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Dalam era otonomi daerah melalui konsep pembangunan daerah, maka perencanaan dimaknai sebagai bagian penting dalam kegiatan pembangunan. Konsep desentralisasi yang melahirkan otonomi daerah membawa perubahan paradigma pembangunan dari perencanaan yang bersifat sentralistik menjadi perencanaan partisipatif. Perencanaan pembangunan partisipatif pada mulanya dipopulerkan oleh Korten (1984) yang menyebut istilah people centered development yang menekankan peningkatan potensi manusia. Berdasarkan pemahaman tersebut maka sudah sewajarnya bahwa pembangunan daerah mensyaratkan partisipasi masyarakat dalam tahap perencanaannya. Partisipasi masyarakat akan menguatkan tingkat kepercayaan (akuntabilitas) dan rasa kepemilikan masyarakat terhadap pemerintah daerah. Lebih lanjut menurut Conyers (1994) mengemukakan 3 alasan utama mengapa partisipasi masyarakat dalam pembangunan menjadi penting: Pertama, masyarakat merupakan sumber informasi mengenai kondisi, kebutuhan dan sikap masyarakat setempat; Kedua, masyarakat akan lebih mempercayai program kegiatan pembangunan apabila mereka dilibatkan dalam persiapan dan perencanaannya karena meningkatnya pengetahuan masyarakat dan akan mempunyai rasa saling memiliki terhadap program; dan Ketiga, mendorong partisipasi umum karena timbul anggapan bahwa prinsip-prinsip demokrasi akan tercapai jika masyarakat dilibatkan dalam perencanaan. Vox populi vox dei (suara rakyat adalah suara Tuhan).
Dalam pelaksanaannya, partisipasi publik dalam perencanaan pembangunan daerah menemui berbagai kompleksitas permasalahan. Kenyataan di lapangan menunjukkan bahwa masyarakat hanya dimintai aspirasi-aspirasinya terutama kebutuhan-kebutuhan tanpa adanya feedback berupa jaminan. Terkesan formalitas partisipatif (Abe, 2005). Permasalahan tersebut terjadi di berbagai daerah di Indonesia. Dalam penelitiannya, Hastiyanto (2013) menyebutkan bahwa peran teknokratis pemerintah masih sangat besar dalam proses perencanaan pembangunan daerah. Masyarakat dilibatkan berpartisipasi namun tidak ada jaminan terhadap hasil partisipasi yang dilaksanakan pemerintah. Lebih lanjut, keputusan akhir dari partisipasi tetap berada di tangan elitis lokal yang belum tentu bisa mewakili kelompok masyarakat kelas bawah (Deviyanti, 2013; Wirawan, 2015). Dalam penelitian yang lain, Muluk (2007) juga menyimpulkan bahwa partisipasi masyarakat yang terjadi selama ini juga belum ideal dalam artian belum sampai pada derajat kendali warga (citizen control). Kendali warga akan memungkinkan masyarakat sebagai penentu tunggal penentuan kebijakan.
Disisi lain, kelemahan krusial dari pelaksanaan partisipasi publik dalam perencanaan pembangunan daerah adalah rendahnya kesadaran dan kemampuan masyarakat untuk berpartisipasi. Menurut Muluk (2006) kesadaran berpartisipasi menyangkut kesiagsiagaan mental dan sikap untuk melakukan aktivitas berpartisipasi sedangkan kemampuan berpartisipasi dipengaruhi oleh tingkat SDM masyarakat. Rendahnya tingkat SDM juga berpengaruh pada tingkat kemampuan masyarakat untuk berperan aktif dalam perencanaan pembangunan daerah. Lebih lanjut Abe (2005) menambahkan bahwa selama proses transformasi kapasitas masyarakat dan keterampilan masyarakat tidak dilakukan, maka partisipasi hanya akan terlihat sebagai formalitas partisipatif sedangkan realitas sesungguhnya adalah hegemoni dan manipulasi. Untuk mengatasi permasalahan tersebut maka diperlukan keterbukaan pemerintah daerah untuk memberikan informasi yang seluas-luasnya kepada masyarakat tentang rencana yang akan disusun.
Sebenarnya masalah partisipasi bukan hanya bagaimana upaya membuka ruang partisipasi bagi publik tetapi juga bagaimana menindaklanjuti hasil partisipasi. Tidak ada jaminan terhadap usulan-usulan masyarakat dan dominannya eksekutif dalam forum akan menjadi formalitas partisipatif. Jaminan hasil partisipasi akan diakomodir dalam perencanaan pembangunan daerah itulah yang disebut dengan perencanaan bergaransi.
Menjawab berbagai kritik partisipasi publik terhadap pembangunan daerah, Bappedalitbang selaku institusi perencanaan di daerah memberikan ruang seluas-luasnya kepada masyarakat untuk berpartisipasi menentukan pembangunan daerahnya tidak hanya melalui forum resmi seperti Musrenbang. Komunitas Bagimu Trenggalek yang diketuai oleh M. Indra Setiawan langsung memberikan respon positif dengan membuat sebuah festival gagasan yang dapat diikuti oleh seluruh lapisan masyarakat bahkan PNS diperbolehkan untuk berpartisipasi mengemukakan gagasannya.
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Adanya festival gagasan tersebut dapat dimaknai sebagai sebuah upaya penyadaran masyarakat dan peningkatan kapasitas atau kemampuan masyarakat untuk berpartisipasi. Pada tanggal 24 Maret 2018, komunitas Bagimu Trenggalek melakukan launching dan sosialisasi kepada seluruh stakeholder terkait termasuk perwakilan OPD di Kabupaten Trenggalek. Dalam acara tersebut, dilakukan penandantanganan MoU antara ketua Bagimu Trenggalek dengan Pemerintah Kabupaten Trenggalek yang saat itu diwakili oleh Kepala Bappedalitbang. Pada intinya isi Mou tersebut adalah pemerintah Kabupaten Trenggalek akan menindaklanjuti hasil festival gagasan dengan memasukkannya pada rencana pembangunan daerah khususnya Rencana Kerja Pemerintahan Daerah (RKPD). RKPD inilah yang akan menjadi cikal bakal APBD. Mou itulah yang menjadi garansi Pemerintah Kabupaten Trenggalek terhadap hasil partisipasi publik oleh festival gagasan.
Penyelenggaraan festival gagasan berhasil mengumpulkan 99 gagasan. Dari 99 gagasan tersebut diseleksi menjadi 18 gagasan. Kedelapanbelas gagasan tersebut kemudian dipaparkan dihadapan juri dan panelis pada tanggal 24 April 2018. Adapun juri yang dilibatkan adalah Kepala Bappedalitbang, Sekretaris Inspektorat dan Bonari Nabonenar (budayawan). Sedangkan panelis yang akan menilai dan menguji gagasan diantaranya: 1) Nandang Suherman – Perkumpulan Inisiatif Bandung; 2) Dakelan – Fitra Jatim; 3) Sulung Muna Rimbawan – Ombudsman Jatim; 4) M. Saiful Rohman – Dwily Farm; dan 5) Soeripto – CSO Trenggalek. Dari hasil penilaian juri dan panelis maka terpilih 9 gagasan terbaik yang terdiri dari 3 gagasan bertema ekonomi kerakyatan, 3 gagasan bertema pelayanan publik, 1 gagasan bertema peningkatan PAD, dan 2 gagasan bertema reformasi birokrasi. Sembilan puluh gagasan lainnya yang tidak terpilih bukan berarti tidak baik. Kesembilan gagasan yang terpilih merupakan gagasan yang paling mungkin untuk diimplementasi oleh Pemerintah Kabupaten Trenggalek, memberikan nilai manfaat, ada unsur kebaruan dan sesuai dengan permasalahan yang dihadapi. Menurut Abe (2005) pada dasarnya seluruh pendapat masyarakat tidak harus diakomodasi secara keseluruhan. Perlu dilakukan pemilahan mana yang benar-benar menjadi kebutuhan atau hanya keinginan semata.
Berdasarkan hasil festival gagasan tersebut, Bappedalitbang mengundang OPD terkait yang akan melaksanakan kesembilan gagasan terpilih pada tanggal 18 Juli 2018. Acara tersebut adalah bentuk komitmen Pemerintah Kabupaten Trenggalek untuk menjamin hasil partisipasi akan dilaksanakan oleh OPD terkait. OPD yang terkait dengan 9 gagasan terbaik ada 17 OPD. Kesimpulan dari rapat tersebut adalah sebagian besar gagasan sudah dilakukan oleh OPD namun perlu penajaman pelaksanaan kegiatan agar lebih berjalan optimal. Beberapa item dalam gagasan ada yang tidak dapat dilaksanakan karena terbentur dengan peraturan perundang-undangan atau belum sesuai dengan kemampuan teknis OPD. Kesembilan gagasan tersebut juga akan dimasukkan dalam Renstra OPD dan RKPD perubahan atau RKPD tahun 2019.
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