Evaluation of Development Planning in Riau Islands Province

The purpose of this research is to analyze the development planning process in the Riau Islands in 2020 which is not optimal. The development planning process is analyzed and described using three indicators by Willian N. Dunn's development planning evaluation theory, that is: (1) efficiency; (2) equality and (3) responsiveness. The research method used is a qualitative research method. The results of this research indicate that although the development planning process starting from the phasing and scheduling carried out by the Riau Islands Provincial Government in the preparation of the 2020 Regional Government Work Plan has been appropriate and stakeholder participation in the Musrenbang is also quite good, the work achievements contained in the regional head performance agreement at the end of the year it was found that 25% of the performance targets had not been achieved.


INTRODUCTION
Regional autonomy is part of the rights, authorities, and obligations of autonomous regions to regulate and manage their own government business and the interests of the local community in accordance with statutory regulations (Muluk, 2009). The implementation of regional autonomy is not only based on legal requirements, but also as an implementation of the demands of globalization. The demands of globalization must be strengthened by providing a more comprehensive, practical and accountable mandate to the regions, especially in regulating, utilizing and exploring the potential sources that exist in their respective regions. This regional autonomy has also been regulated in the Laws of the Republic of Indonesia Number 32 of 2004 and Number 23 of 2014.
The spirit of this Autonomy law is an effort to encourage the process of accelerating regional development, by the regions themselves and the results are aimed at the welfare of the people in the area. Furthermore, through the implementation of the autonomy policy, concrete programs for local governments that are more independent, more capable of realizing justice and equitable regional development will be realized.
One important aspect for the success of regional development is the existence of a good planning process. The importance of planning aspects basically revolves around two main things, first is planning as a development tool and the second is planning as a benchmark for the success or failure of the development (Soekartawi, 2003). Development is often carried out in a multidimensional manner because it is in direct contact with many systems, the needs and interests of the community and the resources they have. Furthermore, during the development process, evaluation activities are also carried out. Evaluation of regional development is very necessary to see whether the implementation of the development has been in accordance with the predetermined plan, whether there are obstacles or obstacles that arise during the implementation of development and whether the community has benefited from the regional development. (Mallick, 2005). The evaluation will also provide useful information to assist relevant stakeholders and development policy makers, especially in understanding, managing and improving as a basis for planning future plans (Sembiring et al., 2018).
Government Regulation Number 8 of 2008 concerning Stages, Procedures for Preparation, Control and Evaluation of the Implementation of Regional Development Plans mandates that the Governor carry out an evaluation of regional development planning within the province which includes three aspects, firstly aspects of regional development planning policies, secondly aspects of implementing regional development plans. and the third aspect of the results of regional development plans.
The suitability of program planning is expected to boost development in the regions, so that a strong political will is needed from the leadership for a participatory planning process. The Development Planning process is vital so that the development goals for the welfare of the community can be realized. Evaluation is important to assess the achievement of the objectives of policies, programs or activities and to analyze problems that occur in the implementation process so that they can become feedback for improving performance or implementing development (Sriharyati & Sholihannisa, 2020).
According to (Kumolo et al., 2017) A good planning must include a description of the vision and mission, an assessment of the external and internal environment, the formulation of strategic issues, including the preparation of a development strategy. Furthermore (Bryant & White, 2019) states that what is meant by development is all efforts in order to increase human capacity in influencing the future which have main correlations, namely: (1) development means generating optimal human abilities (capacity); (2) development means encouraging the growth of the values of togetherness, equity and prosperity; (3) development means putting trust in the community to build itself according to its capabilities. This belief is expressed in equal opportunity, freedom of choice and empowerment. (4) Development means creating the ability to build yourself (sustainability). (5) Development means reducing the dependence of a country on other countries and creating mutually beneficial and respectful relationships (interdependence). This is directly proportional to the opinion of Bryant and White (Fitriandari & Winata, 2021) which states that development is a continuous process within the framework of improving present and past conditions that are still not in accordance with the ideals of human life. Meanwhile, according to (Suryono, 2010) states that development is a process of social change in a community, by providing the widest opportunity for citizens to participate, to get progress both socially and materially.
Development will be realized with careful planning. As stated by (Aditama, 2020). Development planning is the whole thought process carefully and seriously in order to achieve the goals that have been determined. Planning is a process to think about the problems that are being faced and think about alternative solutions and think about the expected ideal conditions (Naharuddin, 2022).
Planning has a strategic role. In planning, we can determine the best alternative choices that focus on the problems to be solved and the resources we have. Starting from good planning, it is hoped that good results will be obtained (Falih, 2019). The planning process begins with information about the availability of resources and the direction of national development or it can be said that it is in accordance with the needs, dynamics of reform and a more democratic and open government, so that it is the people who know best what they need (Dianto, 2021) In the development planning process, evaluation can also be carried out so that the development planning process is able to produce the expected development goals. This is in line with the opinion (Munaf & García Reyes, 2013). Where Evaluation helps monitoring activities from the results of this evaluation, improvements can be made to further development planning or necessary adjustments (Nasution & Achmad, 2021).
Furthermore, to evaluate a policy to measure the level of success of programs and public policies, the important points are related to effectiveness, efficiency, adequacy, equity, responsiveness, and accuracy. The accuracy indicator is most successfully used in measuring the level of consistency. Meanwhile, the indicator of equity is the most difficult thing to measure considering that the amount of the budget in the program is not the same (Suwitri, 2014).
Meanwhile, according to (Dunn, 2018) states that there are six evaluation criteria, namely effectiveness, efficiency, adequacy, alignment, responsiveness, and accuracy. According to him, to analyze the process in a policy, only three rational criteria are used. First, efficiency is a review of how much effort is required to achieve the desired results (costs, benefits, ratios). Second, averaging which examines whether costs and benefits are distributed equitably to different groups. Third, responsiveness that examines whether the policy results satisfy the needs, preferences or values of certain groups.
From the understanding of the concepts above, it can be simply understood that development planning is a process of change that is carried out consciously and continuously to achieve progress and improvement of a better life towards the desired goal. Therefore, development contains the following elements: (1) Change, namely a change from something that is considered less to be perfect; (2) Goals, namely goals that are directed from, by, and for the people (humans) towards the preservation, welfare, and happiness of a better life; and (3) Potential, namely the potential of the community contained in the community itself which can then be used to support the implementation of development planning.
Based on the focus related to development planning in the Riau Islands in 2020, it is felt that it is still not optimal. Based on data obtained from the Development Planning, Research and Development Agency of the Riau Archipelago Province, from the number of proposals proposed in the National Musrenbang there were 1,273 proposals. The percentage of the number of programs agreed in the Musrenbang is 8.01% or 102 proposals. While the amount of the budget ceiling agreed upon in the National Development Planning Meeting was 5.69% or around Rp. 646,689,836,005, -(Six Hundred Forty Six Billion Six Hundred Eighty Nine Million Eight Hundred Thirty Six Thousand Five Rupiah).
Furthermore, the musrenbang proposals that are accommodated in the 2020 APBD amounted to 30.69% or around 1,098 of the 3,579 proposals contained in the Regional Government Work Plans. Based on the problems presented, the problem in this study is whether the development planning process in the Riau Islands in 2020 is able to produce the expected development goals?.

METHODS
This research was conducted through a qualitative approach to discuss the problem in depth. The research was conducted to describe the actual condition of the object under study. The object of this research is the evaluation of development planning in the Riau Islands in 2020. The object of this research is discussed according to William N. Dunn's theory of development planning evaluation.
Data collection techniques used triangulation techniques by combining several techniques including conducting interviews with specified informants, namely using purposive sampling techniques (officials at the Development Planning, Research and Development Agency of the Riau Islands Province), field observations in accordance with the object under study, and literature studies to quoting, describing and reviewing various information and actual data related to the object and locus of research obtained.Furthermore, the data were analyzed using the model (Miles & Huberman, 2007) where the data is reduced and recorded in detail then summarizes the topics that are considered important, then presented in tabular form so as to describe the conditions that occur in the field. Finally, based on the findings obtained conclusions are drawn.

RESULTS AND DISCUSSION
The Regional Government in implementing development planning in the regions is guided by Law Number 25 of 2004. Regional development planning is carried out through a tiered mechanism starting from the village/kelurahan level, followed by similar communication forums at a higher level. This communication forum mechanism is hereinafter known as the development planning deliberation (musrenbang).
The various stages in the Musrenbang function to capture the aspirations and participation of the community, accommodate proposals for development activities, discuss a list of proposals that are the priority of development programs to be implemented in the next fiscal year, including identifying problems that occur.
In principle, through the Musrenbang, the planning process that is formed is expected to produce regional development plans that are closely correlated with the determination of the Regional Revenue and Expenditure Budget (APBD) as a source of financing for regional development. However, the reality is that after the APBD is established, there are many proposals discussed in the Musrenbang that are not accommodated in the APBD that is stipulated.
The evaluation of the development planning process in the Riau Islands in 2020, which was analyzed through the William N. Dunn approach, correlated with three things: the first is the suitability of the planned budget, the second is whether the budget allocation is beneficial to Regional Apparatus Organizations, and the third is how the policies that have been determined have supported various related parties.
The Musrenbang of Riau Islands Province in 2019 produced 5,005 proposed activities with 1826 activities of which came from the main ideas of the DPRD. Furthermore, the proposed funding ceiling at the Musrenbang is Rp. 4.890.436.914.712, Ninety Billion Four Hundred Thirtysix Million Nine Hundred fourteen Thousand Seven Hundred Twelve Rupiah) with the amount of Rp. 158.983.780.750,-(One hundred fifty eight Billion Nine Hundred Eighty Three Million Seven Hundred Eighty Thousand Seven Hundred Fifty Rupiah) of which comes from the main ideas of DPRD which are the result of recess / screening of community aspirations as material for formulating the achievement of development targets that have been stipulated in the Regional Regulation concerning Regional Medium Term Development Plan (RPJMD). The discussion groups in the RPJMD musrenbang that produce proposed activities and funding ceilings are divided into 6 discussion groups, namely: Infrastructure and territory, the economy, natural resources, environment and forestry, health and social society, governance, human and cultural development.
After going through the stages of preparing the RKPD Preliminary Draft (Regional Development Work Plan) which is the official document of regional development planning. This document as an elaboration of the 5-Year Regional planning document (RPJMD) is a guideline in preparing the General Budget Policy (KUA, Temporary Budget Ceiling Priorities for the preparation of the APBD draft. Furthermore, based on Government Regulation Number 8 of 2008 concerning Stages, Procedures for Preparation, Controlling and Evaluation of the implementation of the development plan mandates the existence of control measures and evaluation of the implementation of the development plan.
Evaluation of the implementation of development planning is a strategic step so that the implementation of programs and activities in each Regional Apparatus Organization is in accordance with the predetermined targets. In addition, this step is necessary to ensure that the objectives and targets in the RKPD are implemented consistently, directed and focused through programs and activities in each Regional Apparatus Organization.
Evaluation of the implementation of regional development planning is a process to assess the performance of local government planning. Through an evaluation of the implementation of regional development planning, information will be produced that can be used as input for the planning and budgeting process, which is supported by the availability of more accurate information and data. Thus the development program becomes more efficient and effective accompanied by clear accountability for implementation.

The Conformity of the Budget Plan with the Vision-Mission of the Governor of the Riau Islands
Referring to the summary of the Budget Realization Report (LRA) of the Provincial Government of the Riau Islands Province in 2020, it can be seen that between the pure 2020 APBD and the 2020 APBD expenditure realization, there is no significant change, although the realization of the 2020 fiscal year revenue increased by 48 billion Rupiah. This shows that the Riau Islands Provincial government has not been maximal in carrying out budget absorption. This can be seen from the increase in the 2020 APBD-P to 3.882 Trillion Rupiah, while the realization of spending is only 3.654 Trillion Rupiah.

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In terms of performance in the 2020 LAKIP, the achievement of targets grouped according to the 9 (nine) missions of Regional Heads all showed performance that exceeded the target. Furthermore, referring to the 2020 Riau Islands Provincial Government Change Performance Agreement, there are 16 performance agreements. Among the 16 performance targets, there were 4 targets that were not achieved, namely the percentage of buildings with typical Malay characteristics (44.29%), the percentage of safe clean water services (95.53%), the average length of schooling (96.18%) and the index Employee Professionalism (86.80%).
▲ Achieved Performance Indicators ▲ Performance Indicators that are not achieved Source: Data processed from LAKIP Riau Islands Province in 2020

Figure 1. Performance Achievements in the Performance Agreement (PK) Riau Islands Provincial Government in 2020
The formulation of policies for the direction of regional development in 2020 is the fifth year policy of the governor's term of government which is still aligned with National Development. This integration and synchronization is carried out through efforts to unify perceptions of challenges, development policies, and program priorities that are of common concern in order to achieve national development goals. This refers to the Riau Islands Province Regional Regulation Number 2 of 2009 concerning the Riau Islands Province Long-Term Regional Development Plan 2005-2025 and the Riau Islands Governor's Regulation Number 40 of 2019 concerning the 2020 Riau Islands Provincial Government Work Plan.
In order to ensure the realization of synergy in the implementation of KUA/PPAS -APBD for the 2020 fiscal year, it is necessary to carry out development management that requires disciplined behavior of trust at all levels. Thus, it is hoped that development targets can be achieved effectively and efficiently in the RKPD, the vision of the Riau Islands Provincial Government will soon become a reality. KUA/PPAS -APBD for Fiscal Year 2020 was agreed between the Governor and DPRD as a guideline for the preparation of the R-APBD, while still considering the possibility of adding or reducing activities and the definitive budget ceiling which was carried out during the R-APBD discussion process without making changes to the Memorandum of Understanding for KUA/PPAS, which substantially submitted in the Introduction to the Governor's Financial Note. Taking into account the results of the evaluation, strategic issues, the design of the regional economic framework and funding framework as well as in the context of achieving the development priority targets in 2020, the Riau Islands Province development theme in 2020 has been set: "Improving the Quality of Human and Economic Resources, Sustainability of Infrastructure and Development of Cultural Centers. Riau Islands Malay". In terms of compliance with the stages and schedules in preparing the 2020 APBD, starting from the Submission of the KUA Draft and PPAS Draft by the TAPD Chair to the Regional Head to the stage of submitting the Regional Regulation on the APBD and the Regional Head Regulation on the Elaboration of the APBD to the Minister of Home Affairs. The Riau Islands Provincial Government carried out all stages according to the schedule set by Permendagri Number 33 of 2019, as can be seen in the following figure:

Figure 2. Conformity of RKPD Stages with the Schedule Set
In the preparation of the Initial Draft RKPD, the Riau Islands Provincial Government has determined the RKPD on June 28, 2019 through the Governor of Riau Islands Regulation Number 40 of 2019. Furthermore, the DPRD provides suggestions and opinions in the form of the DPRD's main thoughts based on the results of the recess / screening of community aspirations as formulation material. activities, activity locations and target groups that are in line with the achievement of the development targets set out in the Regional Regulations concerning the RPJMD.

A Budget That Provides Benefits for Regional Apparatus Organizations
Regarding equity, so that expenditure allocations are distributed in accordance with the theme of regional development in 2020. So the preparation of the 2020 APBD is prepared based on Permendagri Number 33 of 2019 concerning the Preparation of the 2020 APBD. Referring to the mandate of Law Number 23 of 2014, regional expenditures are used to fund the implementation of concurrent government affairs which are the authority of the region and the implementation of organizational tasks determined in accordance with the provisions of the legislation. This regional expenditure is prioritized to fund mandatory government affairs related to basic services set by Minimum Service Standards (SPM), as regulated in Government Regulation Number 2 of 2018 concerning Minimum Service Standards and is guided by technical standards and regional unit prices in accordance with the provisions of laws and regulations. invitation.

Jurnal Ilmiah Ilmu Administrasi Publik: Jurnal Pemikiran dan Penelitian Administrasi Publik
Volume 12 Number 2, July-December 2022. Page 297-310 Budget allocation for education function at least 20% (twenty percent of regional expenditure) 2 Health budget allocation of at least 10% (ten percent) of the total APBD expenditure excluding salaries 3 Budget allocation for education and training for ASN in the context of developing the competence of local government administrators, at least 0.34% 4 Allocation of orientation and deepening of the duties of members of the Provincial DPRD 5 Budget allocation for pre-disaster and post-disaster programs and activities which include natural disasters, non-natural disasters and social disasters 6 Accrual-based SAP Implementation Improvement Budget Allocation 7 Budget allocation in the form of programs and activities related to the acceleration of the implementation of non-cash transactions 8 In the context of increasing the capacity of Human Resources (HR) for the Provincial/Regency/City Governments in the field of regional finance, including education and training of appraisers of regional property within the local government environment 9 Budget allocation for supervision in accordance with its authority into APBD, to fund development and supervision programs/activities Source: data processed from Permendagri 33 of 2019 From table 3 above, it can be seen that in the process of preparing regional expenditures, the Riau Islands Province considers several aspects outside of program and activity expenditures in achieving the vision and mission of the Regional Head. The division of the APBD portion must be allocated in accordance with the theme of development outside of mandatory regional expenditures such as personnel expenditure, transfer of profit sharing to 7 Regencies/Cities plus the budget allocation that must be issued based on table 2 above. So the allocation of activity programs to achieve the visions and missions contained in the 2020 RKPD theme can be seen in the following figure: Source: Barenlitbang Riau Islands Province in 2020

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From Picture 3, the Riau Islands Province APBD is still prioritized for basic services such as health education and personnel spending, which is 65%. After deducting other expenditure items as described in Figure 5, it is known that only 35% of the space for the preparation of development plans related to the RKPD theme is left. This percentage will then be distributed in mandatory government affairs and non-basic services, elective government affairs, supporting government affairs in the preparation of programs and activities to improve the quality of governance, improve a conducive investment climate, strengthen the quality of basic services for the community, increase economic competitiveness. , Development of Malay cultural center.

Policies That Can Support and Satisfy Stakeholders
In the Musrenbang process, the representation of the Regency/City becomes very important. The number of stakeholders involved in the preparation of the 2020 APBD has been discussed as follows: 1) DPRD's support and satisfaction in the development planning process as contained in the 2020 APBD document, can be seen from the involvement of various commissions in the DPRD in budget discussions. Furthermore, it can also be seen from the timeliness of approval of the KUA/PPAS Discussion and General Policy on Budget Changes (KUPA)/PPAS Amendments, to the joint approval of the Regional Regulation on the 2020 APBD which is set according to the schedule. 2) The Regency/City Government and other stakeholders who participate in the development planning process understand that the proposal submitted to the Provincial Government during the Musrenbang has the opportunity not to be accepted because there are various factors including budget constraints and limited authority possessed by the Provincial Government in accordance with regulation. For this reason, one way to measure the support and satisfaction of the Regency/City Government and other stakeholders is to look at the level of participation (attendance) in the development planning process, especially Musrenbang. From the data obtained based on the attendance list of Musrenbang participants, it can be concluded that the participation of the Regency/City Government and other stakeholders is quite high. This can be seen from the attendance of 800 participants in Musrenbang.