This study examines the implementation of the Neglected Children Development Program Policy by the Cirebon Regency Social Services Agency. The objective is to analyze the development program, identify obstacles, and evaluate the policy's impact. The method used is descriptive qualitative through interviews, observation, and documentation, as well as data validation through source triangulation. Referring to Charles O. Jones's policy implementation theory, the results show that the organizational indicators function well despite being constrained by a lack of staff, facilities, and coverage. Interpretation indicators indicate that the program meets children's needs, but is constrained by facilities and budget. Application indicators show progress thanks to inter-agency collaboration. This study recommends improving human resources, facilities, budgets, and synergy between related institutions.
Children are the future generation who will build the nation's future, and they are a gift from God that must be protected and nurtured because they possess inherent dignity and worth (Nakoh, 2022). Children are the first generation that needs to be empowered and educated from an early age through educational programs so that they can develop their ethics, knowledge, and personality in a more positive way. Children facing social issues need to be monitored for factors that could lead to mental or psychological disorders. They require more guidance from the government and society (Ulfia, 2022). However, many children today lack parental attention and have unmet economic needs, leading them to grow up as neglected children.
Neglected children are those whose basic needs—physical, spiritual, and social—are not met, so they do not have the necessities that children their age should have (Suyanto, 2010). The phenomenon of neglected children is closely linked to economic issues. From an economic perspective, this can be attributed to three main factors. First, there is an imbalance in the control of resources, leading to unequal income distribution. Second, there is a shortage of human resources, resulting in low productivity and wages. This low quality is caused by various factors, such as discrimination and low levels of education. Third, there are disparities in access to opportunities. The issue of neglected children in Indonesia has existed for a long time. Given this situation, special measures should be taken to address the rehabilitation of neglected children. In addition to children's right to welfare services guaranteed by law, this issue must be handled carefully to avoid the consequences of neglecting neglected children (Handayani et al. 2013). Therefore, the community plays a role in nurturing and providing the necessary support for the welfare of neglected children.
Regarding neglected children, Cirebon Regency Regulation No. 1 of 2018 explains that “The increasing number of women and children requires protection from violence, exploitation, and neglect. The local government and other responsible institutions must make efforts to protect these women and children.” Neglected children in Cirebon Regency are handled by the Social Services Agency in the Social Rehabilitation Division. The Cirebon Regency Government has attempted to address the issue of neglected children by implementing policies and programs to tackle this problem. These programs include rehabilitation, education, and skills training. However, there are still challenges in their implementation, such as insufficient funding, limited human resources, and coordination issues among institutions. Therefore, as the highest authority, it must be able to handle and manage crises quickly, accurately, and effectively while maintaining good communication with the public (Novita Yones & Siti Khumayah, 2025). The government has the responsibility to provide guidance and care for neglected children, whether through formal or non-formal institutions.
Data from the Central Statistics Agency (BPS) of Cirebon Regency shows that in 2021-2022 there were 5,854 neglected children, and in 2023-2024 the Social Services Agency of Cirebon Regency cared for 5,279 neglected children across 40 subdistricts. According to the findings, child abandonment is an illegal practice
that can eliminate responsibility for one's offspring (Rohma et al. 2023). This indicates that efforts to address neglected children have not been optimal. Therefore, comprehensive rehabilitation is needed to reduce the number of neglected children in Cirebon Regency and ensure that neglected children receive proper protection rights.
The objectives of this study are to determine how the child neglect intervention program is implemented in Cirebon Regency, to identify the barriers to the implementation of the child neglect intervention program in Cirebon Regency, and to evaluate the impact of the policies and programs that have been implemented.
Field conditions indicate that the causes of child abandonment include poverty, lack of parental attention, and low socioeconomic family conditions. The rehabilitation efforts undertaken by the local government have not been optimal, with insufficient budgets, a shortage of social workers, and poor coordination among agencies to support program effectiveness. This is evident from the high number of neglected children. Efforts to support neglected children should be optimized through increased funding and improved quality of social workers. Programs addressing neglected children must be based on accurate data, which can reduce the number of neglected children and ensure the fulfillment of their rights to proper growth and development.
Previous research studies have focused on programs for neglected children. A study (Natika & Rinjani, 2022) entitled “Implementation of Policies for Programs for Neglected Children at the Subang District Social Services Office” used Edward II's theory. The researchers found issues with indicators related to disposition, communication, and resources that need to be improved, resulting in the program not being fully optimized.
The study (Syabana, 2022) on the effectiveness of social welfare services for neglected children in Tangerang District was conducted in accordance with applicable regulations, but there are still various challenges related to supporting elements of the services.
The study conducted by (Miyeki et al. 2023), titled “Implementasi Penanganan Anak Terlantar di Dinas Sosial Kabupaten Lima Puluh Kota” (Implementation of Handling Neglected Children at the Social Services Agency of Lima Puluh Kota Regency). The research findings indicate that neglected children are caused by two factors, namely poverty and health. The Social Affairs Office has made efforts to assist neglected children and collect data to address the issue. However, the efforts made by the Social Affairs Office are ineffective due to a shortage of social workers and insufficient budget funds.
Although many studies have discussed policy programs for neglected children and the factors that hinder their implementation, there are still gaps in the research. Previous studies have focused more on the problems and efforts made, without comprehensively evaluating the impact of the policies and programs that have been implemented.
This study offers a specific way of understanding the implementation of policy programs for neglected children through a qualitative approach. This study is expected to provide a clear picture of the successes or challenges faced
in the implementation of policies, such as limitations in human resources, economics, family, and community environment, and will evaluate the impact of policies and programs that have been implemented. This study is expected to provide recommendations for improving policies for neglected children to be more effective and sustainable.
Neglected children are children who require special care. Neglected children are not only those who have lost their parents, but also those whose rights to proper growth and development, adequate education, and proper health care are not fulfilled (Suyanto, 2010). Neglected children are caused by the negligence or failure of their parents to fulfill their obligations, the unmet physical, emotional, and social needs of the child, and children living in poor families aged 5–18 years (Ruswanto and Senjaya 2023). However, many neglected children do not receive their rights and needs. In such circumstances, child neglect is considered a wrongful act because it results in the child's needs not being met (Handayani et al., 2013). Therefore, neglected children must be given attention and responsibility by the government.
Implementation is a plan to carry out planned activities, which are carried out in an appropriate manner based on certain norms in order to achieve the desired objectives (Utara et al. 2018). Implementation is also the ability to deeply understand the cause-and-effect relationship that links an action to the desired objective (Elih Yuliah, 2015). Based on these definitions, it can be concluded that implementation is not merely an activity, but a well-structured and well- executed program based on specific norms to ensure that the objectives of the activity are achieved.
Coaching is a series of activities carried out with careful consideration, planning, direction, and organization in order to build, improve capabilities, and develop resources so that desired results can be achieved. Every organization must have an effective human resource management system that can be developed to provide greater benefits. One method of managing human resources to improve performance is coaching (Rahmayanti, 2024). Training is a process or effort aimed at achieving improvement in a particular area.
Training conducted by educators provides beneficial training programs tailored to the best interests of the child (Sudarsono, 2012). Generally, training occurs through learning new skills that can enhance the quality of life and work. Planning, organizing, coordinating, implementing, and supervising are all components necessary to achieve optimal results (Besse Ernianti, 2019). The role of coaching is crucial and essential for psychological and mental improvement, as well as for developing an individual's skills. This significantly supports the achievement of previously established plans through coaching.
Policy is a set of actions or measures taken by individuals, groups, or
governments in a specific context, which includes challenges and opportunities, with the aim of overcoming these obstacles in order to achieve the desired goals (Leo Agustin 2016). Policy is an authority issued by the government in the form of actions aimed at achieving a specific process or goal for the common good (Permatasari, 2022). In other words, the definition of policy is essentially a means to achieve goals, programs that have been planned in relation to goals, values, and their implementation.
The policy formulation process involves several steps, including agenda setting, policy formulation, and policy approval (Dunn, 2003). The policy process also includes information gathering, analysis of various options or alternatives, and the establishment and formulation of programs. Policies aim to achieve political, economic, social, and legal objectives. In the political aspect, policies function to distribute values in the form of goods or services to the community. In the social aspect, policies aim to regulate community life, resolve conflicts, and strengthen harmony among community members (Reno Affrian et al. 2024). The success of policies requires structured planning and the involvement of various parties.
This study applies a qualitative descriptive approach, in which the data collected includes words written in interview transcripts supported by field notes, photos, and videos (Simangungsong, 2021). The data sources used include primary and secondary data. Primary data was obtained directly from selected informants, while secondary data came from various references, including books, journals, and other sources. Data collection techniques were carried out using three methods: interviews, observation, and documentation with parties who have authority related to the neglected children development program in Cirebon Regency.
The author applied triangulation techniques to ensure data validity. According to (Soegiyono 2011), source triangulation is a method of collecting data from various sources using the same technique through in-depth interviews with several informants. The use of source triangulation techniques aims to obtain clearer and more accurate answers.
This study focuses on the implementation of the policy program for neglected children by the Social Services Agency. The focus of the study is aligned with Charles O. Jones' policy implementation theory indicators, which include three variables in Jones' theory: first, organization, as the place for implementing a work program from a plan. Second, interpretation, to ensure that the program can be made into a clear, focused, acceptable, and properly implemented plan. Third, implementation, it is hoped that this research can provide a more comprehensive picture of the implementation of the Social Services Agency's policy program for neglected children in Cirebon Regency.
The Social Services Agency is one of the institutions authorized to carry out activities in the fields of social rehabilitation, social security, social empowerment, social protection, and the handling of neglected children to support the President in carrying out his duties in governing the country. The Social Services Agency of Cirebon Regency is one of the regional institutions in Cirebon Regency that carries out governmental functions in the social sector as part of the mandatory affairs of government.
| Year | Amount of Neglected Children |
|---|---|
| 2021-2022 | 5.854 |
| 2023-2024 | 5.279 |
| 2025 | 9.390 |
Based on data obtained from the Social Services Agency, in 2025 there were 9,390 neglected children in 40 subdistricts in Cirebon Regency. This data comes from the results of data collection by the Social Services Agency's rehabilitation division in Cirebon Regency, and the number of neglected children this year is higher than in the previous year. The increase in the number of neglected children in Cirebon Regency has risen significantly over the past year. According to interviews, this increase is attributed to economic factors, divorce, family issues, and migration.
Based on the results of the study, the implementation of the policy program for neglected children by the Social Services Agency of Cirebon City has been carried out in accordance with the provisions of Cirebon Regency Regulation Number 1 of 2018. The focus of the study was adjusted to Charles O. Jones' policy implementation theory indicators, which include three indicators: organization, interpretation, and application. The explanation of these indicators is as follows:
According to Charles (1991), organizations are an important element in policy implementation, serving as a vehicle for achieving planned objectives. Due to their important role in ensuring that work can be carried out, organizations require primary attention. As policy implementers, organizations are responsible for determining or reorganizing resources, units, and methods to ensure that programs run smoothly. According to Widodo (2010), organization is the process of establishing and reorganizing resources, units/bureaucratic structures, and methods with the aim of realizing policies into tangible results in accordance with planned objectives.
The first aspect, resources, is a key component in the implementation process. Program implementers are individuals who have mastered their respective fields (Tasya et al. 2022). Research findings related to resources supporting the policy for neglected children in Cirebon Regency received different responses from informants, but they agreed that human resources and other resources need to be improved. According to the results of interviews with the Social Services Agency on the handling of neglected children in the field of rehabilitation, the implementation of programs for neglected children requires coordination of resources, especially limited government budgets. The Social Services Agency collaborates with several parties, including the government, such as the Education Agency, Health Agency, community, and private sector to realize this program. This involvement can take the form of providing financial support, facilities, and social services needed by neglected children. According to a Ministry of Social Affairs employee at the Cirebon District Social Services Agency, one of the challenges faced is human resources. There are only six staff members handling neglected children in Cirebon District, while the number of neglected children in the district is quite high. This shortage makes the process of data collection and handling of neglected children ineffective and hinders efforts to provide them with proper protection. Interview results indicate that the implementation of budget policies heavily depends on the availability of sufficient funds for their proper execution. Despite limited funds and a restricted number of neglected children receiving assistance, private entities and the community have participated to ensure the success of the neglected children program.
The second aspect is that bureaucratic organizations consist of organizational units that are part of the structural process, namely the formal mechanisms used to manage the organization (Auldrin et al. 2016). The results of the study show that the organizational structure of the Social Services Agency has been formed with its respective duties and functions, working together with various agencies to implement programs for the care of neglected children. According to interviews with the Social Services Agency, in the field of rehabilitation, the Social Services Agency works with several other agencies to ensure the fulfillment of the rights of neglected children. For access to health care for neglected children, the Social Services Agency works with the Health Agency, which provides the necessary health services, such as routine health checks and immunizations. To obtain education, the Social Services Agency works with the Education Agency to provide appropriate educational facilities. Regarding the registration of neglected children, the Social Affairs Department collaborates with the Population and Civil Registration Department to ensure that every neglected child is registered in the population system and has a birth certificate. Additionally, the Public Order Agency (Satpol PP) plays a role in providing protection and security to safeguard neglected children on the streets. This collaboration is expected to support the growth and development of neglected children toward a better direction. Thus, the neglected children's rehabilitation program in Cirebon Regency is running fairly well with the collaboration between various parties, including staff from the Ministry of Social Affairs, Social
Rehabilitation Staff, the Education Department, Health Department, Population and Civil Registration Department, and Civil Service Police, with clear division of functions, tasks, and responsibilities. It can be concluded that the rehabilitation program implemented by the Social Affairs Department is appropriate, and each party and related agency has cooperated well. Although each agency has different tasks and responsibilities, they must work together effectively to ensure that policies are implemented smoothly.
The third aspect, the method of the program for neglected children at the Social Services Agency of Cirebon Regency, is a local government policy for the protection of neglected children. This program is committed to maintaining the welfare of neglected children by involving the community and related agencies, with the aim of creating a safe and healthy environment and providing access to education and skills for neglected children. According to interviews with staff from the Cirebon Regency Social Affairs Office, the methods applied in the program for neglected children are in line with the initial objective, which is to ensure the welfare of children. Assistance is provided through the Family Hope Program (PKH), which supports the welfare of neglected children from infancy to school age by providing school equipment and supplies. Furthermore, staff from the Cirebon Regency PPKS UPTD emphasized that the method of nurturing neglected children involves providing a shelter. During their stay at the shelter, neglected children are given education and skills training, a process supervised by agencies collaborating with the Social Affairs Department, such as the Education Department. However, there are some issues with insufficient facilities at the shelter, such as a lack of mattresses and blankets for the neglected children.
From the explanation of the organizational indicators above, it can be concluded that while there have been successes in implementing this policy, such as good collaboration between the Social Affairs Department and other agencies in implementing the program for neglected children, there are still shortcomings, including the need for increased resources, insufficient staff for data collection on neglected children, incomplete facilities at the shelter, and the limited number of neglected children receiving assistance.
Interpretation of policy implementation, namely activities carried out by policy implementers to ensure that programs, especially those related to status, become plans and can be implemented. Accurate interpretation is very important in assessing the effectiveness of implementation, especially for those involved in its implementation. A deep understanding, as well as clear and detailed guidance and instructions, are necessary for proper interpretation (Rochaeni, 2023). The objective of this study is to determine whether program implementers have met the needs of neglected children and how the involvement of external parties has influenced the implementation of programs by the Cirebon District Social Services Agency. Interpretation of the policy program designed and implemented by the Social Services Agency is found in various activities, some of which include: educational services, skills training such as sewing, spiritual
activities, and mechanics, immunization services for toddlers, the Family Hope Program (PKH), and free health check-ups.
The first aspect is that the objective of the neglected children development program is to provide a clear perspective for policy implementation and ensure that neglected children receive protection and grow and develop better. According to the results of interviews with Ministry of Social Affairs staff at the Cirebon District Social Services Agency, this neglected children development program aims to improve their education and provide health services such as immunization and routine health checkups. Additionally, the program aims to prevent neglected children from roaming the streets by providing guidance and support to keep them off the streets. To achieve this, the Social Affairs Office collaborates with the UPTD PPKS, which provides shelters equipped with educational access, health services, and skill training, including activities such as sewing, spiritual guidance, and mechanics. From the statement, it is clear that the objective of the program for neglected children is to protect and support their development by providing education, health, and skill-building services. Through the provision of shelters equipped with supporting facilities, the Social Affairs Department collaborates with the UPTD PPKS to ensure the success of this program.
The second aspect is that the target of this guidance program is children aged 5-18 years old who lack parental attention and whose economic needs are not being met. The program includes guidance, skills training, and cooperation with various parties to achieve the planned objectives. Interviews with social rehabilitation staff at the Social Services Agency revealed that limited funding prevented the program from fully achieving its objectives. This year, the government provided assistance to 30 neglected children, in the form of school supplies. However, there are still many other neglected children in need of similar assistance. The number of neglected children receiving assistance this year is fewer than last year, which was 50 neglected children, due to limited budgets. From the above statement, the main target of the neglected children guidance program is children aged 5-18 years due to unmet economic conditions and lack of parental attention. In this program's objectives, there is a constraint in the limited number of neglected children receiving assistance.
The third aspect involves operational programs that include steps implemented to enforce policies for the rehabilitation of neglected children in Cirebon Regency through programs related to health, education, and social rehabilitation. These programs aim to ensure that the rights of neglected children are adequately fulfilled. According to interviews with UPTD PPKS staff, the implementation of policies for the care of neglected children includes several operational programs at shelters, such as health, education, and rehabilitation. neglected children are trained in skills to enhance their creativity. So far, the programs implemented have covered all aspects, but there are issues hindering the sustainability of the programs, namely inadequate facilities. The lack of facilities prevents the program from being fully achieved. The above statement explains that although the orphaned children's rehabilitation program at the UPTD PPKS already covers important aspects, there are still obstacles, namely
inadequate facilities that hinder the program from achieving its planned objectives.
Based on the above explanation, it can be concluded that the Social Services Agency of Cirebon Regency has implemented a program for neglected children that aims to provide protection and support for the development of neglected children, even though it covers various important aspects. This program faces obstacles in the form of limited budgets and inadequate facilities, which hinder the optimal achievement of program objectives. Program evaluations are conducted regularly to ensure sustainability and improvement in achieving program objectives.
Implementation is the process of executing policies that involve operational rules related to services or other aspects. This process is tailored to predetermined objectives and forms part of established public policy programs (Widodo, 2010). So far, the program for neglected children implemented by the Cirebon District Social Service has been facilitated in every activity. However, given the large number of neglected children in Cirebon Regency, the Social Services Agency must ensure that the benefits, supervision, and evaluation provided to neglected children are targeted appropriately and meet the needs of neglected children in Cirebon Regency.
The first aspect is that the objectives and goals of the established policy program are appropriate, so that neglected children can obtain the same rights and opportunities, whether they are in school or not. To achieve the expected benefits of this program, the Social Affairs Department collaborates with institutions that play a crucial role in supporting the implementation of the neglected children program. According to interviews with the Social Affairs Department of Cirebon Regency, the benefits obtained by neglected children through this program are diverse. These children gain access to more appropriate education, supported by the Education Department, with the aim of improving their quality of education. Neglected children are provided with skills training that they can apply in the future. Additionally, neglected children receive health services provided by the Health Department. Through the Social Family Hope Program (PKH), neglected children also receive educational needs, as well as nutritional support in the form of food provision for those who have not yet attended school. All these efforts have been carefully planned to provide better opportunities for neglected children.
The second aspect is that the purpose of supervision is to ensure that all activities are carried out properly and efficiently in accordance with the plan and established guidelines (Amiruddin, 2016). According to the results of interviews with the Head of Public Order at the Cirebon District Civil Service Police, supervision is carried out using a sustainable approach to monitor programs for neglected children. Every time they take action against neglected children, the relevant agencies conduct direct supervision to ensure that neglected children receive psychological and rehabilitation attention. Civil Service Police is the agency responsible for taking action against neglected children. Civil Service Police and the Social Services Agency have the responsibility to ensure that the
rehabilitation process for neglected children runs smoothly. The rehabilitation process not only focuses on neglected children but also involves efforts to monitor families to prevent the same conditions from occurring again in the future. The aim of this approach is for neglected children to return to a good environment and receive ongoing supervision, which is an important part of achieving the success of the program.
The third aspect is that assessment activities in program evaluation should not only be carried out at the end of program implementation, but should begin at the planning stage, during program implementation, and when assessing program achievements. According to interviews with technical staff at the UPTD PPKS in Cirebon Regency, evaluations are carried out routinely, with the initial process beginning with the collection of data on neglected children, assisted by the Population and Civil Registration Office. After the data is collected, a direct survey is conducted in the field to locate the families of the neglected children who will be returned. The evaluation of the neglected children program conducted by UPTD PPKS involves relevant parties, including the Social Affairs Office and the Population and Civil Registration Office, to ensure that the program implementation is effective and achieves the planned objectives. According to interviews with staff from the Rehabilitation Division of the Cirebon Regency Social Affairs Office, the evaluation of the neglected children's rehabilitation program is conducted regularly to assess how effective the program is and whether it can produce positive outcomes for the neglected children. This evaluation process involves several agencies responsible for monitoring the progress of neglected children. The aspects monitored include whether the children receive appropriate education and adequate healthcare. If any issues or shortcomings are identified in the implementation of the child welfare program, the relevant parties can make improvements to the program to make it more effective and provide more optimal assistance to neglected children.
Based on the discussion of the implementation indicators above, it can be concluded that the implementation of the policy program for neglected children in Cirebon Regency shows that there is already ease in the implementation of the program, and good cooperation between the Social Service and related agencies is also a supporting factor for the success of the implementation of the policy program for neglected children in Cirebon Regency.
Based on the research findings, it can be concluded that the implementation of policies for the care of neglected children in Cirebon Regency is already outlined in Regional Regulation No. 1 of 2018. The implementation and coordination between relevant agencies such as the Population and Civil Registration Office, the Education Office, the Health Office, and the UPTD PPKS have been carried out but are not yet optimal. This is due to constraints such as limited human resources, insufficient facilities at the UPTD PPKS, and inadequate funding. The success of the implementation of the policy for the care and rehabilitation of neglected children by the Social Affairs Office of Cirebon
Regency. It is necessary to increase the budget, human resources by increasing the number of staff, improving and optimizing facilities. Based on the conclusions outlined from the research findings, there are recommendations that can be considered in efforts to address the inadequacies, and regular program evaluations are crucial to enhance the efficiency of the child welfare program.
Further study is recommended to explore more effective strategies for overcoming the limitations identified in the implementation of the neglected children care policy in Cirebon Regency. Future research could focus on evaluating the impact of inter-agency collaboration models, assessing the effectiveness of budget utilization, and identifying best practices in facility management and human resource development. Additionally, longitudinal studies are needed to examine the long-term outcomes of the rehabilitation programs for neglected children, ensuring that the policy implementation leads to sustainable child welfare improvements.