Jurusan Ilmu PemerintahanFakultas Ilmu Sosial dan Ilmu PolitikUniversitas Diponegoro Semarang 2014

Nur Hidayat Sardini

Pemilu dan Partai PolitikManagemen PemiluBagian Pemilu

SPG-509

SPG-222

Bab IVManagemen Pemilu

Pokok Bahasan

1. Pengertian 2. Electoral Management Bodies (EMBs)3. Electoral Cycle4. The Candidate and Campaign Management5. Wining Elections6. Fund Raising7. Political Marketing

I. Pengertian

Sama seperti dalam bidang-bidang apapun menyangkut kepentingan publik, dalam Pemilu juga diperlukan adanya pengelolaan Pemilu berbasis pada managemen modern.

Dalam pemikiran George Robert Terry, asas-asas managemen terdiri atas:

1. Planning2. Organising3. Actuating4. Controlling

○ The complexity and specialist skills necessary for electoral management require that aninstitution or institutions be responsible for electoral activities.

○ An election is often one of the largestsingle activities that are ever organized in a country. It is a very complex administrative task,implemented in a politically charged atmosphere.

○ The organization and administration of multiparty democratic elections has not traditionally attracted a high profile or been newsworthy.

■ Mengapa Pemilu perlu managemen?

○ The administration of many electoral events largely passed unnoticed, except by those directly affected, even though the losing political parties often challenged the election conduct and results.

○ As the administration of elections has received more scrutiny, so too has it become more professional.

○ Electoral managers have learnt from experience – their own and that of nonelectoral organizations – and have formed links and networks through which ideas and practices are shared and electoral standards may be raised.

■ Good Corporate Governance● Pemilu adalah urusan publik, melibatkan kepentingan banyak pihak, sebagai bagian dari urusan pemerintahan dalam arti luas. ● Keharusan pengelolaan urusan pemerintahan, maka Pemilu berpegangan pada prinsip-prinsip “Kepemerintahan yang Baik”.● Pemilu yang terkelola dengan baik terhindar dari mala-administrasi (misgovernance).

Good Corporate Governance.

○ Keadilan (fairness)○ Transparansi (transparency)○ Akuntabilitas (accountability)

○ Tanggang jawab (responsibility)

○ Tanggung gugat (responsiveness)

○ Keterbukaan informasi (disclosure)

○ Kemandirian (independency)

The reasons for the corporate misgovernance:

1.A closed economi,2.A sheltered

market,3.Limited need and

acces to global business,

4.Lack of competitive spirit and an inefficient regulatory framework.

■ Pemilu digelar dengan biaya yang sangat besar, menyedot triliyunan uang rakyat dan pembayar pajak. Besarnya pembiayaan Pemilu mengharuskan pengelolaan secara modern dengan asas-asas managemen modern, dari pusat hingga daerah.

■ Maka keterlibatan publik diperlukan. Terlalu berisiko apabila penyelenggara Pemilu apabila tak dikawal/tak diawasi semua pihak.

■ Dalam buku An Overview of the Electoral Risk Management Tool (2013). Stockholm Sweden:

IDEA. Lembaga International IDEA mengembangkan manajemen risiko (risk management) dalam penyelenggaraan Pemilu.

Understanding and explaining outbreaks of election-related violence is a complex task;predicting whether forthcoming elections will turn violent, which factors may underlie or trigger violence, and what can be done to prevent violence is even more difficult.

One way to address the problem is to empower those who have immediate responsibility to prevent and mitigate election-related violence, such as electoral management bodies (EMBs), security sector agencies (SSAs) and other state and non-state agencies.

Electoral Risk Management is designed to enhance increasing capacities to understand risk factors, analyse risk data, and take action to prevent and mitigate election-related violence.

■ Knowledge Resources, consists of a that different electoral risk factors.

■ Analytical Instruments, requirement analyse different types of data, generate risk maps and alerts, and create a risk and action register.

■ Prevention and Mitigation, includes comparative prevention and mitigation actions presented throughout the electoral cycle.

List of Factors Internal and External to Electoral Processes

Pada table di samping, risiko-risiko dalam Pemilu dihadapi, untuk meniadakan, atau setidaknya meminimalisasi, terhadap faktor-faktor internal dan eksternal yang berpotensi bagi terjadinya hal-hal terburuk dalam Pemilu.

Hal ini mengingat, di samping tujuan Pemilu memiliki dimensi substansi, namun Pemilu juga harus dijamin kualitas pelaksanaannya (quality assurance).

■ Alan Wall, dkk. [2006], dalam buku “Electoral Management Design.” Stockholm Sweden: IDEA.

○ Electoral frameworks, including the choice of electoral system and the design of electoral administration, determine both the

outcomes and the credibility of electoral processes and thereby trust in democracy.

The development of professional electoral administration is not merely a technical and

managerial issue, but a process that crucially engages political stakeholders who have their own

interests and objectives.

○ Much experience has now been gathered on the importance of electoral administration that is able to act in a fearlessly independent manner in practice and to manage electoral processes effectively and sustainably.

■ THEMES ELECTION MANAGEMENTScope of works with election management bodies (EMB) around the world on all aspects of election administration and across all

phases of the electoral cycle, ranging from pre-election preparation to the announcement of results, requirement:

● Drafting electoral laws and regulations.● Establishing electoral boundaries.● Conducting voter registration.● Managing election technology.● Procuring electoral equipment.

◊ Training election officials

and poll workers.

◊Implementing Election Day procedures.

● How to engage with political parties,

stakeholders and citizens through public information and outreach programs and on measures to improve the openness and transparency

of their work.

● Strengthen long-term institutional capacity through improved strategic and operational planning.

● Organizational management;● Internal rule-making;

● Budgeting;● Procurement processes;

● Human resource systems;

● Knowledge management; and

● Communications and outreach.

■ Voter Registration

■ Elections and Technology

■ Electoral Systems

■ Electoral Management

■ Electoral Integrity

■ Vote Counting

■ Voting Operations

■ Costs and Sustainibility in Electoral Administration

II. Electoral Management

Bodies (EMBs)

If “democratization involves the construction of participatory and competitive institutions”, as a number of analysts of new democracies have concluded (Bratton and Walle, 1997).

Electoral Management Bodies (EMBs) are important institutions for democracy-building. They deal directly with the organization of multi-party elections and indirectly with governance and the rule of law.

The electoral management and the individual EMBs of 214 countries and territories, such bodies have a variety of shapes and sizes, with a wide range of titles to match, which include ‘Election Commission’, ‘Department of Elections’, ‘Electoral Council’, ‘Election Unit’, or ‘Electoral Board’.

The term ‘electoral management body’ or EMB has been coined as a name to refer to the body or bodies responsible for electoral management whatever wider institutional framework is in place.

■ Alan Wall, dkk. [2006], dalam buku “Electoral Management Design.”

Stockholm Sweden:IDEA.

■ There are three broad types or models of electoral management.

1. The Independent Model of Electoral Management

The Independent Model of electoral management exists in those countries where elections are organized and managed by an EMB which is institutionally independent and autonomous from the executive branch of government, and which has and manages its own budget.

Under the Independent Model, an EMB is not accountable to a government ministry or department. It may be accountable to the legislature, the judiciary, or the head of state.

EMBs under theIndependent Model may enjoy varying degrees of financial autonomy and accountability, as well as varying levels of performance accountability.

They are composed of members who are outside the executive while in EMB office.

Many new and emerging democracies have chosenthe Independent Model of electoral management.

Examples of EMBs under the IndependentModel include Armenia, Australia, Bosnia and Herzegovina, Burkina Faso, Canada, CostaRica, Estonia, Georgia, India, Indonesia, Liberia, Mauritius, Nigeria, Poland, South Africa,Thailand and Uruguay.

2. The Governmental Model of Electoral Management

The Governmental Model of electoral management exists in those countries where elections are organized and managed by the executive branch through a ministry (such as the Ministry of the Interior) and/or through local authorities.

Where EMBs under the Governmental Model exist at national level, they are led by a minister or civil servant and are answerable to a Cabinet minister. With very few exceptions they have no ‘members’. Their budget falls within a government ministry and/or under local authorities.

Countries whose EMBs fall into this model include Denmark, New Zealand, Singapore,Switzerland, Tunisia, the UK (for elections but not referendums) and the United Staes.

● In Sweden, Switzerland, the UK and the United States, elections are implemented by localauthorities.

● In Sweden and Switzerland the central EMB assumes a policy coordinating role.

3. The Mixed Model of Electoral Management

In the Mixed Model of electoral management, there are usually two component EMBs, and dual structures exist: a policy, monitoring or supervisory EMB that is independent of the executive branch of government (like an EMB under the Independent Model) and an implementation EMB located within a department of state and/or local government (like an EMB under the Governmental Model)

Under the Mixed Model, elections are organized bythe component governmental

EMB, with some level of oversight provided by the

componentindependent

EMB.

The Mixed Model is used in France, Japan, Spain and many former French colonies, especially in West Africa, for example Mali, Senegal and Togo.

● The powers, functions and strength of the component independent EMB in relation to the component governmental EMB vary in different examples of the Mixed Model, and the classifi cation of a particular country as using the Mixed Model is sometimes not very clear.● In some cases, the component independent EMB is little more than a formalized observation operation, although this version is dying out, having been abandoned for example in Senegal.● In other cases, the component independent EMB has a role to supervise and verify the implementation of electoral events by the component governmental EMB, as in Madagascar, and sometimes also to tabulate and transmit results, as in Congo (Brazzaville) and Togo.

Aspect ofthe Modeland the

ComponentEMB(s)

Mixed Model

Independent

ModelGovernmental

ModelIndependentComponent

GovernmentalComponent

Independent

EMB(s)Governmental

EMB(s)Component

Independent EMB

ComponentGovernmental

EMB1. Institutionalarrangement

Is institutionallyindependent from the executive branch ofGovernment.

Is located within orunder the direction of a department of state and/ or local government.

Is institutionallyindependent from the executive branch of Government.

Is located within orunder the direction of a department of state and/ or local government.

2. Implementation

Exercises full responsibilityfor implementation.

Implementation is subjectto executive branchof government direction.

Has autonomy to monitoror supervise, and insome cases set policyfor, implementation.

Implementation is subjectto executive branchof government direction,and monitoring orsupervision and in somecases policy setting byindependent component.

Aspect ofthe Modeland the

ComponentEMB(s)

Mixed ModelIndependen

tModel

GovernmentalModel

IndependentComponent

GovernmentalComponent

Independent

EMB(s)Governmental

EMB(s)Component

Independent EMBComponent

Governmental EMB

3. Formalaccountability

Does not report toexecutive branch ofgovernment but withvery few exceptions isformally accountable tothe legislature, judiciaryor head of state

Fully accountable toexecutive branch ofgovernment

Does not report toexecutive branch ofgovernment and is formallyaccountable to thelegislature, the judiciary,or the head of state

Fully accountable toexecutive branch ofgovernment

4. Powers Has powers to developthe electoral regulatoryframework independentlyunder the law*

Powers are limitedto implementation

Often has powers todevelop electoral regulatoryframework independentlyunder the law.Monitors or supervisesthose who implementelections

Powers are limitedto implementation

5. Composition Is composed of memberswho are outsidethe executive branchwhile in EMB office

Is led by a minister orpublic servant. Withvery few exceptions hasno ‘members’, only asecretariat

Is composed of memberswho are outside theexecutive branch whilein EMB office

Is led by a ministeror public servant. Hasno ‘members‘, only asecretariatTerm of office is

Aspect ofthe Modeland the

ComponentEMB(s)

Mixed ModelIndependen

tModel

GovernmentalModel

IndependentComponent

GovernmentalComponent

Independent

EMB(s)Governmental

EMB(s)Component

Independent EMBComponent

Governmental EMB

6. Term ofOffice

Offers security oftenure, but notnecessarily fixed termof office

Usually no members,therefore N/A. Secretariatstaff are civilservants whose tenure isnot secured

Offers security of tenure,but not necessarily fixedterm of office

Term of office is notsecured

7. Budget Has and manages itsown budget independentlyof day-to-daygovernmental control.

Budget is a component ofa government ministry’sbudget or local authoritybudget

Has a separately allocatedbudget

Budget is a component ofa government ministry’sbudget or local authoritybudget* A few countries which use the Independent or Mixed Model of electoral management, such as

Hungary, do not have independent EMBs with regulatory powers.

■ Electoral systems are the primary vehicle for choice and representational governance, which is the basic foundation for democratization. These systems must provide opportunities for all, including the most disadvantaged, to participate in and influence government policy and practice.

■ Effective management of electoral systems requires institutions that are inclusive, sustainable, just and independent–which includes in particular electoral management bodies that have the legitimacy to enforce rules and assure fairness with the cooperation of political parties and citizens.

■ Kedudukan EMBs

The EMB does not act as a substitute legislator, but it must be able to respond to emergent needs and provide practical solutions by way of interpreting and supplementing electoral law and the regulations.

Certain principles should be respected when authority is given to EMBs to issue instructions. These principles include:

• Electoral legislation should adhere to basic election principles, such as the secrecy of the ballot.

• Electoral legislation should provide for the authority of the EMB and should clearly state and define the scope and extent of the EMB's authority to issue instructions.

• Electoral legislation should provide for a process whereby electoral participants and voters can lodge complaints and appeals arising from the adoption and implementation of EMB instructions. This process should also allow for such complaints and appeals to be resolved in a timely and effective way.

• Electoral legislation should state clearly the legal hierarchy, including the precedence of constitutional and legislative provisions over EMB instructions.

• Electoral legislation should state and define clearly the EMB's residual powers (its "inherent powers") to issue instructions in emergency situations, including on election day, to meet any unforeseen contingency.

□ Election legislation and codes of conduct

The general guiding principles that a code of conduct for election administrators must conform to are:

• Election administration must demonstrate respect for the law.• Election administration must be non-partisan and neutral.• Election administration must be transparent.• Election administration must be accurate, professional and competent.• Election administration must be designed to serve the voters.

■ Tugas-Tugas EMBs

Secara umum tugas dan wewenang EMBs adalah untuk menjaga berlangsungnya suatu Pemilu yang berintegritas, yakni Pemilu yang dilaksanakan secara demokratis, berasaskan pada Luber dan Jurdil.

Pemilu yang berintegritas, yakni meliputi:

1. Akses peserta, pemilih, dan para pemangku kepentingan dalam Pemilu terlayani dengan baik;

2. Partisipasi masyarakat dalam Pemilu, tidak saja terkait kehadiran mereka untuk menentukan suara, juga menyangkut keikutsertaan mereka untuk menjaga kedaulatan pemilih hingga Pemilu free and fair elections;

3. Tergambar dengan jelas pembagian tugas atau kerja dalam badan-badan penyelenggara Pemilu, pengaturan yang tidak multitafsir, dan berdasarkan kerangka hukum Pemilu;

4. Kerangka hukum dan pengajuan keberatan dilakukan secara adil dan tak berpihak;

5. Daftar pemilih mencakup sebanyak mungkin warga negara yang telah memenuhi kualifikasi sebagai pemilih untuk menjalankan hak-hak pilihnya, akurasi daftar pemilih, dan tertibnya pengelolaan daftar pemilih;

6. Kertas surat suara dirancang dan ditata sedemikian rupa sehingga memahamkan pemilih saat menggunakan hak memilihnya, dengan dukungan perlengkapan-perlengkapan Pemilu;

7. Dalam kaitan dengan perlengkapan Pemilu, hal yang mutlak untuk diperhatikan adalah bilik suara yang menjamin kerahasiaan pilihan pemilih, kotak suara menjaga keutuhan suara yang sudah dipilih pemilih sehingga kelak keterjagaan dan keutuhannya ketika dikonversi menjadi kursi penyelenggara Negara, serta alat pemberi tanda yang memudahkan pemilih menggunakan hak pilihnya;

8. Perlengkapan bagi integritas Pemilu juga menyaratkan adanya formulir berita acara pemungutan, penghitungan, rekapitulasi, dan tabulasi suara sedemikian rupa sehingga akurat dan dapat dipertanggungjawabkan, termasuk dalam seluruh proses dan sertifikasi hasil-hasilnya;

9. Lokasi, waktu, dan tata cara menggunakan hak memilih, dipahami secara benar oleh pemilih, dengan mempertimbangkan lokasi pemilihan yang terjangkau secara mudah oleh pemilih, waktu pelaksanaan pemilihan yang dapat diikuti pemilih dan dalam seluruh prosesnya, serta mekanisme pemilihan yang dapat secara akrab dipahami oleh pemilih;

10. Hasil-hasil Pemilu dapat diikuti oleh setiap peserta Pemilu, pemantau Pemilu, dan pemangku kepentingan lainnya, sehingga transparan dan akuntabel;

11. Proses-proses penghitungan, rekapitulasi, dan tabulasi, sejalan dengan kumulasi suara rakyat, hingga penetapan calon terpilih dan alokasi kursi sesuai daerah pemilihan;

12.Peran pemantau Pemilu, saksi, dan pengawas Pemilu diakui secara integritas, dan dengan fasilitasi akses dalam menjalankan tugas-tugasnya;

13. Penegakan hukum Pemilu menjamin kualitas pelaksanaan Pemilu dalam seluruh proses dan hasil-hasilnya, menyediakan sesi pengajuan keberatan demi tercapainya keadilan dalam Pemilu (electoral justrice);

14. Memfasilitasi pemilih yang berkemampuan berbeda (different ability, diffable), memromosikan keterwakilan perempuan, dan kelompok-kelompok rentan lainnya; dan

15. Ditaatinya seluruh proses dari awal hingga akhir dalam tahapan Pemilu sesuai ketentuan perundang-undangan dan kode etik penyelenggara Pemilu.

III. Electoral Cycle

■ The Electoral Cycle

■ The Electoral CyclePada intinya tahapan-tahapan Pemilu terdiri atas:

1. Pre-Election Period;2. Election Period; dan3. Post-Election Period.

Dengan tahapan dan subtahapan sebagaimana tampak dalam gambar.

Sebagaimana ketentuan undang-undangan Pemilu di Indonesia, tahapan Pemilu menyebut sedemikian banyaknya, namun pada pokoknya meliputi: daftar pemilih, pencalonan, kampanye, pemungutan dan penghitungan suara, dan penetapan hasil.

Tugas-Tugas

■ Pertanyaan

1. Dengan merujuk ketentuan UU Pemilu, apa tugas, wewenang, dan kewajiban KPU, Bawaslu, dan DKPP?;

2. Dengan memperhatikan pada Pemilu tahun 1955, Pemilu 1971, Pemilu 1977, Pemilu 1982, Pemilu 1987, Pemilu 1992, Pemilu 1997, Pemilu 1999, Pemilu 2004, Pemilu 2009, dan Pemilu 2014, apa nama lembaga penyelenggara Pemilu pada Pemilu-Pemilu tersebut?; dan

3. Apa perbedaan lembaga penyelenggara Pemilu untuk Pemilu-Pemilu di era Orde Baru dan Pemilu di era reformasi?

■ Ketentuan:4. Jawaban ditulis tangan di kertas buku tulis biasa;5. Dikerjakan di rumah, dikumpulkan sebelum pertemuan kuliah pekan

depan; 6. Dikumpulkan ke Komting/Koordinator kelas; dan7. Tugas ini per individu, untuk peserta kuliah Laki-Laki.

■ Pekerjaan Rumah

■ Tugas

1. Dengan merujuk pada teori-teori, konsep-konsep, dan UU Pemilu, mengapa Pemilu di Indonesia dikenal lembaga Pengawas Pemilu?

2. Apa saja tahapan-tahapan Pemilu di Indonesia?;3. Sejak kapan lembaga Pengawas Pemilu kali pertama diterapkan?4. Apa perbedaan lembaga pengawas Pemilu dalam Pemilu Orde Baru

dengan pengawas Pemilu pada Pemilu di era Reformasi?

■ Ketentuan5. Jawaban ditulis tangan di kertas buku tulis biasa;6. Dikerjakan di rumah, dikumpulkan sebelum pertemuan kuliah

pekan depan; 7. Dikumpulkan ke Komting/Koordinator kelas; dan8. Tugas ini per individu, untuk peserta kuliah Perempuan.

BIO DATA ● Nur Hidayat Sardini, Staf Pengajar Jurusan Ilmu Pemerintahan Fakultas Ilmu Sosial dan Ilmu Politik Universitas Diponegoro, Semarang; ● Tempat dan Lahir, Pekalongan 10 Oktober 1969; ● Pengampu Mata Kuliah, Pemilu dan Partai Politik, Pengantar Negosiasi, Analisi Kebijakan Infrastruktur, Pemikiran Politik Islam, Pengantar Informasi dan Teknologi, pernah pula mengajar Sejarah Indonesia, Sistem Pemerintahan Republik Indonesia, Pemikiran Politik Klasik, Pemikiran Politik Kontemporer, Sistem Politik Indonesia; ● Pengalaman, Ketua Badan Pengawas Pemilu [Bawaslu, 2008-2011], anggota dan juru bicara Dewan Kehormatan Penyelenggara Pemilu [DKPP, 2012-2017], Ketua Panwaslu Jawa Tengah dalam Pemilu 2004; ● Pendidikan, Madrasah Ibtidaiyah Salafiyah (MIS) Kertoharjo Buaran Pekalongan, SMP Islam Simbang Wetan Buaran Pekalongan, SMA Negeri 2 Pekalongan, Jur Ilmu Pemerintahan Fisip Undip, Jurusan Ilmu Politik Program Pasca Sarjana Universitas Indonesia Jakarta, dan Mahasiswa Disertasi Ilmu Politik Universitas Padjajaran; Buku, Restorasi Penyelenggaraan Pemilu di Indonesia [2012], Menuju Pengawasan Pemilu Efektif, dan Kepemimpinan Pengawasan Pemilu, dan tulisan di media massa dan jurnal; ● Alamat Kampus Fisip Undip, Jurusan Ilmu Pemerintahan, Jalan Prof Sudharto, Tembalang, Semarang; Sekretariat Dewan Kehormatan Penyelenggara Pemilu [DKPP], Gedung BAWASLU lantai 5 Jalan MH Thamrin 14 Jakarta Pusat; ● Kontak, 0813.1969.1969, akun twitter @nurhidayatsardi, email nhs.sespri@gmail.com, nhsardini@gmail.com, facebook Nur Hidayat Sardini, web www.nurhidayatsardini.com ■

46