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POLICY ANALYSES ON BUDGETING OF TOLL ROADS DEVELOPMENT IN INDONESIA (An Evaluation on 2005-2009 Toll Roads Development Programs)

Master Theses from JBPTITBPP / 2009-06-16 16:23:31
Oleh : MUHAMMAD NIZAR (NIM: 24006062), S2 - Development Studies
Dibuat : 2008, dengan 7 file

Keyword : Kebijakan, Pendanaan, Jalan Tol, Investasi, dan Tarif, policies, budgeting, toll roads, investment, and tariff.

Penyediaan prasarana umum bagi publik seperti halnya jalan tol, merupakan tanggung jawab pemerintah, namun jalan tol memang relatif unik karena adanya faktor komersial pengenaan tarif bagi pengguna, tentunya tidak lagi dapat dikatakan murni sarana publik (public goods). Berdasarkan hasil analisis terhadap kebijakan pendanaan pembangunan infrastruktur jalan tol di Indonesia dapat diketahui bahwa faktor kunci perkembangan jalan tol di Indonesia yaitu regulasi atau perundangan tentang jalan tol, proses pembebasan lahan, penyesuaian tariff, dan mitigasi resiko investasi.

Peran swasta dan masyarakat dalam pembiayaan infrastruktur pembangunan jalan tol dilakukan dengan upaya terobosan dalam bentuk kerjasama operasi (KSO), korporatisasi, privatisasi, divestasi asset, dan lain-lain, sedangkan peran pemerintah dalam mendorong peningkatan pembangunan jalan tol di Indonesia dilakukan dengan menetapkan kebijakan yang berkaitan dengan investasi swasta yang "equity based investment", memperbaiki kerangka peraturan perundang-undangan, melakukan pemberian insentif investasi, dan membangun persepsi publik tentang public private partnership (PPP).

Kendala-kendala dalam pendanaan pembangunan jalan tol di Indonesia berkaitan dengan rendahnya tingkat pembangunan jalan tol di Indonesia disebabkan antara lain oleh: 1) belum adanya perencanaan sistem jaringan jalan tol yang dapat mendorong terjadinya kompetisi antar operator; 2) belum adanya regulasi, tata cara dan aturan yang mengatur penyelenggaraan jalan tol; 3) selama ini belum ada prosedur pemilihan investor yang kompetitif, pengadaan lahan, cost sharing, masa konsesi, dan dasar pembagian pendapatan; 4) regulasi penetapan tariff yang menjamin investor; dan 5) kendala pembebasan lahan yang berlarut-larut.

Upaya mengatasi kendala pendanaan pembangunan jalan tol di Indonesia dalam upayanya mempercepat pembangunan jalan, telah dilakukan reformasi peraturan perundang-undangan melalui Undang-Undang Nomor 38 Tahun 2004 yang ditindaklanjuti dengan Peraturan Pemerintah Nomor 15 tahun 2005 terutama berkaitan dengan pengaturan wewenang penyelenggaraan jalan tol oleh Badan Pengatur Jalan Tol (BPJT); operator jalan tol lebih yang dibuka pada BUMN, BUMD atau BUMS; ruas jalan tol, tarif dan penyesuaiannya dilakukan Menteri Pekerjaan Umum; dilakukan pelelangan secara terbuka dan transparan, serta diterbitkan Rencana Induk Jaringan Jalan Tol sebagai acuan investasi. Selain itu pemerintah membentuk Badan Pengatur Jalan Tol (BPJT) sebagai institusi pemerintah yang khusus menangani penyelenggaraan jalan tol serta menyiapkan kerangka administrasi yang transparan dan efektif.

Deskripsi Alternatif :

The availability of public infrastructures, including toll roads, are responsibility of the government. Toll roads, however, have a unique character since commercial factor they contain in form of tariffs charged to the users, therefore it can't be said that they are purely public goods. Based on the analyses on the budgeting policy of toll road development in Indonesia, it can be seen that key factors in the development are regulations or governmental acts on the toll road, land acquisition, tariff adjustments, and mitigation of investment risks.

Roles of public and private sectors in funding the toll roads have been implemented through several breakthroughs in forms of joint operation, corporatisation, privatisation, asset divestment, etc., while the government's role to support these have been trough establishment of policies related with "equity based" private investments, improvements in regulation frameworks, investment incentives, and promoting good public perceptions on public-private partnership (PPP).

There are several obstacles in the development of toll roads in Indonesia, which revealed from the fact of lower construction rate: 1) Absence of an integrated toll roads network which can stimulate fair competitions among operators; 2) unavailability of adequate regulations, norms and rules which govern the toll roads management; 3) current unavailability of adequate procedure for choosing among competitive investments, land procurements, cost sharing, concession period, and proper base for profit sharing; 4) unavailability of tariff regulations which provide security for investors; and 5) long-suffering obstacles in land procurements.

As part of effort to overcome budgeting problems in toll roads development in Indonesia, there has been a reform in the regulation with the establishment of UU No. 38 in 2004, which then followed up by Governmental Act No. 15 in 2005 which regulates an arrangement that authority on toll roads managements is belong to the Toll Roads Development Board (BPJT); toll roads are open for central, local government as well as private owned companies (BUMN) as operators; toll roads networks, and tariff establishment is under the Ministry of Public Works; bids in tender is open and transparent, the publish of the Major Planning for Toll Roads Networks as a reference in investment. The government also have appointed BPJT as a special governmental institution which manage and provide transparent and effective administrative framework for toll road mangement.

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