Bali demands a greater share in autonomy era

Rita A. Widiadana, The Jakarta Post, Denpasar

The words regional autonomy used to be strange and even taboo to the ears of many Indonesians, including the Balinese. But since the Indonesian government imposed Law No. 22/1999 on the implementation of regional autonomy, people have become obsessed with the term.

The law has ushered in a new era in which the central government reduces and transfers its authority to the regional administrations. In practical terms it means that each province and regency has the power to govern itself.

Having been trapped in a centralized governmental system for more than three decades, the imposition of the law has brought a new euphoria to local officials.

For well-off provinces including Bali, which have been used as a cash cow for the central government for so long, the implementation of the regional autonomy law is expected to increase the welfare of the locals.

Despite its abundant agricultural products, lucrative tourist industry, prospering garment, textile, handicraft and furniture business, Bali received a smaller share than expected. The majority of the profits and tax revenue went to the central government.

Dewa Gede Palguna, a lecturer at the law faculty at Udayana University, said that regional autonomy had created brighter expectations as well as confusion among the Balinese people. "Suddenly, local officials feel they have new power and authority to do whatever they want. Small-scale tyrants are everywhere," Palguna said.

Riswandha Imawan, political analyst from Gajah Mada University in Yogyakarta, said in a seminar here that most local officials have not understood the real meaning of regional autonomy.

Awkwardness, is probably the right term to illustrate the current condition in our governmental system, he said.

In Bali, Palguna cited two possible scenarios. The first scenario illustrates the fall of Bali as paradise island, while the second scenario will likely bring prosperity to the already prosperous Bali.

"In my opinion, the first scenario is likely to occur now," explained Palguna at a seminar on the evaluation of the implementation of regional autonomy in Bali early this month.

Currently, Palguna maintained, there has been a misunderstanding about regional autonomy among the provincial and regional administrations on the island.

Bali comprises eight regencies and one municipality including Badung, Buleleng, Tabanan, Gianyar, Klungkung, Negara, Bangli and the city of Denpasar.

"Each regional government has its own interpretation of the regional autonomy law," said Palguna, who is also a member of People's Consultative Assembly. Palguna said that each regency was trapped in narrow-mindedness. "What they are thinking now is how to attract as many as investors as possible and to boost their regional incomes from diverse sources."

Bali is well known as Indonesia's number one tourist destination. But, actually, not all regencies in Bali enjoy the benefits of tourism, which affects only several areas in the southern part of the island such as the beach area of Kuta, Sanur and Nusa Dua as well as Gianyar and Tabanan, which are famous for their culture and panoramic scenery.

"The rest of Bali's regencies generate income from agriculture, forestry, fisheries and animal husbandry. But, these regencies are now racing to get a slice of the tourism pie by improperly developing various tourist-related facilities," he said.

Buleleng regency in North Bali is a clear example. Renowned for its agricultural products and spices such as rice, cloves, black pepper, vanilla and chocolate, Buleleng is now trying to build a large variety of tourist facilities in areas that are considered fertile agricultural lands and water catchment areas.

Led by controversial Regent Wiratha Sindu, Buleleng is currently developing an exclusive resort area named Villa Bukit Berbunga in Lake Tamblingan, Bedugul, a border area between Buleleng and Tabanan regencies. The regency also plans to build a cable car.

The plans have received harsh criticism from local environmentalists, traditional and regional community leaders as well as from Governor Dewa Made Beratha. But, the Buleleng regional authority has ignored their objections.

"Such a violation (of land use) indicates that the provincial government has no power to monitor and to control development activities at the regional level," Palguna said.

Uncontrolled development projects have certainly caused social, cultural and environmental problems.

However, the existing law on regional autonomy backs Wiratha Sindu's actions.

Based on the law, regional authorities have full authority to carry out development projects. The law also implies that regents are not directly responsible to a governor.

Another extreme case is division of regional income. Before regional autonomy took effect on Jan. 2000, a number of richer regencies and municipalities would distribute a portion of their revenue to poorer regencies.

Regional autonomy has encouraged egocentric feelings among local authorities. The rich Badung regency, for instance, has objected to having to distribute 30 percent of its tax revenue from its lucrative tourist industry to less prosperous regencies. "Conflicts between regencies could become commonplace in the near future," Palguna warned.

In an interview with The Jakarta Post earlier, Governor Dewa Made Beratha stressed the urgent need to revise the existing law on regional autonomy.

Dewa Beratha hoped that the central government could grant Bali special autonomy at the provincial level only. "Bali has specific religious, social and cultural characteristics which differ from other regions in Indonesia." By implementing the present law, Bali will be torn into pieces. Bali should be considered one entity in terms of space, culture and religion, explained Dewa Beratha. "If we talk about tourism in Bali, we have never said tourism in Buleleng or tourism in Denpasar," the governor added. The present regional autonomy has deepened the gap between the rich and poor regencies. "Although Bali has always been regarded as a rich province, there are some regencies that are only able to generate meager incomes," he said.

But more importantly, the current concept of regional autonomy will affect religious, social and cultural life.

The governor cited the example of Besakih, the mother temple in Bali which is located in Karang Asem regency.

What would happen if the regency imposed regulations that prevent people from coming to the temple. "There could be friction among Hindu followers in Bali," the governor emphasized.

In the agricultural field, Bali has the subak traditional irrigation system, that covers rice fields in several villages, which are often located between two or more regencies. "Problems concerning the system have to be dealt with by villagers of the two regencies." Exploration of natural resources and tourist attractions are also on border areas between regencies.

Political observer I Wayan Koster said as quoted by Bali Post that Bali, like other provinces in Indonesia, has to learn more about the implementation of regional autonomy.

"Regional autonomy is not a one-day project. It is a huge task that requires a drastic change in people's mind sets and the mentality of government officials at central, provincial and regional levels," Koster explained. The central government, he observed, has only halfheartedly imposed the law and plans to revise it. "It seems that the central government has no confidence in fully transferring the power and authority to regional administrations," Koster added.

Koster also mentioned that in Bali province, regional autonomy has been little understood by both provincial and regional executors as well as legislators. "The working schemes of both executors and legislators must be progressive enough to create and impose any public policy. So far, they are still working on the old concept," he said. In Bali, there should be a leader who is capable of clearly translating regional autonomy in order to prevent any misunderstanding.

"I suggest that the provincial government, regional administration and legislative bodies sit together to build a similar vision and views on regional autonomy," Koster noted. Clear division of transfer of authority is also important. Citing an example, Koster said that tourism would be better handled by provincial government as it covers interregional, interisland and international activities. The provincial government should also tackle the education and health sectors to maintain the required standards.

In terms of income, provincial and regional governments must work hand in hand to demand more revenues from business activities of private and state-owned companies.

Bali should, at least, receive 40 percent of the revenue from its tourist industry. Presently, the bulk of the revenue from the industry goes to the central government. "This is a fair and logical demand. Balinese people are kind enough not to demand a special autonomy like other provinces," he said.

Palguna, however, emphasized that the implementation of regional autonomy was not an easy task.

"It's like holding a bird. If you grasp the bird tightly, it will probably die. But, it will fly away if you loosen your grip," said Palguna.

Koster predicted that in Bali and other places, it will need more than 10 years to properly and effectively implement regional autonomy. "Don't dream of changing the system in one or two years."