Paska reformasi 1998, kelembagaan penyelenggara pemilu telah mengalami evolusi yang dinamis. Kerangka hukum pemilu mempengaruhi dinamika perkembangan organisasi penyelenggara pemilu dan tantangan-tantangan yang dihadapinya.

1. TANTANGAN KELEMBAGAAN
INSTITUSI PENYELENGGARA
PEMILU
Ahsanul Minan, MH
Dosen Universitas Nahdlatul Ulama Indonesia
Disampaikan Dalam Kuliah Tamu, Program S2 Pemilu, FISIP, Universitas
Indonesia
21 November 2018
Mata Kuliah: Organisasi dan Birokrasi Pemilu

2. Weberian Model
KARAKTERISTIK PUBLIC
ORGANIZATION
modern bureaucracies are
“legal-rational.
rule-bound, specialized,
hierarchical, meritocratic,
and above all, salaried.
patrimonial (governed on the
basis of personal
relationships and loyalties)
and prebendal (self-financed
through rent extraction)
traditional bureaucracies.
NPM Model
combine accountability and efficiency in public
administration
Efficiency=
decentralization of
authority
ensuring accountability to
society at large
NPM represents a dual focus on service to
the public and accountability to society at large
Classical Model "an administration under the formal control of the political
leadership, based on a strictly hierarchical model of bureaucracy, staffed by
permanent, neutral and anonymous officials, motivated only by the public
interest, serving and governing party equally, and not contributing
to policy but merely administering those policies decided by the politicians
"Public Management Reform: A Comparative Analysis"16:
• A shift from an internal orientation towards bureaucratic rules to an external
orientation towards meeting citizens’ needs and wishes. Creation of a
professional culture of quality and service.
• Supplementation (not replacement) of the role of representative democracy by a
range of devices for consultations with, and the direct representation of citizens’
views.
• A modernization of the relevant laws to encourage a greater orientation on the
achievement of results rather than merely the correct following of procedure.
• A professionalization of the public service, so that the ‘bureaucrat’ becomes not
simply an expert in the law relevant to his or her sphere of activity, but also a
professional manager, oriented to meeting the needs of his or her citizens/users.

3. Weberian Model
PUBLIC ORGANIZATION & EMB
modern bureaucracies are
“legal-rational.
rule-bound, specialized,
hierarchical, meritocratic,
and above all, salaried.
NPM Model
combine accountability and
efficiency in public administration
Efficiency=
decentralization
of authority
ensuring
accountability to
society at large
CHARACTERISTIC OF EMBS:
INDEPENDENCE
IMPARTIALITY
INTEGRITY
TRANSPARENCY
EFfiCIENCY
PROFESSIONALISM
SERVICE-MINDEDNESS
KARAKTERISTIK EMBs di
INDONESIA
• mandiri;
• jujur;
• adil;
• berkepastian hukum;
• tertib;
• terbuka;
• proporsional;
• profesional;
• akuntabel;
• efektif; dan
• efisien.

4. LEMBAGA PENYELENGGARA PEMILU
An EMB is an organization or body that has the sole purpose of, and is legally responsible for, managing some
or all of the elements that are essential for the conduct of elections and direct democracy instruments—such as
referendums, citizens’ initiatives and recall votes—if those are part of the legal framework.
These essential (or core) elements include:
• determining who is eligible to vote;
• receiving and validating the nominations of electoral participants (for elections, political parties and/or
candidates);
• conducting polling;
• counting the votes; and
• tabulating the votes.
In addition to these essential elements, an EMB may undertake other tasks that assist in the conduct of
elections and direct democracy instruments, such as:
• voter registration,
• boundary delimitation,
• voter education and information,
• media monitoring and
• electoral dispute resolution.

5. 3 Model Lembaga Penyelenggara Pemilu
The Independent Model. EMB that is institutionally independent and autonomous from the executive branch of government; its
members are outside the executive.
The EMB has and manages its own budget, and 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 this model may enjoy varying degrees of financial autonomy and accountability, as well as varying levels of performance
accountability.
In some countries, two bodies are established to manage elections. One of these bodies is likely to have responsibility for policy
decisions relating to the electoral process, and the other to be responsible for conducting and implementing the electoral process.
The Governmental Model, elections are organized and managed by the executive branch through a ministry and/or through local
authorities. With very few exceptions, they have no ‘members’. Their budget falls within a government ministry and/or under local
authorities.
Countries that use this model include Denmark, Singapore, Switzerland, the UK (for elections but not referendums) and the United
States. In Sweden, Switzerland, the UK and the United States, elections are implemented by local authorities. In Sweden and
Switzerland, the central EMB assumes a policy coordinating role.
The Mixed Model of electoral management usually involves two component EMBs and a dual structure:
1. a policy, monitoring or supervisory EMB that is independent of the executive branch (like an EMB under the Independent Model)
and
2. 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 by the component governmental EMB, with some level of oversight provided by the
component independent EMB. The Mixed Model is used in France, Japan, Spain and many former French colonies, especially in
West Africa, for example Mali and Senegal.

7. TANTANGAN LEMBAGA PENYELENGGARA PEMILU DI
INDONESIA
Tantangan Politik
Political Distrust
KPU
BAWASLU
Unpredictable
Legal Policy
(amendment)
(-) Pengurangan kewenangan
(-) PKPU dapat dichallange
(-) “Penyetaraan” KPU dg Bawaslu
Incompability
with the
National
Planning,
Budgeting
Policies, and
public service
(+) Penambahan kewenangan (memutus
p. Administrasi, mengakreditasi
pemantau)
(+) Menchallange PKPU
(-) “Penyetaraan” KPU dg Bawaslu
Amandemen UU (terutama UU 7/2017) membawa
konsekwensi organizational yang fundamental; perubahan
struktur (penambahan deputi, jumlah komisioner,
tugas/wewenang); perubahan sistem penyelenggaraan pemilu
(sistem pendaftaran pemilih), dll.
• Sistem perencanaan program di KPU yang sering
diinterupsi oleh perubahan UU, menjadikannya sering tidak
sinkron dengan SP4N.
• Penyelenggaraan pemilu yang memiliki siklus khusus
(electoral cycle) hingga saat ini belum bisa diadopsi dalam
SP4N maupun budget planning.
• Karakterisitik unik dari penyelenggara pemilu yang memiliki
sistem kepemimpinan kolektif, serta kompetensi teknis
yang spesifik, membutuhkan sistem manajemen SDM yang

8. KENDALA INTERNAL
LEADERSHIP MANAGEMENT
RELASI
INTERNAL
SUPERVISI EXTERNAL
COMMUNICATIO
N
ORGANIZATION
AL CULTURE
SDM PROGRAM
&
KEUANGA
N
ORGANISA
SI
• Collective
Collegial
• Relasi
Komisioner
dg
sekretariat
• Rentang
kendali
• Performa
nce
based
supervisi
on
• Collective collegial
vs centralized
external
communication
INFORMASI
• Collective collegial
vs Old School
style of
bureaucracy
• Recruitme
nt
• Capacity
building
komisioner
• Capacity
building
staf
• Performanc
e based
plannding
• Election
cycle vs
annual
budgetting
approach
• Hirarchy of
organization
• Performance
based
evaluation
• Data
collecting,
data
analysing,
and storage
• Information
services

9. BEBERAPA PERTIMBANGAN
ACE Project
EMB structures have to be robust enough to deal with real-world conditions that may be disorganized or conflictual.
Despite the multiplicity of possible organizational structures for an EMB, there are some general concepts worth
considering when developing the secretariat’s structure:
1. Flatter organizational structures (fewer management levels) can deliver services faster, often more effectively, and
reduce inefficient empire building.
2. Structures are most effective when they are clearly linked to the EMB’s strategic plan.
3. Outward-looking structures focused on service delivery to stakeholders are better than inward-looking ones focused
on management or support functions.
4. Structures need to facilitate both vertical and horizontal communication within the EMB.
5. Clear work output expectations and accountability for services should be designed for each organizational unit.
6. Structures should promote support of operational areas by corporate service (e.g. finance and personnel) areas.
7. Given the prominence in the electoral cycle of the functions of monitoring, evaluation, review and reform, it is
appropriate that they are reflected in and supported by the EMB’s structure.
8. In conjunction with that, an independent internal audit function that bypasses the secretariat structure and reports
directly to the head of the secretariat or EMB members can help ensure integrity and probity.

10. TERIMA KASIH