Jurnal Ilmiah Administrasi Pemerintahan Daerah Vol. 14 No. 1 pp.

162-179
Website: https://ejournal.ipdn.ac.id/JAPD
ISSN: 1829-5193, e-ISSN: 2615-3351
DOI: https://doi.org/10.33701/jiapd.v14i1

JAKARTA-BANDUNG HIGH-SPEED TRAIN

INFRASTRUCTURE DEVELOPMENT
INCOLLABORATIVE GOVERNANCE

Author:
Dedeh Maryani1, Zainal Abidin2

Affiliation:
1
Institut Pemerintahan Dalam Negeri
Jalan Ir Soekarno Km. 20 Jatinangor – Sumedang, Jawa Barat
2
Asisten Wakil Presiden Bidang Otonomi Daerah dan Penanggulangan Kemiskinan
Jalan Medan Merdeka Utara No. 3 Kec. Gambir-Jakarta Pusat, DKI Jakarta

Email:
[email protected], [email protected]

*Coresponding Author
Dedeh Maryani Received: April 24, 2022
Fakultas Politik Pemerintahan Revised: Mei 21, 2022
Institut Pemerintahan Dalam Negeri Accepted: Mei 23, 2022
[email protected] Available Online: June 30, 2022

ABSTRACT

In accelerating economic growth, Indonesia is actively implementing infrastructure

development. One of the developments currently underway is the construction of the Jakarta-
Bandung high-speed train infrastructure. Jakarta as the nation's capital and Bandung as the
capital city of West Java Province as a buffer for the capital city have high mobility in the use of
transportation means including trains. To support the business activities between the two cities,
the government considers the development of high-speed train infrastructure as a priority
development. Due to the limited Indonesian Budget, Indonesia decided to collaborate with the
Chinese government in its development and financing.
However, the implementation of the construction of the Jakarta-Bandung high-speed train
infrastructure is not simple, because it involves various stakeholders, including the Central
Government, the Chinese Government, the West Java Provincial Government, the Regency/City
Governments that the high-speed train line passes, and the people. This study aims to describe the
implementation of collaboration among all stakeholders. The research method used is qualitative
descriptive. To collect data is interview and documentation. The results of this study indicate that
he right collaboration model found to be applicable in infrastructure development is the
Transnational Model.

Keywords: Collaborative Governance, Development, Infrastruktur, High Speed Train,

Transnational Model.

162
Jurnal Ilmiah Administrasi Pemerintahan Daerah
Vol. 14 No. 1 pp. 162-179

INTRODUCTION
In accelerating economic growth, Indonesia is actively implementing infrastructure
development. One of the developments currently underway is the construction of the Jakarta-
Bandung high-speed train infrastructure. Jakarta as the nation’s capital and Bandung as the capital
city of West Java Province as a buffer for the capital city have high mobility in the use of
transportation means including trains.
The construction of the Jakarta-Bandung high-speed train infrastructure is an important
part of the Nawacita launched by President Jokowi's government in 2014. One of Jokowi's
Nawacitas is to prepare infrastructure development to support Indonesia's economic growth in
which good infrastructure in Indonesia reflects progress and stability that lead to the welfare of the
people. This is in line with the results of Demurger's research in 2000 quoted by the Ministry of
Finance (2014), that infrastructure is the main factor as a driver of economic growth. Shi, Q (2018)
also states that the development of high-speed trains is indeed conducive to the further growth of
big cities. The important point of the main concern in formulating the concept of development in
President Jokowi's administration is the speed and distribution of development. Therefore,
infrastructure development is a priority in the implementation of development in this era. This is
reasonable because Indonesia's position in infrastructure quality is ranked 92 of 144 countries with
3.7 points based on the results of a 2014 Work Economic Forum study. Statistically, Indonesia is
only better than the Philippines (98), but far below compared to Singapore (2), South Korea (22),
China (69), and India (87). It is the cause of high logistics costs that are not competitive as seen
from the Indonesian logistics performance index in the range of 3.08 in 2014 (Management
Institute, Faculty of Economics and Business, University of Indonesia: 2016). In fact, according
to Waralee Peetawana Kamonchanok Suthiwartnarueput (2018), the factors that influence the
success of train infrastructure development projects contribute to Thailand's logistics platform.
To catch up with development from other countries, Indonesia requires a large budget. In
the calculations of the National Development Planning Agency (NDPA) stated in the Medium-
Term National Development Plan (MTNDP) in the next five years, Indonesia needs Rp. 6,780
trillion to carry out the planned development, while the financing that can be done through the
Indonesian Budget is only Rp. 1,000 trillion, the Regional Government Budget is Rp. 500 trillion,
insurance and pension fund Rp. 60 trillion, as well as infrastructure financing institutions of Rp.

163
Jurnal Ilmiah Administrasi Pemerintahan Daerah
Vol. 14 No. 1 pp. 162-179

500 trillion. There is a financial gap of Rp. 4,000 trillion that must be met from other sources so
that the acceleration of infrastructure development can run well (Management Institute, Faculty of
Economics and Business, University of Indonesia: 2016).
To fill the financing gap, the Government of Indonesia proposed a cooperation scheme for
infrastructure development involving the participation of the private sector which became known
as the Public-Private Partnership (PPP) scheme. In regulating the implementation of project
development with this PPP scheme, the Government has issued several regulations including
Presidential Regulation No. 67 of 2005 in conjunction with, Presidential Regulation No. 13 of
2010 in conjunction with, Presidential Regulation No. 56 of 2011 in conjunction with, Presidential
Regulation No. 66 of 2013 which regulates the pattern, forms, and conditions for implementing
PPP projects in Indonesia (Ministry of Finance: 2014).
In the construction of the Jakarta-Bandung high-speed train infrastructure, the Indonesian
government decided and agreed not to use funds sourced from the Indonesian Budget, but to use
the Business to Business (B to B) scheme by Indonesian SOEs and China Trainway International
Co. Ltd (PT Wijaya Karya (Persero) Tbk, March 2016). The scheme also agreed to form a
consortium named PT Kereta Cepat Indonesia-China (KCIC) as the executor of the Jakarta-
Bandung high-speed train project. This is in line with the opinion of Waralee Peetawana
Kamonchanok Suthiwartnarueput (2018) from the results of his research which states that it is
necessary to implement public-private partnerships; and the creation of a new trainway regulatory
agency.
This collaboration is carried out through SOEs subsidiaries, PT. Pillar Sinergi BUMN
Indonesia (PSBI) and China Trainway International Co. Ltd. PSBI is a SOEs consortium consisting
of PT Wijaya Karya, PT Kereta Api Indonesia, PT Jasa Marga and PT Perkebunan Nusantara VIII.
At the implementation level of the infrastructure development, it has experienced various problems
since the groundbreaking in January 2016, so the implementation of the construction has been run
very slowly. Some of the problems in this project include land acquisition, financing, and licensing
issues. The problem of land acquisition takes years so the project that should have been completed
and operational in 2019 has been corrected to 2021 and revised again to 2022. This land
acquisition is a crucial point because it is related to the obligation to revise the Government
Regulation on the National Spatial Planning (NTP). Meanwhile, a serious obstacle in terms of
licensing is that the permits have not been issued in an integrated manner from several institutions,

164
Jurnal Ilmiah Administrasi Pemerintahan Daerah
Vol. 14 No. 1 pp. 162-179

such as the Ministry and Local Governments. Several of these obstacles caused the swelling of the
financing that had to be mutually agreed upon, which was originally from USD 5.1 trillion to USD
5.9 trillion.
The development of the Jakarta-Bandung high-speed train infrastructure must be
prioritized because development is essentially a planned change effort to achieve a better quality
of life. This is in line with the opinion of Mohammed Sabirul Karim, et al (2020) which states that
the fast-growing garment industry in Bangladesh is creating increasing demand for intercountry
transportation of raw materials, intermediate products, and finished goods. Furthermore,
Mohammed Sabirul Karim, et al (2020) stated that the rail network is best able to serve anticipated
trade patterns while offering alternative transport options for existing flows. In addition, by
utilizing the long-distance competitive advantage of rail transport, the TAR has a major role to
play in bringing a more even distribution of economic opportunities and benefits. Frederic (2019)
thinks that The dissolution of trade barriers, reinforced by uninterrupted opportunities for physical
access is likely to have a transformant impact on the more backward and landlocked
countries/regions within BYIMT, such as Bangladesh, Yunnan, the North Eastern States of India,
Myanmar, and Thailand.”
Jhingan (2000: 12) suggests three main characteristics of developing countries which are
both the causes and at the same time the interrelated effects of poverty. The first characteristic is
inadequate education infrastructure and facilities, resulting in a high number of people who are
illiterate and do not have skills and expertise; the second character is poor health facilities and
consumption patterns so that only a small part of the population can become productive workers.
This results in a slow pace of economic growth; and the third characteristic, the population is
concentrated in the agricultural and mining sectors with outdated or traditional production
methods.
In connection with the focus of development discussed in this research, the construction of
the Jakarta-Bandung high-speed train infrastructure, meaning that the concept is directed at
infrastructure development carried out by the government. The basic public infrastructure such as
the Jakarta-Bandung high-speed train functions to support various community activities in social
& economic Indonesia, especially West Java Province and Jakarta as the nation's capital. The
opinion states that “Transport corridors are nowadays treated as development corridors
internationally which open up the opportunity for spatial development. In a multi-modal transport

165
Jurnal Ilmiah Administrasi Pemerintahan Daerah
Vol. 14 No. 1 pp. 162-179

culture, nobody will wait for someone hesitating to take a timely decision. If a country does not
open up its frontier, alternatives will automatically come up. Political fragmentations are not
standing in the way of economic integration.” (Abdul, 2018). This clarifies why so many regional
economic groups are evolved and change is being noticed everywhere. “Bangladesh has also a
unique position in the TAR regional scenario. It can avail of the opportunity to shortest routes to
international and inter-country destinations and hinterland of the region. We should rise to the
occasion and play a pivotal role in developing proper understanding amongst the countries
concerned to serve the best interest of the countries and their vast population.” According to Stone
in Kodatie (2005:101), infrastructure is physical facilities developed or needed by public agencies
for government functions in the provision of water, electricity, waste development, transportation,
and similar services to facilitate economic goals. Furthermore, Effendi (2002:48) mentions the
importance of developing adequate infrastructure so that people can move more dynamically and
facilitate economic activities, and so that investors are willing to invest in the region.
The construction of the Jakarta-Bandung high-speed train infrastructure that its
construction method is carried out by B to B Cooperation with the agreement of the Governments
of Indonesia and China cannot be separated from collaborative governance theory and public
policy theory. Emerson (2013), states that seeing the dynamics of the collaboration process as an
oritarian cycle of interaction. Three components are the focus of attention on collaboration,
namely: the movement of shared principles, shared motivation, and the capacity to take joint
action. We find that a virtuous cycle of collaboration tends to develop when collaborative forums
focus on “small wins” that deepen trust, commitment, and mutual understanding. Their
contingency model is offered for practitioners and future research on collaborative governance.
Furthermore, Kuhn, B. (2016), stated that the UN's global sustainable development emphasizes
governance and partnerships involving public and private actors as key elements to achieve
sustainable development goals. Then Kirk Emerson, Tina Nabatchi, Stephen Balogh (2012)
mentioned, that this framework provides a broad conceptual map for locating and exploring
components of a cross-border governance system that ranges from policy or program-based
intergovernmental cooperation to place-based regional collaboration with non-governmental
interest stakeholders to public-private partnerships. The three experts argue that this framework
integrates knowledge of individual incentives and barriers for collective action, collaborative
social learning and conflict resolution processes, and institutional arrangements for cross-border

166
Jurnal Ilmiah Administrasi Pemerintahan Daerah
Vol. 14 No. 1 pp. 162-179

collaboration. It is presented as a general framework that can be applied to analysis at different

scales, in different policy arenas, and at different levels of complexity. Peterman, DR, Frittelli, J.,
and, Mallett, WJ (2013), argue that the provision of $8 trillion for intercity passenger train projects
in the American Recovery and Reinvestment Act 2009 (ARRA; PL 111-5) revives resumed efforts
to expand intercity passenger train transportation in the United States. The Obama administration
later announced that it would ask Congress to provide $1 trillion per year for the high-speed train
(HSR) project. The three experts further argue that there are two main approaches to building high-
speed train: (1) upgrading existing trains and signaling to allow trains to reach speeds of up to 110
miles per hour (mph), generally on a shared track. freight train; and (2) constructing new tracks
dedicated exclusively to high-speed passenger train services, to allow trains to travel at speeds of
200 mph or more. The potential costs and benefits are relatively lower with the first approach and
higher with the second approach. In addition, Maat, D.K.K (2016), argues that in the early days
the station followed the existing urbanization pattern. However, new stations are more likely to be
located in underdeveloped areas and less likely to be located within established built-up areas,
which are already served by existing stations. In addition, they encourage further growth,
increasing the possibility of more urbanization around the station. As for BECK, A., Bente, H.,
and Schilling, M. (2013), stated, that if there is a difference of opinion or conflict, the solutions
range from informal agreements to cost and revenue sharing to legal integration for the duration
of the franchise agreement. The latter is only seen as appropriate for areas where one franchisee
dominates train operations. Thus, the public policy becomes important and must be considered in
the implementation of collaborative governance.
According to Parsons (2006:465), implementation is considered to have made the most
influential contribution in the development of the study of public policy implementation. Hagrove,
E. (1975) quoted by Wahab (2012: 127) questions the missing link in the study of public policy,
especially in the process between policy formulation and policy evaluation. Public policy focuses
on the study of the process of policymaking and policy evaluation, thus ignoring the problems of
its implementation. Policy implementation is an important stage in public policy because, without
implementation, it will not be possible to know the achievement of goals and impacts arising from
a policy that has been implemented. In this regard, Lester and Stewart (2000:145) mention that
implementation is widely seen as having the meaning of implementing the law, that as actors,

167
Jurnal Ilmiah Administrasi Pemerintahan Daerah
Vol. 14 No. 1 pp. 162-179

organizations, procedures, and techniques, they work together to carry out policies to achieve
policy goals or programs.
Along with changes in the government system which is expected to be able to keep up with
the development of a globalized era, each government in almost all countries in the world continues
to try to keep up with the development of science and development of technology and information,
so that it can continue to foster the people or society to be able to grow and develop in his life.
However, there are also more complex problems arise that cannot be solved by the country itself,
it must collaborate with other parties or other countries.
At this time, the policy implementation model as an embodiment of collaboration has
developed rapidly, including Government to Citizens (G to C), Government to Government (G to
G), Government to Business (G to B), and Business to Business (B to B).
The implementation of the Jakarta-Bandung high-speed train infrastructure development
policy, the implementation model, especially regarding collaborative governance, both G to C, G
to G, G to B, and B to B, was carried out. This is indicated by G to C as a collaboration between
the government and the community, in this case, land acquisition is cooperation that needs to be
carried out properly so that the implementation can run smoothly. G to G is between the Indonesian
Government and the Chinese Government and between the Central Government and Regional
Governments, while the G to B is carried out between the Indonesian Government and the SOEs
involved or appointed and the Chinese Government and the Chinese Company Consortium. The
B to B was carried out between the appointed Indonesian SOEs and the Chinese Company
Consortium which was agreed to become PT KCIC as the executor of the Jakarta-Bandung high-
speed train infrastructure project.
Research question in this study are : 1) Why is Collaborative Governance in the Development of
the Jakarta-Bandung High-Speed Train Infrastructure important?; 2) What are Constraints Factors
in the Implementation of the Jakarta-Bandung High-Speed Train Infrastructure Development?; 3)
What are the role of each stakeholder in the implementation of the Jakarta-Bandung High-Speed
Train Infrastructure development?; 4) How is the solution to the factors of constraints and
difficulties from the technical aspect?; and 5) How is collaborative governance model that need to
be implemented in the implementation of the Jakarta-Bandung High-Speed Rail Infrastructure
development?

168
Jurnal Ilmiah Administrasi Pemerintahan Daerah
Vol. 14 No. 1 pp. 162-179

METHOD
This study was designed using a qualitative method. The qualitative method is a type of
research that explores and understands the meaning of some individuals or groups of people
originating from social problems. (Creswell 2016). Interviews were conducted with the Minister
of SOEs, the Chairman of Commission VI of the House of Representatives, the Regional Secretary
for West Bandung Regency, the President Director of PT KCIC, and the Expert Staff of PT KCIC.
Determining informants is by purposive sampling, which is determined by people who know
policies and data related to the construction of the Jakarta-Bandung high-speed train. Furthermore,
Creswell (2016: 347) states that the validity of the data in a qualitative study is an attempt to assess
the accuracy of the findings that are well described by researchers and participants. Therefore, in
this study, the authors used triangulation in validating the data. While the data analysis technique
used in this study as stated by Creswell (2016: 251) is carried out by preparing and organizing the
data, then reducing the data to a theme through the process of coding and summarizing the code
and then presenting the data in the form of a start, table or discussion. The location of the research
was carried out in DKI Jakarta and West Java Province included: Bekasi City and Regency,
Kerawang Regency, Purwakarta Regency, West Bandung Regency, Cimahi City, Bandung
Regency, and Bandung City.

RESULT AND DISCUSSION

The Importance of Collaborative Governance in the Development of the Jakarta-Bandung
High-Speed Train Infrastructure
At the East Asia Summit in Myanmar in November 2014, the President of the Republic of
Indonesia, Joko Widodo, introduced and explained the agenda to make Indonesia a World
Maritime Axis known as the Global Maritime Fulcrum by the international community. For
Indonesia, the world maritime axis is a visionary step to revive the maritime culture and is
committed to developing infrastructure and connectivity by building marine highways, deep
seaports, logistics, shipping industry and maritime tourism. Indonesia can also develop maritime
diplomacy by jointly eliminating sources of conflict at sea, cooperating with other coastal and
archipelagic countries. This opportunity can also improve Indonesia's position among Southeast
Asian countries, especially in the Association of Southeast Asian Nations or ASEAN (Christ
Daniel Soselisa: 2019). With the concept of the World Maritime Axis initiated by Joko Widodo a

169
Jurnal Ilmiah Administrasi Pemerintahan Daerah
Vol. 14 No. 1 pp. 162-179

year after the Maritime Silk Road was launched, Indonesia has become one of the goals of China's
cooperation under the leadership of President Xi Jinping with the hope of becoming a mutually
beneficial agreement for both countries. Indonesia and China have complementary interests (Christ
Daniel Soselisa: 2019), which are as follows:
1. Indonesia is planning to develop infrastructure to connect islands that are spread out over its
territory. From the Indonesian side, the world maritime axis focuses on national development
on improving infrastructure and connectivity between regions that can make it easier for
foreign investors to form national development projects. This will greatly assist the
government in accelerating archipelagic-based national development projects, as President
Joko Widodo had promised at the beginning of his term. The development of energy,
transportation and port facilities is an important step to connect archipelagic regions in
Indonesia and also to connect Indonesia with other Southeast Asian countries;
2. China offers loans and investments to various infrastructure projects. From the Chinese side,
BRI is a policy to strengthen strategic cooperation in infrastructure, business and investment
with 65 other countries, which collectively account for more than 30 percent of global gross
domestic product, 62% of the population and 75% of energy reserves. China views Indonesia's
strategic position in the realization of BRI with various geo-economic and geopolitical
considerations of Indonesia in the world.

The meeting point of interest between Indonesia and China was also successfully realized
in the signing of the MoU on cooperation between the World Maritime Axis and the Belt and Road
Initiative (BRI) in 2018. According to research conducted by The Habibie Center, the World
Maritime Axis only contributed 7% of Indonesia’s Gross Domestic Product (GDP) of 14,300
trillion rupiahs (Kompas, 2019), while this GDP is still contributed by 80 n% of production
activities on the island of Java (Coordinating Ministry of Maritime Affairs, 2019).
The implementation of the construction of the Jakarta-Bandung High-Speed Train
infrastructure requires the Indonesian government to cooperate with the Chinese government, due
to the limitations of the Indonesian budget. The two countries appointed a private party, PT KCIC
to carry out the construction. Besides strengthening relations between the two countries, it is also
bilateral cooperation that will bring benefit for them, because in this cooperation all stakeholders
have the obligations and the rights.

170
Jurnal Ilmiah Administrasi Pemerintahan Daerah
Vol. 14 No. 1 pp. 162-179

Constraints Factors in the Implementation of the Jakarta-Bandung High-Speed Train

Infrastructure Development
Based on the results of the author's interviews with informants, some of the obstacles faced
in the implementation of the Jakarta-Bandung high-speed train infrastructure development are:
1. Land issues, a land acquisition that is targeted to be completed in 2019 proceeds slowly. In
2018, it only reached 54% with details of 55 km having been handed over to the contractor,
2. There are problems with the construction of the Jakarta-Bandung high-speed train: a). Trigger
of flooding, b). The workers' carelessness caused the PERTAMINA pipe to explode, c). the
cause of cracks in people's houses, d) Damage to roads, due to the large number of heavy
project vehicles passing by,
3. COVID-19 pandemic factors have harmed the implementation of the Jakarta-Bandung high-
speed train. At the time this research was conducted, the land acquisition had reached 99.96%
and the progress of the fast train infrastructure development as a whole had reached 44%. The
Ministry of Transportation predicts that the project will be completed in 2021. However, the
pandemic forced the Indonesian Government to issues regulations concerning the prevention
and treatment of people affected by COVID-19. Restrictions on the number of workers and
various other regulations have delayed many jobs that have been scheduled. Therefore,
rescheduling the completion of the project was carried out. The condition in China, which is
very affected by COVID-19 is also a problem, the process of returning Chinese workers who
want to return to Indonesia requires the fulfillment of the new health protocol that has been
put in place, so this process cannot be carried out in a hurry.
4. Regulatory factors, Presidential Regulation No. 107 of 2015 concerning the Acceleration of
the Implementation of the Jakarta-Bandung High-Speed Train had been issued since the
inauguration of the project by President Joko Widodo in 2016, it turns out that its derivative
technical regulation, Government Regulation No. 13 of 2017 concerning Amendments to
Government Regulation No. 26 of 2008 concerning National Spatial Planning has only been
issued in the second year, it is what the Provincial and Regency/City Governments which is
crossed by the Jakarta-Bandung high-speed train have been waiting for.

171
Jurnal Ilmiah Administrasi Pemerintahan Daerah
Vol. 14 No. 1 pp. 162-179

The Role of Each Stakeholder in the Implementation of the Jakarta-Bandung High-Speed

Train Infrastructure Development
There are eight (8) stakeholders in the implementation of the Jakarta-Bandung High-Speed
Train Infrastructure Development:
1. President of the Republic of Indonesia, in the Collaborative Governance function of the central
government, has signed Presidential Regulation No. 3 of 2016 concerning Acceleration of
Project Implementation National Strategy, one of which is the construction of the Jakarta-
Bandung high-speed train on January 8, 2016. He considered accelerating the implementation
of national strategic projects to meet basic needs and improve people's welfare;
2. The Ministry of Transportation has issued the Decree of the Minister of Transportation No.
KP 25 of 2016 concerning the high-speed train route between Jakarta-Bandung with the
Halim-Tegal Luar route to PT KCIC on January 12, 2016;
3. Dissemination efforts have also been carried out by providing an announcement in Harian
Terbit and Pikiran Rakyat newspapers, on Saturday, December 12, 2015. In addition, a public
consultation was held for the City of East Jakarta, and the City of Bekasi in Jakarta on
December 21, 2015; while Bandung City, Bandung Regency, Cimahi City, Bandung Barat
Regency in Bandung on 22 December 2015, and for Bekasi, Karawang, and Purwakarta
Regencies on 23 December 2015. After all the improvements done by KCIC are monitored,
the Ministry of Environment and Forestry issued the Environmental Feasibility Decree No.
SK.36/Menlhk-Setjen/PKTL.0?2016 and Environmental Permit No. SK.36/Menlhk-
Setjen/PKTL.0/2016 based on the AMDAL RKL-RPL improvement document and PT KCIC
President Director's Letter 2016 dated January 20, 2016.
4. The Coordinating Minister for Maritime Affairs and Investment who has function as a
coordinator held a meeting with some related officials, the Minister of Transportation, the
President Director of PT KCIC and the Chinese Ambassador to Indonesia on Friday, February
21, 2020;
5. The Minister of Public Works and Public Housing. As stated on Presidential Regulation No.
107 of 2015, the Ministry of Public Works and Public Housing will issue a principle permit
for the implementation of the construction of high-speed train infrastructure in toll roads and
national highways;

172
Jurnal Ilmiah Administrasi Pemerintahan Daerah
Vol. 14 No. 1 pp. 162-179

6. Provincial Government did progress efforts for the project by issuing the Governor of West
Java Decree No. 593/kep 793-Pemksm/2017 regarding the determination of the location for
land acquisition for the construction of the Jakarta-Bandung high-speed train route and station
in the West Java Region. Likewise, the DKI Jakarta Provincial Government has issued a
similar decree on July 31, 2017;
7. The local government of Bandung City, Bandung Regency, Bekasi City, Bekasi Regency,
Bandung Barat Regency, Cimahi City have issued local regulations concerning Regional
Spatial Planning in each region based on National Spatial Planning.
8. The House of Representatives, Government of China, Consortium of Chinese Companies,
China Development Bank have carried out their respective roles as stated in the agreement
that has been signed.

Analysis of the Solution to the Factors of Constraints and Difficulties from the Technical
Aspect
There are four (4) solution to the factors of constraints and difficulties from the technical
aspect as the following:
1. Land issues, the people ask for a price that exceeds the appraisal value and the requested area
exceeds the target. However, KCIC has paid off all people-owned land that will be crossed by
the train and currently the required land area of 139,946 km has been 100% controlled by
KCIC.
2. Construction problems: a). in the construction of bridge 1, Bridge (DK10 + 643.00 to DK0 +
264.00 with a length of 264 meters) carried out by the WIKA contractor, the MEP pipe at
GWT Halim Station hit the tie beam in the span area with the distance between the pipes less
than 5R. WIKA has submitted a letter asking CRDC to act immediately so that the conditions
related to the PERTAMINA pipeline can be resolved. b). In the construction section of bridge
1 (DK1 + 000.00 to DK1 + 445.00 with a length of 1445 meters),. There are 1666 drill piles,
standing upright 111 piles, 71 bridge poles that have been built according to technical
provisions, but geological drilling has not been carried out by the WIKA contractor, c), Time
delay on the bridge 1 construction section (DK 1 + 590.00) to DK2 + 213.00 with a length of
2213 meters and on the other 57 points due to technical problems. However, it has been
overcome.

173
Jurnal Ilmiah Administrasi Pemerintahan Daerah
Vol. 14 No. 1 pp. 162-179

3. The COVID-19 pandemic has hampered the project's work. All parties involved in the project
must obey the health protocols imposed by the government, such as swab checks and other
health protocols to avoid the spread of Covid-19. Thus, all workers, both from China and
Indonesia, can continue their work according to the direction of KCIC.
4. Legal and regulatory issues. The delay in the issuance of the National Spatial Planning
Regulation forced four SOEs to run the project as stated in Presidential Decree NO 107/2015
to become the subject of land procurement using the scheme of Law No. 2 of 2012 which is
authorized to PT Pillar of Sinergi BUMN Indonesia (PT PSBI). Power of Attorney for 4
BUMN Shareholders of PT PSBI to PT PSBI was signed on 12 July 2017. There are 7 non-
private agencies affected by the construction of the project, Halim Air Force, Jasa Marga,
Perum Jasa Tirta II (PJT 2), Perhutani, PTPN VIII, Brigif ARMY, and KAI. They agreed on
KCIC to immediately continue development.

Collaborative Governance Model that Need to be Implemented in the Implementation of the

Jakarta-Bandung High-Speed Rail Infrastructure Development
The success of the implementation of the High-Speed Train Infrastructure Development
policy in Indonesia, which was analyzed using the theory of policy implementation proposed by
Marilee, S. Grindle, known as implementation as a political and administrative process focused on
two dimensions, the content of policy which indicated by six indicators and the context of policy
which is indicated by three indicators. The six indicators of the first dimension are as follows:
1. Influencing interests. This indicator explains the many parties involved in the implementation
of this policy. Concerning the construction of the Jakarta High-Speed Train infrastructure,
there are 15 parties involved, the Government of Indonesia, the Government of China, the
Ministry of Public Works and Public Housing, the Ministry of Environment and Forestry, the
Ministry of Transportation, the Coordinating Ministry for Maritime Affairs and Investment,
PT KCIC, the Consortium of Chinese Companies, the China Development Bank, two
Provincial Governments, DKI Jakarta and West Java as well as the Nine Regency and City
Governments which pass the train;
2. Type of benefits. This indicator explains that in a policy there must be several types of benefits
that show the positive impact generated by implementing the policy. With the implementation
of the Jakarta-Bandung high-speed train infrastructure development policy, various parties

174
Jurnal Ilmiah Administrasi Pemerintahan Daerah
Vol. 14 No. 1 pp. 162-179

have received positive impacts: for the Government of Indonesia to provide services to the
people by providing public infrastructure and facilities to accelerate economic growth; for the
Chinese Government to develop bilateral cooperation with Indonesia, so that the two countries
can help each other, complement and develop their respective countries; for the Provincial
Government and Regency/City Governments, it can grow trade and the economy, because it
will provide many opportunities for the people to develop businesses and revive urbanization;
for the people living along the railroad tracks will be able to open up new job opportunities
that allow them to innovate and develop their potential to be able to live independently; for
the Ministries involved can show professional performance so that the functions and duties of
the government can be well demonstrated to the public;
3. The degree of change to be achieved. This indicator can explain the seriousness of the
Government in inviting all stakeholders to continue to build and regulate the people they lead
to be able to make changes for a better life;
4. The decision-making. This indicator describes the relationship among the Central
Government, Provincial, Regency/City Government, the people, and KCIC involved in
realizing the project to serve people for their mobility properly under the applicable rules. All
stakeholders must carry out their respective roles and functions according to the agreement
that has been made;
5. The implementation of the program, this indicator explains that the government's limitations
are not a reason not to build, because cooperation can be made with the private sector, the
people, and other countries, so that this cooperation is beneficial for all parties;
6. The resources used, each stakeholder has rights and obligations according to the agreement,
which means that all existing resources in each stakeholder are used according to their
designation and get rights that can help the development and existence of each of the
stakeholders.

The three indicators in the second dimension can be explained as follows:

1. The power, interests, and strategies of the actors involved. This indicator explains that a policy
needs to take into account the strengths and the powers, the interests and the strategies adopted
by them in facilitating the implementation of a policy. In the implementation of the project
policy, all stakeholders must respect each other's authority in the implementation of this

175
Jurnal Ilmiah Administrasi Pemerintahan Daerah
Vol. 14 No. 1 pp. 162-179

cooperation and are agreed upon in a memorandum of agreement by each party. This is shown
by the signing of the MoU between the Governments of Indonesia and China, and the pattern
built is mutual respect and assistance;
2. Characteristics of institutions and regimes. This indicator explains that a policy will influence
the success of the implementation. Both the Government of Indonesia and the Government of
China already knew who the current regime is and what its vision and mission are, so that this
agreement has certainly been considered in depth. It is expected that the implementation of
the policy will be successful. This will affect the development of the government and society
of the two countries.
3. The response of the implementers. PT KCIC is the developer of the project who works under
the memorandum of understanding between the Governments of Indonesia and China, and
PT. KCIC has always complied with it.

Based on the importance of collaborative governance in the project, the obstacle factors,
the role of each stakeholder, analysis of solutions to the constraints and difficulties of the technical
aspects, and analysis of the policy implementation model developed by Grindle, apparently the
transnational collaborative governance model is the right policy implementation model to be
applied in the implementation of the project policy because all stakeholders carry out mutually
supportive, helpful, and respectful their obligations and rights. The Governments of Indonesia and
China signed the MoU as the basis for the actors involved to guide them, the implementing actors,
PT KCIC, have been willing to carry out the development by taking into account all the provisions
of the Indonesian Government as outlined in the regulations, Presidential Regulations,
Government Regulations, Ministerial Decrees, Governor Decrees of DKI and Jawa Barat, as well
as regional regulations from nine regencies/cities that pass the train on articles of regulations
relating to the construction of the Jakarta-Bandung high-speed train infrastructure.

CONCLUSION
Collaborative Governance in the Development of the Jakarta-Bandung High-Speed Train
Infrastructure is important. Government collaboration between the Governments of Indonesia and
China, especially in the economic sector, is a strategy in implementing the Jakarta-Bandung High-

176
Jurnal Ilmiah Administrasi Pemerintahan Daerah
Vol. 14 No. 1 pp. 162-179

Speed Train Infrastructure Development. This collaboration was pursued by the Government of
Indonesia as an effort to obtain financial support from the Chinese Government to finance various
national infrastructure developments to realize the acceleration of Indonesia's national economic
growth. The government collaboration process in implementing the Jakarta-Bandung High-Speed
Train Infrastructure Development Policy is implemented internationally by Indonesia and China,
nationally by the Central and Regional Governments, in particular the two Provincial
Governments, DKI Jakarta and West Java as well as eight Regency/City governments where areas
are crossed by trains. the Jakarta-Bandung High-Speed Train and transnationally in which the
transnational actor PT KCIC was determined as the implementer of the policy through Presidential
Regulation Number 107 of 2015 concerning the Acceleration of the Implementation of the Jakarta-
Bandung High-Speed Train infrastructure and facilities between Jakarta and Bandung.
There are many constraints factors in the implementation of the Jakarta-Bandung High-
Speed Train Infrastructure Development. The implementation of the Jakarta-Bandung High-Speed
Train development policy did not go according to expectations, both in terms of time and funding.
This is because there are still many technical and regulatory obstacles, land acquisition and
construction problems that are not following the agreement, the occurrence of an unexpected
COVID-19 pandemic, train signaling factors, and regulatory problems that are not efficient yet,
due to not integrated licensing between various related Ministries, Provincial Governments and
Regency/City Governments which are crossed by the Jakarta-Bandung high-speed train. As a
result, the planned completion is delayed from 2019 to 2022. In addition, funding has also
increased, from 5.1 trillion US dollars to 5.9 trillion US dollars.
Many roles of each stakeholder in the implementation of the Jakarta-Bandung High-Speed
Train Infrastructure Development. They are : Presidential Regulation No. 3 of 2016; Decree of the
Minister of Transportation No. KP 25 of 2016; Decree No. SK.36/Menlhk-Setjen/PKTL.0?2016
and Environmental Permit No. SK.36/Menlhk-Setjen/PKTL.0/2016 based on the AMDAL RKL-
RPL improvement document and PT KCIC President Director's Letter 2016 dated January 20,
2016; Presidential Regulation No. 107 of 2015; Governor of West Java Decree No. 593/kep 793-
Pemksm/2017. Many solutions to manage the constrain factors in implementation of the Jakarta-
Bandung High-Speed Train development, for example is all parties involved in the project must
obey the health protocols imposed by the government, such as swab checks and other health
protocols to avoid the spread of Covid-19. Thus, all workers, both from China and Indonesia, can

177
Jurnal Ilmiah Administrasi Pemerintahan Daerah
Vol. 14 No. 1 pp. 162-179

continue their work according to the direction of KCIC. The findings in this study are the Trans-
National Collaborative Model which is the implementation of the Jakarta-Bandung high-speed
train infrastructure development policy as a policy implementation that emphasizes the aspects of
policymakers (Indonesian and Chinese government actors), policy implementing aspects (non-
state transnational actors, PT KCIC) and funding aspects (PT KCIC carried out the construction
of the Jakarta-Bandung high-speed train without using government budgets and guarantees)

REFERENCES
Abdul, Q. (2018). The Asian Highway and Trans-Asian Railway networks: Origins, Progress of
Development and Prospects in the Future. Routledge Handbook of Transport in Asia,
ISBN: 9781138826014.Arne
Batory, Agnes & Svensson, Sara (2019). Regulating Collaboration: The Legal Framework of
Collaborative Governance in Ten European Countries. International Journal of Public
Administration, 43(2), 2020.
Beck, Heiner Bente, Martin Schilling (2013). Trainway Efficiency–An Overview and a Look at
Opportunities for Improvement. Discussion Paper 12, Civity Management Consultants.
Creswell, John. W (2016). Research Design: Pendekatan Metode Kualitatif, Kuantitatif dan
Campuran (Edisi Keempat). Yogyakarta, Pustaka Pelajar.
Dena Kasraian Kees Maat (2016). Development of train infrastructure and its impact on
urbanization in the Randstad, the Netherlands, 8. The journal of Transport and Land Use,
9(1), 151-170.
Frederic. L. (2019). Economic and Strategic Impacts of the Belt and Road Initiative on Central
Eastern Europe, Central and Southeast Asia: Similarities and Differences, Trans Asian Rail
Projects and services, and the Belt and Road Initiative DOI:10.13140/RG.2.2.21339.21285
Jhingan, M. L. (2000). Ekonomi Pembangunan dan Perencanaan. Jakarta, Raja Grafika Persada.
Kuhn, B. (2016). Collaborative Governance for Sustainable Development in China. Open Journal
of Political Science. 6, 433-453. doi: 10.4236/ojps.2016.64037.

178
Jurnal Ilmiah Administrasi Pemerintahan Daerah
Vol. 14 No. 1 pp. 162-179

Kirk Emerson, Tina Nabatchi, Stephen Balogh (2013). An Integrative Framework for
Collaborative Governance. Journal of Public Administration Research and Theory, 22(1),
1–29.
Kodoatie, R.J., 2005, Pengantar Manajemen Infrastruktur, Pustaka Pelajar, Yogyakarta
Lester, J.P. and Stgewart, J., 2000, Public Policy, An Evolutionary Approach Wadsworth, Second
Edition, Australia.Marcin Połom, Maciej Tarkowski, & Krystian Puzdrakiewicz (2016).
Urban Transformation in the Context of Train Transport Development: The Case of a
Newly Built Trainway Line in Gdańsk (Poland). Research Article Open Access, |Article
ID 1218041 from https://doi.org/10.1155/2018/1218041
Mohammed Sabirul Karim, Nurul Mohammad Zayed, and Mithila Afrin (2020). Trans-Asian
Railway Network: A Get way to the East and West to Attain Sustainable Development
Goals. International Journal of Arts and Social Science, 3(3), 130-141.
Parsons, W., 2006.Public Policy, Pengantar Teori dan Praktik Analisis Kebijakan, Kencana,
Jakarta.
Peterman, David Randall, John Frittelli, William J. Mallett (2013). The Development of High
Speed Train in the United States: Issues and Recent Events, 4, Congressional
Research Service, 7-5700, from www.crs.gov R42584
Shi, Q (2018). High-Speed Trainway and Regional Economic Growth: An Empirical Study Based
on Market Potential. American Journal of Industrial and Business Management, 8, 83-102.
doi: 10.4236/ajibm.2018.81006.
Waralee Peetawana Kamonchanok Suthiwartnarueput (2018). Identifying Factors Affecting the
Success of Train Infrastructure Development Projects Contributing to a Logistics Platform:
A Thailand Case Study, Kasetsart Journal of Social Sciences, 39(2), 320-327.
.

179