IMPLEMENTATION OF THE POOR RICE PROGRAM IN AN EFFORT TO SUPPORT AND IMPROVE COMMUNITY FOOD SECURITY (CASE STUDY

________________________________________________________________ This study aims to determine the description of the implementation of the distribution and impact of the Raskin program (Indonesian rice distribution program for the poor) for target beneficiary households (RTS-PM). This type of research is descriptive qualitative with survey and documentation methods. The results of the study are known to be the implementation of the Raskin program in Airmata Village which is measured by 6T success indicators (right target, right quantity, right time, right quality, right administration and right price), it can be concluded that the implementation has been running but not yet optimal, caused by indicators of the right amount, right quality, and on time out of sync with conditions in the field. The Raskin program has a positive impact and benefits the recipient community, because of the relatively affordable prices and the well-running routine program, as an effort to support and improve community food security


INTRODUCTION
Indonesia is a country that has great potential in terms of resources human resources and resources natural resources, but it turns out that all of that cannot guarantee the achievement of the level of people's welfare and raise the dignity of the Indonesian nation (Munandar, 2008: 151).
One of the problems faced by the government in development is the problem of poverty.The problem of poverty continues to be a prolonged problem, even now it can be said to be increasingly apprehensive.Poverty is reflected in the unfulfilled basic rights of the poor.These basic rights include the right to food, health, education, employment and so on (Azis Abdulah, 2015:11).
In solving the problem of poverty, data and information about poverty that are accurate and right on target are needed to ensure the successful implementation and attainment of the goals or objectives of poverty alleviation policies and programs at the national, provincial and district/city levels where poverty alleviation efforts are aimed at expanding business opportunities and employment opportunities for people who are less powerful as well as the importance of databases in any discussion of poverty starting from the identification of the poor based on the standard of living and minimum norms (Gregoryus, 2005: 8).The following is data on Raskin recipients in Airmata Subdistrict, Kota Lama, Kupang City.From the data in the table above it can be seen that every year there has been an increase in  Beside that there is a Raskin distribution channel which can be seen in Figure 1 below.(1953), that "a poor country is poor because it is poor" (a poor country is poor because it is poor).

THEORETICAL BACKGROUND
Poverty is a condition of economic inability to meet the average standard of living of the people in an area.This condition of inability is marked by the low ability of income to meet basic needs in the form of food, clothing, and shelter.This low income capability will also result in reduced ability to meet average living standards such as public health standards and education standards.
The condition of the so-called poor people can be known based on the ability of income to meet living standards (Nugroho, 1995).
In principle, the standard of living in a society is not only the fulfillment of the need for food, but also the fulfillment of the need for health and education.A decent place to live or settlement is one of the standard of living or standard of social welfare in an area.
Based on this condition, a community is called poor if it has an income much lower than the average income so that it does not have many opportunities to prosper itself (Suryawati, 2004).The definition of poverty that is currently popularly used as a development study is poverty that is often found in developing countries and third world countries.The problem of people's poverty in these countries is not just a form of income inability, but has expanded to a form of social and political powerlessness (Suryawati, 2004).
Poverty is also considered a form of development problem caused by the negative impact of unbalanced economic growth, thus widening the income gap between communities and inter-region income gaps (Harahap, 2006).Current development studies do not only focus on the factors that cause poverty, but also begin to identify all the aspects that can lead to poverty.The problem of poverty, as it was originally thought, is a condition of the inability of income to meet basic needs.
This concept or view applies not only to groups that do not have income, but can also apply to groups that already have income.

Powerlessness (Powerless)
In general, low income ability will have an impact on social power (social power ) of a person or group of people, especially in obtaining justice or equal rights to get a decent life for humanity.The issue of poverty and discussion of the causes of poverty are still being debated both in the academic environment and at the level of development policy makers (Suryawati, 2004: 123).
The characteristics of poverty that are still used to determine the condition of being poor are: 1. Do not have their own factors of production such as land, capital, work equipment, and adequate skills.
2. Relatively low level of education.
3. Working in a small scope and capital.
small or also called working in the informal sector environment so that they are sometimes also called underemployed.

Community Concept
The definition of society according to Sadily

Type of Research
This type of research is descriptive qualitative with survey and documentation methods.

Location and Time of Research
The time of this research was carried out for 6 months from January -June 2021.The location of this research was in Airmata Village, Kota Lama District, Kupang City.

Research Target/Subject
In accordance with the research objectives In this process, surveys and interviews will be conducted with a sample of 78 beneficiaries.
To find out the implementation of the Raskin program, a framework was created in an effort to find answers related to the problem of community food security.In more detail can be seen in Figure 2 below:

Data analysis technique
The data obtained will be analyzed using qualitative data analysis techniques.In qualitative research, data processing does not have to be done after the data is collected, or data analysis is not absolutely done after data processing is complete.The data obtained is then analyzed simultaneously with the data collection process, the analysis process carried out is a fairly long process.Data from interviews and observations obtained were then recorded and collected so that they became field notes.

RESULTS AND DISCUSSION
Referring to the results of research on the 1.The type of work held by the target household or household is not fixed or does not have a job at all or is unemployed.Poor was the delay in the distribution from the central government.
As stated by the Airmata Urban Village Head, Djamil H. Umar, S.Sos that; "The distribution of rice for the poor Assessment of the implementation of the rice distribution policy for the poor in Airmata Village is considered not to be running perfectly (maximum) due to: 1.The target households or households that received Raskin did not match the data input by Village officials, resulting in errors in data collection.
2. There was a delay in the distribution of Raskin so that the target households or households experienced delays in receiving Raskin.
3. The quality of rice that sometimes does not meet the proper consumption standards for example smells and is rocky.
This was stated by one of the targeted household heads (RTS) who received Raskin in the Airmata Subdistrict, Mr. Farid Belajam, who said that: "We are grateful to receive the rice but, there are a lot of stones, broken and a bit smelly, maybe the rice has been sitting in the warehouse for a time."(Interview, June 18, 2021).
Similarly, what was conveyed by Mr. Arifin, one of the Target Family/Household Heads from Airmata Village that: "The rice that was distributed to us was sometimes good and sometimes not so good in the past.Therefore, sometimes we feel disappointed because of this.But at this time the quality of rice is very good.
In addition to the results of the interviews above, measurement of the implementation or sustainability of the implementation of the rice for the poor program in Airmata Village can also be measured from indicators.

Indicators of success in distributing
Raskin/Rastra are as follows: 1

Exact Amount
This means that the amount of rice given to The implementation of the government program that the community really feels is rice for the poor (Raskin).This shows that this program is a program that directly touches the community, especially the poor, so that by receiving rice for the poor, people who are entitled to receive and need it are expected to be able to meet the needs and welfare of their The results of the interviews show that the target households receive considerable benefits from this program because the difference between the price of rice sold in the market and the price of subsidized rice is very large, where the price of Raskin rice is cheaper and due to this, expenditure costs for rice food ingredients can be allocated to meet their needs other necessities of daily life.
Of course, there are many benefits that can be used from the remaining money that should be used up to buy rice at food stalls, in line with Raskin's aim to reduce the expenditure burden of beneficiary target households (RTS) by fulfilling some of their food needs, then another benefit of Raskin is increasing food security in target households as well as mechanisms for social spending and poverty alleviation.
In the Airmata Sub-District, the incoming

The
Indonesian government has set efforts to reduce poverty as one of its development priorities.Currently, the government has various poverty reduction programs managed by the National Team for the Acceleration of Poverty Reduction (TNP2K) which are divided into 3 (three) clusters: 1) cluster I is a group of social assistance and social protection-based poverty reduction programs, such as: Jamkesmas, the Family Hope, Raskin and Poor Student Assistance (BSM), 2) cluster II is a group of poverty alleviation programs based on community empowerment, such as: the National Poverty Reduction Program (PNPM), and 3) cluster III is a group of poverty alleviation programs based on business empowerment small micro, such as People's Business Credit (KUR) (TNP2K, 2009:89).One form of direct government intervention in dealing with poverty is the distribution of the Poor Rice Program (Raskin).Raskin has been started since 1998.The 1998 monetary crisis was the beginning of the implementation of Raskin which aimed to strengthen household food security, especially poor households.At first it was called the Special Market Operations Program (OPK), then changed to RASKIN starting in 2002, Raskin expanded its function no longer as an emergency program ( social safety net ) but as part of the community's social protection program.Through a scientific study, it is hoped that the naming of Raskin as the name of the program will be more targeted and achieve its goals (www.bulog.co.id).Air Mata Sub-District is one of the village in Kota Lama District, Kupang City, which is also the Recipient Village for RTS-PM Raskin.The people of the Airmata sub-district mostly work as micro-entrepreneurs, besides that the work groups are unproductive due to limited capital and quality of work.The results of the pre-research show that the community's income from their business results is a maximum of Rp.45,000 to Rp.50,000/day to be used to fulfill family needs, therefore with the RTS-PM Raskin it is hoped that it can help meet and improve the quality of people's daily lives.
the number of Raskin recipients from 2016 to 2020.The highest number of Raskin recipients was in 2019 and 2020, namely 97 households with a total distribution of 1,455 Kg of Raskin and the least in 2016, namely 47 households with the total distribution of Raskin is 705 kg.Based on the information provided by the local apparatus, the cause of the increase in the number of Raskin recipients every year that occurred in Airmata Village was based on information provided by local officials.Newly married family who come from the local ward and are classified as underprivileged families and can receive social assistance either in the form of Raskin or other help.Based on the government program, the existing allocation is expected to be able to help the community, especially in Airmata Village, Kota Lama District, Kupang City and to make the best use of government assistance to improve community/KK welfare and in accordance with applicable regulations.However, is the implementation of the Raskin program in accordance with applicable regulations and are the targets of the Raskin beneficiary communities right on target?Based on the background above, the problems to be discussed are how is the implementation of the Rice for Poor Program (Raskin) for the people of Airmata Village, Kota Lama District, Kupang City and what is the impact of the Rice for Poor Program on Household Target Beneficiaries (RTS-PM).

Figure
Figure 1.Raskin Distribution Flow 3. Vulnerability to face an emergency situation (State of emergency) A person or group of people who are called poor do not have or have the ability to deal with unexpected situations where this situation requires an allocation of income to solve it.4. Dependencies The limited income capability or social strength of a person or group of people who are called poor causes a very high level of dependence on other parties.Alienation (Isolation) 5.The dimension of alienation as intended by Chambers is the location factor that causes a person or group of people to become poor.Based on the condition of poverty which is seen as a form of multidimensional problems, poverty has 4 forms.The four forms of poverty are (Suryawati, 2004) namely Absolute Poverty, Relative Poverty, Cultural Poverty, and Structural Poverty.After knowing the form of poverty, it is also known as the type of poverty based on its nature.The types of poverty based on its nature are natural poverty and artificial poverty.These two types of poverty are often still associated with the concept of development which has been implemented for a long time in developing countries in the1970s and 1980s (Jarnasy, 2004. , is the basis of poverty.Each individual's income is obtained from his work.Income has a negative relationship with poverty, this is in accordance with the theory that the higher the income, the lower the poverty level.2. Education, Mihaela Mihai (2013) argues that poverty is a failure in education, which means that people who are born in poverty are born in a vicious cycle of poverty that cannot be avoided.3. Health, is a direct component of human well-being and a form of human capital in enhancing individual abilities.David Bloom and David Canning (2011) argue that these two views are complementary and can be used to increase investment in the health sector in developing countries.4. Consumption (Expenditure), Keynes argued that consumption is a positive function of income and high-income households consume less food than lowincome households, because their other income is allocated to non-food consumption.

(
1985: 72) is a large or small group of several humans, who themselves are group related and have influence between one another.Bouman (1982: 113)  defines society as an intimate association of life between humans, united in a certain way by their societal desires.Furthermore, according to Leysen inMansur (1977: 35), said that society is a power relationship from the forms of society and with individual life .According to Berger in Raho (2004: 69) society is a whole complex of human relations that are broad in nature.FurthermoreLawang (1986:   124)  society is referred to as a complex whole because it is composed of various systems and subsystems such as economics, politics, education, family, health and others.Suharto (2005: 47-48), argues that society is a group of people who have the same feelings or unite with each other because they share the same identities, interests.In connection with the formation of a society as stated by the experts above, there is an understanding of the reality of society as a whole as stated in Raho's book (2004: 69-70).1. Gebhard and Jean Lenski, describe the types of technological society 1. often accompanied by violent changes in society, changes in human history range from the first groups to industrial societies.In their analysis, the main thing that distinguishes one society from another is the technology they use invention.2. Karl Marx also defines society as a long process of change.But for Marx, this change occurred because of a social conflict rooted in the way humans produce material goods.3. Max Weber, trying to show how human ideas can shape society.Modern society is based on a rational and scientific thought process that leads people to a form of social organization which he calls bureaucracy.4. Talcot Parsons, identifies the elements that cause society to survive and explains how society can change.Based on the definition of the experts above, it can be assumed that society is a collection of individuals who are united in a certain way because of the same social desires.For this reason, the conditions for the emergence of society are (1) there must be a large group of people, (2) have lived in a certain area for a long time, (3) the existence of rules governing common interests.
that have been formulated, the focus of the research studied in this study is the level of achievement of the implementation of the Raskin Program for the people of Airmata Village.The population in this study is data on the recapitulation of the number of beneficiaries of the Raskin Program in Airmata Subdistrict, Kupang City.The total population per year in 2020 was 363 beneficiaries.The number of samples is calculated using the slovin formula, obtained by a total sample of 78 respondents.The sampling technique used was non-probability sampling technique with the technique used was accidental sampling (Sugiyono, 2007).Procedure In the implementation of the Raskin rice program, is it right on target, right in quantity, right in price, right in time, right in administration and right in quality.

2.
The target households or households do not have a steady income or are insufficient to meet their basic needs or the needs of their family members.3. Having many dependents or family members but not being matched by the ability to meet the basic needs of family members.4. The condition of the house of the target beneficiary families or households was seen from the type of floor, namely dirt floors, plaster walls of woven bamboo or wood. 5. Ownership Houses and land where the target households or households live are owned by other people or by themselves.
. Right on target This means that the budget can be realized and obtained by those who are the targets of the implemented Raskin program.Raskin is only given to RTS-PM who are registered on the Raskin Beneficiary List (DPM) as a result of verification of the PPLS 2008 BPS data through a Village meeting that has been approved by the sub-district head.Raskin/Rastra is only given to Target Households Beneficiaries (RTS-PM) in Airmata Village are families with very low incomes.There are two households that are not residents of the village whose names are included in the list of Raskin recipients for Airmata village.The occurrence of this was due to a recording error during the implementation of data collection carried out by BPS officers.Because when observed at the research location it turned out that between the Airmata Village and the other village which is where the two households live is only limited by a bamboo fence.This made it possible for the Implementation of the Raskin Program Policy to have an error in recording the household name.However, the two households from outside never came to collect their rice rations.(interview with Lurah Airmata, Djamil H. Umar, S. Sos).This should not have happened because it is included in the implementation of the program.It must be kept in mind that the official beneficiary data is a registered name issued by TNP2K based on the results of data collection conducted by BPS."Although all of the additional beneficiary households (Mudes results) are to be recipients of this Raskin.The large difference between the number of households that officially receive assistance and the number of additional houses as a result of the agreement certainly has an impact on reducing the amount of rice allotment that will be received by each household that is officially designated as a Raskin participant."(Interview, June 18, 2021).
families.Regarding the Implementation of Rice for the Poor, the author also tries to convey the results of the author's interviews with the Airmata Urban Village Head and local residents who received Raskin with the following results: The Raskin program is a government program, both the central government and city/district governments.Classification of Raskin rice based on source can be classified into two types, namely Regional Raskin and Central Raskin.This program is a program of the central and regional governments in which villages that have been recorded by the government, especially by the Social Service, Airmata village is one of the villages that has the right to receive the Raskin program.This program has been running for several years until now so that the community has been recorded by us (village Government) by collecting DTKS data (Integrated Social Welfare Data) by recording the NIK and KK numbers of residents who are entitled to receive this Raskin program assistance.This data was recorded by each RT in Airmata Village and then submitted to the village for DTKS data collection.It is known that there are 8 RTs that were recorded in Airmata Village.In implementing the Raskin program, almost all residents who were recorded in the DTKS received this Raskin assistance.Whereas other people who do not receive Raskin assistance will receive other assistance such as PKH (Family Hope Program), CBR (Raskin Rice Reserve).Then there is data on expansion assistance that is the same as Raskin but of the same type as PKH, namely e-Warung in the form of a card which will be used to obtain food ingredients in the form of rice, cooking oil, eggs, or other food ingredients.So far the implementation of the Rice for the Poor Program in Airmata Village has been implemented but has not been maximized.This is because 3 Exact Out of 6 Correct which is an indicator of the success of the implementation of the Rice for the Poor Program (Raskin) has not been implemented properly, such as the Right Quantity, Right Quality and Timely.The Impact of the Poor Rice Program on Target Beneficiary Households (RTS-PM) The impact of the Raskin program on beneficiary communities can be measured or seen through the goals of the Raskin program itself which are given to underprivileged communities.Based on the results of research in the field that the existence of the rice for poor families (Rasksin) program is very beneficial to the community and very helpful in reducing the burden of meeting the food needs of target households.The Raskin program assistance can ease the burden on the poor by providing basic food assistance through subsidized rice to poor people who need it.Helping the community in meeting the most basic needs of all their family members, namely the need for food (rice).The rice for poor program is very helpful for poor families in fulfilling food needs.This is supported by the results of interviews conducted with one of the residents of the Air Mata Village, Mrs. Farida Pauw, who stated that: "I feel very helped by the Raskin rice program because this program can reduce the expenditure burden of beneficiary target households (RTS) by fulfilling some of the target household's food needs."

Raskin
is calculated based on several types of time, namely every month, every quarter, and every semester.The government's policy on Raskin rice provides a change in lifestyle both at the social and economic level in Airmata Village.People who feel economic changes after getting subsidized rice from the government, people continue to work as usual.Communities in Airmata Sub-District, especially beneficiary households, with the presence of Raskin have helped reduce the burden of food consumption at the household level but have not helped to change the economy and lifestyle of the people in Airmata Village.The impact of the rice program policy for poor families in Airmata Subdistrict, Kota Lama subdistrict, Kupang City, which has been carried out by researchers, can be viewed as an output from the community's understanding of the Raskin program and the implementation of the Raskin program that has been implemented in the community.The results of the research on the implementation of the Raskin program in Airmata Subdistrict can be seen how the Raskin program provides guarantees to the community in accessing the food needs of poor households.Every poverty alleviation program's ultimate goal is to improve the welfare of society in general.However, the Raskin program that has been implemented so far has not been able to improve people's welfare, has not been able to improve the quality of life or has not been able to improve the economic conditions of poor families.So, if it is concluded with the approach to the level of community welfare, this program is only limited to helping ease the burden on poor households and is only limited to meeting food needs, in this case rice for poor families.Previous research conducted by Robiatul Adawiyah et al with the title "Implementation of the Rice Program for Poor Families (Raskin) and its Impact on Families in Kenanga Village, Sumber District, Cirebon Regency", previous research supports the research conducted.This study states that the implementation of the Rice for the Poor Program (Raskin) is not in accordance with government regulations.This is due to several factors, both from the community and from the government itself, such as the implementation of 6T which has not been maximized.running but not optimal.This is caused by the indicators Right Quantity, Right Time, Right Quality not in sync with the conditions in the field.2.The impact of the Raskin program on beneficiary communities in the Airmata sub-district can ease the burden on the poor by providing basic food assistance through subsidized rice to poor people who need it.pretty good quality besides that it can also help the community in fulfilling the most basic needs for all their

Table 1 .
Recapitulation of the Number of Raskin Program Beneficiaries in Airmata Village in 2016-2020

Implementation of the Poor Rice Program for the Community
According to DanielMaxmanian and Paul   Sabatier (1983; 61)as quoted in Leo Agustino's   book (2006; 139), that: "Policy implementation is the implementation of basic policy decisions, usually in the form of laws, but can also be in the form of orders or decisions.importantexecutiveorjudiciary decision usually, the decision identifies the problem to be addressed, explicitly states the goals or objectives to be achieved, and various ways to structure or regulate the implementation process "Meanwhile,Van Meter and Van Horn   (1975), define implementation policy, as : in mid-1998.This program was a refinement of the stability program, the price of rice, which is generally expensive and also unfairly enjoyed by everyone, especially for the poor.The rice program for poor families or commonly known as Raskin is one of the government's efforts to reduce the burden of spending on poor families.The program is an effort to reduce the expenditure burden of poor households as a form of support in increasing food security by providing social protection at cheap rice in an amount determined by the government.

Table 2. Success Indicators of the Rice for the Poor Program No Goals, Suggestions, Criteria, Forms, Indicators of Success Raskin program
The amount of Raskin rice that is the right of the Beneficiary is 10 to 15 kg/RTM/month according to the Village Deliberation.-Right Price: The price of Raskin rice is Rp.1000/kg net at Distribution Points.-Timely: The timing of rice distribution to Poor Households Beneficiaries of Raskin is in accordance with the Distribution Plan.

Implementation of the Poor Rice Program for the Community of Airmata Village, Kota Lama District, Kupang City
The Raskin that is dropped into each Village by Bulog can be shared/distributed to each RT-RW environment and then distributed to the target community according to the allocation for each Neighborhood.Terms or conditions for households who are entitled to receive Raskin in the Airmata Village are as follows: