there are newspaper articles on this general topic of company directors (commisioners) and managements claiming extra payments "for services rendered" (jasa produksi) when their entitlement for bonuses (tantiem) might be questioned because the companies they control make not profits, but losses e.g.
http://www.republika.co.id/koran_detail.asp?id=194804&kat_id...
I think the meaning of the extract is: "The Working Group on Power Sector Restructuring cautioned the legal authorities against accepting at face value the explanations of the management of PT X which sought to blur the distinction between bonuses and fees for service."