Collaborative Governance in Empowering Micro, Small, and Medium Enterprises through SiBakul Jogja Free-Ongkir during Covid-19

The SiBakul Jogja Free-Ongkir is an empowerment program to helping MSMEs in the province of Yogyakarta affected by the Covid-19. Collaborative governance in the SiBakul Jogja free-ongkir program involves several stakeholders namely, the Department of Cooperatives and SMEs of the Special Region of Yogyakarta, the Java Parama Niaga (JPN) Cooperative, Gojek Jogja, Grab Jogja


INTRODUCTION
argued, Micro, Small and Medium Enterprises are macro as a support for the development of a country, as a driving force, controller and a pioneer in the economic and social development of a country. The Regional Government assesses that economic recovery efforts are steps taken in line with the spread of the Covid-19 pandemic, with several stages and priorities. Even the Governor of the Special Region of Yogyakarta has also issued several strategic steps, one of which is issuing a Circular of the Governor of the Special Region of Yogyakarta Number 519/7669 concerning an appeal for the purchase of Micro, Small and Medium Enterprises products (corona.jogjaprov.go.id, 2020). It is to stimulate the public to buy products from Micro, Small and Medium Enterprises. Rebuilding a weakened economy, especially for Micro, Small and Medium enterprises (MSMEs) is a real problem to face the new normal. According to Anggraeni et al., (2013), program development of Micro, Small and Medium Enterprises (MSMEs) as one of the instruments to increase the purchasing power of people who will eventually become the safety valve of the monetary crisis. The development of a free shipping program for purchasing MSMEs products has become a special attraction in luring people to buy Micro, Small and Medium Enterprises products during a crisis due to this pandemic. With the collaborative presence of the regional government of the Special Region of Yogyakarta, it is possible to get partners from banks, MSMEs, and online motorcycle taxi in developing the business of MSMEs products in Yogyakarta. It is a form of collaboration between local governments in empowering MSMEs. The existence of partnerships, institutional coordination, and fragmentation is an effort to develop the economy in local governments (Ekowanti & Ambarwati, 2019).
The Department of Cooperatives and SMEs of Special Region of Yogyakarta translated this policy by providing incentives and stimuli for MSMEs affected by COVID-19, by innovating SiBakul Jogja to become SiBakul Jogja Free-Ongkir, as a real empowerment action to give free delivery costs or shipping costs for consumers who buy MSMEs products. Previously, SiBakul Jogja was a data collection system for cooperatives and MSMEs, developed in 2019 which transformed into a market hub to

RESULT AND DISCUSSION The Actors Involved in Collaborative Governance in Empowering MSMEs through "SiBakul Jogja Free-Ongkir" during Covid-19
SiBakul Jogja Free-Ongkir is one of the programs created by the Department of Cooperative and SMEs Special Region of Yogyakarta, which aims to revive the economy of Yogyakarta Province during the Covid-19. It is aimed for MSMEs in the Special Region of Yogyakarta so that they can restore the economy and revive MSME businesses that are currently collapsing due to the pandemic. In empowering the SiBakul Jogja Free-Ongkir program, it requires several stakeholders to support this program so that it runs well and is according to the goals desired by the parties concerned, especially the Department of Cooperative and SMEs Special Region of Yogyakarta as a government sector. In addition, researcher also conducted interviews with the private sector and MSME actors involved in the program. The private sector involved are namely Grab Jogja, Gojek Jogja, and Java Parama Niaga Cooperative.
In carrying out the SiBakul Jogja Free-Ongkir empowerment program, the most responsible field is the Small and Medium Enterprises Cooperative Entrepreneurship Service Division. The Small and Medium Enterprises Cooperative Entrepreneurship Service Division is led by the Head of the Division. Meanwhile, the Small and Medium Enterprises Cooperative Entrepreneurship Service Division is under and responsible to the Head of the Office. In addition, the Small and Medium Enterprise Cooperative Entrepreneurship Services Sector has the task of carrying out entrepreneurship coaching, development and monitoring to increase the number of new entrepreneurs. Moreover, in the Small and Medium Enterprises Cooperative Entrepreneurship Service Division there is a PLUT (Integrated Business Service Center) Consultant who is led by the head of the field himself as a forum for consultation, training, business assistance in the Special Region of Yogyakarta area in the organizational structure.
The private sectors involved in the SiBakul Jogja free-shipping program include: 1) Grab Jogja, whose position is focused on helping the SiBakul Jogja free-shipping program is City Manager Grab Indonesia -Southern part of Central Java. 2) Gojek Jogja, whose position is focused in helping the SiBakul Jogja free-ongkir program is the Senior Manager Government Relations Gojek Indonesia -Regional Central Java Yogyakarta. 3) Java Parama Niaga Cooperative, which focuses on helping the SiBakul Jogja free-shipping program is the chairman of the Java Parama Niaga Cooperative. The private sectors involved also carry out their duties with the teams related to their respective divisions. Furthermore, in the Special Region of Yogyakarta, there are many MSMEs. The Micro, Small, and Medium Enterprises actors are priorities in the SiBakul Jogja Free-Ongkir program so that MSMEs actors are automatically involved in this empowerment program as shown in the table below.

No.
Location Total

Yogyakarta City 99
Adella Intan Pertiwi,Awang Darumurti,Collaborative Governance in Empowering Micro,Small,Vol. 5,No. 1,30 Covid-19. JSSP, Vol. 5, No. 1, 30 June 2021 55 SMEs of the Special Region of Yogyakarta cannot move alone in financial terms. They need a third party such as the JPN Cooperative to follow up on transaction problems in the SiBakul Jogja free-ongkir program because it follows a procedure that has been agreed between stakeholders in collaboration with the Department of Cooperative and SMEs of the Special Region of Yogyakarta. Overall, in building this network structure, it has been running well and is according to their respective roles. 2. Commitment to a Common Purpose Commitment is a strategy to invite MSMEs actors or stakeholders who work together with the Department of Cooperative and SMEs Special Region of Yogyakarta to continue running the program. The commitment to empowering the SiBakul Jogja freeongkir program was successful. This can be seen from the training support, MSME personal awareness, coordination between stakeholders, and the survival of MSMEs in this program. They always coordinate with the Department of Cooperative and SMEs, especially Mr. Wisnu, as the Head of this program from the Department (City Manager Grab Indonesia -Southern part of Central Java, Mr. Habdillah Anuraga on November 30 th , 2020). These are all important indicators in creating a commitment to achieve common goals.

Trust among the Participants
Trust that is based on professional or social relationships with mutual trust between stakeholders or actors involved in collaboration. In the implementation of empowerment there must be trust between stakeholders to achieve their common goals. For the implementation of the SiBakul Jogja Free-Ongkir program, related stakeholders maintain each other's trust to make this empowerment successful, for example, MSMEs. With MSMEs, they try to tie them up with a stamped statement letter. The statement letter may follow the rules of this program. They don't sell prohibited items as well. There are rules for them to sign on stamp duty or to both have the legality of it fulfilled. They have that basic belief to trust each other and they will not sell something that might later be our fault. With other parties, both Grab and Gojek, they continue to coordinate. So far, there hasn't been a problem. Whenever they have a problem, they Adella Intan Pertiwi,Awang Darumurti,Collaborative Governance in Empowering Micro,Small,Vol. 5,No. 1,30

Governance
Governance is clarity in governance such as boundary and exclusivity, related regulations in an effort to run the implemented program, network management, and selfdetermination. The stakeholders created an innovation to create good governance in the collaboration of this empowerment program. In May-July it still uses a manual system, namely admin customer service and the day after day the SiBakul Jogja Free-Ongkir program traffic increases so that the Cooperative Office needs this innovation, and created GrabMart and Selly. During the program, the stakeholders coordinate through meetings to help their communication if there are problems or create other innovations so that empowerment continues. Besides, they also evaluate each stakeholder and exercise quality control by curating MSMEs wishing to enroll in the "SiBakul Jogja free-shipping" program.
Evaluation was also carried out by the Department of Cooperative and SMEs of Special Region of Yogyakarta every month and they will later report to the monitoring and evaluation agency. In this case, it is the Regional Development Planning Agency (Bappeda). There is also an evaluation with they team that evaluates SMEs (Interview with Head of the Integrated Services Section of Cooperative, Micro, Small, and Medium Enterprises, on October 19 th , 2020). Unfortunately, the Java Parama Niaga Cooperative has not received an evaluation from the Department of Cooperative and SMEs of Special Region of Yogyakarta. The conclusion that the governance process carried out in collaboration has been going well but not perfect because the Java Parama Niaga Cooperative, has not been evaluated at all.

Access to Authority
It is explained that there is already apparent authority for each stakeholder. The Department of Cooperative and SMEs of Special Region of Yogyakarta as stakeholders who have the authority to determine their work programs' activities and procedures in dealing with regional economic problems during the COVID-19 pandemic. Meanwhile, Gojek Jogja and Grab Jogja help the Department of Cooperative and SMEs of Special Region of Yogyakarta in delivering MSME products and ICT product services (making applications). This is also said by Mr. Habdillah Anuraga, the city manager Grab Indonesia -Southern part of Central Java: "All authority lies in the Department of Cooperative and SMEs of Special Region of Yogyakarta. We are only applications that provide the means. The policy of all support is in the Department of Cooperative and SMEs of Special Region of Yogyakarta". (Interviewed on November 30 th , 2020).
Moreover, the Java Parama Niaga Cooperative has the authority to channel third parties in financial services for debit transactions for every sale of MSME products in this free shipping program.

Distributive accountability/responsibility
In the empowerment of the SiBakul Jogja Free-Ongkir program, the government determined the implementation procedure, namely the Department of Cooperative and SMEs of Special Region of Yogyakarta. In contrast, each role's roles and responsibilities are different because they adjust to their respective fields and work procedures that have been agreed upon. The indicators of distributive accountability/responsibility in the empowerment of the "SiBakul Jogja free-ongkir" Adella Intan Pertiwi,Awang Darumurti,Collaborative Governance in Empowering Micro,Small,Vol. 5,No. 1,30  Moreover, every training carried out by the Department of Cooperative and SMEs of the Special Region of Yogyakarta evaluates the next facilities to empower the SiBakul Jogja free-ongkir program.

Information Sharing
MSMEs can access information about the free-shipping SiBakul Jogja program by registering at SiBakul MarketHub and becoming a member of SiBakul Jogja to get a free shipping program. Nowadays, the digital world is needed, one of which is to convey information quickly. Therefore, the researcher concluded that in collaborating, the government had provided useful information to spread the news of the program via Instagram or the Whatsapp group to reach MSME actors. Likewise, Wedang Uwuh Den Bagus owner who received information about the SiBakul Jogja free-ongkir program directly from the Department of Cooperatives and SMEs of the Special Region of Yogyakarta (Mrs. Dwi Karti Handayani, interviewed on November 16 th , 2020).

Access to Resources
The indicators of access to resources tend to run smoothly because each stakeholder has its own solution. One of them is the Java Parama Niaga Cooperative, which is constrained by accounts for debit transactions. They have to replace accounts several times, which in turn uses the personal account of the Java Parama Niaga cooperative chairman to streamline the financial transaction system in the SiBakul Jogja free-ongkir program. Furthermore, source of funds used in collaborative activities comes from the Local Government Budget (unexpected aid), which is very limited but it is enough. Financially, it tends to be smooth. In the sense that the amount we have proposed has usually been approved so far and not reduced or rejected. It's just a matter of time (Interview with Hana Fais Prabowo, STP, M.Si. on October 19 th , 2020). This has become the Department of Cooperative and SMEs' strategy of the Special Region of Yogyakarta in limiting the provision of free shipping every month by giving a time lag. Besides, Grab Jogja created the Jagoan SiBakul platform, but many MSMEs still closed their business platforms.
Related to the eight points of collaborative governance, the existence of a collaborative governance process has an impact on community empowerment. In other words, community empowerment is included in the concept of economic development through the collaborative governance process. In carrying out community empowerment there are three processes, as follows:

Enabling
In the enabling process, more focus is to create an atmosphere or climate that allows the potential of the community to develop. This can be seen by realizing the empowerment of the SiBakul Jogja free-ongkir program to help MSMEs. The existence of SiBakul Jogja free-ongkir is related to the network structure, commitment to a common purpose, Adella Intan Pertiwi, Awang Darumurti, Collaborative Governance in Empowering Micro, Small, and Medium Enterprises through SiBakul Jogja Free-Ongkir during Covid-19. JSSP, Vol. 5, No. 1, 30 June 2021 58 and trust among the participants so that it affects the enabling process. First, stakeholders are encouraged to build a good network so as to create stakeholders who can build a free-shipping program of SiBakul Jogja. In the empowerment process, many stakeholders are involved so that a collaboration is created between the Department of Cooperatives and SMEs of the Special Region of Yogyakarta, Java Parama Niaga Cooperative, Gojek Jogja, and Grab Jogja. Second, every society has potential that can be developed. In this case, efforts to build power by encouraging, motivating and raising awareness of the potential that the community has and efforts to develop it. Furthermore, the department invites MSMEs affected by the Covid-19 as those who are empowered to join the empowerment program with commitment and trust affects the enabling process in empowerment. In this case, the researcher concluded that enabling process could be done by providing assistance and creating trust and good coordination with empowered MSMEs.

Empowering
The Department of Cooperative and SMEs of the Special Region of Yogyakarta conduct quality control and evaluation every month, especially on training given to MSMEs (a form of evaluation). Second, the Department of Cooperative and SMEs of Special Region of Yogyakarta as stakeholders who have the authority to determine their work programs' activities and procedures in dealing with regional economic problems during the COVID-19 pandemic. Meanwhile, Gojek Jogja and Grab Jogja help the Department of Cooperative and SMEs of Special Region of Yogyakarta in delivering MSME products and ICT product services (making applications). Moreover, the Java Parama Niaga Cooperative has the authority to channel third parties in financial services for debit transactions for every sale of MSME products in this free shipping program. Third, to increase the capacity of the MSMEs, the Department of Cooperative and SMEs of the Special Region of Yogyakarta provides input data, training and special classes for MSMEs. The training and classes provided by the Department of Cooperative and SMEs of the Special Region of Yogyakarta are to streamline the SiBakul Jogja free-ongkir program.

Protecting
This is related to information sharing and access to resources so that it affects the protecting process. First, the Department of Cooperative and SMEs of the Special Region of Yogyakarta protects the community from the COVID-19 pandemic by providing easy access to information through social media and the internet, namely information about the SiBakul Jogja free-ongkir program. Moreover, the community can easily receive the distribution of innovation results made by stakeholders. Second, empowered MSMEs to feel safe and secure with their programs and their efforts can be helped, especially during the COVID-19 pandemic. The Department of Cooperative and SMEs of the Special Region of Yogyakarta assist in financial processes and services among stakeholders and provide innovations in the SiBakul Jogja free-ongkir program.

Network Structure
The network structure is the main point in collaborative governance's success by uniting one stakeholder with another (partnership). The network structure is a factor that supports the collaborative governance process to empower MSMEs in the free-ongkir Jogja SiBakul program. To build this network, the Department of Cooperative and SMEs of the Special Region of Yogyakarta collaborates with the JPN Cooperative, Gojek Jogja, and Grab Jogja.

Resource
Factors that support this collaborative governance process are access to human resources and financial resources for the SiBakul Jogja free-ongkir program. Resources that play a role in collaborative governance already have their respective expertise in their respective fields and have a good team. Moreover, for the source of funds used in collaborative governance to support the SiBakul Jogja free-ongkir program, the Department of Cooperative and SMEs of the Special Region of Yogyakarta uses the Regional Revenue and Expenditure Budget (unexpected aid).

Authority
With authority in the collaborative governance process given to each stakeholder involved in the SiBakul Jogja free-ongkir program, stakeholders can carry out their duties and functions according to their respective roles either through a procedure or giving freedom to innovate. The Department of Cooperative and SMEs of the Special Region of Yogyakarta as an originator of the SiBakul Jogja Free-shipping empowerment program and the head of this program. On the part of the JPN cooperative as a financial service in assisting debit transactions. On the part of Gojek Jogja and Grab Jogja, they both as a delivery service and provide innovation in ICT products. On the part of the MSMEs who are empowered as actors who carry out a selling action.

Less of Evaluation
Evaluation is an important part of implementing the empowerment program. Evaluation is useful for assessing empowerment programs in collaborative governance, especially the stakeholders to achieve their common goals. In the empowerment program, the Department of Cooperative and SMEs of the Special Region of Yogyakarta conducts evaluations to the relevant stakeholders except the Java Parama Niaga Cooperative (JPN). It is what makes the JPN Cooperative look for its solution in user accounts for debit transactions, which initially used an institutional account for the free-shipping Yogyakarta SiBakul program to use a personal account.

Lack of Resource
Resources are part of the support in the SiBakul Jogja empowerment program, one of which is technical. Technically, the empowerment of the SiBakul Jogja free-ongkir program has encountered a problem. The JPN Cooperative cannot use an institutional account that is specific to the account for the SiBakul Jogja free-ongkir program and it requires a personal account. Besides, the Jagoan SiBakul platform created by Grab Jogja in the Grab application has not been fully utilized because there are still many SiBakul members who have closed the business platform. Not all of them want to open the application even though it already exists. Adella Intan Pertiwi,Awang Darumurti,Collaborative Governance in Empowering Micro,Small,Vol. 5,No. 1,30 June 2021

CONCLUSIONS
The SiBakul Jogja free-ongkir program has experienced better changes than before. It was still manual using admin customer service and many things were not optimal in implementing the empowerment program. However, after that month, the stakeholders made innovations through evaluation results and coordination among them. They were creating the applications Selly, Jagoan SiBakul, and GrabMart. It can reduce the workload of the admin customer service in the Department of Cooperative and SMEs of the Special Region of Yogyakarta, where MSMEs can carry out buying and selling transactions independently under the supervision of the Department of Cooperatives and SMEs of the Special Region of Yogyakarta and private sector. However, from the results of the research and discussion, the researcher describes the application of the concept of collaborative governance in the SiBakul Jogja free-ongkir program, which is analyzed using DeSeve theory. It can be concluded that the collaboration carried out by the Department of Cooperatives and SMEs of the Special Region of Yogyakarta and the private sector has not been implemented optimally. It can be seen from several variables that measure the success of collaborative governance according to DeSeve, which are not fulfilled, namely governance and access to resources. It is related to factors inhibiting the empowerment program of collaborative governance in SiBakul Jogja Free-Ongkir program which is not going well, such as less of evaluation and lack of resource. Firstly, the Department of Cooperatives and SMEs of the Special Region of Yogyakarta conducts evaluations to the relevant stakeholders except the Java Parama Niaga Cooperative (JPN). Secondly, the JPN Cooperative cannot use an institutional account that is specific account for the SiBakul Jogja free-ongkir program. Thus, it requires a personal account.
Moreover, the Jagoan SiBakul platform created by Grab Jogja in the Grab application has not been fully utilized because there are still many SiBakul members who have closed the business platform. Meanwhile, the other six variables have been successfully implemented in collaborative governance in the SiBakul Jogja free-ongkir program. There are supporting factors that affect the sustainability of cooperation in empowerment, such as a network structure that is following its role, resources that have been a good team and adequate funds, and authority. Those stakeholders can carry out their duties and functions according to their respective roles either through a procedure or giving freedom to innovate. Furthermore, the existence of a collaborative governance process has an impact on community empowerment. In other words, community empowerment is included in the concept of economic development through the collaborative governance process. In carrying out community empowerment there are three processes, namely, enabling, empowering, and protecting. Firstly, the existence of SiBakul Jogja Free-Ongkir is related to the network structure, commitment to a common purpose, and trust among the participants so that it affects the enabling process. Secondly, related to the governance, access to authority, and distributive accountability/responsibility so that it affects the empowering process. Thirdly, the protecting process functions to maintain the sustainability of empowerment, especially in the SiBakul Jogja free-ongkir program. This is related to information sharing and access to resources so that it affects the protecting process.

SUGGESTIONS
Based on the discussion of the research results and the conclusion drawn above, there are still problems related to collaborative governance in the SiBakul Jogja free-ongkir