Political Communication between DPRD and Village Government in Shaping the Main Policy Ideas for Village Development

Political Communication between DPRD and Village Government in Shaping the Main Policy Ideas for Village Development

¹Didit Fajar Putradi*., ¹Irfan Nabhani., ¹Gugun Geusan Akbar., ¹Mulyaningsih., ¹Aceng Ulumudin., ²Nur Aima Shafie

¹Universitas Garut, Jawa Barat, Indonesia

²Accounting Research Institute, Universiti Teknologi MARA, Malaysia

*Corresponding Author

DOI: https://dx.doi.org/10.47772/IJRISS.2025.908000357

Received: 07 August 2025; Accepted: 14 August 2025; Published: 11 September 2025

ABSTRACT

The establishment of the DPRD’s Main Ideas Policy is a form of strategic political communication between the DPRD and the Village Government in articulating community aspirations for village development. However, political communication between the DPRD and the Village Government hampered by communication limitations and conflicts of interest. This study aims to analyze the patterns of political communication that occur between the DPRD and the Village Government in Garut Regency in the process of formulating the DPRD’s Main Ideas Policy by using qualitative approach with in-depth interview and desk study method. The political communication pattern analyzed conducted by adapting Dan Nimmo’s political communication framework, namely communicator, message, media, communicant, and effect. The results of the study indicate that political communication between the DPRD and the Village Government is not fully optimal due to differences in perception, media limitations, and unequal participation and capacity of villages in conveying aspirations. In conclusion, the effectiveness of political communication greatly determines the quality of the DPRD’s Main Ideas Policy in representing community needs. DPRD needs to increase communication openness, use digital media, and expand the reach of dialogue. Meanwhile, the Village Government needs to strengthen its capacity to be more active, critical, and focused in conveying aspirations.

Keywords: Political Communication, DPRD, Village Government, Main Ideas Policy

INTRODUCTION

Regional development planning is a strategic process for allocating available and limited resources to achieve targeted and sustainable change in accordance with the regional development vision and mission. In Indonesia, Law of the Republic of Indonesia Number 25 of 2004 concerning the National Development Planning System mandates that the planning process must incoporate five approaches throughout the planning process: political, technocratic, participatory, top-down, and bottom-up, which are then translated into concrete outputs in the form of planning documents to maintain consistensy, transparancy and accountability in the development planning process (Rahman et al., 2024).  In the context of formulating annual regional development planning policies in the Annual Regional Government Work Plan, as mandated by Indonesian Minister of Home Affairs Regulation Number 86 of 2017, the Regional People’s Representative Council (DPRD), as one of the elements of regional government administration, has the authority to contribute to the draft formulation principles through the DPRD’s Main Idea Policy.

DPRD’s Main Idea Policy are suggestions and opinions from the DPRD based on public hearings and meetings resulting from aspirations gathering through DPRD’s recess activity which is an activity to gather community aspiration.   which is the responbility of the Village Government (Aulia and Kawedar, 2024)

Problems arise when political communication between the DPRD and the Village Government is limited. This can arise due to differing perceptions regarding the DPRD’s duties and functions, development planning and budgeting processes, and even conflicts of interest, which can hinder the formulation of DPRD’s Main Ideas Policy, preventing them from reflecting the community’s real needs. Those condition are supported by Dani and Purnawan (2025) which found that the gap between aspiration and program realization happened due to limited coordination, bureucratic challenges or resource constraint.  Therefore, research on political communication between the DPRD and the Village Government in establishing DPRD’s Main Ideas Policy, is necessary to analyze the communication patterns which are established in order to build effective political communication that can improve the quality of DPRD’s Main Ideas Policy,

Sumarni (2023) explained that political communication is a complex and strategic process that involves the exchange of messages and information between political actors, such as candidates, political parties, government so the more actors involved in the political process, the more complex the resulting political communication becomes. Garut Regency is the third largest region in West Java Province, with the largest administrative area of ​​Villages and Sub-districts in West Java Province, namely 421 Villages and 21 Sub-districts with a population of 2,683,665 people in 2024. Meanwhile, the number of elected members of the Garut Regency DPRD as according to 2024, is 50 members. In the context of establishing the DPRD’s Main Ideas Policy, by understanding the established political communication patterns between the DPRD and the Village Government, it is hoped that it can provide practical recommendations to improve the effectiveness of political communication in order to achieve sustainable village development and be responsive to community needs.

This paper will continue with literature review section to discuss prior studies and relevant theory. Next, methodology section will describe research design and instrument used. After that the findings and discussions section will elaborate the result. Finally, the last section concludes the overall study

LITERATURE REVIEW

According to Minister of Home Affairs Regulation No. 86 of 2017, DPRD’s Main Ideas Policy is a form of legislative political participation that must align with the regional development vision. The DPRD’s Main Ideas Policy provides official input to the r preparation of the Annual Regional Government Work Plan, derived from the results of the recess activity. Recess activity serves as a political communication platform for gathering public aspirations and opinions that can be considered in formulating DPRD’s Main Ideas Policy. Studies found that DPRD recess activities have a positive and significant impact on regional (Hertino et al., 2021). Public approves and perceives the effectiveness of recess activities, as demonstrated by development benefits in the infrastructure, education, security, and employment sectors (Dilla et al., 2020) Furthermore, recess activities are effective in articulating aspirations, particularly in infrastructure development programs (Hasanudin et al., 2022).1 Based on the findings above, DPRD recess activities that produce The DPRD’s Main Ideas Policy can make a significant contribution to regional development, especially at the community level.

From a societal perspective, Kurniasih & Rusfiana (2021) and Budoyo (2022) found that the public exhibited positive enthusiasm, perceptions, and attitudes toward the DPRD recess activities, proved by the high level of public participation in conveying their aspirations. This condition occurs because political communication tends to be open and two-way, indicating that the DPRD and the community, as constituents, share a shared perception and understanding that the DPRD recess activities serve as a formal forum for the DPRD to directly solicit public aspirations (Holilah & Ismail, 2023). This suggests that DPRD recess activities can strengthen the integration of more adaptive and inclusive development planning, particularly for the lowest level of government, namely the Village Government, in articulating development needs for the village community as DPRD constituents through The DPRD’s Main Ideas Policy.

Politically, The DPRD’s Main Ideas Policy is the DPRD’s most fundamental political communication process, serving as a liaison between the DPRD and its constituents in the village area, ensuring their engagement. From a political representation perspective, DPRD members conduct political communication on behalf of the community in their electoral district and pay attention to political party vote (Malik, 2021). Furthermore, Haliza et al. (2023) explain that the DPRD’s Main Ideas Policy is a form of accountability from DPRD members to their constituents. Meanwhile, for village governments, DPRD’s Main Idea Policy can be considered an additional source of funding outside the Village Revenue and Expenditure Budget that can address community issues within the village. (Kawwami & Islamia, 2023) that realizing good village governance requires efforts to provide services and empower programs, as well as maintaining good communication with the community, implemented continuously and adaptively. In other words, a reciprocal relationship based on political interests between the DPRD and the Village Government will naturally be realized through DPRD’s Main Ideas Policy.

However, the effectiveness of DPRD’s Main Ideas Policy is greatly influenced by the quality of communication between the DPRD and the Village Government, as well as the forum’s openness in absorbing aspirations. Routine, transparent, and participatory aspiration gathering will enhance the legitimacy of the DPRD’s Main Ideas Policy as a representative body of the public, not merely an elitist political instrument. Problems arise when political communication between the DPRD and the Village Government experiences limited communication, differing perceptions regarding development priorities, and potential conflicts of interest (Hasan et al., 2018). This can hamper the policymaking process, resulting in the DPRD’s Main Ideas Policy not fully reflecting aspirations and prioritizing needs, leading to dissatisfaction among village communities (Gulo et al., 2021).

This study engages Political Communication Theory by Nimmo (1978) which states that there are five elements in political communication: the communicator, the message, the media, the communicant, and the effects of political communication. In this study, these five elements were analyzed, then adapted to the objective of analyzing political communication between the Regional People’s Representative Council (DPRD) and the Village Government in establishing the DPRD’s Main Ideas Policy for village development within the Garut Regency area.

METHOD

This research uses a qualitative approach through interviews and desk study methods. Qualitative methods were chosen to gain an in-depth understanding of the phenomenon under study by collecting primary data through in-depth interviews with competent sources, as well as secondary data through document review (Creswell, 2018).    The desk study technique allows researchers to analyze various secondary sources such as open data, laws and regulations from government agencies, and scientific publication articles regarding the research purpose. Meanwhile, interviews are used to complement and validate the findings from the desk study (Johnston, 2014). Interviews were conducted during June 2025 individually with stakeholders involved in political communication, namely DPRD members, Village Government, and the Community to obtain relevant data and information regarding political communication from each individual within the framework of the DRPD’s Pokir policy formulation for village development.The combination of these two data collections provides flexibility and analytical depth in understanding the complexity of the issues studied, especially in the current digital era where various data sources can be accessed more easily.

Garut Regency has 42 sub-districts which are further divided into 6 Electoral Districts in the context of regional legislative elections. The total number of DPRD Member seats is 50, with the Partai Kebangkitan Bangsa and the Partai Golkar holding the most seats with the same number of seats, namely 8 seats each. Meanwhile, the Partai Amanat Nasional holds the fewest seats with 2 seats. This may indicate that Political Parties with a large number of seats have more power to influence decisions covering legislation, budgeting and supervision including the determination of DPRD’s Main Ideas Policy, and vice versa, Political Parties with few seats will have little influence on policy making in general. In more detail, the composition of DRPD Members in Garut Regency based on Political Parties and Electoral Districts is presented in the following table:

Table.1 DPRD Member by Political Party and Electoral District (ED) in Garut Regency Year 2024 – 2029

Source: Garut Regency DPRD Secretariat, 2024

In order to get clear and equal information between electoral districts, it is necessary to conduct in-depth interviews with DPRD members from each electoral district. Then, to ensure that all components of political communication are analyzed, it is also necessary to have respondents from among Village Heads and Community Representatives who are also constituents of the DPRD members who were interviewed previously. So, by using purposive sampling to ensure all electoral districts are represented, 6 Member of Garut Regency DPRD, 12 Village Government Head and 12 Community Representative which are the constituent of the DPRD Member on all electoral districts were selected as respondents in this study.

Data analysis was conducted by adapting Dan Nimmo’s Political Communication Theory to the purpose of the study. First, the Communicator Element referred to in this study is the Member of the Garut Regency DPRD as a party who has the ability to carry out political communication to organize messages to the Village Government. Second is the Message Element which refers to information or aspiration gathering material delivered from DPRD Members to the Village Government. Third, the Media Element as a channel or forum for political communication for DPRD Members and the Village Government, Fourth is the Communicant Element namely the Village Government as the target recipient of messages and information and is legally bound within the scope of the DPRD Member communicator, Fifth is the last element namely the Political Communication Effect Element or feedback originating from changes that occur in the Village Government as the recipient of the message, in the context of this study is how the impact of the communication in question influences the determination of the DPRD’s Main Ideas Policy.

DISCUSSION

Communicator – Garut Regency DPRD as Main Idea Policy Formulator

In the context of political communication, DPRD members are political communicators with the capability and credibility to conduct political communication. In this context, DPRD members are drawn from and selected from interest groups thus make DPRD members come from political parties that perform input functions for the political system, such as political socialization, interest articulation, interest aggregation, political communication, and political recruitment. On the other hand, DPRD members are also elected and drawn from their respective electoral districts and from the community as their constituents. Therefore, it is DPRD members’ duty to articulate and mobilize community interests. The implication is that DPRD members can formulate ideas based on community aspirations captured through political communication, manifested in DPRD’s Main Ideas Policy and incorporated into the public policy agenda.

Consequently, in addition to being required to have strong communication skills, DPRD members, as communicators, are also required to have critical thinking in analyzing the problems perceived by their constituents and to prioritize aspirations to be incorporated in the planning and budgeting process. Due to limited regional fiscal capacity, not all proposals can be realized. Therefore, to maintain interaction with their constituents, DPRD members also communicate with the village government to validate that their constituents’ aspirations are high-priority proposals worth funding.

Based on interviews of 6 DPRD members form Partai Kebangkitan Bangsa, Partai Golongan Karya, Partai Persatuan Pembangunan, Partai Kesejahteraan Sosial, Partai Gerakan Indonesia Raya, and Partai Kebangkitan Bangsa which represent all of the electoral district, DPRD members as communicators, have a role to play in conveying the DPRD duties and functions, the Garut Regency Government’s priority programs previously planned in the Regional Government Work Plan, and the dissemination of regional regulations and the Regional Budget  formulation mechanism, including DPRD’s Main Ideas Policy through recess activities and village deliberation forums. However, the effectiveness of these communicators is still hampered by several factors, such as the lack of proactivity on the part of DPRD members in communicating with the village government outside of recess activities. Furthermore, there is a political bias in interactions, as DPRD members tend to be more responsive to the villages that serve as their base of voting support.

On the other hand, several DPRD members have attempted to improve communication through informal approaches, such as social gatherings and the use of social media like WhatsApp. They also conduct field verification to ensure that the aspirations conveyed truly align with community needs. However, these efforts have not been evenly distributed across all electoral districts, necessitating increased capacity and commitment from all DPRD members to ensure more effective and inclusive political communication.

Message – Collecting Community Aspiration by DPRD Members

The message element in political communication refers to the substance or content of the information conveyed by the communicator (DPRD Member) to the communicant (Village Government). Based on interviews, the messages conveyed by the DPRD during aspiration gathering activities covered a wide range of topics, from priority of regional government programs, the socialization of regional regulations, the DPRD’s main duties and institutional functions, to budget preparation mechanisms DPRD’s Main Ideas Policy. The messages also contained educational material aimed at improving the Village Government capacity to understand the development planning and budgeting process at the regional government level.

Furthermore, each DPRD member delivered informative and formal messages, particularly during recess activities. However, there were also variations in how messages were conveyed outside of formal forums, such as through informal meetings, personal visits, and social gatherings, which in practice were more effective in gathering specific and contextual aspirations. This indicates that the substance of the messages conveyed was influenced not only by the formal materials from DPRD members, but also by the close relationship between DPRD members and the Village Government as dialogue partners.

The relationship between messages and the gathering of community aspirations is very close, as the Village Government acts as a conduit between community needs and regional planning and development policies. Information conveyed by DPRD members to the village is then responded to with various development proposals that reflect community needs. However, the effectiveness of these messages is greatly influenced by the extent to which the substance of the information is understood, articulated, and acted upon by the Village Government in the form of valid and structured proposal documents.

Although the messages conveyed by DPRD members cover strategic development aspects, not all messages are transformed into concrete policies in the DPRD’s Main Ideas Policy. This is likely due to the Village Government’s suboptimal capacity to manage information and formulate it in the form of development needs and the limited regional fiscal capacity to realize community aspirations. Therefore, a clearer mechanism is needed for prioritizing messages, such as considering urgency, impact, and the proposal’s alignment with the Regional Government Work Plan, so that the messages conveyed truly represent community needs.

Media – Media Usage as channel of DPRD Political Communication

The media element in political communication serves as a channel or vehicle for conveying messages between the communicator (DPRD members) and the communicant (village government). Based on interviews, the primary media used in the aspiration gathering process are official forums such as DPRD recesses, Village Development Planning Forum. These forums serve as formal means provided by the government to connect representatives with the community through the Village Government. However, the effectiveness of these forums is highly dependent on the timing of implementation, the quality of facilitation, and the active participation of both parties.

In addition to formal media, informal communication channels are considered more flexible and effective. These include personal gatherings, WhatsApp groups, village visits, and networks of volunteers and community leaders. In practice, these channels are often utilized by DPRD members to capture more specific and in-depth aspirations, particularly from villages that do not always have adequate access to information and formal forums. The presence of these informal media strengthens the horizontal dimension of political communication and complements the vertical communication system implemented institutionally.

The media role in the process of gathering public aspirations is crucial, as it serves as a direct link between the people’s voices and political decisions at the DPRD level. When the media used is inclusive and adaptable to local conditions, community aspirations are more easily absorbed and translated by the Village Government into proposed budgetary proposals. However, if the available communication media are rigid, unresponsive, or limited in access, an information gap will arise, resulting in a low representation of community needs in the political budget process.

Despite the use of a variety of media, challenges remain in the consistency and continuity of communication between DPRD members and the Village Government. Not all villages have the capacity to effectively manage formal forums, and not all DPRD members actively foster intensive informal communication. Furthermore, a technology-based documentation or reporting system that can record political communication in real time and accountably is not yet available. Therefore, to improve the effectiveness of gathering public aspirations, it is necessary to develop integrated digital communication media that directly connects the DPRD, the Village Government, and the community, as well as strengthen transparent feedback mechanisms.

Communicant – Village Government as Recipient of Political Communication

The communicants are crucial because they are the ones who receive, interpret, and respond to political messages sent by communicators. In this study, the Village Government serves as the primary communicant, receiving various information from members of the Garut Regency DPRD, particularly in the context of gathering aspirations and formulating Main Ideas Policy. Based on interviews with 12 Village Heads in Garut Regency, the study captured direct testimonies about their engagement in the aspiration-gathering process. As one village head stated: ” We always actively participate in the DPRD recess forum because this is the only formal channel to convey village needs directly to the people’s representatives.” (Barusari Village Head, personal communication, 17 June 2025). Another participant emphasized: ” Apart from formal forum, we often make informal approaches to DPRD members through social gatherings or meetings to ensure our aspirations are heard. ” (Village Head Barusari, personal communication,17 June 2025). These findings strongly support the literature from Kurniasih & Rusfiana (2021) and Budoyo (2022) regarding high public participation in recess activities. The active role of village governments through both formal and informal channels aligns with Holilah & Ismail (2023) concept of two-way political communication, where constituents and representatives maintain continuous engagement beyond official forums.

Although most respondents considered the Village Government to be quite active, there was variation in the level of participation and responsiveness among villages. Several DPRD members noted that certain Village Governments demonstrated a high level of initiative, even conveying aspirations outside of formal forums, while others were more passive or simply attended without providing substantive input. Factors influencing this include the capacity of human resources in the village, understanding of the regional planning process, and the close relationship between the Village Head and DPRD members. This suggests that the Village Government’s position as communicators is not always matched by a readiness to be a critical and constructive dialogue partner.

As the party closest to the community, the Village Government has significant potential to articulate the real needs of residents into proposals that can be incorporated through the Main Idea Policy mechanism. However, the effectiveness of ongoing political communication depends heavily on the Village Government’s ability to translate community aspirations into feasible proposals that align with regional policy directions. Several respondents also noted that the Village Government sometimes conveys aspirations that are highly technical or administrative in nature, without considering strategic aspects, priority scales, or links to development planning.

Based on these findings and supported by existing literature, it can be concluded that the Village Government serves as a crucial communicator in the regional political communication system, though its role requires further strengthening. As highlighted by Holilah & Ismail (2023), the effectiveness of two-way communication between the DPRD and Village Government significantly depends on the latter’s capacity to articulate and advocate for community needs. This aligns with our findings that villages with heads who received prior policy communication training demonstrated higher success rates in having their proposals adopted in the DPRD’s Main Ideas Policy.

Effect of Political Communication – Formulating Aspiration into DPRD’s Main Idea Policy

The effect element is the impact or change that occurs in the recipient after receiving the message from the communicator. In the context of this research, the expected effect of political communication between DPRD members and the village government is a tangible influence on the formulation of the DPRD’s Main Idea Policy, as a result of absorbing and processing community aspirations. Based on interviews, most respondents acknowledged that the communication had encouraged the village government to more actively convey aspirations, although not all of them were responded to directly or incorporated into DPRD’s Main Idea Policy.

The interviews revealed that the village government provided substantial input, and in some cases, these aspirations were successfully formulated into DPRD’s Main Idea Policy. This demonstrates the positive effects of political communication, particularly when messages conveyed through recess forums or Musrenbang are genuinely followed up by the legislature. As one village head stated: ” Proposals that are in accordance with community needs have an impact on village development and are very noticeable when there are limited village budgets with many community needs.” (Dano Village Head, personal communication, June 17, 2025). Another participant shared: ” When the proposal is accommodated, it will be very helpful because some of the village development plans that are not realized by village funds can be realized by the Main Ideas budget.” (Padamulya Village Head, personal communication, June 17, 2025). However, there was also recognition that not all community aspirations through the village can be accommodated in DPRD’s Main Idea Policy, due to limited budget allocations, differing perceptions of priorities, or internal political selection within the DPRD itself.

Based on data obtained from the Regional Government Information System, the Garut Regency DPRD’s Main Idea proposals in 2022 reached 2.939 proposals, then decreased in 2023 to 2.135 proposals and there was an increase in the DPRD’s Main Idea proposals in the 2024 period to 4.007 proposals. This could be due to 2024 being a political year for new legislative elections in Garut Regency, therefore the increase in the number of DPRD’s Main Idea proposals could indicate a political effort to maintain constituents carried out by DPRD Members by increasing the number of proposals submitted.

Table. 2 Total of DPRD’s Main Idea Proposal by Occasion Year 2022 – 2024

Source: Regional Development Planning Agency,  2024

In terms of proposal types, proposals related to infrastructure and regional issues dominate the DPRD’s Main Idea proposals. This reflects the fact that the real problems faced by the community in Garut Regency are generally related to infrastructure and regional issues, ranging from road and bridge connectivity, irrigation networks, to the provision of clean water for households.

The main obstacle to achieving optimal communication results is the weak feedback and evaluation mechanisms, with minimal participation by the Village Government and the community in this process. This is due to the lack of dissemination of DPRD’s Main Idea Policy results, leaving them unaware of whether their proposals have been accepted or rejected. Consequently, the perception arises that the DPRD is unresponsive to the community’s real needs. To address this, a clear reporting system and a joint evaluation forum between the DPRD, the Village Government, and the community are needed.

Overall, the political communication effect of the DPRD’s Main Idea Policy formulation has not fully achieved its goal of bridging community aspirations. To be more effective, the DPRD needs to increase transparency, expand communication access to all villages, and ensure that DPRD’s Main Idea Policy is implemented based on objective priorities. This way, the impact of communication will not be felt by only a handful of villages but can become a driver of inclusive and sustainable development.

CONCLUSION

Based on the analysis, it can be concluded that political communication between members of the Garut Regency DPRD and the Village Government in the process of establishing DPRD Main Idea Policy plays a strategic role in absorbing and translating village community aspirations into development policies. DPRD members, as communicators, have played an active role in conveying regional priority programs and soliciting aspirations. However, their effectiveness has been hampered by indications of constituent political interests and unequal access to communication within each electoral district.

The substance of the messages conveyed by DPRD members encompassed strategic aspects such as development priorities, planning and budgeting mechanisms within the Regional Budget. However, the success of these messages depends on the understanding and readiness of the Village Government to receive and rearticulate this information in the form of development proposals.

The communication media used reflect a combination of formal and informal channels. Forums such as Regional Development Planning Forum and recess activity are the primary means, but informal media such as WhatsApp and personal networks have proven effective in reaching villages with limited access. However, the lack of a standardized digital communication system and documentation presents obstacles to building transparent and sustainable communication.

In terms of effect, political communication has encouraged village government participation in conveying aspirations, but not all aspirations have been accommodated in the DPRD’s Main Idea Policy due to budget constraints and political priorities. The lack of feedback mechanisms has also led to negative perceptions of DPRD accountability. Therefore, the effectiveness of political communication in formulating DPRD’s Main Idea Policy needs to be improved through a more systematic, participatory, and data-driven approach.

Implication

The implications of this research for DPRD members include the need to improve communication with village governments to make them more open, active, and equitable across all regions. The DPRD should not only convey information but also listen to and follow up on village aspirations fairly. Furthermore, the DPRD should develop a more structured communication system, such as utilizing digital technology to document and monitor community proposals for greater transparency and accountability.

For village governments, this research demonstrates the importance of an active role in conveying community aspirations in a structured manner and in line with development priorities. Village governments also need to understand regional planning mechanisms so that their proposals can be included in the DPRD’s Main Idea Policy. Therefore, training and mentoring are needed to better prepare village governments to submit meaningful proposals that impact regional development.

ACKNOWLEDGMENTS

The authors appreciate the support and facilities of the UNIGA Doctoral Program, which contributed to this research. Authors also acknowledge the aid offered by the Accounting Research Institute of Universiti Teknologi MARA, Malaysia and the Ministry of Higher Education.

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