ANALYSIS OF GOVERNANCE POLICY IN CULTURAL VILLAGES OF SENTANI, PAPUA, INDONESIA

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1 International Journal of Civil Engineering and Technology (IJCIET) Volume 8, Issue, September 017, pp. 85 8, Article ID: IJCIET_08_0_05 Available online at ISSN Print: and ISSN Online: 07-1 IAEME Publication Scopus Indexed ANALYSIS OF GOVERNANCE POLICY IN CULTURAL VILLAGES OF SENTANI, PAPUA, INDONESIA Ibrahim Kristofol Kendi Office Administration Program, Faculty of Social and Political Science, Universitas Cenderawasih, Jayapura, Indonesia Jl. Uncen, Kota Baru, Abepura, Kota Jayapura, Papua 51, Indonesia ABSTRACT This paper is the result of field research on leadership dualism between the village government system with local government system (Ondoafi and Ondofolo) in Sentani, Papua, Indonesia. This leadership dualism leads to leadership rivalry that tends to lead to conflict. The approach used to examine this issue is descriptive qualitative approach. The research took place in several locations namely Sentani Timur, Sentani Kota and Sentani Barat. The results of this study indicate that among several alternative policies offered of status quo model, absolute model, modification model, and rational model, the best alternative that serve as a selected policy which is then recommended as a policy action of the cultural villages model in Sentani is rational model. This model emphasizes the boundaries of authority between Ondoafi / Onfolofo, solving the conflict between government and the local system in accordance with the respective legal consideration of the law No. of 014 and the customary law applied by local communities. This alternative is believed to be the best policy alternative, as it gets the first rating of all four measured policy alternatives. Keywords: Policy Model Analysis, Cultural Villages, Ondoafi and Ondofolo, Papua Cite this Article: Ibrahim Kristofol Kendi, Analysis of Governance Policy in Cultural Villages of Sentani, Papua, Indonesia, International Journal of Civil Engineering and Technology, 8(), 017, pp INTRODUCTION The policy and direction of development applied in the Papua Province has always been referring to the policy and development direction that has been handed down by national central government, especially during the New Order government (1-18). Such a situation calls for the resistance of indigenous peoples in Papua to defend the local institutions of social capital in dismissing any development policies that are deemed to be contrary to the real conditions of local communities. The law No. 5/17 on village government, and the law No. of 004 regarding Regional Government, and the law No. of 014 concerning Village Government, are some reflection of national policy orientation that were impressed 85 editor@iaeme.com

2 Ibrahim Kristofol Kendi without the consideration of local forces within a community groups. For instance, the district of Jayapura as a whole still exists to maintain the structure of the traditional government system (Ondoafi / Ondofolo). Nowadays in the tribal area of Sentani, there are two kinds of government system. Formal government system is village government and non-formal government system called traditional government. Village government is the lowest government in the Unitary State of the Republic of Indonesia under the district / district government. Traditional government, in another hand, is a native and tribal form of local government in Sentani that has existed since ancient times for generations (Dyah Irawati and Hinijajati 00: 0). This system of government is recognized by indigenous peoples as one of the most distinct and absolute organizational institutions of government, organized in a clear organizational structure, the division of authority based on strong cultural principles so that there is no abuse of the duty of authority in running the system of government. Even, before Irian Jaya (now Papua) was recognized as one of the provinces of the Republic of Indonesia, the system of Ondoafi's government was able to accommodate and serve the interests of the people in various patterns of life as a sovereign realm. Kris Tokoro (in Philipus Kepeuw 010) express that indigenous peoples of Sentani have their own model of government. Sentani people have lived in their own governance structures far before their territory was included to Indonesia. The structure of customary governance is known as customary rule, consisting of one Ondoafi (Village chief), kose (Tribe chief) and akhona. One Ondoafi oversees five tribal chiefs. In one tribe there are five akhona. Although the role mechanisms of customary institutions can be said to be weakening, in principle customary governance still has great authority and influence compared to formal system enacted by central government in Jakarta. This is driven by some important determinants. First, the customary government is rooted in local communities and geared to serve the public interest, while the government s model of formal leadership system tends to be conditioned to and function to serve the interests of the bureaucracy from the top. Secondly, the trust of magico-religious of locals that Ondoafi have the magical power, something that the village head and the headman do not have (Irma and Yeni: ). In determining the model of village governance in accordance with the conditions of indigenous peoples, Sentani s government structure of Ondoofi/Ondofolo is a governmental format in accordance with the customary system of tribal indigenous peoples, but in the process of governing it will certainly clash with the government policy above. Besides that, the existence of ondoafi/ondofolo in the structure of customary peoples of Sentani has absolute legitimacy. Moreover, the change of head of government carried out from generation to generation, so that this model is very contrary to modern law system of leadership succession embraced by the Indonesian government where the village head has the right to vote and be elected. Meanwhile, the system of village administration that has been uniformed nationally tends to cause conflict. Especially in Sentani, the enactment of uniformed model of the village government election, has led to leadership rivalry between the elected village head and ondoafi / ondofolo. Rivalry is due to the implementation of rural development programs by the elected head that the trend favoring the village administration system for facilitated by policies nationwide. In another side, Ondoafi / ondofolo in fact as the owners of customary rights are formally in powerless position. This study attempts to establish a model of village governance capable of accommodating the system of ondoafi / ondofolo government. The offered format is to maintain the stability of government policy in managing the system of village governance throughout the territory of Indonesia. Hence the system of village government still exists in Sentani region, while ondoafi / ondofolo governmental system is restricted to enter the formal aspect of government 85 editor@iaeme.com

3 Analysis of Governance Policy in Cultural Villages of Sentani, Papua, Indonesia to anticipate the occurrence of leadership intervention in the absolute system of ondoafi/ondofolo. The point is that the sacred sacred should not be intervened by an intervening law, but protective or providing protection. Another thing to consider is the occurrence of the omission process in case of abuse of authority by the village chief of ondoafi / ondofolo because of his absolute power.. RESEARCH METHODS The type of research used in this study is the qualitative research. The focus of this research is one village and one ondoafi / ondofolo government system representing a district area. Sentani Timur district is represented by Ondofolo of Sentani Timur and Asei Kecil Village. Sentani Tengah is represented by Ondofolo of Sentani Tengah and Lemongrass Village, and Sentani Barat is represented by Ondoafi Bambar and Bambar Village. Sources of data were obtained from the research sites, namely, customary council of Sentani, indigenous leaders, Ondoafi / Ondofolo, tribal chiefs, and heads of villages. The type of data used is qualitative data that explains the phenomena of local government's activities in responding to the traditional government structure of Ondoafi / Ondofolo as well as the cooperation of village government and traditional government in executing every government policy both program and regulation.. THE PROCESS OF PUBLIC POLICY ANALYSIS According to Quade, the origin of policy analysis is caused by the many unsatisfactory policies (Nugroho 004: 8). According to Dunn, policy analysis is an intellectual and practical activities aimed at creating, critically assessing and recommending knowledge about and within the policy process (Nugroho 014: 5-). Policy analysis is drawn from a variety of disciplines with the aim of providing descriptive, evaluative, or prescriptive information. Policy analysis is to answer three questions. First, value achievement is the primary gauge for judging whether an issue has been resolved. Second, the fact that the truth is able to limit or increase the achievement of values. Thirdly, measures whose application can generate achievement value (Nugroho, 014: 71-7). Wibawa (14: 5) interprets Meyer's explanation in Robert and Ernest that the policy analysis process intends to provide useful recommendations for public policy making. Further, according to Wibawa that in order to provide a good recommendation about a policy then in the analysis process contains alternative selection activities. Furthermore, in order to make a conclusion about the goodness of a policy (and of course its ugliness) an analyst must do research with adequate quality around the problem of the studied habits. Policy analysis is an intellectual thought that places position on all aspects needed in public policy process. Policy analysis in a prospective approach puts analysts to find the best alternative in solving public problems before there is policy action. Policy analysis of this model emphasizes more on the future of a public policy. Retrospective policy analysis is an ongoing analysis of ongoing policies while integral policy analysis places the analysis in the absence of policy and policy actions that are in place. This shows that policy analysis is the parent of all public policy processes. The process of public policy analysis of a series of intellectual activities carried out in the process of political activity. These political activities appear in a series of activities that include agenda-making, policy formulation, policy adoption, policy implementation, and policy assessment. Moreover, the activity of problem formulation is forecasting, policy recommendation, monitoring and evaluation of policy is more intellectual activity, (Subarsono: 00: 8) editor@iaeme.com

4 Ibrahim Kristofol Kendi Dunn (00: 1) discusses the stages of policy analysis in five procedures. First, formulation and definition of problem, to provide information about the conditions that give rise to policy issues. Second, forecasting or prediction, provides information about the future consequences of the implementation of policy alternatives, including not doing anything. Third, recommendation, provides information about the relative value or usefulness of the consequences in the future of a solution to the problem. Fourth, monitoring, produces information about the current and past consequences of the application of policy alternatives. Fifth, evaluation, provides information on the value or usefulness of the problem solving or problem-solving consequences. In the preparation of the agenda, there are three activities that need to be done in the policy analysis. First, establishing a perception amongst stockholders that a phenomenon is really considered a problem. Because there a condition in which a by a phenomenon is considered a problem by particular group of people but is not by other. Second, creating a problem restriction. And, third, mobilizing support so that problem are included in the government agenda (Subarsono, 00: 11). Here, when stakeholders are competing to fight for their own interests, a policy issue that can successfully included on the policy agenda is highly dependent on political lobbies built either individually or in groups. It is also strongly influenced by the role of mass media in highlighting a problem until it becomes a public issue that is certainly solved only by public policy. Policy alternative is a course of action that allows it to be done that can contribute to the achievement of value, as well as the solution to a policy problem (Dunn 11: 15). In other words, the alternative policy is the process of creating a policy alternative. According to Effendi, alternative policy-making techniques can be divided into two methods. First, feasible manipulation method, first introduced by Peter I May, so often called May method, is the formulation of policy alternatives by finding or engineer based on input obtained so that the public can arrange alternative that is compile policy variable and determine level of engineering from various alternative to rational strategy. Second, administrative feasibility. This criterion includes the sub-criteria of institutional commitment and capability, and organizational support as well as of authority regardless of whether it has enough authority implementing the policy, institutional commitment, concerning the commitment of the administrators of the upper level to the lower level. Capability regarding the capabilities of the apparatus, both conceptual abilities and skills. While the definition of organizational support is the presence or absence of support from the organization implementing the policy.. A BRIEF OVERVIEW OF LEADERSHIP DUALISM IN SENTANI In Sentani, there are two systems of government. The first system of village administration under the law no. of 014 on village government and the traditional model of village government based on acquired hereditary Ondofolo. Two systems of government have very different powers. The authority of the village administration is nationally uniformed while the authority of the ondofolo government is an authority regulated through customary law mechanisms within a region of customary administration. The existence of a village governance system gains wider authority because it is accommodated in a national policy, while the Ondoafi/Ondofolo government only serves as a local institution that is not legitimated by any policy in national realm. Given the differences, the District Government of Jayapura that is administratively Sentani's parent territory seeks wisely to find the right model of government so that these two institutions work together in building the community, especially the native people of Sentani. Situation Issues. There are several problems that arise as a result of the absence of an appropriate village governance format, where the current model of village governance has not editor@iaeme.com

5 Analysis of Governance Policy in Cultural Villages of Sentani, Papua, Indonesia been able to configure all the interests of indigenous peoples. The implementation of nationally uniformed village governance system throughout the Indonesian has provoked a conflict between the village head appointed by government or elected by local community and the head of the customary villages, that in Sentani is carried out by Ondoafi / Ondofolo. The law no. 5 of 17, no. of 00, and no. of 014 provide wide awareness for village government in managing administrative interest at the village level. In other side, the institution of ondoafi is merely an customary institution which has an abstract authority resulted from the recognition of indigenous peoples. Since having no legal foundation, a national scale this institution is in a position of powerless. Hence, the government should take care of taking appropriate steps in overcoming this dualism problem. Although the sovereignty of the institution of ondoafi has been acknowledged for generations but the position of head of village is not absolute held by ondoafi / ondofolo because the process of village head election is done democratically, not inherited system. Meta Problems. The democratic election at the village level allows every citizen has the right to be nominated and run for chief. As a consequence in the cultural villages, communities is maybe not necessarily satisfied with this democratic system, since this will emerge a conflict between the traditional leader (king) and the performance of a village head. Moreover, it is seemingly not appropriate to appoint a Ondoafi as head of village, as it is feared authoritarian leadership that can be created by holding two positions at once. If this is the case, the performance of a village head will be in difficult position to implement his responsibility. This will also lead to interference of ondoafi sacred and respected values with the interests of the government. Substantive Problems. Based on the above-mentioned description, the substantive problem in determining the model of the right village administration in Sentani Jayapura Regency is how formulation of policy offered by local government that can become guidance and reference for in overcoming leadership dualism by determining the best policy alternative that will be recommended in process policy formulation and to what extent the involvement of indigenous peoples in determining the appropriate model of village governance for their survival. Aim. The aim of government policy with regard to design the governance model villages in Sentani, Jayapura district are creating a settlement formulation dualism leadership by analyzing the right governance model village which is representing the village administration with keondoafian institutions. Furthermore, the realization policies aimed at managing the relations of cooperation between the village head Ondoafi / Ondofolo institutions in relation to the implementation of public policies at the village level. In addition, the aim of policy analysis is to assess the existence of the act No. of 014 on village government as a state recognition and tolerance to the existence of the local forms of governance administration. Finally, the aim is to straighten out the contradictions that occur associated with the authority attached to both institutions. Target. In order to achieve the goals targeted, with the policy, then the goal should be carried out by identifying the factors of success and failure of implementation of a unified system of village administration throughout Indonesia. Furthermore, the target is to optimize the completion of duality leadership through appropriate governance model village that village governance model that accommodates the interests of the cultural village administration of ondoafi institutions. Lastly, the target is as a representative to distribute authority between village government and ondofi institutions within the framework of modern regulations, political order and government system of nation-state editor@iaeme.com

6 Ibrahim Kristofol Kendi 4. CONSIDERATIONS OF POLICY ACTION Based on the objectives and targets that have been determined in the formulation of policy issues, it is necessary to review the policy variables to determine the level of social and political engineering that will be used as policy alternatives. The variables in determining the policy governance model villages in Sentani Jayapura district include the application tool in determining the model of government, such as by comparing system of government which can solve the problems of indigenous communities of Sentani Effective and efficient manner. Furthermore, the other steps are by establishing a policy that has the legal power of authority in a rational separation between village government institutions of Ondoafi / Ondofolo, and by reviewing back the authority of ondoafi institutions based on customary law as well as the village administration stipulated in the law No. of 014 on village government. The last is by aligning leadership dualism contradiction between keondoafian village government institutions. In relation to selected policy alternatives that will be recommended as appropriate models of village governance, it can be measured through criteria as well as standard of assessment for selected considerations. Technical Feasibility. The technical feasibility is classified to two forms of consideration of (1) the effectiveness in choosing or determining the model of village governance right in accommodating the interests of indigenous peoples of Sentani, and () the ability of policy alternatives in solving problems. In choosing or determining the model of village governance right in accommodating the interests of indigenous people s sentani, it must be done by considering the fact that the ondoafi / ondofolo system is as absolute as the absolute monarchy system. If the system of ondoafi / ondofolo government is used as a model of customary village, then the effectiveness of this alternative policy can be measured through consensus in a deliberation. However, besides its absolute element, the decision-makings in ondoafi / ondofolo system are generated through the stages of deliberation and are bottom up. With the authority possessed, chieftains (khose) carry out their duties and responsibilities according to applicable customary rules. The resulting decision is certainly through the stages that have been arranged in the system of government. This means that the community is certainly following all the decisions generated. For example, when the Forum of Development Planning (Musyawarah Perencanaan dan Pembangunan/Musrenbang) conducted and led by Ondoafi / Ondofolo, the proposed village development program proposed by chiefs (khose) will proceed to the subdistrict level and then proceed to the district level, past the stage of preparation of the program that starts from akhona. Each akhona proposes what programs are a priority and are urged to be resolved by the government. The proposal will be continued to the subdistrict level to be discussed and continued to the district government. Automatically the proposal is then escorted into a real program. Second the ability of policy alternatives in solving problems. The issue of leadership dualism will not arise, if the system of ondoafi / ondofolo government is really used as a model of indigenous villages for indigenous peoples of Sentani. Besides, other issues that will be resolved by indigenous peoples of Sentani to re-find their identity as indigenous communities with a number of customary laws that have been lost by efforts to uniform system of village governance throughout Indonesia. The decision made in the customary realms is the best decision because of its accordance with the applicable customary rules. Economic and Financial Possibilities. This possibilities is done by determining (1) the efficiency of existing resources to determine the model of village governance, () benefits gained from using policy alternatives, and () the cost efficiency of problem resolution editor@iaeme.com

7 Analysis of Governance Policy in Cultural Villages of Sentani, Papua, Indonesia To determine the system of ondoafi / ondofolo government as a model of customary village governance, it is necessary to think of a specific strategy. Basically, the model of customary village in the forms of the system of ondoafi / ondofolo government is the answer to the demands of special autonomy which has been strived as the policy of acceleration of native-style development, generally demanded by Papua peoples and more specifically by Sentani indigenous peoples. When this alternative policy is recommended as the best alternative, it will enter the lobbying phase at the legislative level. At this stage, the executive ascertained requires adequate resources to smooth the policy alternative as a product of regional policy. At this stage, the political elite, especially the legislature, has considerable authority in determining whether this policy recommendation is worth discussed or not. It is at this stage that the executive is faced with the risk of political costs. In terms of benefits gained from using policy alternatives, there are impossible to organize the village head election since the village heads in Ondoafi / Ondofolo were endorsed by lineage drawn through a straight line with the founder of the village (Yo) and is the eldest son of the former Ondoafi / Ondofolo. So, the position is based on the principle of patrilineal primogeniture. The implication henceforth is that the position of the leader or head is the acquisition or ascribed status. Every eldest son of Ondofolo is entitled to take over the position if the functionary is no longer able to carry out his duty because of old age, sick or died. There are two things that are very profitable if the system of cultural village governance is really implemented. First, the possibility of the absence of the cost of organizing elections because the village is the acquisition of the governmental system or ascribed status rather than elected. Second, the structure of government and their respective tasks functionaries is systematic and refers to the traditional order in a region of the customary area, having no need a power source to define it. In terms of the cost efficiency of problem resolution. In preparing the development program through the Forum of Development Planning (Musyawarah Perencanaan dan Pembangunan/Musrenbang), each functionary (khose/chieftains) adapted to the task and responsibility in each village has been aware of their respective duties and responsibilities, whether in security, economy / welfare of people, etc. Political Viability. The political viability is classified into four aspects in terms of the level of public acceptance, conformity, legality and justice. The level of acceptance can be classified into two, the Jayapura regency legislative authority and a group of indigenous peoples of Sentani. The mandate of the special autonomy policy to date has not been evident in the life of the Sentani indigenous people. Cultural villages are a common interest of both indigenous peoples and local legislators of Jayapura regency. This is apparent in the legislative membership which is actually originated from cultural villages. Therefore, it is certain that this policy alternative is acceptable by members of the regional legislative of Jayapura and the indigenous peoples of Sentani. In terms of conformity, the presence of village government system and traditional government system of Ondoafi / ondofolo accommodate two different groups of people. Village governance system based on the law no. of 014 uniformed throughout Indonesia is to accommodate all community groups, both indigenous and non-indigenous people associated with various programs of village development. Traditional customary government, such as Ondoafi / Ondofolo, regulates indigenous peoples groups and clans of civilians. As a result, if there is a group of people who do not have a clan of civilians but domiciled within the territory of customary area, they will have no right to regulate, especially in terms of implementation of development policies at the village level. If these two systems of government are separated in accordance with the corridors of modern law and customary law, editor@iaeme.com

8 Ibrahim Kristofol Kendi the interests of community groups that are systemized in both systems of government are well accommodated without any discrimination. In the aspect of legality, Jayapura district government provides capacity strengthening of indigenous peoples by presenting indigenous village policies throughout the territory. The customary villages then put the head of customary government of Ondoafi / Ondofolo as head of the village along with the tools drawn from the structure of customary government. Since it will be very contrary to the modern law if the policy is enacted legally, the separation of customary government system within the framework of customary law as stipulated in the law no. 1 of 001 on special autonomy for the province of papua, as well as the system of village administration organized in the law no. of 014 on village government is really required. Finally, in the element of justice, as an addition to legal aspect, there is a question whether the policy alternatives being offered to promote distributive justice. Administrative Eligibility. In terms of administrative eligibility, there are some considerations need to be solved, of the authority, institutional commitment, capacity and organizational support. In terms of authority, the regional autonomy policy that has implemented throughout the Indonesia since the fall of New Order regime in 18 gives broad authority to local governments to implement development policies in the region in accordance with the potential possessed by the region. Local values then determine all aspects of community life. Especially in Papua, all aspects of society, including strengthening the capacity of indigenous, is regulated in the law no. 1 of 001 on special autonomy for Papua province. This then gives the authority to the Jayapura district government to implement measures to enhance the capacity of indigenous peoples through enacting policies to regulate the cultural villages thorough Jayapura district. Jayapura regency government which represents the central government and indigenous peoples at once has strong authority to separate traditional governance system and democratic village governance system in accordance with the mechanism of modern law and customary law. In the aspect of institutional commitment is regarding the commitment of administrators ranging from local government level to the lowest level in the rural and urban areas. The declaration of indigenous villages that took place in Kampung Ayapo Sentani Timur few years ago, along with the maintenance of the system of traditional government in rural areas to date proves that the commitment of local governments in terms of strengthening the capacity of indigenous peoples as well as the presence of village administration system equally contributes to implementation of development in the village level. The capacity relates to the ability of conceptual ability and skill of local government officials. Legislative members in Jayapura are quite representative, in which there are many members originated from indigenous people. Even, the regent is Sentani native. This means that the capacity of members of the legislative and executive represents of both the formal and traditional systems of government. In terms of organizational support, all the components involved in the implementation of development policies in the village is very supportive to the separation of these two institutions. All parties as well as officials have different capacities, but having the same goal, evidenced by their support for the declaration of indigenous villages. 5. MEASUREMENT To get a more detailed explanation of the values of above-mentioned considerations, the following matrix will clearly present the values. To determine the selected policy alternatives as seen in the following matrix is inseparable from the inputs initiated by various stakeholders who are considered to have a relationship with the generated public policy, including the 85 editor@iaeme.com

9 Analysis of Governance Policy in Cultural Villages of Sentani, Papua, Indonesia regent, the legislative, Papuan people assemby (Majelis Rakyat Papua/MRP), the district secretary, Cultural department (Dewan Adat), Community and Village Empowerment Board of Papua Province (Badan Pemberdayaan Masyarakat dan Kampung Provinsi Papua /BPMK), Papuan cultural assembly (Dewan Adat Papua/DAP), and Sentani s cultural assembly (Dewan Adat Sentani/DAS), Ondofolo and Khoselo in Sentani subdistrict. For the weighting done by policy makers and stakeholders, analysis of the proposed weighting of above considerations is conducted by giving the weight value, ranging from 1 (low), (moderate), to (high). Moreover, for the weighting done by policy makers and stokeholders weighting analysis of 11 proposed criteria (see. Table 1) Table 1 The Description of Measure Items of Selected Considerations Selected Considerations Items Description Technical Feasibility Economic and Financial Possibility Political Viability Administrative feasibility Effectiveness Coverage or capability of problem solving Resource Efficiency Advantages Cost Efficiency Acceptance Level Appropriateness Responsiveness Legality Justice Authority Institutional Commitment Capacity Organizational Support Effectiveness of village governance model offered The ability of policy alternatives to solve the problem of dualism leadership The efficiency in using existing resources to resolve the dualism of leadership The advantage gained from using alternative policies The cost efficiency in solving the problem Acceptance level of indigenous people on the selected model of village governance. The policy alternatives offered are not contrary to the values of society The policy alternatives offered in accordance with the needs of the community The policy alternatives being offered does not conflict with existing legislation Justice, alternative policies offered can promote equity and justic The implementing organization in this case the customary government and community leaders have enough authority Commitment of administrators from top to bottom level in designing the right village governance model Capability of personnel both conceptual ability, and skill in designing the right governance model village The presence or absence of support from the organization implementing the policy 80 editor@iaeme.com

10 Ibrahim Kristofol Kendi Policy Criteria Table The Matrix of Selected Considerations of Policy Criteria Status Quo Model (The model of village government following the form of government determined by the central government, applied equally throughout Indonesia) Selected Model of Governance System Absolute Model (The village governance structure is controlled only by ondofolo) Modification Model (The village head is held by ondoafi / ondofolo while the village secretary and his staff are taken from the lower classes or other community groups) Rational Model (The existence of limits of authority as stipulated in modern law and customary law) Technical Feasibility Effectivity Coverage Resource Efficiency Advantages Cost Efficiency Acceptance Level Appropriateness Responsiveness Legality Justice Authority Institutional Commitment Capacity Organizational Support Medium (), capable of solving the problem but less effective. High (),The cost of problem solving is covered and very efficient. Low (1), not all indigenous peoples accept this form of government, seen as inappropriate and unjust model because it is less responsive in balancing people's preference for customary law. High (), having high authority and supported by institutional commitment, extensive capacities and enormous organizational support. Medium (), capable of solving the problem but less effective. Economic of Financial Possibility Low (1), the cost of completion is efficient but ineffective. Political Viability Low (1), incapable of solving the problem and not in accordance with the democratic values. Because it is not in accordance with national law, the possibility of this model is likely not responded positively by the government. Administrative Operability Medium (), having authority only limited to indigenous peoples, institutional commitment is less strong, capacity is limited to indigenous peoples as well as with organizational support. Medium (), capable of solving the problem but less effective. Medium (), the cost of problem solving is low. Medium (), allowing the level of acceptance of indigenous peoples to be quite good but injuring customary law High (), the authority is quite strong because it is supported by national law and customary law. The government's commitment is sufficient because it accommodates both institutions, the capacity is strong enough and supported by the government. High (), capable of solving the problems effectively and very representative coverage. High (), the cost of problem solving is very effective. High (), the acceptance level of indigenous peoples is very good, and representative, capable of balancing the roles between the formal village government and the Ondoafi institution. There is a balance of legality between modern law and customary law. High (), the authority of indigenous peoples is very high supported by both customary law authorities, as well as government support. The separation of institutions and the combination of customary values with positive law resulted in very high organizational support. The weighted value editor@iaeme.com

11 Analysis of Governance Policy in Cultural Villages of Sentani, Papua, Indonesia. SELECTED POLICY ALTERNATIVES OF VILLAGE GOVERNANCE To get the best alternative is required prudence and diligence in formulating policies and providing measurements of the criteria assessed. In designing the right governance model of cultural villages, it is needed the measures and assessments of selected policy alternatives. Based on the field research, the selected model of policy alternatives includes status quo model, absolute model, modification model and rational model. Status Quo Model. Technically, the government's ability to execute all the rural development policy in Sentani is very high, especially regarding the fact that it has legal basis both in local and national scope. However, the model of democraticcaly elected village administration has not included the cultural characteristics of indigenous people of Sentani structured in one original government structure called the Ondoafi / Ondofolo. Since having a strong resource to run the model of village administration all regions of Indonesia, the central government is regarded as authoritative and powerful. The government authorities, institutional capacity and commitment strongly supports enactment of village administration system nevertheless the acceptance level, the feasibility of the implementation of village administration system, responsiveness of local society to this governance model. Base on these considerations, the status quo policy alternative has a rating of three of the four policy alternatives offered. Absolute Model. Absolute policy alternative has the ability to accommodate the demands of indigenous peoples who want that the village heads and their staffs is based on the Ondofolo structure of government. This absolute governance model has the ability to overcome the polemic associated with the loss of identity of indigenous peoples regarding Sentani s original governance model which acquired through hereditary. In terms of costeffectiveness and benefits, this model is very adequate that decisions on implementation of development policies of villages will be absolutely unchanged because of Ondofolo uncontested decisions by anyone. Although the authority, capacity and organizational support in this model are limited but the acceptance level, responsiveness and feasibility of solving the loss of identity of indigenous peoples of Sentani with the implementation of the governance system Ondofolo is considered sufficient. The legal aspect of this policy alternative is quite contrary to the democratic agenda that is predicted as a major issue today, especially in the election process in which the person is entitled to have the power by election. This alternative has lowest approval ratings in the measurement criteria of four alternative policy options offered. Modification Model. The third policy alternative has the ability to resolve the polemic by balancing the power of democratic institutions and Ondofolo institutions. In terms of cost efficiency, this governance model has the opportunity to resolve the dualism of leadership, so the level of resource efficiency can be regarded as low cost because it involves many parties to take the duties of managing the village. Authority capacity and support organization are considered low because each party fighting for the interests of each. This alternative shows the sufficient level of acceptance, responsiveness and legality but facing the possibility of distorted management caused by fighting parties. This alternative has the second-highest rating of four policy alternatives. Rational Model. The boundaries of authority between the democratic village government and the Ondolofo village government have been set in positive law and customary law. The fourth policy alternative of rational model can be considered as the best policy alternative. Technically the ability and effectiveness of solving problems, especially the rivalry between Ondofolo and democratically elected village heads in various aspects can be organized 8 editor@iaeme.com

12 Ibrahim Kristofol Kendi according to the laws of each domain. The village administration as contained in the law No. of 014 has adequate capacity. Moreover, the realm of customary law which can not be intervened by various parties that are not recognized in customary community of Sentani. In terms of resource efficiency, each institution can execute their interests as stipulated in the respective government systems. Thus, based on the characteristics of policy alternatives being offered by cumulative scores, the average score of advantages and disadvantages of each alternative and the results of the weighting given by policy makers / stakeholder, the policy alternative recommended in determination of village governance model is the fourth policy alternatives, regulating the existence of boundaries between democratic government and ondolofo system. Policy Criteria Table Selected Policy Altenatives of Village Governance System Status Quo Model (The model of village government following the form of government determined by the central government, applied equally throughout Indonesia) Selected Model of Governance System Absolute Model (The village governance structure is controlled only by ondofolo) Status Quo Model (The model of village government following the form of government determined by the central government, applied equally throughout Indonesia) Absolute Model (The village governance structure is controlled only by ondofolo) Technical Feasibility () () () () Effectivity Coverage Economic of Financial Possibility () (1) () () Resource Efficiency Advantages 4 Cost Efficiency 1 1 Political Viability (1) (1) () () Acceptance Level Appropriateness Responsiveness Legality Justice 4 4 Administrative Operability () () () () Authority Institutional Commitment Capacity Organizational Support Legal Feasibility The value Stakeholder values Total editor@iaeme.com

13 Analysis of Governance Policy in Cultural Villages of Sentani, Papua, Indonesia 7. STRATEGIC IMPLEMENTATION PLAN Based on the recommendations analyzed above, the best alternative to get the best or ideal format is the existence of the boundaries of authority between the democratically elected village government and the Ondofolo village government. This policy alternatives basically give space for the democratic government as well as government agencies of Ondofolo in managing their respective authorities. The involvement of various parties, (Ondofolo, Khoselo, Abhu Akho, Abhu Afa, Akhona Fafa, local government, the village head) will at least result in a decision that is clearly and firmly about the position and the legality of these two institutions. Hence, government should make more efforts to set the balance in various aspects related with the implementation of public policies at the village level. To estimate the steps that must be taken in the implementation of policy measures, is necessary to do the seminar by emphasizing the importance of separation between government institutions of Ondofolo and the formal village administrations, because technically, these two institutions are very different from the authority in terms of institutional arrangement and execution of public policy. Secondly, it should be emphasized the importance of the formulation of the basic principles underlying the separation between the formal and traditional one, by considering the fact that the formal village government give more emphasize on the transparent selection process, while Ondofolo institutions adopt hereditary rules in succesion that not allow any electoral process. Third, the government should prepare the agenda and possible mechanisms of these two institutions to work together in the development process of the village. Fourth, is necessary to identify the key points that allow both organizations to work together, for example, make regulations that integrate the values of Ondoafi with formal village regulations. In relation to the criteria that serve as a standard for assessment of these policy actions, this study provides four assessment criteria. First, technical feasibility. In connection with the existence of dualism of leadership at the village level in Sentani district then the rational model is a very effective policy alternative to overcome the problem because each system of government does not interfere with each other. The system of village governance can only be overcome by formal government policy while ondoafi / ondofolo is at a level of value that has been understood and executed as part of the life of the Sentani people. And, the most important is the separation of these two systems of government to realize the goal of the administration of a sovereign village government and able to solve the problem of leadership dualism that has the potential to cause conflict. Second, political viability. Members of the legislature have different interests. The differences are based on political messages between legislators and their constituents. There are constituents of indigenous peoples that want the sovereignty of the system of ondoafi / ondofolo, but there is also a need for the separation of the two systems of government. Thus, the level of acceptance of these policy alternatives also varied. Therefore, the chosen policy alternative of rational model is a very appropriate policy alternative because it involves the level of acceptance of legislative members of Jayapura regency and its constituents. The choice of selected policy alternative of rational model which wishes for this separation of powers is not contradictory to the values that exist in the society, because it actually clarifies the scope of duties of each system of government and does not interfere with each other. The separation of powers of this system of government has been in accordance with the needs of the community, namely the traditional groups and the community groups outside the traditional groups in Sentani district, such as those who live in the district of Jayapura. On the other hand, the policy alternative is legal because it does not conflict with modern law applied within Indonesia territory. Furthermore, in the aspect of equity or fairness asked whether the policy is to promote equality and justice in society, the chosen policy 84 editor@iaeme.com

14 Ibrahim Kristofol Kendi alternative of rational model is the crystallization of thought of the entire community to meet the level of public acceptance, appropriateness, responsiveness, and fairness. 8. CONCLUSION The issues of traditional village, especially in the territory of Jayapura district is being demanded toward the community and government response on strengthening the capacity of local institutions that has been confined within central government policies that seem repressive for decades. The results of this study reflect that in determining the model of the traditional village in Sentani, there are a number of variables that affect the application of the traditional village. Applying mere customary law in indigenous communities of Sentani is contrary to the Indonesian government policy that requires the existence of democratic processes in all aspects of governance system in all levels. These two different legal spheres demand rigor in analyzing and determining the models of cultural village governance that are not only positioning the indigenous peoples of Sentani as a connoisseur of development unilaterally, but by accommodating the inhabitant desire as a representative in the implementation of village development. The study has led to offer four policy alternatives that can be used as alternative policies to determine the governance model selected in indigenous villages in Sentani, Jayapura district. The results show that the rational model is the best alternative that is then recommended as the selected alternative. This model is regarded capable of balancing and distributing the power and duties between formal village government and Ondoafi / Ondofolo administration related to village development policy implementation. This means that these two institutions persist in carrying out their duties and functions in accordance with the legal position in their respective administration. Accordingly, there are some recommendations implied by these results. To maintain a balance between these two institutions, Jayapura district administration should identify the preferences obtained based on the substance of the law of each governance system. Furthermore, if these two institutions are separated, hence there are needs for the limits of the authority regulated through local policies. The institutions of Ondoafi/Ondofolo function as the Papuan representative in village level, meaning that its coexistence with democratic governance is considered able to give useful considerations toward every implementation of development at the village level based on customary law that has been adopted for generations by indigenous peoples of Sentani. Thus, there are needs for collaboration values in one Ondoafi product policies specifically regulating spatial planning of cultural village (Khani He Kla He). REFERENCE [1] Adiyoso Wingyo, 00, Menggugat Perencanaan Partisipatif dalam Pemberdayaan Masyarakat, Putra Media Nusantara, Surabaya. [] Alfitri, 011, Community Development, Teori dan Aplikasi, Pustaka Pelajar, Yogyakarta. [] Dyah Irawati, Hanijajati Didjaya, 00, Eksistensi Sosial Politik Dewan Customary Papua dalam Pemberdayaan Masyarakat (Studi Kasus Dewan Customary Sentani di Sentani Kabupaten Jayapura, UKI Press, Jakarta. [4] Dwidjowijoto, Riant Nugroho, 011, Public Policy, Dinamika Kebijakan, Analisis Kebijakan, Manajemen Kebijakan, PT. Alex Media Komputindo, Jakarta [5] Hikmat Hari, 004, Strategi Pemberdayaan Mayarakat, Humaniora Utama Press, Bandung Indonesia editor@iaeme.com