PUBLIC

PRIVATE
PARTNERSHIP
Oleh: Azhar Kasim

Pengertian Public-Private
Partnership
1. Kerjasama pemerintah dengan privat
(swasta) dalam penyelenggaraan
pelayanan atau produksi barang publik,
dalam bentuk kontrak, franchises, atau
grants
2. Privatisasi proyek infrastruktur yang
kompleks dan melibatkan banyak pihak,
swasta dan pemerintah

Pengertian Public-Private
Partnership
3. Kolaborasi formal antara swasta (bisnis
privat), pemerintah daerah dan
pemimpin masyarakat untuk
memperbaiki kondisi fasilitas perkotaan,
seperti sekolah, pelatihan tenaga kerja
(job training), pembangunan perumahan,
dsb

Exclusion
Infeasible
Feasible

Diagram Tentang Berbagai Barang & Jasa

E.S. Savas, 1982
Private Goods

Toll Goods

Toko, Bengkel Mobil

Perguruan Tinggi
Restaurant, Hotel, Rumah
Sakit

Angkutan Umum
Jalan Tol
Taman Nasional
TV Kabel, Asuransi

Common Pool
Goods

Collective Goods

Air Bawah Tanah, Udara

Garam di Laut
Sungai, Danau

Individual

Taman Kota, Jalan Umum

Pemadam Kebakaran
Vaksinasi
Mercu Suar, Siaran TV

Consumption

Joint

EL/Public Service and Privatigation/2003

Keterkaitan Pemikiran Savas

dengan Harding & Preker
No Harding & Preker

E. Savas
Private
Goods

Budgetary Units

Autonomous Unit

Corporatized
Units

Privatized Units

V
V

Toll
Goods

V
V

Collective
Goods

Common
Pool Goods

V
V

X
X
X
X

Figure 3.1 Diagram showing the exclusion and jointconsumption properties of various goods & service. Pure
goods are shown at the four corner points
Consumption

Private Individual

Exclusion

Feasible

Goods

Taxi Service Restaurant Mass Trasit Communication Cable

Store-bought goods
hotel
service
TV
(e.g., food, auto, housing)
Professional education Higher education Bridge Insurance
turnpike
Fish in a creel
Weather
Elective Surgery
Medical Care
forecast
Theater

Water
supply,
Refuse removal Stadium
Electric power,
library
Sewer service
Elementary
National Parks
education
On street parking
Fish in stocked lake
Open range

Infeasible

Rivers lake

CommonPool
Goods

Joint

Water in underground aquifer

Fish in the sea

Minerals in the ocean
Air

Watching parade,
Fireworks, air show
Central Park
Fire protection
Streets
Watching auto
Police protection
Road race,
marathon
Air and water
Pollution control,
lighthouse
Vaccination
Broadcast TV
National defense

Toll
Goods

Collective
Goods

Belgium

El

om

Te
le c

75%
more than Australia
75%
Austria

Po

st

m
un
ic

Private sector
more than 75%
Public sector
25%
50%

ec
at
t
io
Ga ricit
n
y
s
Oi
lP
Co rod
al uct
io
n
Ra
ilw
ay
Ai
rli s
ne
Mo s
to
rI
St
n
ee d u
st
l
ry
Sh
ip
bu
ild
in
g

Figure 6.1 EXTENT OF STATE-OWNED ENTERPRISES,

BY COUNTRY (1980)

na Australia
na Austria
na

Belgium

Brazil

Brazil

Britain

Britain

Canada

Canada

France

na

France

West
Germany
Holland

West
Germany
na

na

India
Italy

Holland
India

na

na

Italy

El

om

Te
le c

75%
more than Japan
75%
Mexico

Po

st

m
un
ic a

Private sector
more than 75%
Public sector
25%
50%

ec
t
t io
Ga ricit
n
y
s
Oi
lP
r
Co odu
ct
al
io
n
Ra
ilw
ay
Ai
rli s
ne
Mo s
to
St r I n
ee du
l
st
ry
Sh
ip
bu
ild
in
g

Figure 6.1 EXTENT OF STATE-OWNED ENTERPRISES,

BY COUNTRY (1980)

na

Japan
Mexico

South
Korea

na

South
Korea

Spain

na

Spain

Sweden

na

na

Sweden

Switzerland

na

na

na Switzerland

United
stated

Source: The Economist, 4 January 1986, 72. Reproduced with permission. Includes Conrall.
Note: Extensive denationalization has taken place in Britain Since 1980.

United
stated

Figure 1: Traditional Conceptualization of

Relationship between Citizen and
Government Baseline
Government
Obligations

Accountability
Linkages

Administrative Obligations

Market
Transactions

Market

Citizen Obligation

Figure 2: Conceptualization of Relationship between

Citizen and Government During the Orthodox Era (the late
19th century until the early 20th century)

Accountability
Linkages

Government
Obligations
Administrative Obligations

Citizen Obligation
Market
Transactions

Market

Figure 3: Conceptualization of Relationship between

Citizen and Government during Self Examination Era (the
New Deal Era 1932-1950)
Government
Obligations

Accountability
Linkages

Administrative Obligations

Market
Transactions

Market

Citizen Obligation

Figure 4: Conceptualization of Relationship between

Citizen and Government during the Era of Diversity (1960s1970s)
Government
Obligations
Accountability
Linkages

Administrative Obligations

Market
Transactions

Market

Citizen Obligation

Figure 5: Conceptualization of Relationship between

Citizen and Government during the Era of Market-Based
Reforms (1980-2000s)
Government
Obligations

Accountability
Linkages

Administrative Obligations

Market
Transactions

Market
Market

Citizen Obligation

Citizen State Contractual

th
Relationship
during
20
Century
Factors of
Orthodox Era Self
Diversity
Market
Citizen
(Citizen as
Government Owner)
Contract
Relationship

Examination
(Citizen as
Beneficiary)

Implementation Era
(Citizen as
Participant)

Centered
Reforms
(Citizen as
Customer)

Persetujuan
untuk
hubungan
perjanjian

Persetujuan
secara implisit
melalui
penerusan
tempat tinggal
dengan scope
wilayah
pemerintahan
Persetujuan
explisit atau
penerusan
barang bukti
melalui
partisipasi politik

Persetujuan
secara implisit
melalui
penerusan
tempat tinggal
dengan scope
wilayah
pemerintahan
Persetujuan
explisit atau
penerusan
barang bukti
melalui
partisipasi politik

Persetujuan
secara implisit
melibatkan
pengaturan swasta
melalui
peningkatan
tempat tinggal
dengan scope
bidang market
Persetujuan
eksplisit melalui
partisipasi dan
turunan barang
bukti politik melalui
non-oartisipation
dalam market

Persetujuan
secara implisit
melalui
penerusan
tempat tinggal
dengan scope
wilayah
pemerintahan
Persetujuan
explisit atau
penerusan
barang bukti
melalui
partisipasi politik

Citizen State Contractual

Relationship during 20th Century

Factors of
Orthodox Era
Citizen
(Citizen as
Government Owner)
Contract
Relationship

Self
Examination
(Citizen as
Beneficiary)

Diversity
Implementation Era
(Citizen as
Participant)

Market
Centered
Reforms
(Citizen as
Customer)

Obligasi
(peraturan)
warganegara

Warganegara
adalah penerima
jasa
pemerintahan
(new deal)

Warganegara
adalah
participant aktif
dalam
operasional
pemerintahan
Partisipasi
grassroots
dalam
mendukung atau
melawan policy
pemerintahan

Wargenegara
adalah customer
dalam market
dengan ketentuan
pemerintahan
dalam barang dan
jasa

Warga negara
adalah
participant pasif
dalam
pemerintahan

Citizen State Contractual

Relationship during 20th Century

Factors of
Orthodox Era
Citizen
(Citizen as
Government Owner)
Contract
Relationship

Self
Examination
(Citizen as
Beneficiary)

Diversity
Implementation Era
(Citizen as
Participant)

Market
Centered
Reforms
(Citizen as
Customer)

Obligasi
(peraturan)
pemerintah

Pemerintahan
bertindak untuk
menyediakan
batas keamanan
sosial untuk
warga negara
(social security)

Pemerintahan
memperluas
batas keamanan
nasional
pemerintah
bertujuan untuk
menyediakan
perlindungan dari
perasaan
eksternal.
Musuh seperti
komunis

Menarik kembali
batas keamanan
sosial untuk
disadvantage
Memberikan lebih
kebebasan bagi
yang sudah sukses

Pemerintahan
adalah hanya
terbatas kepada
perlindungan
warganegara
dari bahaya
eksternal
Melindungi dari
monopoli

Citizen State Contractual

Relationship during 20th Century

Factors of
Orthodox Era
Citizen
(Citizen as
Government Owner)
Contract
Relationship

Self
Examination
(Citizen as
Beneficiary)

Diversity
Implementation Era
(Citizen as
Participant)

Market
Centered
Reforms
(Citizen as
Customer)

Obligasi
(peraturan)
administration

Adminstration
menjadikan
sadar diri
Administration
sebagai sosial
dan politik
respon

Administrator
sebagai
pelayanan sipil
menurut
kesadaan
bersosialisasi
Administrator
pada grassroots
atau street-level

Administrator
sebagai audit
kontrak
Administrator
adalah
enterpreneur

Administration
sebagai suatu
mekanisme

Citizen State Contractual

Relationship during 20th Century

Factors of Orthodox Era

Citizen
(Citizen as
GovernOwner)
ment
Contract
Relationship

Self
Examination
(Citizen as
Beneficiary)

Diversity
Implemen-tation
Era (Citizen as
Participant)

Market
Centered
Reforms
(Citizen as
Customer)

Pertanggung
-jawaban/
pengawasan
mekanisme

Pertanggungjawaban melalui
prosedur
mekanisme
Pengawasan
politik melalui
pemilihan,
pembagian
kekuasaan, dan
kekeliruan
legislatif dalam
administrasi

Pertanggungjawaban melalui
prosedur
mekanisme
Pengawasan politik
melalui pemilihan,
pembagian
kekuasaan, dan
kekeliruan legislatif
dalam administrasi

Accountability
(pertanggungjawaban) adalah
definisi orientasi
aktif melalui
efisiensi,
penyampaian
secara efektif dari
outputs

Pertanggungjawaban melalui
prosedur
mekanisme
Pengawasan
politik melalui
pemilihan,
pembagian
kekuasaan, dan
kekeliruan
legislatif dalam
administrasi

Citizen State Contractual

Relationship during 20th Century

Factors of
Citizen
Government
Contract
Relationship
Pertanggung
-jawaban/
pengawasan
mekanisme

Orthodox
Era
(Citizen
as Owner)

Self
Examination
(Citizen as
Beneficiary)

Diversity
Market Centered
Implementation Reforms (Citizen as
Era (Citizen as Customer)
Participant)

Kontrol melalui
keterlibatan
langsung
warganegara atau
keterlibatan
terhadap wakil
warganegara

Dalam kasus kontrak

diluar jasa dan pekerjaan,
kontrol adalah to maintain
melalui ketentuan resmi
dan kepabilitas audit
terhadap pemerintahan
dalam hal referensi untuk
kontrak didalam market
Dalam kasus swasta
market tidak terkontrol

Citizen State Contractual

Relationship during 20th Century

Factors of
Orthodox Era
Citizen
(Citizen as
Government Owner)
Contract
Relationship

Self
Examination
(Citizen as
Beneficiary)

Diversity
Implementation Era
(Citizen as
Participant)

Market
Centered
Reforms
(Citizen as
Customer)

Interaksi State Market

Pemerintahan
menjadi terlibat
dalam market:
untuk pengganti
kerugian disfungsi
market (depresi)
Mengambil kunci
philosohy untuk
pengeluaraan
Pemerintahan
mendominasi
market selama PD
II

Pemerintahan
semakin terlibat
dalan kontak militer
selama PD II
Pemerintah
melakukan
distribusi kembali
kekayaan melalui
program
pemerintahan
dalam pengadaan
sosial

Pemerintahan
semakin aktif dalam
market dengan
menggunakan alat
market untuk
memberikan
pelayanan umum
Pemerintahan
menyerahkan
beberapa pelayanan
public kepada market
Pemerintahan
dipengaruhi oleh
globalisasi dalam
ekonomi pasar
(market)

Interaksi
pemerintahan
dalam market
adalah terbatas
untuk memecahkan
monopoli dan
memberantas
kolusi (laissez faire)
Membuat
peraturan dalam
industri

Pengaruh Kompetisi
Market
Quasi Non Market
Competition Market Competition
Productivity

+++

Cost Reduction

+++

Quality

++

Fees

++

Personnel

--

+++

++

Work Load

Employment Security

--

0 to -

Risk of Efficiency Loss

Yes

No

No

Risk of Bad Governance

Yes

No

No

Work Condition

Interdependence of Goals
(Selected Goals)
Ifthen

Market
Quasi Non-market
Competition Market Competition

Efficiency & Productivity

+++

---

Quality

++

+++

+++

Employment

Kompetisi (1)
1. Elemen kompetisi merupakan unsur
penting dalam menciptakan pelayanan
publik yang efisien dan berkualitas
2. Market competition adalah bentuk
persaingan yang paling cocok untuk
persaingan antar penyelenggara
pelayanan publik oleh sesama oranisasi
privat (private-private competition)
maupun antar org privat dan publik
(private-public competition)

Kompetisi (2)
3. Quasi market adalah bentuk
persaingan antar sesama instansi
pemerintah penyelenggara
pelayanan publik (public-public
competition)
4. Non-market competition adalah
bentuk persaingan berdasarkan tolok
banding (benchmarking)

Kompetisi (3)
5. Privatisasi menjadi lebih mahal
apabila tidak ada persaingan.
6. Proses privatisasi yang tidak
transparan dan tanpa
persaingan sangat rawan
terhadap praktek korupsi, kolusi
dan nepotisme

Characteristics of For-profit
versus Nonprofit Governance
For Profit Sector

NonProfit Sector

Grow market capitalization

through products and
services

Mission

Delivery services to key

constituencies

Financial performance

Measure

Financial performance
balanced with other
measures

CEO is sole boss

Leadership

CEO reports to non

executive chair

Characteristics of For-profit
versus
Nonprofit
Governance
For Profit Sector
NonProfit Sector
Small
Executive committee is
relatively inactive
No operations
committee
Predictable profiles,
often senior business
professionals
Predictable roles
Predictable hours
Long service
Highly paid

Board
Composition

Large
Executive committee is vital but
can get out of control
Nominating committee
constantly at work
Operations committee essential

Board
Members

Diverse profiles often

incorporating potential financial
donors
Diverse roles
Antisocial hours
High turnover
Expected to donate

Table 1: Client
Contractor Relations

Characteristics of
Goods and Service
Low specificity
mass production
Low strategic
relevance

Type of Interaction
between Client and
Contractor

Weak position of
contractor due to number
of available
Weak adjustment
flexibility, low flexibility of
contractor sufficient
Price as central parameter
Local availability of
contractor is not relevant
Short-term relation,
procurement

Type of Market and

Supplier Structure

High accessibility to
market
Big private enterprise
are dominating
Risk of oligopolies

Table 1: Client
Contractor Relations

Characteristics of
Goods and Service
High specificity
core business
strategic relevance

Type of Interaction between

Client and Contractor

Type of Market and

Supplier Structure

Strong position of contractor

due to highly specialized
production
High adjustment flexibility and
high flexibility of contractor
necessary
Cooperation determines
specification of contract; not
necessarily price as central
parameter
Local availability relevant
Long-term partnership
preferred

Low accessibility to
market
Local government
units are dominating
Risk of monopoly

Fig.1: Institutional Choices for Public

Service production

Specificity

High

Low
Low

High
Strategic Relevance
Picot and Wolff 1994, 78 (fig.5)

Fig.2: Institutional Choices AND Market

Situations

procurement

Industrial mass
production

Pluralistic
markets

Monopoly

Internal

Lo
production
St ngCo
ra te
m
Make
t e rm
pe
gic c
t it i
pa ont
on
rtn rac
be
er tin
tw
sh g
ee
ips
Sh
n
or
pu
t -t
bli
er
ca
m
nd
co
nt
pr
r
iva
a
Buy
ct i
te
ng

Oligopolistic
markets

High
Specificity

High
Strategic
Relevance

Competition between Public

& Private Service producers
Competition
Arrangements

Inter-Unit Competition

Intra-Unit Competition

Public-Private Competition

Private-Private Competition

Market Competitions

Quasi-Market
Competition

Non-Market
Competition

CONTRACTING
OUT SERVICE
DELIVERY

COMPETITIVE
SERVICE
ARRANGEMENT

Private Monopoly

Competition

Unresponsive
Expensive

Improve Quality
Reduce Costs