The Performance of Regency – City DPRDs In The Formulation of Regional Regulations In Indonesia

This study aims to explain and analyze the performance of DPRD in the formulation of regional regulations to realize people's welfare in Indonesia. The focus of the study is on the productivity produced by the DPRD in the form of regional regulations within one year 2021. The focus is on how much regional regulations are stipulated by the DPRD in 2021? How is the regional regulation related to the achievement of the regional development vision and mission? DPRD performance achievements are seen quantitatively as well as qualitatively. This research uses a descriptive method with a qualitative approach. The data was obtained from metadata obtained from the websites of selected districts/cities purposively in a number of 59 regions representing 34 provinces. Data validity was carried out by researchers through triangulation of data-based sources on the websites of regional work units and other relevant sources. The results of the study concluded that the DPRD's performance achievement in the formulation of regional regulations was


INTRODUCTION
The Regional People's Representative Council (DPRD) as an equal partner of the Regional Government plays an important role in achieving the goals of administering local government in Indonesia. Between the two, the DPRD together with the Regional Government, become partners that cannot be separated (co equal partners) in the administration of Regional Government. DPRD as an equal partner of the regional government plays an important role in formulating and establishing regional political lines" (Fedayyen, 2022;Putra et al., 2020;Sulaiman, 2020;Tamaka et al., 2020). The meaning of this statement if put into operation is to formulate, stipulate regional regulations, the Regional Expenditure Budget (APBD) and regional policies in order to realize people's welfare.
The regional government's obligation to formulate and stipulate regional regulations and regional budgets is a logical consequence of regional autonomy.
Decentralization as a policy option in administering regional government is currently considered appropriate in Indonesia. Decentralization is a concept that implies the delegation of authority from the central government to lower levels of government to manage their own territory. Decentralization aims so that the government can further improve the efficiency and effectiveness of its service functions to all levels of society (Nadir, 2013). Decentralization has now become a principle of governance that is universally accepted with various forms of application in every country (Abbas, 2017;Duadji, 2012). This is consistent with the fact that not all government affairs can be carried out in a centralized manner, given the geographical conditions, the complexity of community development, the diversity of local social and cultural structures and the demands for democratization in governance (Anajeng, 2014;Nuradhawati, 2019).
The principles and strategies in question are policy choices made by regional governments in carrying out their duties and functions in the implementation of regional autonomy. The DPRD together with the Regional Head are the main keys to bringing about better changes in regional governance. This is also confirmed in Law no. 23 of 2014 concerning Regional Government, that the success of regional autonomy is largely determined by how capable the regional government is in carrying out government affairs to realize community welfare in accordance with the authority possessed by the regional government (Akib, 2010;Andriani & Sudarsana, 2018;Ishak, 2016).
The implementation of decentralization of governance is most important at the district/city level. The province as a level I region, plays a role as a balancer and link between the regional government and the central government, therefore the position of the district/city is very strategic and important. Regency/Municipal DPRD as a representation of community political representatives is a benchmark for the success of development, service and community empowerment. DPRD performance in the formulation of regional regulations/APBD is very decisive. Mardiasmo provides an explanation that government performance (local government and DPRD) is an important matter for assessing organizational and management accountability in producing better public services (Fitriyani, 2014;Iswahyudi et al., 2016;Novatiani et al., 2019).
The main focus of local government administration lies at the district/city level.
As the reason, district/city governments directly deal with the people in the regions. The spearhead of the success of regional autonomy is the district/city. The ability of regional governments to develop and formulate regional development policies through APBD and various regional regulations is one of the main keys. Of course, this is largely determined by the ability of the regional government together with the DPRD in formulating the will of the people in the area under their authority (Gagola et al., 2017;Sriwijayanti, 2018).
DPRD as an equal partner of the Regional Head in the administration of regional government plays a role in the functions it has. One of the important functions of the DPRD is to formulate and establish regional regulations together with the Regional Head. Therefore the ability of the DPRD in formulating and enacting regional regulations is one measure of DPRD performance. Not only how many Draft Regional Regulations (Raperda) have been successfully enacted into Regional Regulations (Perda), but also how high quality the enacted regional regulations are. The quality of the regional regulations is of course not easy to see, but it can be seen from how much the regional regulations are able to accommodate the problems and needs of the people in the Regency/City. This means that the regional regulations made are solutions for solving various problems in people's lives. Thus, the presence of these regional regulations will be able to bring the districts/cities in Indonesia to be more prosperous.
In addition, was the process carried out in formulating the regional regulation accompanied by a review of academic texts or not? involve community participation or not? and procedurally whether the discussion stage was carried out or not? These questions are one of the important things to see the quality of DPRD performance in formulating and establishing regional regulations.
Until 2021, the number of Regency/City governments in Indonesia is 415 Regencies; 93 Cities; 1 administrative district; 5 Administrative Cities (Ministry of Home Affairs, 2023). However, if you look at the details of this number, the number of Regencies/Cities with autonomous status and having DPRDs is 508. A number of autonomous regions is not small. This shows that the Regency/City area has the authority in its autonomy in accordance with the authority it has based on Law no. 23 of 2014. Every Regional Regulation stipulated by the Regional Government (Regional Government and DPRD) should ideally become a bridge to achieve the vision and mission of the Regency/City Regional Government in realizing community welfare.  (BPS, 2023). Taking into account the HDI achievement figures, it seems that nationally it is quite good, but at the district/municipality level, it has not been evenly distributed as a whole, it is possible that there may still be disparities.
The facts show that of a number of 508 districts/cities in Indonesia, based on statistical figures from BPPS, the City of Yogyakarta has the highest HDI with an HDI of 86.11, while the lowest achievement is occupied by Nduga Regency in Papua with an HDI of 29.42. The existence of this inequality indicates that the local government has not been able to play an optimal role of the total districts/cities, in 2018 it was recorded that 29 districts/cities or as much as 5.64 percent had achieved "very high" status in achieving their HDI. According to data from the 2018 HDI Achievement Book, it turns out that this highest figure is in the area on the island of Java. In detail, the district/city HDI status figures show that there are 163 districts/cities (31.71 percent) with "high" status, 296 districts/cities (57.59 percent) with "medium" status, and 26 districts/cities (5, 06 percent) which is still in "low" status (bps, 2023). This shows that there are still districts/cities with low HDI rates. Even if combined between those with medium and low status, there are 322 City Regencies. This means that as much as 63.34 percent have moderate and low status.
The condition is that there are still many regencies/cities that have moderate HDI rates and below, so various efforts are needed to continue to improve by the local government. One of the important institutions in encouraging efforts to increase HDI achievements through regional regulations is the DPRD. In the capacity as an equal partner of the regional head, his role is highly demanded. The condition of the DPRD does not seem to show optimal performance, as confirmed by Ishak (2016)

that in Palu
City the performance of the DPRD in making Regional Regulations with the Regional Government has not gone well, because productivity is still low, this can be seen from the regional regulations that are determined to be more dominated by the proposal of the executive compared to the legislature (Ishak, 2016). This indicates how the DPRD has not optimized its authority in formulating policies for the benefit of the people.
Several studies have shown the poor performance of the DPRD, such as the level of public trust in the DPR RI at 47-52 percent, the lowest compared to other power institutions (Rasaili, 2015), the performance of the DPRD is less effective, as evidenced by the implementation of the main tasks and functions which is not optimal (Sulistyowati, 2017).
The low performance of the DPRD can be seen from the lack of regional regulations that are stipulated from the DPRD's initiative rights. For example, in 5 years the performance of the Surabaya City DPRD has produced 52 regional regulations, all of which were initiatives from the executive (Almudi, 2016;Firani, 2010). When referring to the ability to respond to various conditions in the community, it appears in the case in Brebes Regency that the productivity, quality, responsiveness and accountability of the Brebes Regency DPRD in achieving regional regulations have not been optimal (Permana & Adi, 2015).
The same thing happened in the Riau Islands Provincial DPRD for the period 2014-2019 in the formation of regional regulations in 2018 which had not been maximized (Suhartoyo, 2019). The results of research in Simalungun Regency also show that the performance of DPRD in the 1999-2004 period was still low (SARAGIH, 2005). Likewise in the Padangsidimpuan DPRD, none of the 50 regional regulations stipulated during the DPRD period (2004 -2009) were directly related to community interests such as improving services and basic needs of the community in the areas of health, education or other food and clothing needs (Nasution, 2013).
The explanation above shows that government institutions such as the DPRD, both at the provincial and district/city levels, have not been able to show maximum performance, even though the achievement of the vision and mission is important, moreover these regulations will lead to prosperity because it depends on the rules that are made. Seeing these conditions, researchers feel it is important to conduct a study so that they can carry out an analysis of the DPRD's performance achievements in formulating and enacting regional regulations at the Regency/City level? Are the Regional Regulations that have been stipulated in accordance with the needs of the community? This paper attempts to analyze the performance of Regency/Municipal DPRDs in Indonesia.

RESEARCH METHOD
This study uses a qualitative method based on data from webmetrics (data from local government and DPRD web sources) that are relevant to the subject of the study (Hasanah, 2017;Sugiyono, 2018). Data were obtained from the websites of selected districts/cities purposively in a number of 59 regions. For data reliability, researchers used triangulation of data-based sources on the websites of regional work units and other relevant sources (Hamzah, 2021). Analysis was carried out using qualitative analysis in the form of descriptive exposure of the study material with support in the form of tables/pictures or diagrams of the data being analyzed as well as secondary data in the form of numbers, charts or diagrams to make it easier to analyze so that it is easy to understand. In providing an analysis that is of concern to the trends that occur in the performance of the DPRD in the formulation and stipulation of regional regulations. The analysis is also connected with the linkages of the stipulated regional regulations with efforts to realize people's welfare.

Existing Conditions of Regencies/Cities that are the object of study
The general description of the DPRD in each district/city as the object of research is the condition of the balance between the number of residents and the number of DPRD members. This number is not the same for each district/city, because the population will also determine the number of DPRD members in these districts and cities based on statutory provisions in Indonesia. This is in accordance with statutory provisions in both the Law on Regional Government and the Law on Elections. Based on the findings, the data shows that the number of DPRD members varies in each district and city. The number is between 25 people to 50 people. The difference in the number of DPRD members is an ideal balance based on the provisions of the applicable law. This means that every certain number of residents is represented by a DPRD member. Thus the aspirations and demands that develop in society must be able to be accommodated and realized in regional regulations. The concept of political representation is a part that needs attention. Kuswandi explained that political representation in the DPRD is a representation of the number of people it represents.
That is, the ideal balance based on the number of DPRD members and the population they represent in legislative elections is ideal (Kuswandi, 2016). Each policy in the form of a regional regulation is formulated based on the problem and the number of residents in the district/city. The fulfillment of the number of DPRD members in accordance with the balance of vote acquisition in each electoral district in the electoral area in the regency/city ideally becomes people's representatives who are able to carry the aspirations of the people who voted for them. Regional regulations as a manifestation of the will of the people must be policies that aim and are able to solve the problems faced by the community (Batubara et al., 2020;Yulyana, 2017).
The formulation of the vision, mission and strategy for regional development involving district/city governments and the DPRD is one of the ideals to be achieved. DPRD performance is required to make it happen. The following sections of the discussion and analysis will describe the problems that are often complained of by the community as well as the various obstacles faced by the community in the Regency/City under study.

Regional Development Problems
One of the functions of government that is most widely felt by the people in the regions is related to development and public services. These two things are directly felt by the people in the regency/city. The following will describe field finding data regarding various community complaints related to community services and development in the region. Regarding the various complaints from the community regarding the implementation of development and services to the community, we can see them in two groups, namely problems in the districts and cities. The two categories of areas have different problems that are complained by the community. However, there are also similarities that are complained about -there are urban districts studied.
Complaints from the community in the district area highlight the uneven development of infrastructure, especially in relation to roads that connect between sub-districts/villages, limited education and health facilities. In addition, many people also complain about the limited human resources that have competence when it comes to processing the potential of natural resources they have. Community economic problems are common problems in districts, especially in eastern Indonesia. The problem of poverty is something that happens a lot due to the slow rate of economic growth so that the poverty rate is still high. Matters related to environmental issues are also problems that the community complains about, for example flooding, diminishing natural resources and drought during the dry season. This problem often occurs in several districts due to reduced green land, rivers damaged by mining and others.
In urban areas, most people complain about the education and health infrastructure that is much needed by the community. In addition, the fulfillment of clean water is also a problem that many people complain about in the city. The quality of services provided by the government related to administration and population is also often complained about, this is because the service quality of the apparatus providing services and technology is still limited in the services provided. Floods and garbage are problems that are almost complained by the people of the cities studied.
Drainage and disposal of rainwater is often a problem and a cause of flooding.
Whereas related to waste, the majority of which is household waste, is a public complaint, especially with regard to landfills and the slowness in transporting waste.
Traffic order, congestion and vulnerability in urban traffic are also one of the problems that are complained by the urban community.
In both regions, both districts and cities, the problems that people complain about are the still high poverty rate and the low economic growth rate of the community. Therefore, the thing that is complained about by the community is how easy it is to fulfill capital for MSME activities that the community is developing. This relates to the fact that most of the lower middle class people in urban areas are mostly engaged in the services and trade sectors.
Based on the description of the data findings regarding public complaints, it appears that the regional government and DPRD need attention and seriousness in making regional policies in the form of regional regulations that respond to public complaints. The priority scale in overcoming various problems complained of by the community is important. The vision and mission as well as the development policy strategy that is carried out must take into account the aspirations that develop in the community. Information directly from the public is important and useful data. DPRD members must be sensitive and hasten to accommodate it and discuss it in the formulation of regional regulations.
Various complaints from the community, both in the district and city, are an indicator that the DPRD as an equal partner of the Regional Government must pay more attention to these community complaints. Every DPRD member can optimize their recess time to make visits to the community and capture people's aspirations. For this, you can actually optimize various social media. Therefore it is important for every DPRD member to have an account on social media and be active in accommodating people's aspirations and complaints and responding to them. This can also be used as material for conducting policy evaluations and formulating policies in the form of regional budgets and regulations. Complaints from the public serve as a barometer of how much performance regional administration can achieve an ideal vision through development and service. If public complaints are decreasing, it indicates that the regional administration is running better. But on the contrary, if public complaints increase, it shows that the regional government has not been optimal in carrying out its functions in development and service to the community.
Analysis on the achievement of the district and city vision and mission when viewed from various public complaints, indicates that the DPRD as a partner of the Regional Government has not been optimal in formulating policies in accordance with public complaints. The focus of attention in the last two years, 2021-2022, has been on rising from the economic downturn after the Covid-19 pandemic. However, an important record of various public complaints must be information that can be used as one of the bases in formulating regional development policies. The important thing is how the policies made are able to respond to problems and complaints from the community by including them in regional development planning and including them in the Regional Development and Expenditure Budget (APBD). In this way, the vision and mission of development in districts/cities will be achieved gradually.

Obstacles and Constraints faced by DPRD
As a regional legislature, the DPRD cannot be separated from obstacles and obstacles in carrying out its duties and functions as an equal partner of the local government. Obstacles and obstacles faced can come from within the DPRD institution itself or from outside the DPRD. From outside the DPRD, it can be from institutions within the local government or from the environment outside the institution, such as the condition of the community and other factors. Obstacles encountered based on research findings are grouped into several sections. First, the constraints/obstacles from the DPRD institution itself, this is related to the human resource capacity of the DPRD which varies between regions, besides that the unequal commitment is one of the internal obstacles. If seen from the institutional relationship of the DPRD apparatus and the DPRD secretariat there are no significant obstacles, meaning that they can run well in carrying out the duties and functions of the DPRD. Second, external institutional barriers in government relations in the district/city concerned. There is still often a lack of coordination when it comes to discussing and handling public complaints in local government policies. This condition is an obstacle to the sustainability of the policy discussion process that is on the agenda of the DPRD. Third, obstacles related to the synchronization of central government policies (both laws and derivative policies) in the formulation of regional regulations. Limited information and information technology capabilities of the DPRD that can support the acceleration of the formulation of regional regulations.
Based on an analysis of DPRD performance based on how well it is able to overcome complaints and obstacles it faces, it is known that each district and city studied is different. For example, in drafting a draft regional regulation, the Bogor Regency DPRD tries to pay attention to the aspirations of its people so that it is hoped that the regional regulations made will be effective and beneficial for the people of Bogor Regency. To achieve optimization in the formulation of regional regulations, the The findings in several regions indicate that the DPRD's performance is very progressive in anticipating public complaints, but has not been optimal in anticipating these community complaints. On the other hand, with so many complaints from the public, the role of the DPRD in overcoming community aspirations/complaints is how to make a law/regional product that will address the problems that occur in society is a challenge in itself. Especially with the existence of globalization and digitalization in the administration of government requires individuals/institutions to always update information technology, because with that the DPRD is required to update and optimize how the DPRD's role is for the community.
Based on the presentation of the data from the analysis research results above, it appears that efforts have been made to overcome a number of obstacles and obstacles faced by the DPRD so that the policies set both in the form of the APBD and Regional Regulations that regulate people's behavior are always carried out optimally by the DPRD. In an effort to overcome these obstacles and obstacles, the DPRD together with the Regional Government try to overcome them as optimally as possible. Progress overcoming obstacles and obstacles that occurred in the districts/cities studied differed from one another. This is influenced by how much the DPRD's commitment and ability is in encouraging the Regional Government to overcome these obstacles and obstacles. The obstacles and obstacles faced by the DPRD are actually a challenge for the DPRD as the people's representative to always be planned and sustainable in seeking and seeking solutions to overcome the obstacles/obstacles faced in enacting regional regulations aimed at improving people's welfare, security and order.

Dynamics of Community Aspirations and Demands in Local Government Policies
Different regional conditions, both in terms of potential and problems, make DPRD always have accurate data from the community. This is important so that every development policy or regional regulation that is made is always in an effort to meet the demands of the community.
Aspirations and demands from the community will eventually be proposed in the Raperda. This Raperda document is the initial material to be discussed by the special committee in the DPRD until it becomes a legal product of regional regulations.
Draft regional regulations that enter the DPRD's agenda in the regional legislation program can originate from the proposal of the regional government and originate from the initiative rights of the DPRD. However, most of the draft regional regulations that were proposed to be discussed by the special committee or DPRD plenary session were based on proposals from the regional government. In the following, you can see data regarding the achievements of the DPRD in producing the regional regulations that were stipulated. Overall, the districts/cities studied, in 2021 the number of Raperda proposals that have been submitted will be 838. Of these, 496 or 59.19% of the draft regional regulations were discussed and stipulated as regional regulations. Thus there are still 40.81% of the proposed Raperda in 2021 that have not been fully discussed and have not yet been enacted into regional regulations. This condition shows that the DPRD's performance in deliberating the draft regional regulations into regional regulations is still lacking. The cause of the not yet optimal formulation of regional regulations by the DPRD seems to be related to the constraints and obstacles faced as described in the previous discussion.
The political dynamics that occur in the discussion of draft regional regulations sometimes lead to delays in establishing a regional regulation. The capacity of DPRD members and institutional relations in DPRD accessories are also determining factors.
Not to mention the psycho-emotional involvement of each DPRD member also influences attitudes in decision making. The interests of factions and/or interest groups will also influence how long it takes for the Raperda to become a regional regulation. Lengthy discussions and discussions due to consideration of inputs and aspirations from various parties will also determine this (Alvin, 2022;Kariem & Eldo, 2019;Supriadi, 2017;Wardani & Putra, 2022).
In various concepts of political representation, it indicates that the legislative body, including the DPRD, is a formal group appointed by the electorate to represent them in decision-making in the DPRD. The aspirations and interests of the electorate are very divers (Faizal, 2011;Moneter & Susanto, 2020). Therefore every DPRD member must have the ability to know, understand and actualize the aspirations of the people in discussions at every meeting in the DPRD. The political dynamics of society are very challenging for the DPRD. Thus the support of information technology is needed in this case. Every DPRD member must be qualified in the use of information technology and social media. Effectiveness in accommodating and incorporating community aspirations will be achieved more quickly with the support of technology.

Community Welfare
As stated by various political and government policy experts, regional policies are in the form of regional regulations made to realize people's welfare (Adiyanta, 2019). Both the national government and regional government have the same goals in administering government, namely for the prosperity, justice and welfare of society. If you pay attention to the previous discussion, the DPRD knows, understands, and understands the various problems, obstacles and obstacles it faces, then it will make various efforts to achieve the ideal goal, the welfare of society through the regional regulations it stipulates. In the previous description it appears that the DPRD's performance achievements in formulating and enacting regional regulations into regional regulations are still less than 60%. Under these conditions, so that DPRD performance is getting better, various efforts must be made by DPRD as an equal partner of local government.
The achievement of public welfare is an ideal goal that must be achieved by the organizers of the state and government both at the central and regional levels.
However difficult it may be, policies in the form of laws, government regulations, ministerial policies and other derivative regulations at the regional level such as regional regulations and other technical policies must become a tool to achieve this.
Regional regulations as regional political lines to achieve governance goals must strive to achieve the welfare of the people in the region. Perda is one indicator of the performance of the DPRD. In measuring the performance of the DPRD, the regional regulations that are stipulated are the implementation of the legislative functions owned by the DPRD.
DPRD performance achievements from the aspect of the regional regulations they stipulate, will refer to two things. The first is how many regional regulations are stipulated in one year of trial. In this case, it can be seen from the comparison between legislative planning in the regional legislation program (prolegda) and the number of regional regulations that have been stipulated. For this aspect, it appears in the previous discussion that the DPRD which is the object of research is only able to achieve less than 60% of the stipulated local regulations. This number is still far from the ideal results expected. Second, the performance of the stipulated regional regulations is seen from the quality of the regulations themselves. In this case it implies that how capable the regional regulation is to answer the problems faced by the community in achieving prosperity. Performance in terms of the quality of the stipulated regional regulations is difficult to measure. But of course within a certain period of time after the regional regulations are implemented, their effectiveness will appear. In general, a regional regulation is said to be effective if the implementation of local government programs in service, development and community empowerment is carried out properly. This means that the stipulated regional regulations which are used as the legal basis for the implementation of these government functions are carried out properly.
The various efforts made by the Regional Government together with the DPRD in the districts/cities studied were evident in the service and development programs implemented. The efforts made by the DPRD in each region differ from region to region. The various problems faced by different regions, therefore the efforts made are also different. The priority scale of each region becomes part of the attention in this analysis. Efforts made in achieving people's welfare, the DPRD together with the regional government, namely: a commitment to the establishment of regional regulations based on the aspirations of the community which are oriented towards solving problems; efforts to ascertain the problems faced by the community both in terms of infrastructure fulfillment and efforts to overcome the impact of natural disasters, efforts to overcome community economic problems, education and health problems. Performance is also carried out through efforts to overcome environmental and employment issues which until now have become problems faced by regional governments in Indonesia. DPRD performance achievements as described above are achievements that must always be continuously improved. Changes and dynamics of society is a challenge for DPRD. Increasing the capacity and commitment of each DPRD member is a process that must be continuously improved. Community welfare as an ideal goal is the motivation for the DPRD to continue to strive. The functions and duties of the DPRD are not just designations and are listed normatively in regulations, but must also be implemented in the practice of administering regional government.

CONCLUSION
Attitudes toward social media have a significant influence on both online satisfaction and destination image. Online satisfaction also has a significant effect on destination image. Destination image directly and positively influences tourists' behavioral intention which includes willingness to pay, word of mouth, and win tetra vision . Attitude toward social media also plays an important role in determining willingness to pay and willingness to visit. The usage of social media is affected by the attitude toward social media and leads to the behavioral intention for the choice of destination travel.