetujui pada 25 Februari 2015

Abstrak Kekerasan dan pelanggaran terhadap buruh migran Indonesia yang tidak terlatih merajalela di Indonesia dan menjadi pelanggaran berat terhadap hak asasi manusia. Penelitian ini akan memberikan sebuah landasan untuk memahami masalah kekerasan dan penganiayaan terhadap buruh migran Indonesia di luar negeri dari sudut pandang kebijakan dan pemerintah. Isu ini akan dikaji dalam empat pendirian berbeda, pertama lembaga swadaya masyarakat, kedua, dinas pemerintah dan undang-undang yang bertujuan melindungi buruh migran Indonesia terhadap penganiayaan, ketiga, agen yang menempatkan buruh Indonesia di luar negeri, dan keempat buruh Indonesia yang telah kembali setelah bekerja di luar negeri sebagai buruh migran. Data yang bersifat kuantatif dan kualitif akan digunakan melalui pengumpulan data dan kajian statistik oleh lembaga pemerintah dan lembaga swadaya masyarakat, penilaian terhadap tren, keterangan demografis, faktor-faktor sosial yang meningkatkan risiko penganiayaan dan pembahasan tentang undang-undang terkait. Para korban, saksi, agen, dan pihak terkait akan mengabarkan keadaan yang mereka hadapi untuk menanamkan hasil penelitian ini berdasarkan pengalaman dari aktor yang berperan dalam masalah penganiayaan terhadap buruh migran. Pemahaman tentang akibat dan penyebab di balik fenomina ini sangat penting untuk membangun sebuah landasan yang dapat digunakan untuk menerapkan penyelesaian jangka panjang yang mencakupperaturan yang lebih ketat, mempereratkerjasamayang terjalin dengan negara lain, danmemberlakukan undang-undang yang akan mengatur proses perlindungan untuk tengara kerja Indonesia. Kata Kunci: Buruh Migran, Kekerasan, Hak Asasi Manusia dan Pelanggaran Terhadapnya, Faktor Soaial dan Perumusan Kebijakan

Abstract Violence and abuse against Indonesian unskilled labourers and migrant workers has become prolific and is a serious breach of human rights. This research will provide a basis to understanding physical violence and abuse against Indonesian migrant workers overseas from a policy and government perspective. This issue will be analyzed with four different perspectives including; non-government organizations working in the field, governments and legislation which are obliged to protect migrant workers against abuse, agents who send Indonesian migrant workers overseas and victims who have returned following employment overseas. Both quantitative and qualitative research methods will be applied through the compilation and analysis of statistics by government and non-government organizations, assessing trends, demographics and social factors that increase the risk of exploitation and also providing an overview of relevant legislation. Victims, witnesses, agents and other concerned parties will give testimony to provide primary data and greater insight into the issue. Understanding the causes and trends behind these phenomena will provide a sturdy foundation on which to build long term policy solutions and cooperation among nations. Key Words: Migrant workers, Violence, Human Right (Abuses), Trends, Social Factors, Informing Policy.

INTRODUCTION The protection of Indonesian Migrant Workers overseas has become an issue of significant concern to the Indonesian Government and community over the past five years. Ongoing reports of acts of extreme

JURNAL HUBUNGAN INTERNASIONAL VOL. 4 EDISI 1 / APRIL 2015

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violence and gross human rights abuses against Indonesian domestic workers have forced the Indonesian Government to work bilaterally and multilaterally with nations receiving Indonesian workers to imple-

ment policy solutions and international agreements that will ensure the rights of workers are protected. Before any policy can be effectively implemented, a causal analysis needs to be undertaken to understand this phenomenon, ensure appropriate policy options are considered and implemented by the Indonesian Government, its regional neighbours and international partners. This analysis will provide a synopsis of the issue, statistics, the responsibilities of governments and legislation that is currently enforceable, however with significant shortcomings. In addition to these statistics and legislation, a number of victims, agents and a nongovernment organization working within the field have provided insight into this issue at a base level. The information gathered through these sources outlines some of the major causes of abuse and violence against migrant workers. Contact with people working within the field is important to understand the realities of the industry in order to design and implement effective policy initiatives and targeted approaches. This paper aims to provide a basis for considering the proposed policy solutions as outlined in the second paper entitled ‘Violence against Migrant Workers – A Policy Response’. METHODOLOGY In order to provide a holistic analysis, this paper presents both quantitative and qualitative research. Quantitative research will provide a statistical basis to this issue, outlining its extent, impact, trends and possible changes. As this issues if firmly grounded within a societal context, access to qualitative research through interviews and face-to-face engagement is also essential. This paper analyses this issue from four approaches, firstly, a review of current and applicable government legislation and policy, secondly, analyzing the work and findings of non-government organizations working within the field, thirdly the recounts of former workers who have returned to Indonesia following employment overseas, and fourthly, the recounts of agents who connect Indonesian migrant workers with employers and assist them to travel

overseas. During the interview process with agents, they informed us that they were ‘legal agents’ who had been recognized and authorized by the government. The research conducted with NGOs, agents and victims was done through a series of interviews, either face-to-face or over the telephone. Statistical information was collected from government sources and non-government organizations while written legislation as enacted by the Indonesian Government, or international treaties are available from a number of internet sources. The legislation referred to in the paper is clearly cited. RESEARCH IMPEDIMENTS While this paper aims to provide the most well rounded and objective analysis possible, this research is impeded by significant time constraints, limited resources and a small sample size. All the subjects are from the Java Island and therefore do not represent the length and breadth of Indonesia. This impediment is however overcome with the analysis of national statistical data. This paper presents the issues from within an Indonesian context, and provides an international perspective through analyzing Indonesia’s policy and guidelines with other nations and discussing the possibility of an international dialogue to overcome this issue. Despite these impediments, this paper presents a solid statistical background and analysis, coupled with the recounts from experts within the field and people who have experienced this industry, therefore this paper remains highly valid. RESULT AND ANALYSIS DEFINING MIGRANT WORKERS A number of the terms in this paper are interoperated differently across legal jurisdiction and dependent upon the nature of their employment. In line with the international legal framework, Article 1 of the Domestic Workers Convention, 2011, the term ‘domestic work’ is defined as work performed in or for a household or households. ‘Domestic worker’ means any person engaged in domestic work within an employment relationship. ‘A migrant worker shall be

Ardli Johan Kusuma, Michael Ryan York, Rizki Hari Wibowo Violence against Indonesian Migrant Workers - A Causal Analysis

defined as any person who has crossed an international border and is outside their place of origin while employed in a domestic capacity.’ As some of the legislation referred to in this paper is written and enacted in Bahasa Indonesia, the national language of Indonesia, defining the English translations and interpretations of a number of terms is important. ‘Tenaga Kerja Indonesia’ (TKI) or ‘Indonesia’s work force’ shall be interpreted by this paper as people of Indonesian nationality who are undertaking employment overseas. It shall be noted that the majority of Indonesians working overseas are employed within domestic and informal industries. ‘Buruh migrant’ shall be translated as ‘migrant labourer’ or ‘migrant work’ and if employed in the domestic industry, a ‘domestic migrant worker’. These people often work within other low paid and low skilled industries outside their country of origin. While these definitions are widely accepted, it should also be noted that there are a number of cases in which these terms are used interchangeably or with no substantial differentiation between them. INDONESIAN MIGRANT WORKERS The number of Indonesian citizens working overseas has increased significantly over the past decade with the domestic industry becoming an important part of the Indonesian economy and a large source of income for low income and low skilled people and their families. In December 2013, US$ 7.3 billion was transferred from Indonesian migrant workers overseas to their families in Indonesia in the form or remittances, equivalent to 81.3 trillion Indonesian Rupiah (BNP2TKI, 2013). This has increased from US$ 6.0 billion in 2008. It was reported in early 2013 that the number of Indonesian migrant workers reached as many as 6.5 million people across 142 nations. The figure regarding the total number of migrant workers may be misleading as the prevalence of people smuggling at illegal border crossings remains high. The movement of people across the Indonesia-Malaysia border is particularly concerning. It’s therefore appropriate that the Indonesian Government makes avail-

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able sufficient protection to migrant workers in the case that they experience abuses, exploitation or mistreatment. Information in the form of guidelines, standard price lists for agent services and travel advice is a prudent and low cost policy for the protection of migrant workers. Indonesia is one of the largest users of social networking sites including Facebook and Twitter as forms of communication which can be used to provide information, policy, advice and warnings to Indonesian migrant workers all over the world efficiently and at low cost. This will be further discussed in part two of this paper as part of the policy recommendations. Law enforcement is also important in reducing the prevalence of criminality in this industry. Migrant workers working in a domestic capacity overseas tend not to be stigmatized by the Indonesian community and according to IWORK, a non-government organization that works to protect migrant workers overseas; prospective migrant workers are encouraged to go overseas to gain experience and a higher income. Statistics from the National Body for the Protection and Placement of Indonesian Domestic Migrant Workers Badan Nasional Penempatan dan Pelindungan Tenaga Kerja Indonesia (BNP2TKI) shows a significant increase in the earnings of Indonesian migrant workers overseas. Indonesian migrant workers in Singapore are paid approximately $520 Singaporean Dollars (equivalent to US$ 415.90) per month and US$ 447.13 in Taiwan per month. This is approximately twice to four times the wage received by an Indonesian person undertaking similar employment in Indonesia. Migrant workers may also improve their English language skills while working overseas which significantly improves their income potential upon their return to Indonesia. Prospective migrant workers are also encouraged to work abroad as their employment perspectives in Indonesia are limited, which places financial stress on their family. Migrant workers are normally encouraged to work overseas based upon the positive experiences of others, particularly friends and family. Mr Bowo a representative from IWORK described this phenomenon as a ‘domino effect’. Despite knowing the risks, they are

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still willing to work overseas based upon the higher wages, good experience and superior English language skills which they may gain overseas. This also increases their employability in other fields. It was however noted by BNP2TKI that following a series of brutal cases of abuse against Indonesian migrant workers in Saudi Arabia, the number of Indonesians applying for Saudi Arabian visas fell from 2000 per month to just 200 applications. A significant decreased that slashed the supply of Indonesian migrant workers, causing an acute shortage in supply. Indonesian workers were unwilling to take the risk of working in Saudi Arabia despite the possible benefits. Migrant workers, during the application and preparation phase as well as during their employment overseas are vulnerable to a number of risks and in many cases ill-equipped to defend their rights against employers, agents or government agencies which are willing to exploit them. LEGAL RIGHTS OF INDONESIAN MIGRANT WORKERS Indonesia has a codified legal framework for the protection of Indonesian migrant workers; however its poor and inadequate application is of significant and growing concern, especially as the number of Indonesian workers overseas continues to increase and be exposed to high levels of risk. The Foreign Minister of the Republic of Indonesia is fully responsible for the protection of Indonesian migrant workers overseas. Nurus S. Mufidah, the coordinator of the advocacy network calling for the revision of proposed legislation regarding the placement and protection of Indonesian migrant workers accuses the legislation of ‘not prioritizing the protection of migrant workers and making them similar to a commodity. This has the potential to continually victimize migrant workers’ (Nwawai, 2013)’ Legislation should be based upon the United Nations Convention on the Protection of the Rights of all Migrant Workers and Members of their Families, which was signed and ratified by Indonesia and entered into force on 1st July 2003 however unfortunately many of the provisions have not been taken into consideration (Nwawai, 2013). This also defies

international legal norms which urge nations who ratify the convention to immediately implement its protocols within domestic legal and legislative mechanisms. Act 37, 1999 Regarding External Relations is the most important legal mechanism for the protection of the rights of Indonesian migrant workers. Article 18 of the above listed legislation emphasizes that (1) The Indonesian Government will protect the interests of its citizens or legal bodies whom face legal difficulties in foreign nations (2) Provide protection as outlined in clause (3) is to be applied in accordance with applicable laws and international norms. Foreign policy as implemented by the Indonesian Government is required to support the interests of the nation and its citizens. Article 19 notes that a Representative of the Republic of Indonesia is obliged (a) to create unity and good will among Indonesians living overseas (b) provide defence, protection and legal aid to Indonesian citizens and Indonesian legal bodies overseas in accordance with legislative guidelines, national laws and international norms. Under international law and in line with the obligations of other states, governments are required to protect their citizens and take responsibility for their actions. The government has received scathing criticism for its handling of abuse cases. Migrant workers who work overseas in any capacity are subject to Act 39, 2004 which considers the following in its perambulatory clauses; • That work constitutes a human right which must be upheld, respected and its enforcement guaranteed, • That each Indonesian migrant worker has rights and opportunities without discrimination, to receive employment and appropriate restitution, as a result of their work, whether within Indonesia, or overseas, in accordance with their expertise, skills, talent, interests and abilities. • Indonesian migrant workers overseas are often made the object for human trafficking including slavery and forced work, become victims of violence, injustice and crimes against human values and dignity as well as other treatment that breaches


human rights. Article 4 of the above listed legislation makes unequivocally clear that the Indonesian Government is responsible for the full protection of all Indonesian citizens including migrant workers overseas in any capacity without discriminations, of any type. The government is required to provide guidance to migrant workers prior to, during and following their placement to ensure their rights are recognized and upheld. The above listed rights and protections are administered through Work Force Attaches (Atase Tenaga Kerja - Atnaker), attached to foreign diplomatic missions of the Republic of Indonesia. Work Force Attaches have been established in 13 foreign nations where there is a significant population of migrant workers namely; Hong Kong, Malaysia, Singapore, South Korea, Brunei Darussalam, Saudi Arabia (Riyadh and Jeddah), Kuwait, Qatar, The United Arab Emirat (UEA), Taiwan, Syria, and Jordan. These attaches are responsible for providing protection to Indonesian migrant workers, in the forms outlined in Legislative Act Number 3, 2013. According to Article 5, ‘the government is tasked to organize, support, undertake and oversee the placement and protection of migrant workers overseas. Article 7 outlines the obligations of the government to guarantee and rights of Indonesian migrant workers, establish and develop information systems and undertake a diplomatic effort to guarantee and effectively protect migrant workers in the receiving nation. The Act states the Government of Indonesia shall be compelled to take steps through diplomatic channels in a peaceful manner, acceptable to both parties and in accordance with determined regulations, national legislation, international law and norms. In the case that an Indonesian migrant worker becomes the victim of violence or abuse overseas, representatives of the Indonesian Government are required to ensure the removal of the worker from the dangerous environment, ensure the worker has access to medical treatment and seek legal remedy for the breached committed by the employer upon the worker. The legal fees and any other costs will be

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borne by the Indonesian Government. The legislation as tabled above outlines a robust framework for the protection of worker’s rights overseas and entities them to internationally recognized rights and freedoms, however law enforcement and the application of these rights and law enforcement remain weak and underdeveloped and needs to be prioritized in any policy that aims to address this issue. LEGAL AND ILLEGAL WORKERS AND AGENTS There’s a stark difference between legal and illegal agents working to send Indonesian migrant workers overseas, however at face value, this can be difficult to decipher. Prospective Indonesian migrant workers require an agent in order to assist them in contacting suitable employers in target countries. Legal private sector agents are those who have been recognized by the government and given the right to assist Indonesian migrant workers overseas in all capacities and are responsible for their safety and protection. The agents we spoke to said they were legal and had been recognized by the Indonesian Government. Agents often avoid and reject responsibility for the migrant worker in the case of abuse. One of the agencies we spoke to has operated for the past seven years and sent hundreds of migrant workers overseas. As tabled in Act 39, 2004 Regarding the Placement and Protection of Indonesian Migrant Workers Chapter I, Public Provisions, Article 1, Clause 5, private sector legal bodies involved in the placement of and/or provision of services to Indonesian Migrant workers must have the appropriate written licenses from the Minister to do so. As further elaborated in Chapter 5 regarding the Placement of Indonesian Migrant Workers Overseas, Article 26 states; • Private sector agencies must be established within the context of Indonesia’s legal framework • The workers placed overseas constitute workers of the given agency • The agency has proof of ownerships or a workplace agreement and is known to the relevant representative of the Republic of Indonesia.

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• The migrant worker has a written employment agreement • The migrant worker is party to a social security program and/or has an insurance policy • Migrant workers are provided an identification ‘Card for Indonesian Migrant Workers’ (Kartu Tenaga Kerja Luar Negeri - KTKLN) Indonesian migrant workers are required by law to be registered and hold a KTKLN for identification purposes and so the relevant representatives of the Indonesian Government in foreign jurisdictions are aware of the workers location, status and well-being. Unfortunately, large numbers of Indonesian migrant workers are not using legal and proper channels to seek employment overseas and place themselves in danger of serious human rights abuses, mistreatment, detention and/or prosecution. Illegal agents tend not to use official channels, nor fulfill administrative requirement and legal obligation which leaves migrant workers at risk. It is often difficult to differentiate between legitimate and illegitimate agents as its common for agents to forge documents and credentials, making them appear legal, when in fact they have not been recognized by the government. Government regulation regarding agent oversight is lacking in a number of areas. Agents that are subject to investigation often change their names, contacts and credentials and continue to operate, rarely prosecuted for abuses and breaches of responsibility. It’s noted in the perambulatory clauses of national legislation Act 3, 2013 regarding the protection of Indonesian Migrant Workers that many workers are subject to human trafficking and other illegal practices. Due to the use of illegal channels, they are not appropriately documented by government agencies and circumventing a series of protective mechanism administered through embassies and work force attachés’. This leaves migrant workers vulnerable to various forms of abuse and exploitation on illegal markets and invisible to law enforcement and protection services due to the use of fraudulent passports, records and documentation. Migrant workers may not report themselves to law

enforcement out of fear of punishment for the use of falsified documents or other immigration infringements. PREVENTATIVE MEASURES Legislation pertaining to the protection of Indonesian migrant workers does table important steps regarding the prevention of abuse through guidance and training. This is aimed at increasing the skills and capabilities of migrant workers to fulfill their job requirements as well as educate migrant workers on their rights and responsibilities. Article 39 of Act 3, 2013 states that migrant workers are required to attend a program for the development and protection of migrant workers, followed by, Article 40 of the legislation that states relevant ministries at a national, provincial and local level are obligated to provide these programs. According to the legislation, the training is required to address, mental, spiritual and physical development, improve worker discipline and personality, make available information regarding the host nation, its culture and traditions and provide workers with the relevant skills to fulfill their duties. While in consultation with migrant workers and NGOs, we were informed that workers are generally required to attend an educational program that focuses on the completion of domestic duties they are likely to perform while overseas. The agents we interviewed said that educational programs were run for a period of 2-3 months at the agency’s office. A number of former workers said certificates or other forms of recognition for the completion of the course were not provided, however it’s not known if these workers traveled with legal or illegal agents. The legal agents that we spoke to said they provided certificates to participants. Cultural awareness, politeness and manners, linguistic knowledge and skills in social conduct are also often not taught, or only for one month, which has the potential to causes issues regarding individual behavior while overseas and cultural isolation. The failure to adhere to social norms has the capacity to result in violence or other forms of abuse.


Under the above mentioned ministries, information regarding arrival and departure processes must be provided, as well as information regarding the mandate and functions of national representatives and officials in their target country. Migrant workers need to be informed of their individual rights and responsibilities and the capacities of protective institutions. Migrant workers must also be informed of the conflict resolution process in the case that an issue arises and the worker is required to immediately vacate their place of work and be repatriated to Indonesia. INCAPACITY OF GOVERNMENT LEGISLATION Despite legislation having being enacted and reasonably comprehensive, the protection of Indonesian migrant workers is impaired by failures in law enforcement. Serious short comings are prevalent throughout the law enforcement framework which reduces its effectiveness and needs to be addressed through the implementation of thoroughly considered legislation. The Advocacy Network for the implementation of legislation for the protection of migrant workers notes the government ‘does not clearly describe immigration processes and are only required to fulfill particular requirements. ‘The Convention for the protection of Migrant Workers and their Families is however very detailed regarding their country of origin, their country of work, and their return journey’ (Nawawi, 2013). The ambiguity of the legislation undermines its effectiveness and application in combatting this issue. Currently enforceable legislation has been criticized for not sufficiently emphasizing the protection of Indonesian migrant workers, leaving them vulnerable to being treated as a commodity and victimized. The Indonesian Government is consistently the target of harsh criticism for failures in the protection of Indonesian migrant workers; however experts working within this field have noted the Indonesian Government is un-authoritative and has a lax approach to this issue, placing Indonesian migrant workers at serious risk.

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CAUSES OF VIOLENCE AGAINST INDONESIAN MIGRANT WORKERS Understanding the causes of abuse is an important aspect in implementing appropriate policy solutions. This analysis was gathered through interviews with a number of stake holders including agents, victims, former migrant workers and an Indonesian nongovernment organization called IWORK, working to protect migrant workers. The following are considered major causes of violence against migrant worker. LACKING GOVERNMENT RESPONSE The government’s response and capacity to deal with this issue is central to its prevention. While discussing this issue with a representative of IWORK, he noted that the most prominent reason that Indonesian migrant workers are victimized and abused overseas is as a result of the Indonesian Government’s lacking wiliness to appropriately deal with the issue. During the course of this discussion he noted, that The Philippines have a significantly higher number of migrant workers overseas working in the domestic and housekeeping industry, however the number of cases of abuse against Indonesian workers is much higher than cases of abuse against Pilipino workers. Research undertaken by this organization noted that Indonesian workers do not have inferior skills or capacity to undertake domestic work overseas and in some cases, they were better equipped to do so then their Pilipino counterparts, however the number cases of violence against Indonesian migrant workers is still significantly higher. The superior English language skills of Filipino migrant workers may be considered a factor in increasing communication and reducing violence. IWORK has however equated this phenomenon to the difference in government policy and response to cases of abuse. The Filipino Government has a much stronger policy stance against abuses and ensures the offending party is appropriately and swiftly dealt with through legal channels. In a number of cases, the president has become directly and personally involved, demanding the victim be released into the protection of the President and given passage to immediately

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return to The Philippines. Indonesia does not follow such assertive policy and in a number of cases, the Indonesian Government has been harshly criticized for its lacking and late response. Indonesia is one of the world’s largest sending nations of migrant workers and following eight years since the ratification and recognition of the Convention for the Protection of Migrant Workers and their Families, all articles in the convention have still not been implement. ‘This is significantly longer than other sending nations with The Pilipino Government taking only two years, Bangladesh and Argentina taking three years and Peru taking one’ (Syahputra, 2013).This has placed both domestic and international pressure on the government to act. It’s perceived that the consequences of abuse against Indonesian migrant workers are significantly less than the consequences for abuses against Filipino workers. Other issues regarding corruption and collusion within Indonesia’s embassies and law enforcement agencies has undermined the authority of the Indonesian Government and its ability to deal with and prevent violence and ensure offending parties are appropriately investigated and sentenced. Representation is a major issue and while Indonesia dispatches qualified and competent diplomats, it’s noted that their attitude and sense of urgency toward the issue of migrant worker protection seems lacking, directly impacting their capacity to appropriately combat this issue. In 2013, the Saudi Government offered free amnesty to foreign low skilled migrants living on expired or false documents. There were over 80,000 Indonesians who applied for the amnesty however only 10,000 were successfully granted amnesty in the given timeframe. This is one such example of the Indonesian Government’s inability to deal with and adequately represent the sheer number of Indonesian migrant workers overseas. MISUNDERSTOOD RESPONSIBILITIES OF AGENTS Secondly, the manner in which Indonesian migrant workers are prepared and sent overseas is concerning and places these people at risk of abuse without the

facilities or capacity to seek assistance. Agents either do not have the capacity, or are unaware of their responsibilities in the process of sending Indonesian migrant workers overseas. IWORK described them as facilitators, assisting the worker to find employment overseas, however in the case of abuse, they immediately deny any responsibility and take no further action. Proposed laws regarding the protection and placement of Indonesian migrant workers does not follow the clearly defined responsibilities of relevant stakeholders. As previously noted, agents are required to assist in facilitating the preparation of prospective workers including their recruitment, placement and provide ongoing oversight while overseas to ensure cases of abuse are swiftly reported and dealt with. The Commission for the Elimination of Discrimination Against Women (CEDAW) has urged the government to take similar steps in the process of oversight and monitoring possible cases of violence. Agents promote migrant workers like businesses promote products, through print media, radio and pamphlets in the target country. According to the agents that contributed to this research, they earn approximately two million Indonesian Rupiah, equivalent to USD170.72, for securing a placement for one worker. This is a substantial amount of money in Indonesia. One of the most prominent reasons that violence is not detected and reported is workers are sent illegally or with misleading and false information. We were informed by an NGO that during the preparation process prior to the worker being placed overseas, the employer is provided a number of profiles for possible workers that may be suitable to meet their needs. In the case that a single migrant worker is selected by two different employers, often the selected worker is sent to one of the employers, while another worker, possibly without the required skills however using the same information, credentials and identity is sent to the second employer. Documents are then falsified and the worker is sent using the assumed identity. In the government’s legislation, the proses of recruitment, enrolment and selection is mention, however the designation of responsibilities is unclear (Nawawi,


2013). This places the worker at a significant risk of violence as they circumvent proper legal protocols both in Indonesia and overseas while traveling on false documents and they do not have the skills required as required by the employer and guaranteed by the agent. This can cause frustrations and led to violence, mistreatment, refusal to pay wages, exploitation in other ways, including prostitution or termination of employment in which the Indonesian migrant worker is left stranded in a foreign nation. This process breaches Indonesian law as well as the laws of their target country. The minimum required age for migrant workers in Saudi Arabia is 21, however there are a number of cases in which 17 year old girls have been sent with falsified documents and assumed identities. The age of the girls was however unknown until issues arose. This has a number of legal ramifications in the case of an incident, insurance and other legal proceedings, as well as documentation, statistics and oversight by Indonesian Embassies. This inhibits their capacity to provide sufficient and efficient protection to Indonesian migrant workers overseas. In addition to this, workers arrive at their place of employment with skills that are incompatible with the requirements of their employer and inconsistent with those listed on their worker profile. This results in frustration and has the potential to causes violence and other abuses, including the refusal to pay the worker’s wages. ILLEGAL AGENTS Illegal agents are a significant concern that needs to be overcome with government legislation and regulation. Agents recruit and send a significant proportion of Indonesian migrant workers overseas and crime or abuse against these workers is often not reported due to fear of authority, or their illegal statues in the country. Therefore official statistics can be significantly underestimated and misleading. Indonesian migrant workers are either smuggled across borders particularly between Indonesia and Malaysia, or Indonesia and Singapore. The illegal smuggling of migrant workers in Saudi Arabia and Middle Eastern countries occurs as a

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result of people undertaking activities incompatible with their visa conditions or overstaying their time of legal residence in the given country. These agents demand the payment of extortionate fees that are not disclosed upfront and may be taken directly from the income of the individual worker. They are often unable to lodge complaints against agents that charge excessive fees or engage in other forms of financial exploitation. According to the agents we spoke to, prospective migrant workers are charged between 10-15 million Indonesian Rupiah, equivalent to US$ 853.61-1280.41, which places the worker in debt before they have departed. This significantly reduces the income and financial security of migrant workers to the extent that they are often unable to pay visa costs, agent charges and other living costs and unable to leave abusive and violent employers. Upon receiving their wage, the money is handed, usually in cash to their contact person, in their country of employment, who sends the money to their agent in Indonesia, who then provides the money to the worker’s family. During this process, money may be stolen or incorrectly recorded to which migrant workers have little capacity to prevent this or lodge an official complaint against corruption. Illegal agents are neither regulated nor overseen by government and often change their names and contacts in the case that the government does start to investigate possible illegal conduct. This makes them extremely difficult to prosecute and the government seems to show a lacking willingness to tackle this issue. Agents are not required to register as official organizations or companies allowing them to circumvent legal obligations and disguise illegal conduct and unethical business process. FRAUDULENT DOCUMENTS Fraudulent documents do not necessarily cause violence, however are a major hindrance in the government’s effort to combat violence. There are a number of ways in which passports and documents regarding experience, previous employment, education, personal details etc. are falsified in a manner that

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places these people in vulnerable and dangerous situations which cannot be easily resolved, even with consular assistance. Migrants are also reluctant to approach law enforcement at the risk of being detained for breaches to immigration law. The Indonesian bureaucracy for the acquisition of a passport and other identification documents is relatively lax and people are easily able to obtain these documents with false names. Cross-checking and other verification processes are not enforced. This causes issues that are further complicated if the migrant worker is unable to communicate in the local language and adhere to cultural norms which has the potential to result in violence. In the case that violence does occur, the Indonesian Governments encounters difficulties in locating and contacting the individual worker due to false identification and personal credentials and the fear of punishment and/or other financial penalty. PROVISION OF SKILLS, LANGUAGE AND CULTURAL KNOWLEDGE As noted above, legislation requires perspective Indonesian migrant workers to be given the skills required to undertake their function while overseas. This is done through training and education centers, however is unfortunately insufficient, resulting in the sending of ill-equipped migrant workers who lack the skills needed to appropriately fulfill they job description and communicate in order to acquire the required skills. This reduces the effectiveness of these workers overseas, which causes frustration among their employers and results in violence. In addition to this, these migrant workers are often not given the cultural and linguistic skills required to appropriately conduct themselves in foreign nations. Norms of politeness, respect and social conduct often vary in different cultural contexts and this causes issues when these norms are not adhered to or appropriately understood. LACK OF EXTERNAL SUPPORT AND INFORMATION Migrant workers have the right to be supported and protected while overseas. Despite this guarantee, when

an issue arises, they are often abandoned by their agents, especially if the agent is illegal and not registered by the Indonesian Government. This makes it extremely difficult for them to contact authorities or the embassy and request assistance. Illegitimate agents also financially exploit these workers by charging excessive and ongoing fees for services, pushing them into debt which cannot be paid off with their wages and inhibiting their financial independence. Information is difficult to attain and the flow of external information to migrant workers can be restricted by their employer in some countries. This is particularly concerning in Saudi Arabia and other Middle Eastern nations, however has improved in parts of Asia. CONCLUSION Violence, exploitation and human rights abuses pose a serious threat to the lives and wellbeing of Indonesian low-skill and domestic workers overseas. In recent months, the media has exposed a series of brutal cases of torture and violence against Indonesian workers which has caused a resurgence in concern for the issue. Indonesia has a large and increasing number of migrant workers overseas which is placing pressure on the government to act and implement regulation and policy capable of addressing these issues of abuse. Migrant workers are entitled to full human rights protection as outlined in Indonesia’s Constitution and other human rights legislation. International organizations for the protection of human rights and working conditions have urged the Indonesian Government to act upon cases of abuse against its citizens overseas. Throughout the course of this research, a number of major causes can be identified that trigger this form of violence or inhibit the government’s capacity to prevent it. The government’s lacking response and seemingly poor attitude towards the issues is identified as a major factor that must be rectified. The government needs to work proactively across ministries, departments and nations to effectively address this issue. There is also a lacking awareness be agents and other parties facilitating migrant workers regarding, rights, responsibilities and proce-


dures in the case of abuse or other ill treatment. Failure in the provision of information, knowledge and skills decreases the effectiveness of these workers, increases the frustration of their employers and has the capacity to trigger violence. Workers often lack the required knowledge regarding their rights as codified in Indonesian legislation, their government’s responsibilities and international human rights frameworks. Workers are therefore unable to seek assistance or protect themselves if they fall victim to abuse. Understanding these contributing factors and causes is pivotal to the effective formulation and implementation of policy tailored to this particular phenomenon to provide appropriate legal remedy to victims and protect future prospective migrant workers. The second paper entitled Violence against Indonesian Migrant Workers – A Policy Response will further discuss an appropriate and multi-faceted policy response to address this issue. BIBLIOGRAPHY Antara, 2014. Warga Desa Myanmar, Sasaran Empuk Penyelundup Manusia. Myanmar’s Rural Dwellers, a Soft Target for People Smugglers. (Translation from Indonesian). Published 31 July 2013. Available at Association of South East Asian Nations Charter. 2008. Charter of the Association of Southeast Asian Nations. Entered into force on 15 December 2008. Available at http://www.asean.org/archive/ publications/ASEAN-Charter.pdf BNP2TKI, 2013. Remitansi TKI Tahun 2013 Capai Rp 81,34 Trilyun (Remittance of Indonesian Migrant Workers in 2013 Reaches Rp 81,34 Trillion. 22 December 2013. Available at: http:// www.bnp2tki.go.id/berita-mainmenu-231/9227-remitansi-tkitahun-2013-capai-rp8134-trilyun.html BNP2TKI Badan Nasional Penempatan dan Pelindungan Tenaga Kerja Indonesia – National Body for the Placement and Protection of Migrant Workers, 2014. Pemerintah Berlakukan Perjanjian Kerja TKI dengan Arab Saudi. Government Implements an Work Agreement for Indonesian Domestic Workers with Saudi Arabia. Published on the 9th March 2011. Available at: www.bup2tki.go.id/ berita-mainmenu-231/4123-pemerintah-berlakukan-perjanjiankerjatki-dengan-arab-saudi.html. Indonesian Government, 2002. Ratification International Labour Organization Convention no. 88 Concerning the Organization of the Employment Service(konvensi ilo no. 88 mengenai lembaga pelayana penempatan tenaga kerja). Act 36, 2002. Legislative Assembly of the Republic Of Indonesia, Jakarta Indonesian Government, 2013. Act Number 3, Year 2013 Regarding the Protection of the Indonesian Work Force Overseas. Legislative Assembly of the Republic Of Indonesia, Jakarta

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International Labour Organization, 2013. Qualitative research on Employment Relationship and Working Conditions. Preliminary Guidelines. Tools for researching domestic work: Geneva. Available at http://www.ilo.org/wcmsp5/groups/public/—ed_protect/— protrav/—travail/documents/publication/wcms_248899.pdf Pécoud, 2009. Migration and Human Rights. The United Nations Convention on Migrant Worker’s Rights. UNESCO Publishing: New York. Republik Indonesia, 1945. Undang-Undang Dasar Negara Republik Indonesia Tahun 1945. Constitution of the State of the Republic of Indonesia, 1945. Jakarta Nawawi, 2013. Rancangan Undang-Undang Masih Abaikan Pelindungan TKI Proposes Legislation Still Ignores the Protection of Migrant Workers. Universitas Islam Indonesia. http://pusdiklat.law.uii.ac.id/index.php/Berita-Harian/RUU-PPTKLNMasih-AbaikanPerlindungan-TKI.html Republic of Indonesia. 2009. Protocol Against the Smuggling of Migrants by Land, Sea and Air, Supplementing the United Nations Convention Against Transnational Organized Crime. Jakarta. Available at: http://hukum.unsrat.ac.id/ uu/uu_15_2009.pdf Syahputra, E. 2013 Penyebab Indonesia Meratifikasi Konvensi PBB 1990 Tentang Perlindungan Hak Buruh Migran Beserta Anggota Keluarga. Cause for Indonesia’s Ratification of the United Nation’s 1990 Convention Regarding the Protection of the Rights of Migrant Workers Including their Families. Jurnal Analisis Hubungan Internasional Journal for the Analysis of International Relations. Vol.2 / No. 2 pp. 177-192. Available at: http://www.google.com.au/ url?sa=t&rct=j&q=&esrc=s&frm=1& source =web&cd=1&ved=0C BwQFjAA&url=http%3A%2F%2Fjournal.unair.ac.id%2FfilerPDF%2FJurnal.docx&ei=ornu U8f0AcG48gXyjYC4Dg&usg=AFQjCNFy322uTSaAnkHl3Cf2-LLBRmuew

Kerja Dalam Kesetaraan: Studi Pegawai Pemerintah dengan Perjanjian Kontrak (PPPK) dalam Proyeksi Konfigurasi Aparatur Sipil Negara (ASN) Di Indonesia (Dodi Faedlulloh)

KERJA DALAM KESETARAAN: STUDI PEGAWAI PEMERINTAH DENGAN PERJANJIAN KERJA (PPPK) DALAM PROYEKSI KONFIGURASI APARATUR SIPIL NEGARA (ASN) DI INDONESIA

WORK IN EQUALITY: A STUDY OF NON-ONGOING EMPLOYEES (PPPK) IN CONFIGURATIONAL PROJECTION OF CIVIL STATE APPARATUS (ASN) IN INDONESIA Dodi Faedlulloh

Program Studi Ilmu Administrasi Publik, Universitas 17 Agustus 1945 Jakarta Jl. Sunter Permai Raya, Sunter Agung Podomoro, Jakarta Utara e-mail: [email protected] (Diterima 11 Agustus 2015, Direvisi 15 Oktober 2015, Disetujui 2 November 2015)

Abstrak Terbitnya UU No 5 Tahun 2014 tentang Aparatur Sipil Negara (UU-ASN) menjadi momentum pembenahan sistem kepegawaian secara mendalam di Indonesia. Pegawai ASN terdiri dari Pegawai Negeri Sipil (PNS) dan Pegawai Pemerintah dengan Perjanjian Kerja (PPPK). Sayangnya, dalam regulasi tersebut PPPK belum diatur secara jelas dan tegas. Ada kekhawatiran konsep PPPK ini menjadi lagu lama yang hanya berganti kaset saja. Oleh karena itu diperlukan gagasan yang mampu menjadi landasan filosofis eksistensi PPPK. Dengan kondisi ini maka diperlukan pelembagaan nilai kesetaraan dalam kerja ASN. Antara PNS dan PPPK harus mendapatkan perlakukan yang setara dalam pemenuhan pokok-pokok dasar hak ASN. Kesetaraan tersebut diharapkan mampu mendukung pencapaian profesionalitas PPPK. Ada beberapa elemen penting yang perlu diinternalisasi dalam pemahaman PPPK menuju proses profesionalisme yaitu pengabdian pada profesi, kewajiban sosial, kemandirian, keyakinan terhadap profesi dan hubungan dengan sesama profesi. Kata Kunci: Kesetaraan, Pegawai Pemerintah dengan Perjanjian Kerja (PPPK), Profesionalisme, UU-ASN

Abstract Law No. 5 of 2014 about the Civil State Apparatus (ASN) is momentum for personnel system reform in Indonesia. ASN employees consists of Civil Servants (PNS) and the Non-Ongoing Employees (PPPK). Unfortunately, the regulation of PPPK has not been established clearly and firmly. The concerns are the concept of PPPK would be just an old songs in a different cassette. Therefore we need an idea which can be a philosophical foundations of the PPPL’s existence. With these conditions it is necessary to institutionalize the equality values in ASN. PNS and PPPK should receive equal treatment in terms of ASN rights. That equality is expected to support the PPPK’s achievement, professionally. There are several important elements that need to be internalized in PPPK, they are; dedication, professionalism, social obligations, independence, proud of the profession and relationships with other professions. Keywords: Equality, Non-Ongoing Employees (PPPK), Profesionalism, ASN Law

PENDAHULUAN Pemerintah telah mengesahkan UndangUndang No 5 Tahun 2014 tentang Aparatur Sipil Negara (UU-ASN). Dalam regulasi tersebut menjelaskan ihwal ASN adalah sebagai profesi, oleh karenanya perlu asas, nilai, kode etik dan kode perilaku, pengembangan kompetensi yang mengkondisikan ASN sebagai profesi tersebut. Ada harapan baru dari lahirnya regulasi baru ini, yaitu untuk memperbaiki tata kelola pemerintahan benar-benar berbasiskan pelayanan publik. Kritikkritik yang selalu ditunjukan kepada birokrasi

selama ini, melalui daya dukung regulasi ini, perlu diminimalisasi oleh prestasi dan pengabdian para aparaturnya. Misal hasil survei integritas yang dilakukan KPK termuat dalam kajian Direktorat Aparatur Negara (2010) menunjukkan bahwa kualitas pelayanan publik Indonesia baru mencapai skor 6,84 dari skala 10 untuk instansi pusat, dan 6,69 untuk unit pelayanan publik di daerah. Skor integritas tersebut menunjukkan karakteristik kualitas dalam pelayanan publik, seperti ada tidaknya suap, ada tidaknya Standar Operasional Procedure (SOP), kesesuaian proses pemberian pelayanan dengan SOP 11

Civil Service VOL. 9, No.2, November 2015 : 1 -12

yang ada, keterbukaan informasi, keadilan dan kecepatan dalam pemberian pelayanan serta kemudahan pengaduan masyarakat. Sinyalemen lain menurut Haposan (2014) menyatakan bahwa sekitar 60% (enam puluh persen) PNS tidak produktif, sehingga perlu dilakukan rasionalisasi. Pada tahun 2012, Menpan juga dalam kajian yang dilakukan oleh Suripto (2014) mengatakan hanya 5% (lima persen) PNS di Indonesia memiliki kompetensi di bidangnya, sedangkan sisanya sebanyak 95% (sembilanpuluh lima persen) PNS, tidak memiliki kompetensi khusus di bidangnya atau hanya memiliki kompetensi umum. Tentu saja hal ini menjadi catatan penting, betapa birokrasi kita masih belum bisa memberikan pelayanan kepada publik secara prima. Adapun yang menjadi tujuan dari UUASN adalah melahirkan aparatur negara yang mempunyai independensi dan netralitas, kompetensi, kinerja/produktivitas kerja, integritas, kesejahteraan, kualitas pelayanan publik serta pengawasan dan akuntabilitas. Dengan tujuan tersebut para aparatur negara ke depan diharapkan akan menjadi aparatur negara yang mampu dan mau memahami publik. Oleh karenanya hal yang memungkinkan untuk mengkondisikan lahirnya aparatur negara demikian perlu merit system yang menata SDM ASN di Indonesia. Hal penting yang perlu disadari menerapkan merit system tersebut tidak mudah untuk dilaksanakan. Misal pengalaman negara berkembang seperti Ekuador. Pelaksanaan sistem kepegawaian berbasis merit mengalami kendala. Proses hijrah dari sistem kepegawaian yang sangat personal menjadi rasional dan objektif menurut Mangeldorf dan Reeves dalam Rosyadi (2014) berarti mengubah budaya masyarakat yang semula menganut sistem nilai askriptif menjadi sistem nilai yang berbasis prestasi. Sebagai negara berkembang, Indonesia pun memiliki karakter permasalahan yang hampir sama. Selalu ada kendala yang bersifat strukutural, kultural, bahkan politis yang mengelilingi upaya merit system tersebut. Maka dari itu perlu upaya dan daya dukung yang serius dari pemerintah untuk memulai membenahi sistem ASN. Jadikanlah lahirnya UU-ASN ini sebagai momentum pembenahan. Konsekuensi penting dari momentum itu tiada lain adalah kesetiaan dan konsistensi dalam menjaga 12


pelaksanaan pembenahan ini. Kemudian secara bahasa, terminologi akronim ASN ini juga cukup menarik, yaitu menunjukan substansi ASN sebagai profesi yang melayani publik. Tautologi, aparatur sipil adalah pelayan publik. Pendasaran konsep ini berimplikasi posistif, sebagai “pelayan” maka para aparatur harus memberikan kebajikan dalam aktivitas pemberian pelayanan kepada publik. Publik sang warganegara adalah pemilik kedaulatan dari setiap pelayanan dan fasilitas publik yang diberikan. Inilah semangat yang diusung oleh Denhart dan Denhart (2003) melalui New Public Service yang menjangkarkan pelayanan publik pada pentingnya teori warga negara deomokratis (democratic citizenship). Pada teori ini mengajukan laiknya pemerintah mempunyai kewajiban dalam menjamin hak-hak individu warganya melalui berbagai prosedur yang ada. Warga negara secara demokratis melibatkan diri dalam penentuan-penentuan kebijakan publik dan pelayanan publik. Pegawai ASN terdiri dari Pegawai Negeri Sipil (PNS) dan Pegawai Pemerintah dengan Perjanjian Kerja (PPPK). PPPK sebagai bagian dari ASN dalam pengelolaannya diatur dalam manajemen ASN yaitu sistem manajemen kepegawaian yang meliputi dari sistem perencanaan, pengembangan karier, penggajian, dan terkait perpanjangan jangka waktu kerja. ASN nanti tidak sepenuhnya menjadi tanggung jawab pemerintah karena akan dibentuk suatu lembaga khusus yang mengatur guna menjamin sistem dalam kebijakan dan manajemen ASN yaitu Komisi Aparatur Sipil Negara (KASN). KASN ini akan menjadi lembaga yang turut membantu presiden sebagai pemegang kekuasaan pemerintahan tertinggi bersama dengan Kementerian Pendayagunaan Aparatur Negara dan Reformasi Birokrasi (PAN-RB), Lembaga Administrasi Negara (LAN), dan Badan kepegawain Negara (BKN). PPPK adalah warga negara Indonesia yang memenuhi syarat tertentu diangkat sebagai pegawai dengan perjanjian kerja oleh Pejabat Pembina Kepegawaian (PPK) sesuai dengan kebutuhan instansi pemerintah berdasarkan perjanjian kerja untuk jangka waktu tertentu dalam rangka melaksanakan tugas pemerintah. Sayangnya, yang menjadi soal dalam regulasi

tersebut, seperti halnya Pegawai Tidak Tetap (PTT) yang terdapat dalam Undang-Undang Nomor 43 Tahun 1999 tentang Perubahan Undang-Undang Nomor 8 Tahun 1974 tentang Pokok-pokok Kepegawaian, PPPK pun tidak banyak diatur secara jelas dan tegas dalam regulasi baru ini. Padahal mengingat pelaksanaan PTT sebelumnya begitu banyak menuai masalah. Jangan sampai konsep PPPK ini menjadi lagu lama yang hanya berganti kaset saja. Oleh karenanya diperlukan tinjauan lebih filosofis tentang keberadaan dari PPPK tersebut dan bagaimana pengelolaannya agar kesalahankesalahan lama tidak terulang. PEMBAHASAN Kehadiran PPPK Dalam UU-ASN antara PNS dan PPPK tidak memiliki perbedaan dalam ihwal tanggung jawab, tugas dan sistem penggajiannya. Perbedaannya mendasar di antaranya terletak pada status yang melekat dan hak perlindungan pensiun yang tidak diterima oleh PPPK, sedangkan PNS mendapatkan tunjangan pensiun. Kemudian merujuk UU-ASN, keberadaan PPPK diharapkan mampu mengakomodasi SDM yang unggul dan profesional. Dengan kata lain, posisi PPPK bukan posisi “main-main”. Berarti dari mulai penetapan kebutuhan, pengadaan, penilaian kinerja, hak dan kewajiban, gaji dan tunjangan, pengembangan kompetensi, pemberian penghargaan, disiplin, pemutusan hubungan perjanjian kerja, serta perlindungan akan diberikan kepada PPPK. Ada upaya internalisasi gagasan equality dalam UU-ASN. Hal ini laik menjadi sorotan dan perlu mendapat apresiasi sebagai sebuah upaya menembus oposisi biner PNS dan Non-PNS yang kerap hadir dalam pengalaman para pegawai pemerintahan di Indoensia. Namun perlu diingat gagasan equality tidak bisa dilaksanakan dengan mudah, mengingat karena PPPK belum diatur secara jelas dan tegas, maka eksistensi PPPK masih memiliki potensi kemungkinan terulangnya kembali honorerisasi. Kecemburuan sosial antara PNS dan PPPK tidak menutup kemungkinan tetap saja terjadi bila pemahaman yang dicitacitakan UU-ASN belum match dengan persepsi masyarakat.

Saat ini respon masyarakat untuk mencari karier sebagai seorang tetap besar, bahkan perkembangan setiap tahun cukup meningkat. Perspepsi PNS sebagai profesi yang nyaman dan terjamin kesejahteraannya menjadi daya dorong tersendiri bagi masyarakat untuk memilih PNS sebagai tujuan masa depannya. Dengan kata lain harapan masyarakat yang ingin menjadi PNS adalah “Paket PNS dengan segala previliegenya”. Sebelum membahas terkait PPPK lebih jauh, menurut penulis yang perlu dihadirkan adalah membahas raison d’etre dari PPPK itu sendiri. Apa yang menyebabkan PPPK menjadi perlu adanya. Substansi relasi antara PNS dan PPPK sebagai bagian dari ASN ini tidak memiliki perbedaan dalam tanggung jawab, tugas sampai dengan sistem penggajiannya. Perbedaan yang mendasar di antarnya terletak pada status dan hak perlindungan pensiun yang tidak diterima oleh pegawai PPPK. Waktu jabatan PNS ditentukan melalui undang-undang, sementara PPPK dalam mengisi jabatan publik ditentukan dan dibatasi oleh waktu jabatan dengan kesepakatan kerja yang telah disetujui bersama sesuai dengan kebutuhan SDM instansi dan kompetensi pegawai yang bersangkutan. Merujuk dari pertimbangan lahirnya UUASN ini, maka PPPK sebagai bagian dari ASN merupakan termasuk dalam agenda reformasi birokrasi. Oleh karenanya ASN perlu ditetapkan sebagai profesi yang memiliki kewajiban pengelolaan dan pengembangan diri, wajib mempertanggung-jawabkan segala kinerjanya, serta penerapan prinsip merit dalam implementasi manajemen ASN. Kata kunci dari pertimbangan ini adalah ASN sebagai profesi. Sebagai profesi, orang-orang yang menjabat ASN, termasuk di dalamnya PPPK, mensyaratkan keahlian serta kemampuan khusus dalam menjalankan tugasnya. Dengan kata lain pekerjaan yang bersifat profesional adalah jenis pekerjaan yang hanya dapat dilaksanakan oleh orang-orang khusus yang dipersiapkan untuk menjalankan tugas tersebut. Atas pendasaran ini, berarti kehadiran PPPK disiapkan bagi orang-orang terpilih. Ada pengutamaan, maka PPPK bukan berarti sekedar “wadah” yang akan diisi secara otomatis oleh para pegawai honorer sebelumnya. Walaupun 13


memang tidak menutup pintu kemungkinan bagi para honorer sebelumnya bisa diakomodasi melalui PPPK dengan catatan tetap memenuhi syarat-syarat yang ada melalui merit system. Upaya Menyemai Kesetaraan Pada kesempatan ini penulis mengusung gagasan kesetaraan (equality) pada PPPK dalam konfigurasi ASN di Indonesia. Benang merah dari gagasan ini yakni tujuan dari UUASN itu sendiri yang menegaskan PPPK bukan merupakan tenaga honorer dengan wajah baru. Karena seperti yang diketahui, secara normatif semenjak 2005 lalu pemerintah telah melakukan pelarangan pengadaan dan pengangkatan tenaga honorer. Evaluasi penting mengenai pegawai honorer adalah relasi hierarkis PNS dan honorer yang menciptakan kecemburuan sosial, kemudian banyaknya para pegawai honorer yang menghendaki diangkat langsung menjadi PNS dengan alasan lama pengabdian yang belum bisa diakomodasi melalui sistem manajemen kepegawaian yang berlaku di Indonesia sampai saat ini. Inti dari gagasan equality yaitu melakukan dekontruksi terhadap cara pandang lama relasi PNS-Non PNS yang sering terjadi di lembaga pemerintahan. Dalam konteks ini, kini PPPK mensyaratkan totalitas profesionalisme, maka jabatan yang diisi oleh PPPK ini memang tugastugas profesional. Harapan profesionalisme PPPK tersebut perlu didukung oleh proses yang setara dengan kolaborasi yang seimbang antara PNS dan PPPK. Dimulai untuk berkarier di PPPK pintu gerbang awal masuk melalui tes dengan merit system seperti halnya tes CPNS. Nilai lebih dari rekruitmen jabatan PPPK ini yaitu lebih inklusif karena terbuka bagi orangorang yang tidak bisa memenuhi syarat untuk menjadi PNS, seperti umur calon pegawai. Yang jelas kebijakan perekrutan musti dipastikan berbasiskan kompetensi, tidak berdasarkan spesifikasi pribadi. Ada pengusulan dan penetapan formasi juga kinerja yang terukur. Namun yang penulis tekankan dalam pengusulan dan penetapan formasi jangan sampai tumpang tindih, ada posisi sama yang diperebutkan oleh PNS dan juga PPPK. Jangan sampai tercipta kondisi ada posisi jabatan dengan kriteria job desc, kewajiban dan tanggung jawab sama 14


namun status yang melekat berbeda. Inilah yang biasanya memulai sebab kecemburuan sosial di lapangan. Para honorer merasa beban kerjanya sama, bahkan ada yang merasa beban kerja lebih berat, akan tetapi perlakukan yang didapatkan berbeda. Pengangkatan yang diusulkan instansi pemerintah harus berdasar kepada objektivitas kebutuhan serta formasi kualifikasinya seperti pada jabatan PNS, maka PPPK juga berhak mendapatkan remunerasi, tunjangan sosial dan kesejahteraan yang mirip dengan PNS. Inilah kesetaraan yang hendak dicapai melalui UUASN. Kesetaraan bukan berarti sama karena bagaimanapun ada point yang membedakan antara PNS dan PPPK. Perbedaan mendasar yang mencolok yaitu diterimanya fasilitas pelindungan pensiun bagi PNS, sedangkan PPPK tidak mendapatkannya. Masa waktu mengisi jabatan yang berbeda pula, PPPK mengisi jabatan sesuai dengan kebutuhan yang diformalisasi melalui kontrak kerja tertentu. Kemudian seperti yang dijelaskan oleh Hayat (2014), pengembangan karier ASN antara PNS dan PPPK pun memiliki perbedaan. Dalam pengembangan proses pengembangan karier PNS diberikan dengan berbagai komponen yang mengikutinya. Hal ini berfungsi sebagai kontrol atas kinerja PNS dalam menjalankan segala tugas dan kewajibannya. Ketentuan jabatan bagi PNS pun terikat oleh peraturan perundang-undangan dengan segala hak dan kewajiban yang dapat berkembang sesuai dengan kompetensi, skill dan pendidikan yang dimiliki untuk menduduki jabatan posisi yang lebih tinggi. Sementara itu, pengembangan karier PPPK difungsikan sebagai kontrol kinerja PPPK sebagai pertimbangan dalam hal perpanjangan kontrak kerja yang dilakukan setiap tahunnya. Masih menurut Hayat, oleh karena hal yang dijelaskan sebelumnya maka pemerintah perlu memiliki siklus organisasi yang dinamis dalam memberikan umpan balik yang mampu mengkreasi kualitas ASN yang profesional yang langsung berdampak pada peningkatan layanan publik. Catatan penting yang diterangkan Hayat (2014) yang perlu menjadi perhatian tersendiri yaitu mengenai pengembangan karier baik PNS maupun PPPK yang perlu dilakukan dengan pola kolaborasi yang seimbang agar

dapat mengendalikan kecemburuan sosial yang bisa terjadi, yang tentunya secara langsung maupun tidak langsung bisa berdampak pada kualitas pelayanan publik. Point inilah yang penulis coba konseptualisasi menjadi gagasan equalty dalam tulisan ini. Adapun ketidaksamaanketidaksamaan yang ada tidak mereduksi semangat equality relasi PNS dan PPPK dalam konfigurasi ASN di Indonesia. Konsep equality di sini penulis maknai sebagai perlakuan yang setara. Setara dalam arti secara substantif tidak melakukan deskriminatif secara sistemik pada pokok-pokok dasar hak PNS dan PPPK sebagai ASN. Seperti yang disinggung sebelumnya pada UU-ASN lebih banyak mengatur PNS dibanding PPPK. Namun kita masih bisa melakukan analisa pada teks berdasar konteks regulasi tersebut yang menunjukan upaya mencapai kesetaraan. Misal tentang pengembangan karier dalam Pasal 69 UU-ASN seperti berikut: 1. Pengembangan karier PNS dilakukan berdasarkan kualifikasi, kompetensi, penilaian kinerja, dan kebutuhan Instansi Pemerintah. 2. Pengembangan karier PNS integritas dan moralitas. 3. Kompetensi sebagaimana dimaksud ayat (1) meliputi: a. Sebagaimana dimaksud pada ayat 1 dilakukan dengan mempertimbangkan kompetensi teknis yang diukur dari tingkat dan spesialisasi pendidikan, pelatihan teknis fungsional, dan pengalaman bekerja secara teknis. b. Kompetensi manajerial yang diukur dari tingkat pendidikan, pelatihan struktural atau manajemen, dan pengalaman kepemimpinan. c. Kompetensi sosial kultural yang diukur dari pengalaman kerja berkaitan dengan masyarakat majemuk dalam hal agama, suku, dan budaya sehingga memiliki wawasan kebangsaan. 4. Integritas sebagaimana dimaksud pada ayat (2) diukur dari kejujuran, kepatuhan terhadap ketentuan peraturan perundang-undangan, kemampuan bekerja sama, dan pengabdian kepada masyarakat, bangsa dan negara. 5. Moralitas sebagaimana dimaksud pada ayat (2) diukur dari penerapan dan pengamalan

nilai etika agama, budaya, dan sosial kemasyarakatan. Pasal di atas merupakan peraturan dalam pengembangan karier bagi PNS, sedangkan konteks PPPK berbeda. Dalam UU-ASN ini tidak dijelaskan secara eksplisit tentang pengembangan karier bagi PPPK, tapi bila bertopang pada pasal 70 UU-ASN ayat 1 (satu) sampai 4 (empat) dan pada pasal 102, untuk meningkatkan kualitas ASN, PPPK punya hak untuk pengembangan kompetensi. Adapun pasal 70 UU-ASN ayat 1 (satu) sampai 4 (empat) sebagai berikut: 1. Setiap Pegawai ASN memiliki hak dan kesempatan untuk mengembangkan kompetensi. 2. Pengembangan kompetensi sebagaimana dimaksud pada ayat (1) antara lain melalui pendidikan dan pelatihan, seminar, kursus, dan penataran. 3. Pengembangan kompetensi sebagaimana dimaksud pada ayat (1) harus dievaluasi oleh Pejabat yang Berwenang dan digunakan sebagai salah satu dasar dalam pengangkatan jabatan dan pengembangan karier. 4 . D al am m eng e mb ang k an ko mp e tens i sebagaimana dimaksud pada ayat (1) setiap Instansi Pemerintah wajib menyusun rencana pengembangan kompetensi tahunan yang tertuang dalam rencana kerja anggaran tahunan instansi masing-masing. Sedangkan pasal 102 UU-ASN sebagai berikut: 1. PPPK diberikan kesempatan untuk pengembangan kompetensi. 2. Kesempatan untuk pengembangan kompetensi sebagaimana dimaksud pada ayat (1) direncanakan setiap tahun oleh Instansi Pemerintah. 3. Pengembangan kompetensi sebagaimana dimaksud pada ayat (1) harus dievaluasi oleh Pejabat yang Berwenang dan dipergunakan sebagai salah satu dasar untuk perjanjian kerja selanjutnya. Dari pembacaan regulasi ini, menggambarkan adanya potensi kolaborasi yang seimbang yang terkandung dalam UU-ASN. Bisa ditarik konsep equality yang dimanifestasikan pada pokok-pokok dasar hak PPPK sebagai ASN. Baik PNS maupun PPPK memiliki hak untuk 15


melaksanakan pengembangan diri. Dari sini lah terdapat manajemen ASN yang berpengharapan dibangun. Dengan kata lain setiap orang-orang yang mengabdi menjadi ASN, baik PNS maupun PPPK memiliki harapan untuk senantiasa mengembangkan dirinya. Berkenaan dengan manajemen ASN yang berpengharapan ini, kita bisa mulai memproblematisir hak jaminan pensiun yang didapatkan oleh PNS. Karena hal inilah yang cukup determinan mempengaruhi pandangan masyarakat sampai saat ini yang berkeinginan berkarier menjadi seorang PNS. Terlepas dari berbagai masalah yang masih terjadi pada sistem pensiun, menurut Haposan (2014) dan Hanafie (2014) dari perihal asas ketidakadilan, ketidaklayanan, atau inkonsistensi penerapan kebijakan, selama sistem pensiun tersebut masih ada, cara pandang masyarakat dalam melihat PNS sebagai karier yang menjamin kesejahteraan tidak akan menemui perubahan signifikan. Konsekuensinya animo masyarakat untuk menjadi PNS tetap besar karena selama ini masyarakat mengejar status PNS dilandasi harapan memberikan jaminan di hari tua dengan mendapatkan pensiunan setiap bulan. Namun ketidahadiran fasilitas jaminan pensiun pada PPPK bukan lantas membunuh harapan orangorang yang mengabdi bagi negara tidak terjamin masa tuanya. Karena bagaimanapun penjaminan kesejahteraan masyarakat merupakan tugas negara. Oleh karena itu kiranya perlu mencari altenatif konsep jaminan pensiun tersebut. Argumentasi sederhananya yaitu perlu dibuat desain substitusi jaminan pensiun bagi PPPK. Alternatif pengganti jaminan pensiun yang tidak diterima oleh PPPK ini bisa diakomodasi melalui (semacam) pesangon sebagai penghargaan atas pengabdian yang diberikan kepada mereka bila telah memenuhi syarat-syarat tertentu. Dengan adanya pesangon tersebut para pegawai PPPK memiliki pengharapan pada masa tuanya. Selain alternatif fasilitas pesangon, walaupun hal ini masih sangat debatable , pengganti fasilitas pensiun yang tidak diberikan kepada PPPK bisa disubstitusi dengan sistem jaminan pensiun yang diintegrasikan bersama melalui BPJS Ketenagakerjaan dengan alasan walaupun sama-sama ASN dengan PNS, status 16


PPPK adalah Non-PNS. Alternatif ini senada dengan wacana pergantian sistem pendanaan pensiun dari pas as you go kepada fully funded. Sistem pay as you go adalah sistem pendanaan pensiun yang dibiayai secara langsung oleh pemerintah melalui APBN ketika pegawai memasuki masa pensiun. Sedangkan fully funded adalah sistem pendanaan pensiun yang bersumber dari iuran yang dilakukan secara bersama-sama oleh PNS sebagai pekerja dan pemerintah sebagai pemberi kerja. Dua alternatif ini sekurangnya membuka pintu penyemaian kesetaraan di antara PNS dan PPPK, dan kemungkinan alternatif lain pun masih terbuka lebar untuk dilakukan. Prinsip utamanya, landasan filosofis kesetaraan dibuka seluasluasnya. Mencapai Profesionalisme Setelah menjelaskan konsepsi kesetaraan dalam lingkungan ASN sebagai syarat kondisi awal ASN yang setara, baru kemudian bisa mengelaborasi bagaimana proyeksi langkahlangkah yang bisa dilakukan guna mencapai profesionalisme PPPK. Mengenai PPPK sebagai profesi ini, penting membaca kembali karya klasik Hall (1968) yang menjelaskan tentang elemen profesionalisme. Hal ini bisa menjadi daya dukung teoritis eksistensi PPPK dan bagaimana laiknya PPPK berjalan dalam konfigurasi ASN di Indonesia. Berikut penulis jabarkan 5 (lima) elemen profesionalisme Hall yang dikontektulisasi berdasarkan posisi PPPK sebagai ASN. Elemen pertama adalah pengabdian pada profesi. Oleh karena itu PPPK mensyaratkan totalitas. Segala pengetahuan dan kemampuan yang dimiliki para subjek PPPK dicurahkan dan didedikasikan secara optimal untuk pekerjaan dan kewajibannya. Orang-orang yang terpilih menjadi PPPK bekerja untuk mengabdikan diri pada negara atas dasar mencintai profesinya. Dengan kata lain, insentif materi bukan men-jadi tujuan. Adapun insentif materi adalah imbas dari pengabdian profesi. Para PPPK memiliki komitmen moral dalam menjalankan kewajibannya, oleh karena itu bila masing-masing pegawai memiliki kesadaran atas pentingnya pengabdian pada profesi, kecemburuan sosial yang kerap terjadi antara PNS dan Non-PNS bisa diminimalisir.

Kedua, kewajiban sosial. Elemen ini penting diinternalisasi dalam pemahaman sampai ragam aktivitas PPPK bahwa keberadaan mereka sebagai PPPK berperan penting dalam kehidupan masyarakat. Profesi PPPK diposisikan sebagai bagian penting yang tidak bisa dilepaskan dalam kehidupan bermasyarakat. Seperti yang disinggung oleh Hayat (2014) pelayanan kepada publik tetap harus dikedepankan dalam rangka mendorong suksesnya reformasi birokrasi di berbagai lembaga pemerintahan. Maka fungsi PPPK dalam pelayanan terhadap publik menjadi tujuan utama, bukan sekedar bekerja menggugurkan kewajiban. Diberlakukannya UU-ASN yaitu dalam agenda memperbaiki berbagai aspek birokrasi, mulai tingkat pemerintah pusat hingga pemerintahan daerah. Dengan kondisi ini para pegawai PPPK perlu memiliki kesadaran kritis akan tanggungjawabnya yang tidak sekedar memberikan pelayanan namun juga memahami pertumbuhan dan perkembangan kebutuhan layanan publik. Untuk mempertegas, sebagai bagian dari agenda besar memperbaiki segala hal terkait birokrasi, maka segala tanggung-jawab yang dimiliki oleh PPPK merupakan kewajiban sosial, bukan semata-mata hanya kewajiban instansi. Elemen ketiga adalah kemandirian. Dalam soal PPPK, berarti mereka memiliki sisi kemandirian dalam membuat keputusannya sendiri tanpa perlu tekanan dari pihak lain. Prakondisi ini menjadi harapan atas lahirnya UUASN yang menghendaki ASN tidak dipolitisasi. Prasojo (2014) menilai ASN, begitupula PPPK di dalamnya, perlu dilindungi atas intervensi politik dilakukan dengan 2 (dua) cara yaitu: pertama menciptakan check and balance terhadap kewenangan pejabat politik dan pejabat karier tertinggi dalam mengangkat, memindahkan, dan memberhentikan pegawai; dan kedua membatasi keterlibatan ASN (PNS atau PPPK) dalam politik praktis. Catatan penting dari elemen kemandirian ini, PPPK tidak berposisi menjadi sub-ordinat dari PNS. Independensi tetap menjadi kekhususan profesionalitas PPPK. Baik PNS maupun PPPK dikondisikan agar memahami posisi dan perannya masing-masing. Perlu diingat, gagasan kesetaraan dalam ASN merupakan sendi-sendi dalam pelaksanaan yang perlu diaktualisasi secara operasional.

Selanjutnya elemen keempat yaitu keyakinan terhadap profesi. Maksudnya yaitu keyakinan bahwa yang paling memiliki kewenangan menilai pekerjaan profesional adalah rekan sesama profesi, bukan pihak eksternal yang tidak memiliki kompetensi dalam bidang ilmu dan pekerjaan mereka. Hal ini pun implikasi dari kemandirian profesi yang telah dijelaskan sebelumnya. PPPK menjadi seperti subjek otonom yang mampu membicarakan dirinya tanpa perlu intervensi politik dan judge dari pihak di luar dirinya. Antara PPPK bisa saling melakukan interaksi penilaian. Terakhir, atau kelima yaitu hubungan dengan sesama profesi. Berarti dengan memposisikan ASN sebagai profesi maka tidak menutup kemungkinan akan melahirkan ikatan profesi yang akan menjadi acuan tersendiri bagi profesi tersebut baik dalam bentuk organisasi formal dan kelompok kolega informal sebagai ide utama dalam pekerjaan. Kesadaran profesional berkembang melalui hubungan sesama profesi. Seperti yang tertuang dalam penjelasan UUASN, untuk menyalurkan aspirasi dalam rangka pembinaan dan pengembangan profesi ASN, Pegawai ASN berhimpun dalam wadah korps profesi Pegawai ASN Republik Indonesia yang bertujuan menjaga kode etik profesi dan standar pelayanan profesi ASN serta mewujudkan jiwa korps ASN sebagai perekat dan pemersatu bangsa. Akan tetapi adanya korps profesi Pegawai ASN Republik Indonesia, tidak menutup kemungkinan atas semangat demokrasi dan kebebasan berserikat, PPPK bisa membangun kelompok kolega informal sebagai elemen untuk memperkuat profesionalitas profesi. Elemen pertama sampai ketiga, menurut penulis merupakan elemen yang ditempatkan sebagai dasar/fundamen profesi PPPK untuk menuju proses profesionalisme. Profesionalisme PPPK tentunya dapat termanifestasi secara aktual bila mana mereka telah mencintai profesinya, menyadari penuh segala tanggungjawabnya sebagai bagian dari kewajiban sosial bukan semata kewajiban instansi, dan memiliki kemandirian dalam keputusan kerja. Adanya ketiga elemen tersebut dinilai perlu untuk mengkondisikan dua elemen berikutnya (elemen keempat dan kelima). Elemen keyakinan terhadap profesi dan hubungan sesama profesi 17


baru mewujud sebagai elemen pendukung bila ketiga elemen berikutnya telah terinternalisasi dengan baik dalam diri para pegawai PPPK. Hal ini penting menjadi catatan dalam rencana pembuatan peraturan turunan yang kelak mengatur PPPK ke depan sebagai basis ontologis eksistensi profesionalisme PPPK. Gambaran dari elemen profosionalisme dalam PPPK sebagai profesi yang telah dijelaskan di muka dapat diilustrasikan sebagai berikut:

Sumber: Adaptasi dari Hall (1968)

Gambaran di atas bisa menjadi awal diskursus tentang bagaimana harapan PPPK ke depan. Kehadiran PPPK yang dialamatkan untuk mengakomodasi Sumber Daya Manusia (SDM) yang berkualitas tinggi perlu diorientasikan untuk mencapai ASN yang benar-benar profesional, bukan ASN yang malah tersub-ordinat oleh kondisi hierarkis, baik secara struktutral maupun kultural. PENUTUP Lahirnya UU-ASN merupakan momentum pembenahan sistem kepegawaian dan reformasi birokrasi di Indonesia. Sayangnya PPPK dalam UU-ASN ini belum diatur secara jelas dan tegas. Bila melakukan peninjauan secara filosofis dari eksistensi PPPK ini hadir gagasan kesetaraan (equality) pada relasinya dengan PNS sebagai 18


sesama ASN. Maka agenda penting selanjutnya yaitu memperkuat gagasan equality tersebut agar lebih praxis. Hal ini yang menjadi harapan agar PPPK tidak menjadi lagu lama “pegawai honorer” dengan kaset yang baru. Equality menjadi aspek penting yang perlu diinternalisasi dalam pemahaman para ASN, baik itu PNS maupun PPPK agar bisa saling memahami posisi serta perannya masing-masing dan saling berkoeksistensi. Kesetaraan yang dimanifestasikan pada pokok-pokok dasar hak ASN dalam relasi PNS dan PPPK ini menjadi pra-kondisi untuk melahirkan para aparatur yang profesional. Ada beberapa elemen penting yang menjadi daya dukung proses PPPK menuju profesionalisme yaitu pengabdian pada profesi, kewajiban sosial, dan kemandirian. Serta elemen pendukung: keyakinan terhadap profesi dan hubungan dengan sasama profesi. Profesionalisme PPPK dapat termanifestasi secara aktual bila mereka telah mencintai profesinya, menyadari penuh segala tanggung-jawabnya sebagai bagian dari kewajiban sosial bukan semata kewajiban instansi, dan memiliki kemandirian dalam keputusan kerja. Implikasi yang diharapkan pengabdian PPPK di pemerintah bukan sekedar menggugurkan kewajiban tapi melampaui itu, adanya wujud patriotisme dalam diri personil PPPK. Selanjutnya internalisasi ketiga elemen tersebut dapat mengkondisikan dua elemen berikutnya: elemen keyakinan terhadap profesi dan hubungan sesama profesi.

Hanafie, Haniah. 2014. Alternatif Sistem Pembayaran Pensiun Pegawai Negari Sipil. Jurnal Kebijakan dan Manajemen PNS Vol. 8, No.2, November, hal 43-50 Hayat. 2014. Peningkatan Kualitas Sumber Daya Manusia Aparatur Pelayanan Publik Dalam Kerangka Undang Undang Nomor 5 Tahun 2014 Tentang Aparatur Sipil Negara. Jurnal Kebijakan dan Manajemen PNS Vol. 8, No.1, Juni, hal 31-40 Prasojo, Eko dan Rudita, Laode. 2014. Undang-Undang Aparatur Sipil Negara: Membangun Profesionalisme Aparatur Sipil Negara. Jurnal Kebijakan dan Manajemen PNS Vol. 8, No.1, Juni, hal 13-29 Republik Indonesia. Undang-Undang Nomor 5 Tahun 2014 tentang Aparatur Sipil Negara Rosyadi, Slamet. 2014. Prospek Pengembangan Aparatur Sipil Negara Berbasis Merit: Peluang Dan Tantangan Untuk Membangun Birokrasi Profesional Dan Berintegritas. Jurnal Kebijakan dan Manajemen PNS Vol. 8, No.1, Juni, hal 53-60

DAFTAR PUSTAKA Denhardt, V, and Robert B. Denhardt. 2003. The New Public Service: Serving Not Steering. Armonk, N.Y : M.E.Sharpe. Direktorat Aparatur Negara. 2010. Manajemen Pengaduan Masyarakat dalam Pelayanan Publik. Bapenas: Jakarta. Hall, Richard. 1968. Professionalism and Bureaucratization, New Jersey: American Sosiological Review Haposan, Janri. 2014. Redesign Sistem Pensiun Pegawai Negeri Sipil Di Indonesia. Jurnal Kebijakan dan Manajemen PNS Vol. 8, No.2, November, hal 51-68 19


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