Implementation of Policy for Prevention and Eradication of Abuse and Illegal Circulation of Drugs and Precursors (P4GN) at The National Narcotics Agency of Tangerang City Rehabilitation Section

Drug Abuse and Illicit Trafficking in Drugs is one of the most pressing and complex problems, so it requires a comprehensive treatment. Many cases show how drugs have caused great losses, both in terms of material and non-material. The Prevention and Eradication of Illicit Narcotics Circulation and Abuse (P4GN) is a policy and strategy of the Indonesian government's to emphasize and protect the public from drug abuse and illicit trafficking. The National Narcotics Agency of Tangerang City is responsible for one of the tasks in the field of drug rehabilitation by increasing the capacity of medical and social rehabilitation institutions, both organized by the government and the community. Drug rehabilitation is the psychotherapeutic treatment given to drug addicts. It helps the patient to get rid of substance abuse as well as process abuse. This research uses descriptive qualitative research. To obtain data in accordance with the research focus, the research conducted interviews, observations and documentation. The results of this research showed the implementation has not been running optimally, there are several indicators that become obstacles in implementation, including limited resources, lack of communication between organizations that have not been intensely established, and have not fully matched the standards and objectives of the policy, and not fully involved formal or informal organizations. The supporting factors include the implementation of narcotics rehabilitation in accordance with the SOP, a positive response from the implementing agency, and the external environment (Economic, Social, Political) receiving a positive influence. The results of the initial observations of researchers conducted at the Tangerang City National Narcotics Agency Rehabilitation Section, researchers found several problems in the Implementation of the Policy on Prevention and Eradication of Drug Abuse and Illicit Trafficking (P4GN), so this study aims to be studied more deeply, including :


Background
The problem of drug abuse is a very complex problem, which requires comprehensive countermeasures by involving multi-disciplinary, multi-sectoral cooperation, and community participation is actively implemented in a sustainable, consequential and consistent manner (Tarigam, 2017). The problem of drug abuse in Indonesia is a serious problem that must be solved immediately. Many cases show how drugs have caused great harm, both materially and nonmaterially. In general, the drug problem can be divided into three interrelated parts. First, it hosts the illegal production of drugs. Second, the existence of illicit drug trafficking. Third, the outbreak of drug abuse among the community (Tim Bandung Valley, 2011).
The results of research conducted by the National Narcotics Agency of the Republic of Indonesia periodically every three years, the Prevalence Rate of narcotics from 2011 to 2019 has decreased significantly. In 2011 the prevalence was at 2.23%, in 2014 the prevalence was at 2.18%, in 2017 at 1.77% and in 2019 at 1.80%. In addition, according to the 2019 National Prevalence Rate Data for people who have used narcotics to stop using and not consume narcotics again, there was a decrease of around 0.6% from the number of 4.53 million people (2.40 %) to 3.41 million people (1.80 %) so that almost one million Indonesians were saved from the influence of narcotics. However, we should not be complacent and vigilance against narcotics must be further increased because in 2019 there was an increase of 0.03%, where this increase was caused by an increase in the misuse of new types of narcotics (New Psychoactive Substances) which in previous years had not been registered in the annex to Law Number 35 of 2009 concerning Narcotics and Regulation of the Minister of Health Number 13 of 2014.
The Policy on Prevention and Eradication of Drug Abuse and Illicit Trafficking (P4GN) is a policy and strategy of the central government to emphasize and protect the Indonesian people from drug abuse and illicit trafficking. This research refers to the Regulation of the Head of the National Narcotics Agency of the Republic of Indonesia Number 5 of 2021 concerning Technical Guidelines for the National Action Plan for the Prevention and Eradication of Abuse and Illicit Trafficking of Narcotics and Narcotics Precursors in 2020-2024. Source : BNNP Banten, 2020 Data on the mapping of drug-prone areas of Banten Province conducted by the National Narcotics Agency of Banten Province in 2020 contained 31 drug-prone areas. The dominant drugprone areas are in Tangerang City. Vulnerable Areas are determined from several main indicators and supporting indicators, including drug dealers, drug production, drug entry points, drug abusers and addicts, drug cases, the presence of general crimes or criminals, and the presence of entertainment venues in the area.
Efforts to overcome the narcotics problem are not enough in one way but must be carried out with a series of continuous actions from various elements, both from government and non-government agencies. The series of efforts include preventive, repressive and rehabilitative efforts. Rehabilitation is one of the government's efforts in tackling drug abuse as an alternative measure, because drug abusers are also victims of drug dependence who require treatment or care. Determination of rehabilitation for narcotics addicts is an alternative crime imposed by a judge and is calculated as a period of serving a sentence.
Tabel 2 Based on this data, 153 cases of narcotics abuse in Tangerang City were recorded during January-July 2021, as many as 270 cases were found throughout 2020. While the cases recorded in 2019 are known to be 325 cases, while the number of suspects in 2020 is known to be 339 people, and suspects in 2019 were recorded as many as 397 people. In terms of quality, the evidence in the narcotics case in 2020 was 225,031.97 grams of marijuana-type narcotics and 46 trees. Then ecstasy was 329 buti, and the meth that was successfully secured was 28,045.49 grams. In 2019, evidence of marijuana-type narcotics seized was 14,821 grams and for meth from 3,214 grams.

Tabel 3. Data on Narcotics Abuse Cases in Tangerang City
Year Based on this data, the eradication section of the National Narcotics Agency of Tangerang City succeeded in uncovering narcotics cases with a record in 2018 that it succeeded in uncovering 71 cases with the category of 70 users and 1 dealer which was dominated by men and the majority of adolescents with around the age of 16 years, as well as evidence that was predominantly methamphetamine and excimer. In 2019, case data was recorded only until March with 25 cases of drug abuse, which millennial generation men met with evidence in the form of Marijuana, Sabu, Gorilla, Reclona, and Tramadol. Meanwhile, in 2020, there were only January cases recorded with 4 cases that were revealed in the category of 2 users and 2 dealers as couriers with evidence of 15.02 Kg of Shabu.

Number of Revealed Cases Category
The National Narcotics Agency of Tangerang City as the leading sector in the implementation of the P4GN policy has an important role in handling the drug problem at the city area level. One of its duties is to implement the Rehabilitation Section by improving the capabilities of medical rehabilitation institutions and social rehabilitation of narcotics addicts, both organized by the government and the community. This refers to Law Number 35 of 2009 concerning narcotics Article 4 Letter D that guarantees the regulation of medical and social rehabilitation efforts for drug abusers and addicts. Article 54 of Law Number 35 of 2009 concerning Narcotics states that drug addicts and victims of narcotics abuse are required to undergo medical rehabilitation and social rehabilitation. Rehabilitation of drug addicts is a form of social protection that integrates addicts into social order so that they no longer abuse narcotics.
The results of the initial observations of researchers conducted at the Tangerang City National Narcotics Agency Rehabilitation Section, researchers found several problems in the Implementation of the Policy on Prevention and Eradication of Drug Abuse and Illicit Trafficking (P4GN), so this study aims to be studied more deeply, including : First, based on the results of initial observations, it was identified that there were still limited Human Resources both in quantity and competence in the Rehabilitation Section of the Tangerang City BNN. There are only 6 human resources available in quantity with 2 general practitioners and 1 nurse, and 3 administrative staff. In the Standard Operating Procedures to support the Policy for the Eradication of Drug Abuse and Illicit Trafficking (P4GN), one of the Rehabilitation Sections is still limited so that its services are not optimal. Second, there is no Regional Regulations (Perda)in Tangerang City that specifically regulate Policy of the Prevention of Eradication of Drug Abuse and Illicit Circulation (P4GN) , one of which is related to the Rehabilitation Section. The importance of Regional Regulations (Perda) mandated by Presidential Instruction Number 2 of 2020 concerning the National Action Plan for the Prevention and Eradication of Drug Abuse and Illicit Circulation in 2021-2024, is a legal basis for the City of Tangerang, one of which is to take steps in the context of implementing rehabilitation of Drug Users and Addicts to provide recovery from the impact of dependence by providing comprehensive treatment and treatment.
Third, the lack of optimal facilities and access to drug addict rehabilitation services at the National Narcotics Agency in Tangerang City. Referring to the Regulation of the Head of the National Narcotics Agency of the Republic of Indonesia Number 5 of 2021 concerning Technical Guidelines for the National Action Plan for the Prevention and Eradication of Drug Abuse and Illicit Circulation in 2021-2021, the National Narcotics Agency of Tangerang City has increased the capacity and access of rehbailitation services for Victims of Narcotics Abuse. The problem of advice and pre-rehabilitation facilities has not been in accordance with the National Standards for Rehabilitation in supporting the Policy on The Prevention of Eradication of Drug Abuse and Illicit Circulation (P4GN). Fourth, the lack of public awareness, especially victims of drug abuse to carry out rehabilitation. Paradigrma about the stigma of victims of drug abuse in society which is widely circulated negatively makes it difficult for victims of drug abuse to report themselves or their families/guardians to report them for rehabilitation. In addition, societal discrimination against users and former drug users, is a source of problems that often occur for Victims of Abuse or former Drug Users. Literature Review Policy Implementation Van Metter and Van Horn (1975: 65) in Agustiono (2016:128) define policy implementation as actions taken either by individuals or acting or government and private groups directed towards achieving the goals outlined in discretionary decisions. Policy implementation stated by Grindle (1980: 5) in Agustino (2016: 129) is a measurement of the success of a policy implementation can be seen from the process by questioning whether the implementation of the program is in accordance with what has been determined, namely looking at the program actions of individual projects and the second whether the program objectives are achieved.
The Policy Implementation Model applied in this study uses a top-down approach model formulated by Donald Van Meter and Carl Van Horn called A Model of the Policy Implementation. There are six variables according to Van Meter and Van Horn in Agustino (2016:133) that affect the performance of these public policies, including: 1) Policy Standard and Objective The performance of policy implementation can be measured for its success if the standar and objectives of the policy are realistic with the socio-culture that exists at the level of policy implementers.

2) Resources
The success of the policy implementation process is highly dependent on the ability to utilize the available resources. Policies need the support of resources, both human resources and non-human resources.

3) Characteristics Of The Implementing Agencies
The focus of attention on implementing agencies includes formal organizations and informal organizations that will be involved in implementing public policies. 4) Disposition of the Implementer The attitude of acceptance or rejection of the implementer will greatly affect the success or failure of the performance of public policy implementation. The disposition of the implementor includes the important things, namely (a) the response of the implementor to the policy (b) cognition, namely his understanding of the policy.

5) Inter-Organizational Communication and Enforcement Activities
Coordination is a powerful mechanism in the implementation of public policy. The better the communication coordination between the parties involved in an implementation process, the less assumptions occur. And, vice versa.

6) Economic, Social and Political Environment Condition
The extent to which the external environment contributes to the success of the public policies that have been implemented. An unfavorable social, economic and political environment can be the root cause of the failure of policy implementation performance. Therefore, efforts to implement policies must also pay attention to the conducive conditions of the external environment.

Policy of Prevention and eradication of drug abuse and illicit circulation (P4GN)
The Policy of Prevention and eradication of drug abuse and illicit circulation (P4GN) is a central government policy and strategy to emphasize and protect the indonesian people from drug abuse and illicit drug trafficking. The policy has a pillar/focus to deal with the problem of prisoners, namely prevention, eradication, rehabilitation and strengthening of the law. At the regional level, the pillars carried out are prevention, eradication and rehabilitation with the target of including healthy communities, addicts and drug dealers.
Implementing the provisions of article 67 paragraph (3) of Law number 35 of 2009 concerning narcotics, the President of the Republic of Indonesia issued a regulation, namely Presidential Regulation Number 23 of 2010 concerning the National Narcotics Agency, hereinafter referred to as BNN, a non-ministerial government agency domiciled under and responsible to the President.

Drug Rehabilitation
Rehabilitation is an attempt to recover the addict from drug dependence and a normal life of physical and spiritual health so that he can adjust and improve his skills, knowledge, intelligence, association in the context of life or with a family called resocialization.
In article 54 of Law Number 35 of 2009 concerning Narcotics, it is stated that drug addicts fund victims of drug abuse are required to undergo medical and social rehabilitation. Article 55 of Law No. 35 of 2009 concerning Narcotics states the obligation of parents/guardians to report addicts who are not old enough to report themselves. In addition, Article 103 of the Narcotics Law authorizes judges to order addicts and victims of drug abuse as defendants undergo rehabilitation through their verdicts if they are found guilty of abusing narcotics.
According to the United Nations Office on Drugs and Crime, narcotics rehabilitation is defined by the WHO as a process undergone by individuals with drug use disorder problems in order to achieve optimal health status, psychological functioning and socially prosperous. WHO also explained that the rehabilitation stage is in the form of an incision phase in the form of detoxification and if necessary, therapy can be given related to medical and psychiatric conditions experienced by the individual.

Method
The method in this study uses descriptive qualitative research methods. Where qualitative research is a method to explore and understand the meaning that a number of individuals or groups of people who are considered to be derived from social or human problems (Creswell, 2018). Researchers analyzed and revealed the phenomenon regarding the Implementation of the Policy to Prevent the Eradication of Drug Abuse and Illicit Circulation (P4GN) at the Tangerang City National Narcotics Agency rehabilitation section. Data collection techniques in this study through observation, interviews, and documentation. Meanwhile, technical analysis according to Spradley in Hardani, et al. (2020: 174) divides data analysis in qualitative research based on the stages of qualitative research, namely domain analysis, taxonomic analysis, component analysis, and cultural theme analysis.

Result and Discussion
Based on the results of the research that has been obtained, the researcher analyzed the Implementation of the Policy for the Prevention and Eradication of Drug Abuse and Illicit Circulation (P4GN) at the National Narcotics Agency of Tangerang City Rehabilitation Section using the theory of policy implementation by Van Metter and Van Horn (Agustino, 2016: 133), as follows : 1. Policy Standard and Objective Implementation of the Policy on the Prevention and Eradication of Drug Abuse and Illicit Circulation at the National Narcotics Agency of Tangerang City Rehabilitation Section in the dimensions of standards and Policy Objectives is appropriate, but not optimal due to obstacles. The standard for the success of the policy in the rehabilitation section is to increase public awareness, especially Narcotics Addicts, Drug Abusers and Victims of narcotics abuse to report themselves or report parents or guardians to get rehabilitation services. However, there is an obstacle, namely the negative stigma of society that drug abusers are criminal behavior and should be criminalized not rehabilitated.
The mandate of Law Number 35 of 2009 concerning Narcotics with the fulfillment of rehabilitation services for addicts, abusers, and victims of narcotics abuse, there are three (3) stages of rehabilitation, namely medical rehabilitation, social rehabilitation and post-rehabilitation aimed at releasing dependence on illegal drugs, and restoring the social function of former drug users so that they can return properly to the social environment. The obstacle to not achieving this rehabilitation, namely when the rehabilitation client stops or disappears, there is no news in the rehabilitation process, even so the Tangerang City National Narcotics Agency cannot force it because the implementation of the rehabilitation is voluntary. In addition, regulation is an important factor in supporting the implementation of policies to achieve measures of success and objectives of the Policy on Prevention and Eradication of Drug Abuse and Illicit Circulation of the Rehabilitation Section at the National Narcotics Agency of Tangerang City. However, there is no availability of supporting regional regulations related to this matter.

Resources
The policy will be successfully implemented if it uses and is supported with good resources. Meanwhile, in the implementation of the Policy on Prevention and Eradication of Drug Abuse and Illicit Circulation, the Rehabilitation Section at the National Narcotics Agency in Tangerang City uses resources that include human resources, financial resources, and facilities and infrastructure resources. First, human resources in the implementation of rehabilitation are said to be inadequate. Based on the value of the need for rehabilitation services, there are several human resources needed according to competency and expertise certification in particular, which are not yet owned by the Tangerang City National Narcotics Agency, including counselors, Clinical Psychology.
Second, the Budget in the implementation of the Policy on the Prevention and Eradication of Drug Abuse and Illicit Circulation is obtained from the State Budget (APBN). Based on the findings of researchers, the Tangerang City National Narcotics Agency as a vertical institution, financial resources can be said to be still limited so that they have not been able to realize the allocation of needs funds in these policy activities.
Referring to the Regulation of the National Narcotics Agency of the Republic of Indonesia Number 24 of 2017 concerning Rehabilitation Service Standards for Narcotics Addicts and Victims of Narcotics Abuse, that the facilities and infrastructure according to the analysis of researchers in the Implementation of the Policy for the Prevention and Eradication of Drug Abuse and Illicit Circulation (P4GN) rehabilitation Section at the National Narcotics Agency in Tangerang City are completely inadequate.

Characteristics Of The Implementing Agencies
The implementation of the Policy for the Prevention and Eradication of Drug Abuse and Illicit Circulation (P4GN) at the Tangerang City National Narcotics Agency Rehabilitation Section related to the characterization of the implementing agency has involved formal organizations and informal organizations, including the Tangerang Class IA Youth Prison, Tangerang Class IIA Youth Prison, Tangerang Class IIA Women's Prison, Tangerang City Prevention and Treatment Guard (GMDM), Community-Based Intervention (IBM) Karawaci Village and Kelurahan Areca nut. In its implementation, the characterisitk of the implementing agent has run in accordance with their respective duties and functions. However, efforts are still needed to prevent and eradicate drug abuse and illicit circulation with the involvement of other stakeholders, both Government Agencies and Non-Government Agencies in overcoming drug problems, including in recovering or dealing with victims of abusers or drug addicts for rehabilitation. In addition, the Tangerang City National Narcotics Agency performs one of the policy tasks in the Rehabilitation Section in accordance with the applicable Standard Operating Procedures by carrying out activities aimed at providing recovery for drug abuse in both the Community Component and the government's Primary Clinic. The rehabilitation at the Primary Clinic is carried out on an ongoing basis. The first stage is medical rehabilitation, social rehabilitation, and post-rehabilitation. 4. Disposition of the Implementer Implementation of the Policy for the Prevention and Eradication of Drug Abuse and Illicit Circulation (P4GN) rehabilitation section at the National Narcotics Agency of Tangerang City related to the attitude or tendency of the implementers can be considered not optimal, because only as rehabilitation employees in the implementation of rehabilitation have attended competency training while it is better for officers who carry out narcotics rehabilitation to have competence according to the Regulations of the National Narcotics Agency Indonesian Rehabilitation Number 24 of 2017 concerning Rehabilitation Service Standards for Narcotics Addicts and Victims of Narcotics Abuse. Meanwhile, the impementator's response to the policy with a focus on rehabilitation provides a positive value that all implementing agents have awareness of the existence of the Policy on Prevention and Eradication of Drug Abuse and Illicit Circulation and support it in accordance with the main duties and functions of the implementing agency.

Inter-Organizational Communication and Enforcement Activities
Coordination is an important role for all parties involved in the policy for the Prevention and Eradication of Abuse and Illicit Trafficking of Narcotics and Precursors (P4GN) in the rehabilitation section of the National Narcotics Agency. Because the policy is a national policy implemented to combat drug problems so that in its implementation it involves all elements, local government, business partners, and the community. The coordination carried out by the Tangerang City National Narcotics Agency with stakeholders can be seen as not optimal, the coordination that applies is only limited to the pattern of functional relationships and coordination that is carried out incidentally where coordination occurs only on certain occasions or times, not regularly and routinely. Communications carried out within the stakeholders involved are in the form of Coordination Meetings, Warrants, and are carried out online via Whatsapp. On the other hand, the Tangerang City National Narcotics Agency communicates by means of socialization, counseling, information and education regarding the Policy to the public on request from agencies and organizations, and others. In addition, communication can also be seen from social media platforms, namely Instagram and the tangerangkota.bnn.go.id website. The communication made to the community has not been comprehensive. The communication carried out by the counselor with the rehabilitation client of the Pratama Clinic uses a humanist approach, but it can be said that it is not intense enough because in the implementation of drug rehabilitation at Rumah Asa, the intimacy of counselors and rehabilitation clients is required to call with the greetings "Brother" and "Sister". Another thing, the approach in organizing rehabilitation at the Bani Syifa Islamic Boarding School is not only using a humanist approach but also a spiritual approach that is more emphasized.

Economic, Social and Political Environment Condition
The external environment also contributed to the success of the Policy on Prevention and Eradication of the Abuse and Illicit Traffic of Narcotics and Precursors (P4GN) in the Rehabilitation Section. The negative impact of drug abuse, the addictive nature of drugs makes drug users to continue to use drugs. Of course, in terms of economy, this requires drug abuse victims to continue to buy drugs because the cost to buy is not small, so it is feared that all efforts are made to get these drugs in bad ways. The policy in its implementation has a positive influence on the economic condition of addicts/victims/drug abusers to report themselves or to be reported by their families or guardians to the Tangerang City National Narcotics Agency. It affects the economic environment of every addict/victim/drug abuser so they don't buy drugs anymore. In addition, the state does not suffer losses due to illicit drug trafficking.
Social conditions affect the Policy on Prevention and Eradication of Abuse and Illicit Traffic in Narcotics and Precursors (P4GN) of the Rehabilitation Section. With the implementation of rehabilitation, it gives hope to drug users in order to get a good social environment. Continuous rehabilitation provides positive values for former drug users when returning to the community (social environment) Recoverable (increasing health status and being able to maintain recovery and preventing relapse), Productive (exploring and developing talent interests in order to achieve productivity of economic independence), and Social Functions (restore normal social function). In addition, the political environment in implementing the policy, all those involved in this matter are the Tangerang City National Narcotics Agency as having direct authority in its implementation and as supporting activities, namely all Regional Apparatus Organizations (OPD) within the Tangerang City Government which have a very large role in the implementation of this policy. The Tangerang City Government through the Tangerang City National Unity and Political Agency plays a role in implementing its policies as prevention and facilitating its implementation in Tangerang City. The results of the field findings, steps taken preventively (prevention) include socializing the dangers of drugs, drug examination/urine tests in collaboration with the Tangerang City National Narcotics Agency to the selection of Anti-Drug Ambassadors. In addition, the influence of the political environment on this policy in the City of Tangerang with the establishment of a regional regulation to follow up on Presidential Instruction No. 02 of 2020 concerning the National Action Plan for the Prevention and Eradication of Abuse and Illicit Trafficking of Narcotics and Narcotics Precursors for 2020-2024.

Conclusion
Based on the result of the research and findings in the field, the final conclusion from the research regarding the Implementation of Policies for the Prevention and Eradication of Abuse and Illicit Trafficking of Narcotics and Precursors in Tangerang City Case Study of the National Narcotics Agency (BNN) of Tangerang City Rehabilitation Section has been implemented, but has not been implemented effectively. optimally according to the dimensions that affect policy implementation. There are several indicators that become obstacles in implementation, including limited resources including human resources, financial resources, and supporting resources (Infrastructure), the lack of communication between organizations and the community has not been intensely established, and policy of the P4GN has not been fully implemented at BNN in Tangerang is in accordance with the size and objectives of the policies that have been set, and has not been fully involved with formal or informal organizations. The supporting factors include the implementation of narcotics rehabilitation in accordance with the Standard Operational Procedure (SOP), a positive response from the implementing agency, and the external environment which includes the economic, social, and political environment receiving a positive influence with the P4GN policy.