CHAPTER II

POLICY
2.1 Definition of Policy
Policy is a translation of the word policy is derived from English. The
word policy is defined as a plan of action or a statement of objectives, roposed
or adopted by a government or political party. The word policy is
etymologically derived from the word polis in Greek (Greek), which means
the city-state. In Latin this word into politia, meaning the country. Sign into
Old English (Middle English), the word becomes Policie, whose meaning is
related to the affairs of the government or administration commands (Dunn,
1981: 7).
In harifah science policy is a direct translation of the word science
policy (Dror, 1968: 6-8). In a general sense this word so defined as a course of
action intended to Accomplish some end (Jones, 1977: 4) or whatever
government chooses to do or not to do (Dye, 1975: 1).
Etymologically the word policy together with two other important
words, the police and politics. This is one reason why many modern
languages, such as German and Russian, has only one word (politics, politics)
for the two senses of policy and politics. Some great writers use the term
public policy and public policy analysis in the sense that no different.

According to the United Nations (1975) is a basic policy guidelines

act, a certain course of action, a program of activity - specific activity or a
plan. So there are some policy definitions according to experts, are as follows:
a. "The policy is a complex dependence pattern of interdependent collective
choices, including the decision to act is made by the body or government
agency," (William Dunn, 2000).
b. "Policy is a set of concepts proposed action by a government or a group of
people or in a particular environment by proposing constraints and
opportunities of the implementation of the proposal in order to achieve
certain goals, '' (Carl J. Friedrich, 1963)
c. a policy is a statement by government at whatever level- of what it
intends to do about a public problem,(Birkland, 2010)
d. Policy as a projected program of goals, values and practices,(Stewart,
Hedge & Lester, 2008).
e. "Policies are elements or expressions of the programs and decisions,"
(Charles O. Jones, 1996)
f. "The policy as a series of actions that have a specific purpose that is
followed and implemented by an actor or group of actors in order to solve
a particular problem" (James E. Anderson, 1979)
g. "Policy is what is chosen by the government to do or not do" (Thomas R.
Dye, 1976)
h. "The policy as to what is stated and done or not done by the government.
The policy can be either the target or goal of government programs.
Determination of the policy can be clearly manifested in laws and
regulations or in the speeches of senior government officials as well as the
programs and actions of the government "(George C. Edwards III, 1980)

Based on the opinions of various experts mentioned above, it can be

concluded that the policies are actions or activities that intentionally done or
not done by a person, a group or a government in which there are elements of
the decision in the form of election efforts among the various alternatives
available to achieve the aims and objectives particular.
2.2 Scope of Policy
2.2.1 Public Policy
The term public in a series of words containing three connotations of public
policy, namely the government, the public, and the public. This can be seen in the
dimensions of the subject, object, and environment of the policy. In the dimension
of the subject, public policy is the policy of the government, the one feature of the
policy is what government do or not to do. Policy of the government that can be
considered an official policy and thus has the authority to force people to comply.
The scope of the study of public policy is very broad because it covers a wide
range of fields and sectors such as economic, political, social, cultural, legal, and
so on. Besides views of the hierarchy of public policy can be national, regional
and local such as laws, government regulations, presidential decree, ministerial
regulations, government regulations / province, the governor's decision, the
regulations

of

the

district

city,

and

decision

regent

mayor.

In terms of understanding public policy it turned out a lot, depending on the

point where we perceive it. Easton provides a definition of public policy as the
authoritative allocation of values for the whole society or as forcibly allocating

values to all members of the community. Laswell and Kaplan also defines public
policy as a projected program of goals, values, and practice or something
achieving

program

goals,

values

in

the

targeted

practices.

Public Policy seeks to review the share theories and processes that take place in
public policy. It can be said that public policy can not be separated from the
process of policy formation itself. Thus, one of the goals of public policy study is
to analyze how the stage-by-stage process of the formation of public policy in
order to realize a specific public policy. Some definitions of Public Policy,
according to experts, are as follows:
a. "Public policy is a complex pattern of dependence of collective choices are
interdependent, including decisions to act are made by the agency or
government office" (N. Dunn, 2000).
b. Public policy is a proposed course of action of a person, group, or
government within a given environment providing obstacles and opportunities
which the policy was proposed to utilize and overcome in an effort to reach a
goal or realize an objective or purpose. (Carl J. Friedrick,1963)
c. Public policy refers to a set of actions by the government that includes but
not limited to, making laws and is defined in terms of a common goal or
purpose (Mayer et al.2011).
d. Public policies are the intentions and actions of government range widely
over many fields of endeavour and may effect many members of society.
(Levitt. 1980).
e. Public policy is the authoritative allocation of values for the whole society
(David Easton, 1953)
f. Public policy is whatever governments choose to do or not to do. (Thomas
R. Dye, 1976)

g. Public policy is A proposed course of action of a person, group or

government within a given environment providing obstacles and opportunities
which the policy was proposed to utilize and overcome in an effort to reach a
goal or realize an objective or purpose (Smith, 2003).
h. Public policy is a government activity to solve problems in the community,
either directly or through a variety of institutions that affect people's lives
(Woll, 1966). As for the effect of government action are:
1) The existence of the policy choices made by politicians, government
officials or others who aimed to use public power to affect people's lives.
2) The output of the policy, where the policy is applied at this level requires
the government to make arrangements, budgeting, personnel formation
and regulate it in the form of programs that will affect people's lives.
3) The impact of the policy is the effect of policy choices that affect people's
lives. The definition of public policy according to Woll can be classified as
government intervention (intervention socio-cultural) that is by utilizing a
variety of instruments to address public issues. This definition can also be
classified as a series of public officials working to resolve the issues in the
community.
i. Public policies are those policies developed by governmental bodies and
officials(James E. Anderson,1979).
Public Policy by James E. Anderson kind there are several kinds:
a) Substantive and Procedural Politics
(1) Substative Policy
Seen from the substance of the policy problems faced by government.
(2) Procedural Policy
Policy views of the various parties involved in the formulation (policy
stakeholders).
b) Distributive, redistributive and Regulatory Poicies
(1) Distributive Policy

Policies governing the provision of services to any individual or group of

companies.
(2) Redistributive Policy
Policies governing the transfer of wealth allocation, ownership or right.
(3) Regulatory Policy
Policies governing the restriction / prohibition against actions / measures.
c) Material Policy
Policies governing the allocation / provision of a number of real material
source for the recipient.
d) Public goods and private goods policies:
(1) Public Good Policies
Policies governing the provision of goods or services a number of
governments for the public good.
(2) Private Good Policies
Policy regarding the provision of a number of goods services by the
private sector, for the benefit of the free market perorangaan in exchange
for a fee.
Anderson further said there are important elements contained in public
policy include:
1. The policy always has the purpose or goal-oriented.
2.
The policy contains the action or pattern of actions of government
3.

officials.
The policy is what is actually done by the government, and not what

4.

is intended to be done.
Public policy is positive (a governmental action on a particular issue)

5.

and negative (government official's decision not to do something).

Public policy is always based on certain rules and regulations that are
forcing (authoritative).
From the definitions above it can be concluded also that public

policy is a policy made by the government in the form of actions the

Government either to do or not do something that has a specific purpose
intended for the benefit of society. Public policy decisions are binding for
the crowds at the strategic level or nature outline made by the public

authorities. As a publicly binding decisions, the public policy must be

made by the political authority, namely those who received a mandate
from the public or the crowd, usually through an election process to act on
behalf of the people. Furthermore, public policy will be implemented by
the administration of the state which is run by the government
bureaucracy. The main focus of public policy in the modern state is a
public service, which is everything that can be done by the state to
maintain or improve the quality of people's lives.
2.3 Role and Function Policy
Policies can be briefly defined as a rule in the form of a written and an
official decision of an organization. A variety of these rules govern every aspect of
human life, both in the public and private sphere.
The purpose of the policy is to integrate the knowledge into a holistic
discipline (overarching) to analyze the public option and the decision-making
and karenannya he had a role in the democratization of society (Parsons, 2001).
The role and functions of different true, which relates to the role of the
human subject, while the function of the object is associated with the object, it
turns out in the policy these two words can be interpreted as the same thing. The
role and main functions of the policy is to regulate all aspects of human life in
the process in various fields, both public and private, such as health,
transportation, education, environmental, social, economic, security, and more.
The setting is done in order to create a stability in various fields and to realize the
state of order, harmony, and the existence of good relations between people
concerned in it.

2.3.1 Role and Functions of Public Policy

Public policy is closely associated with the government and society, and
made by the government to regulate or direct whatever he wanted to do or not do
for the benefit of its people. Public policy has a broader scope, namely in the field
of economic policy, education, health and so forth.
The role of the state (government) here is to create better conditions to
ensure that the public interest (together). Public intervention by the state is
intended to assure the rule of law, human rights, and order.
The role and function of public policy is as follows:
1.

Achieving some broad goals that affect a large segment of a country's citizens
or the public. Public policy will regulate everything that affects the interests
of human activities that are necessary to set up and intervention by
governments or social rules. The segment in question is a large variety of
fields, such as social, political, economic, health, defense, security, education,

2.

and others.
Pressing and

encourage

community

activity

in

country.

For example, Peraturan Daerah Kota Surabaya Nomor 5 Tahun 2008 tentang
Kawasan Tanpa Rokok dan Kawasan Terbatas Merokok. Of the regulation
contains a ban on smoking in public places with a variety of the penalties,
then the regulation can function as a suppressor activity of people not to
3.

smoke in public places.

Realize government intervention and regulation of the life of society in

4.

various fields.
To protect and safeguard the interests and desires of the entire community
(the availability of clean air, clean water, good health, innovative economy,

active trading, higher educational attainment, a decent house, low poverty,

5.

low crime rate, and other ).

Build an environment that allows each actor, both business and non-business

6.
7.

to be able to develop to become competitive actors.

Perform a frontal attack on public issues.
Help for setting analysis contentious issue is happening or will happen in the
future

2.4 Principles of Policy

Policy-making function not only solve existing problems, but also to prevent
the problem, then we should pay attention to some of the principles of the
policy itself. This is so we created a policy that can be useful and appropriate
to the needs of the organization. The principle of the policy serves as a
benchmark or guideline in the formation of effective policy. Some of the
principles in his book Freegard policies according to the Ethical Practice for
Health Professionals (2006), namely:
1. The policy is based on an explicit, shared ethical values that can be
justified. The policy was to be firmly and clearly, supported by the base
value will return policies made ensured compliance with these basic
values.
2. The policy helps solving conflicts
Policy must be made can be used as a reference in the resolution of a
conflict arising. Not all policies are made at the time of issue or conflict
arises. Policies can be created to prevent a conflict, but it is nevertheless
expected that the policy will be accomplishing a conflict if a conflict
3.

arises.
Consistent Policy
Policy guidelines should be clear that all members of the policy
implementers have the same perception about the policy to be

implemented. Policies created with words that are easy to understand and
does not lead to ambiguous or encouraging the perception of different
things to different administrators. Consistent policy means the policy
applies equally in all regions and fixed.
4. The policy is flexible
In the above principle is explained that the policy is consistent, but the
policy on this principle should also be flexible. Policies should be able to
make allowances or exceptions to such a degree, that implementing the
policy is expected to act wisely. The consistency seen in its application to
the whole region and carried out by all the implementers of the policy
itself.
5. Policies are dynamic
Policies can be changed according to the internal and external conditions
of the organization, so that the policy can continue to evolve according to
the needs of the organization.
6. Some people who interpret

and

apply

the

policy

itself

Good policy will not run properly if the executor can not or do not want to
run it. Not infrequently a policy to fail because the administrators who do
not agree with that policy. They then tried to ruin it by implementing
policies and perceive it with bad policies. Thus, the implementers of this
policy greatly affects the success of the policy itself.
7. The policy is supported by education
Education is necessary when the initial policy-making, so that the contents
of the policy created can be understood or perceived the same by everyone
or implementing the policy.
8. Policies with limited time
In accordance with the characteristics of a dynamic policy, then the
policy has certain limitations. This does not mean the policy was

abolished because it is useless, but the policy is constantly updated so that

the policy may be more appropriate or in accordance with the needs of the
organization concerned.
2.4.1 Principles of Public Policy
The principle of public policy can be used as guidelines and limits for the
making of public policy which aims to improve the welfare organizations
and community members. Here are some of the principles of public and
private policy. There are 17 principles of public policy according to the
Association of Washington Business (2002), namely :
1. Public policy must maintain the development of the private sector
In principle, the government should be able to ensure that the public
policies they take it does not restrict the development of existing private
companies, either directly or indirectly. So it is expected that there are
private companies can still thrive, not bothered by the ongoing public
policy.
2. Public policy involves people in its development
On this principle explains that public policy should be taken by the
government with the knowledge of the people and must be willing to
listen to people's opinions into consideration. The government should
not run a policy that clearly has been challenged or not approved by the
people.
3. Public policy

is

based

on

the

analysis

of

social

benefits

This principle requires governments prioritize consideration of the

public policy benefits for all community, rather than on the costs to be
incurred to execute that policy or other factors.
4. Public policy is flexible

The flexible nature of the question is the government's willingness to

provide an exception to the business community, if the implementation
of policies that can be detrimental to the business community.
5. Public policy must achieve the other objectives and measurable
Policies that made his success should be measured by evaluating
legitimate.
6. Public policy must be accompanied by documentation
Public policy has been implemented by the government must be
accompanied by documentation as evidence that the policy has
progressed, as well as evidence of the effectiveness of the policy.
7. Public
policy
should
provide
market-based
incentives
It is applied in the hope of making policy by the government can achieve
8.

a favorable outcome.
Public policy should be implemented by the government functional
This principle emphasizes that public policy is made by a functioning
government, and the policies that should be implemented quickly and
can address a public issue. Policies should be able to resolve public

issues that arise quickly and effectively.

9. Public policy is clear and realistic
Public policy and laws should be clear boundaries can also be
implemented by all implementing policies including community
10. Public policy complemented the simple law
Simple law is used to prevent any duplication of law as a basis in
determining sanctions. Duplication of the law can lead to confusion in
determining sanctions for fraud or breach of the policy used. This will
lead to policies that have made it ineffective.
11. Public
policy
must
be
consistent

with

existing

law

Policies must be run in accordance with existing laws, policies can be

flexible but only in certain situations.

12.

Public

policy

should

support

government

innovation

Innovations are expected in this principle is government innovation in

improving the efficiency of public services with the most cost-effective.
13. Public policy prioritizing the efficient use of public and private
resources. Public policy is required to prioritize the use of public and
private resources, so that the benefits of public and private resources that
exist can be felt by all elements of society.
14. Public policy ensures stakeholder committee and board positions. Public
policy ensures that stakeholder committee and the board is representative
of each part of the organization. Performance and board committee of
stakeholders affected by public policy is created and selected by the
organization.
15. The right policy sanctioned
Policies must be precise in giving sanction in accordance with a
reasonable Law of limitations, and in accordance with the offense
committed.
16. Public policy restricts civil penalties for economic restitution
Public policy should be able to determine the specific penalty with a
clear benchmark and limit criminal sanctions for criminal acts.
17. Public policy with clear time
Public policy must have a certain period of time and clear in its
execution, so that policies can be seen to be effective.
2.5 Characteristics of Policy
1. The policy should have a purpose
A policy is a means to an end, a tool to achieve a public purpose (public). That
is, the policy is a set of government actions designed to achieve specific
results expected by the public as a constituent of the government. A policy

without purpose has no meaning, it is impossible not even going to create new
problems. For example, a policy that does not have a clear goal, the program
will be implemented differently, achievement strategies become blurred, and
finally policy analysts would argue that the government has lost its way.
Goal setting is also the most important activity because only tujuanlah who
can provide direction and rationale to the public option. In fact, policy makers
often lose their way in setting policy goals. In order for the policy remains
focused on its intended purpose, the policy-making should be based on the
stages of the policy cycle that includes planning and evaluation. Policymaking certainly has obstacles, but to look for solutions to overcome them and
realize the desired goals to achieve. Based on the main objective, there are six
groups of policy actions (play action) fundamental, namely:
a) Regulation
The ultimate goal makes certain rules and restrictions.
b) Deregulation
The ultimate goal makes easing even the removal of certain restrictions.
c) Incentives
The main objective to encourage and accelerate the achievement of
something by providing a form of reward.
d) Provision of infrastructure
Its main purpose is to provide the infrastructural.
e) Information or guidance
The main objective to provide and deliver information and provide
specific guidance.
f) Influences
The main objective to encourage and influence the changes and assist the
process of change to a particular party.
2. Policies as hypothesized
Policies are based on theories, models or hypotheses about cause
and effect. Policies always rely on assumptions about the behavior.
Policies always contain incentives that encourage people to do something

or disincentives that encourage people not to do something. Policies must

be able to unify estimates (projections) of the success to be achieved and
overcome failure mechanisms that may occur.
For example, if the government raised fuel prices, it will be many
companies raise the price of production which will result in the price of
goods increases and the lower classes increasingly difficult to make ends
meet. So looking at the policy as well as the hypothesis and the findings
emphasize the importance of learning from the results of implementation
3.

and evaluation.
Policy as legal action
The choice of policy actions in the nature of legal or authoritative
as they are made by people who have legitimacy in the government
system. The decisions were binding on the civil servants to act or direct
the actions or activities of choice, such as preparing draft legislation or
regulations to be considered by parliament or allocate a specific budget to
implement the program. Policy as a legal decision not also mean that the
government always has the authority to deal with issues. Policies can then
be viewed as a response or official response to the issue or public issue.
This means that the policy is: (a) Intentional or have a purpose.
Means the achievement of government policy objectives through the
application of public resources; (b) Regarding the decision-making and
testing its consequences; (c) Structured with the players and the steps are
clear and measurable; (d) As the election express political priorities of the

executive program.
4. The policy involves the participation and community aspirations.
Participation is involvement in the decision-making process, formulation,
planning, implementation, and oversight policies. Participatory policy-

making and aims to be the policy aspirations of the people who have
organized and planned to match the reality. In addition, people also tend to
be more obedient to the manufacture and formulation of policy involving
public participation and active aspiration.
5. Policy and arranged structured form of law and legislation.
6. All the policies that have been created and compiled must have a legal basis
and law. This means that policy-making should not be contrary to and in
violation of the laws and regulations in force.
7. Policies generate impact (outcomes)
Each policy-making process should be analyzed in advance whether to
provide a good or bad impact for the community. A policy that is made
should not be detrimental to the public. Types of policies based on the
effect or impact that want thereof include:
a) The policy explicitly
Explicit policy is a policy that is intended to impact directly on the
target object policy.
b) Policies implicit
Implicit policy is a policy that is aimed at providing an indirect impact
on the policy target object.
2.6 Elements - elements of policy
Policies generally have a five main elements, namely:
1. Problem public (Public Issue); is a central issue to be solved by a policy.
Policies are always formulated to solve or prevent problems, especially
problems that are public issues. The problem is referred to as a public issue
when the issue of concern the public and affect the livelihood of the
community at large.
2. Policy Value ; each policy always contains a certain value, and also aims to
create a new tatanilai or the new norm in the organization. Often the value that
is in the public or members of different organizations with values that are in

the government. Therefore it is necessary that intense participation and

communication when formulating policy.
3. Cycle Policy; actual policy-setting process is a cyclical process and the nature
of the continuum, which consists of three phases:
(1) Policy Formulation
(2) Policy Implementation
(3) Policy Review
The third stage in the cycle or process are interconnected and
interdependent, complex and not linear, that all three so-called Policy
Analysis.
4. Approaches to Policy; at each stage of the policy cycle should be accompanied
by the application of the approach as appropriate. At the formulation stage,
which is widely used approach is the normative approach, valuatif, predictive
or empirical. In the implementation phase many structural approach
(organizational) or managerial approach. While the evaluation phase uses the
same approach to the formulation stage. The selection of the approach used
will determine the level of effectiveness and success of a policy.
5. Consequences of Policy; at each application of the policy should be observed
effects that. In monitoring the results of the policy we have to distinguish two
types of result; outcomes and impact . Whatever the form and content of
policies in general will impact or consequences arise. The level of intensity of
the consequences will vary from one policy to another, may also vary by place
and time dimensions. Another consequence is also noteworthy is the
emergence of resistance (rejection) and negative behavior.
2.7 Levels of Policy
1. Macro

Macro policies involving the whole community and government leaders

are generally in the formation of public policy. Macro policy is a policy that can
affect the whole country (national). For example, Law, Government Regulation
(PP), Minister of Health, and others. Macro policy involves the whole community
and local government leaders in general in scope for public policy. Participants in
macro policy areas including the president, the executive, legislative,
communications

media,

spokesperson

of

the

group,

and

others.

In the macro policy making, not only the role of government are involved but also
active participation from the community. Policy decisions made in the macro area
can be the basis of things that will be made at the meso and micro levels. Changes
or additions to the existing policy will enable handled at the meso level.
Example Macro Policy in the field of health is Peraturan Menteri Kesehatan
Republik

Indonesia

Nomor

1464/MenKes/Per/X/2010

tentang

Ijin

dan

Penyelenggaraan Praktik Bidan. Contoh kebijakan makro di Indonesia antara lain

adalah UUD 1945, TAP MPR, UU,Perpu,PP dan Kepres. Berdasarkan TAP MPR
No. III/MPR/2000 tentang Sumber Hukum dan Tata Urutan Peraturan Perundangundangan, tata urutan peraturan perundang-undangan Republik Indonesia adalah:
a. Undang-Undang Dasar 1945: merupakan hukum dasar tertulis Negara
Republik Indonesia, memuat dasar dan garis besar hukum dalam
penyelenggaraan negara.
b. Ketetapan Majelis Permusyawaratan Rakyat Republik Indonesia: merupakan
putusan Majelis Permusyawaratan Rakyat (MPR) sebagai pengemban
kedaulatan rakyat yang ditetapkan dalam sidang-sidang MPR.
c. Undang-Undang: dibuat oleh Dewan Perwakilan Rakyat (DPR) bersama
Presiden untuk melaksanakan UUD 1945 serta TAP MPR-RI.
d. Peraturan Pemerintah Pengganti Undang-undang (Perpu)

e. Peraturan Pemerintah: dibuat oleh Pemerintah untuk melaksanakan perintah

undang-undang.
f. Keputusan Presiden: bersifat mengatur dibuat oleh Presiden untuk
menjalankan fungsi dan tugasnya berupa pengaturan.
2. Meso
Meso policies typically focus on a particular policy or functional areas,
such as commercial air transport, the expansion of agricultural activities,
construction of dock and river, or the granting of a patent. Typically include a
means by private and government at the local level. Target implementation of
meso policies can be used by the public or individuals, for example: to strengthen
support in the business environment and to change the structural shape of an
autonomous region. Meso policy formation is due not everyone cares about public
policy that has existed, many people are only interested in one of these areas, such
as officials or citizens who are truly interested in maritime shipping policy may
have little interest or even no policy health.
Examples of Meso policy in the health sector is Peraturan Gubernur
Propinsi Daerah Khusus Ibukota Jakarta Nomor 88 Tahun 2010 tentang Perubahan
atas Peraturan Nomor 75 Tahun 2005 Tentang Kawasan Dilarang Merokok.
Daerah Surabaya pun mempunyai kebijakan lain, yaitu Peraturan Daerah Kota
Surabaya Nomor 5 Tahun 2008 Tentang Kawasan Tanpa Rokok dan Kawasan
Terbatas Merokok. Contoh di atas membuktikan bahwa Kebijakan Meso pada
suatu daerah memiliki kebijakan yang berbeda.
3. Micro

More micro policy involves the efforts made by a particular individual, a

company, or a community that seeks only to obtain profit for their own party.
Micro policies into competence in general private business, typically include
managerial strategies to increase productivity, improving the quality of Human
Resources (HR), and business networking .In a micro policy, the parties
concerned in a particular agency tends to have regulations or private laws without
interference from the government. A company wants a favorable decision for his
own company, for some parties in the policy of this micro, actions and decisions
are not so considered during the intervention of the government to bring a loss for
the adherents of micro policies.
Contoh yang dapat diambil adalah Keputusan Gubernur Provinsi Daerah Khusus
Ibukota Jakarta No 11 Tahun 2004 tentang Pengendalian Merokok di Tempat
Kerja di Lingkungan Pemerintahan adalah ilustrasi yang bagus dari kebijakan
mikro. It is categorized as a Micro policy because the regulation applies only
within the scope of the organization (Work in Environmental Governance).