Proses Penyusunan APBD Dan Perubahan APBD

Proses Penyusunan APBD dan Perubahan APBD
Keberhasilan pelaksanaan otonomi daerah dapat dicerminkan dari peningkatan pelayanan dan
kesejahteraan masyarakat, keadilan, pemerataan, keadaan yang semakin maju, serta terdapat
keserasian antara pusat dan daerah serta antar daerah. Hal yang dapat mewujudkan keadaan tersebut
salah satunya apabila kegiatan APBD dilakukan dengan baik.
Dikarenakan pada saat ini pemerintah menggunakan penganggaran bebasis pendekatan kinerja, maka
reformasi anggaran tidak hanya pada aspek perubahan struktur APBD, namun juga diikuti dengan
perubahan proses penyusunan anggaran.
APBD pada dasarnya memuat rencana keuangan daerah dalam rangka melaksanakan kewenangan
untuk penyelenggaraan pelayanan umum selama satu periode anggaran. Tahun anggaran APBD
meliputi masa satu tahun, mulai dari tanggal 1 Januari sampai dengan tanggal 31 Desember. Sesuai
dengan pendekatan kinerja yang diterapkan pemerintah saat ini, maka setiap alokasi APBD harus
disesuaikan dengan tingkat pelayanan yang akan dicapai. Sehingga kinerja pemerintah daerah dapat
diukur melalui evaluasi terhadap laporan APBD.
APBD terdiri atas:
1. Anggaran pendapatan, terdiri atas
Pendapatan Asli Daerah (PAD), yang meliputi pajak daerah, retribusi daerah, hasil pengelolaan
kekayaan daerah, dan penerimaan lain-lain.
Bagian dana perimbangan, yang meliputi Dana Bagi Hasil, Dana Alokasi Umum (DAU) dan Dana
Alokasi Khusus.
Pendapatan lain-lain yang sah seperti dana hibah atau dana darurat.
2. Anggaran belanja, yang digunakan untuk keperluan penyelenggaraan tugas pemerintahan di daerah.
3. Pembiayaan, yaitu setiap penerimaan yang perlu dibayar kembali dan/atau pengeluaran yang akan
diterima kembali, baik pada tahun anggaran yang bersangkutan maupun tahun-tahun anggaran
berikutnya.
1. Alur Proses dan Jadwal Penyusunan APBD
Pedoman Penyusunan Anggaran seperti tercantum dalam Permendagri Nomor 26 Tahun 2006 memuat
antara lain:
1. pokok-pokok kebijakan yang memuat sinkronisasi kebijakan pemerintah dengan pemerintah daerah.
2. prinsip dan kebijakan penyusunan APBD tahun anggaran bersangkutan.
3. teknis penyusunan APBD.
4. hal-hal khusus lainnya.
Untuk penyusunan rancangan APBD, diperlukan adanya urutan Prioritas dan Plafon Anggaran
Sementara (PPAS). PPAS merupakan program prioritas dan patokan batas maksimal anggaran yang
diberikan kepada SKPD untuk setiap program sebagai acuan dalam penyusunan RKA-SKPD.
Proses perencanaan dan penyusunan APBD, mengacu pada PP Nomor 58 Tahun 2005 tentang
Pengelolaan Keuangan Daerah, secara garis besar sebagai berikut:
1. Penyusunan rencana kerja pemerintah daerah.
2. Penyusunan rancangan kebijakan umum anggaran.
3. Penetapan prioritas dan plafon anggaran sementara.
4. Penyusunan rencana kerja dan anggaran SKPD.
5. Penyusunan rancangan perda APBD.
6. Penetapan APBD.
Dari uraian di atas, maka proses penyusunan APBD dapat digambarkan sebagai berikut:
Gambar 1. Proses penyusunan APBD
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Penyusunan APBD didasarkan pada perencanaan yang sudah ditetapkan terlebih dahulu, mengenai
program dan kegiatan yang akan dilaksanakan. Bila dilihat dari waktunya, perencanaan di tingkat
pemerintah daerah dibagi menjadi tiga kategori yaitu: Rencana Jangka Panjang Daerah (RPJPD)
merupakan perencanaan pemerintah daerah untuk periode 20 tahun; Rencana Jangka Menengah
Daerah . (RPJMD) merupakan perencanaan pemerintah daerah untuk periode 5 tahun; dan Rencana
Kerja Pemerintah Daerah (RKPD) merupakan perencanaan tahunan daerah. Sedangkan perencanaan
di tingkat SKPD terdiri dari: Rencana Strategi (Renstra) SKPD merupakan rencana untuk periode 5
tahun.
2. Teknik Penyusunan APBD
Yang dilibatkan dalam penyusunan APBD adalah rakyat, eksekutif, dan legislatif. Pada proses
penyusunan APBD rakyat hanya dilibatkan pada tingkat musyawarah pembangunan kelurahan
(Musbangkel) dan unit daerah kerja pembangunan (UDKP) saja. Pada tingkat rapat koordinasi
pembangunan (Rakorbang) dan Pengesahan RAPBD rakyat sama sekali tidak dilibatkan. Dalam
menyusun APBD ada prinsip-prinsip yang tidak boleh ditinggalkan, yaitu adalah:
1. Transparansi dan Akuntabilitas
2. Disiplin Anggaran
3. Keadilan Anggaran
4. Efesiensi dan Efektifitas
5. Format Anggaran
6. Rasional dan Terukur
7. Pendekatan KinerjaDokumen Publik
Gambar 2. Mekanisme penyusunan APBD menurut UU nomor 17/2003
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3. Pengertian Perubahan APBD
Perubahan APBD merupakan penyesuaian target kinerja dan/atau prakiraan/rencana keuangan
tahunan pemerintahan daerah yang telah ditetapkan sebelumnya untuk dibahas dan disetujui bersama
oleh pemerintah daerah dan DPRD serta ditetapkan dengan peraturan daerah.
Menurut penjelasan Peraturan Menteri Dalam Negeri Nomor 13 Tahun 2006 tentang Pedoman
Pengelolaan Keuangan Daerah, Kepala Daerah (Bupati/Walikota) selaku pemegang kekuasaan
penyelenggaraan, pemerintahan juga bertindak sebagai pemegang kekuasaan dalam pengelolaan
keuangan daerah.
Selanjutnya, kekuasaan tersebut dilimpahkan kepada Kepala Satuan Kerja Pengelolaan Keuangan
Daerah selaku pejabat pengelola keuangan daerah dan dilaksanakan oleh Satuan Kerja Perangkat
Daerah itu sendiri sebagai pengguna anggaran/barang daerah di bawah koordinasi dari Sekretaris
Daerah.
Pemisahan pelaksanaan APBD ini akan memberikan kejelasan dalam pembagian wewenang dan
tangung jawab terlaksananya mekanisme keseimbangan dan pengawasan dalam pelaksanaan
anggaran daerah serta untuk mendorong upaya peningkatan profesionalisme dalam penyelenggaraan
tugas pemerintahan. Dalam kaitannya dengan hal tersebut, maka dana yang tersedia dalam APBD
harus dimanfaatkan dengan sebaik mungkin untuk dapat menghasilkan peningkatan pelayanan dan
kesejahteraan yang maksimal bagi kepentingan masyarakat.
Karena penyusunan anggaran untuk setiap tahun tersebut sudah dimulai dipersiapkan pada bulan Juli
setiap tahunnya, maka tidak mustahil apabila pada pelaksanaannya APBD tersebut perlu perubahan
atau penyesuaian.
4. Kriteria Perubahan APBD
Perubahan Peraturan Daerah tentang APBD hanya dapat dilakukan 1 (satu) kali dalam 1 (satu) tahun
anggaran, kecuali dalam keadaan luar biasa. Perubahan Peraturan Daerah tentang APBD dapat
dilakukan apabila terjadi:
Perkembangan yang tidak sesuai dengan asumsi KUA. Perkembangan yang tidak sesuai
adalah pelampauan atau tidak tercapainya proyeksi pendapatan daerah, alokasi belanja
daerah, dan lain-lain.
Keadaan yang menyebabkan harus dilakukan pergeseran anggaran antar unit organisasi, antar
kegiatan, dan antar jenis belanja. Dapat dilakukan dengan melakukan perubahan APBD.
Keadaan yang menyebabkan saldo anggaran lebih tahun sebelumnya harus digunakan dalam
tahun berjalan. Merupakan sisa lebih perhitungan tahun anggaran sebelumnya yang dapat
digunakan untuk membayar bunga dan pokok utang dan/atau obligasi daerah, melunasi
seluruh kewajiban bunga dan pokok utang, mendanai kenaikan gaji dan tunjangan PNS,
mendanai kegiatan lanjutan, mendanai program dan kegiatan baru, serta mendanai kegiatankegiatan yang capaian target kinerjanya ditingkatkan dari yang telah ditetapkan semula dalam
DPA-SKPD tahun anggaran berjalan.
Keadaan darurat. Merupakan keadaan yang tidak biasa terjadi dan tidak diinginkan terjadi
secara berulang dan berada diluar kendali pemerintah. Dalam situasi ini pemerintah daerah
dapat menggunakan anggaran tidak terduga.
Keadaan luar biasa. Merupakan keadaan yang menyebabkan estimasi penerimaan dan/atau
pengeluaran dalam APBD mengalami kenaikan atau penurunan lebih besar dari 50% (lima
puluh persen) yang didapat dari kenaikan pendapatan atau efisiensi belanja.
5. Format dan Tata Cara Penyusunan DPPA-SKPD P-APBD
Formulir DPPA - SKPD merupakan formulir ringkasan anggaran satuan kerja perangkat Daerah yang
sumber datanya berasal dari peringkasan jumlah pendapatan menurut kelompok dan jenis yang diisi
dalam formulir DPPA - SKPD 1, jumlah belanja tidak langsung menurut kelompok dan jenis belanja
yang diisi dalam formulir DPPA - SKPD 2.1, dan penggabungan dari seluruh jumlah kelompok dan jenis
belanja langsung yang diisi dalam setiap formulir DPPA - SKPD 2.2.
Formulir DPPA - SKPD 1 sebagai formulir untuk menyusun rencana pendapatan atau pengeluaran
satuan kerja perangkat daerah dalam perubahan APBD tahun anggaran yang direncanakan. Oleh
karena itu nomor kode rekening dan uraian nama kelompok, jenis, obyek dan rincian obyek pendapatan
yang dicantumkan dalam formulir DPPA - SKPD 1 disesuaikan dengan pendapatan tertentu yang akan
dipungut atau pengeluaran tertentu dari pelaksanaan tugas pokok dan fungsi satuan kerja perangkat
daerah sebagaimanana ditetapkan berdasarkan peraturan perundang-undangan. Pengisian formulir
DPPA-SKPD 1 supaya mempedomani ketentuan Pasal 159 peraturan ini. Untuk memenuhi azas
tranparansi dan prinsip anggaran berdasarkan rencana pendapatan yang dianggarkan, pengisian
rincian penghitungan tidak diperkenankan mencantumkan satuan ukuran yang tidak terukur, seperti
paket, pm, up, lumpsum.
Formulir DPPA-SKPD 2.1 merupakan formulir untuk menyusun rencana kebutuhan belanja tidak
langsung satuan kerja perangkat daerah dalam perubahan APBD tahun anggaran yang direncanakan.
Pengisian jenis belanja tidak langsung supaya mempedomani ketentuan Pasal 49 peraturan ini. Untuk
memenuhi azas tranparansi dan prinsip anggaran berdasarkan prestasi kerja, pengisian rincian
penghitungan tidak diperkenankan mencantumkan satuan ukuran yang tidak terukur, seperti paket, pm,
up, lumpsum.
Formulir DPPA-SKPD 2.2 merupakan formulir rekapitulasi dari seluruh program dan kegiatan satuan
kerja perangkat daerah yang dikutip dari setiap formulir DPPA-SKPD 2.2.1.
Formulir DPPA-SKPD 2.2.1 digunakan untuk merencanakan belanja langsung dari setiap kegiatan yang
diprogramkan. Dengan demikian apabila dalam 1 (satu) program terdapat 1 (satu) atau lebih kegiatan
maka setiap kegiatan dituangkan dalam formulir DPPA-SKPD 2.2.1 masing-masing. Pengisian jenis
belanja langsung supaya mempedomani ketentuan Pasal 50 peraturan menteri ini. Untuk memenuhi
azas tranparansi dan prinsip anggaran berdasarkan prestasi kerja, pengisian rincian penghitungan tidak
diperkenankan mencantumkan satuan ukuran yang tidak terukur, seperti paket, pm, up, lumpsum.
Formulir DPPA-SKPD 3.1 digunakan untuk merencanakan pengeluaran pembiayaan dalam perubahan
APBD tahun anggaran yang direncanakan pada satuan kerja pengelola keuangan daerah.
Formulir DPPA-SKPD 3.2 digunakan untuk merencanakan pengeluaran pembiayaan dalam perubahan
APBD tahun anggaran yang direncanakan pada satuan kerja pengelola keuangan daerah.

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