International Journal of Research in Humanities and Social Studies Volume 6, Issue 5, 2019, PP 24-37 ISSN 2394-6288 (Print) & ISSN 2394-6296 (Online)

Individual Capacity Building in Newly Proliferated West Pasaman Regency, West Sumatera Province, Indonesia

Khairul*, Sri Suwitri, Hartuti Purnaweni, Son Diamar Public Administration Doctoral Program, Faculty of Social and Political Sciences, Diponegoro University, Semarang, Indonesia *Corresponding Author: Khairul, Public Administration Doctoral Program, Faculty of Social and Political Sciences, Diponegoro University, Semarang, Indonesia

ABSTRACT Capacity building is an aspect, which determining successful objective of a local government proliferation. Individual capacity is important because human become actors who perform efforts for their future. Regency Government of West Pasaman is one of local governments in West Sumatera Province, Republic of Indonesia, which has undergone the proliferation process. Efforts related to the proliferation that the regency has been doing are education and training and further study program for its government staff and civil servants in order to improve their quality. West Pasaman Regency provides in class and out-of-class education and training programs. It provides further education program by giving opportunities to its government staff and civil servants to attend higher education at diploma, graduate, and post-graduate levels. This study applied a phenomenological approach if West Pasaman Regency had succeeded to undertake the proliferation while most of proliferated areas nationwide failed. The study focus was on individual capacity building as a key to successful proliferation and to performing local autonomy. Keywords: Individual Capacity Building; Local Government; West Pasaman; Proliferation

INTRODUCTION areas. Reform era has characterized by, among others, proliferation of the governmental system Indonesia experienced a change in governmental of Indonesia. According to (Dewan Perwakilan regime in May 1998, allowing the country to Rakyat RI, 1999), article 4(1), proliferation can make a massif political system transform. The take different forms, such as fusion of several key element to such transformation process was areas or the areas adjacent to the proliferating decentralization. As a leading building block in area, or fission, in which one area becomes two reform program the Government of Indonesia or more newly different administrative territory. inaugurated (Dewan Perwakilan Rakyat RI, Furthermore, proliferation can be viewed as a 1999) on Local Government. The law part of local management process, or "territorial reconstructed the power structure within the reform" or "administrative reform", i.e. public administration system of the country and "management of the size, shape and hierarchy of resulted in a substantial shift of public funding local government units for the purpose of achieving from national to regional levels. political administrative goals" (Ferrazzi, 2005). The The fundamental change as required by (Dewan local management typically comprises proliferation Perwakilan Rakyat RI, 1999) for decentralization. (fusion), fission, or demise of particular area. Furthermore, political decentralization stated that to The grand strategy of an optimal local autonomy be signaling the transfer of political power to the does not stop by determining how many lower levels of the government (Bekele & autonomous areas to be preferable. Instead, the Kjosavik, 2016). The decentralization of power essence of the autonomy of particular area must allows the local governments to execute their be capable of answering question of what autonomous authorities in order to make planning proliferation is for (in the context of territorial and decisions about important local matters reform) (Ferrazzi, 2005). (Schneider, 2003) (Montero, 2008). In practice, A report from the Ministry of Interior Affairs of decentralization gives opportunities to the local Republic of Indonesia in 1999 summarizes a political leaders to perform a proliferation. The significant increase in number of the new areas, policy on proliferation has allowed the local as shown by Table 1 below. governments to proliferate their administrative

International Journal of Research in Humanities and Social Studies V6 ● I5 ● 2019 24 Individual Capacity Building in Newly Proliferated West Pasaman Regency, West Sumatera Province, Indonesia

Table1. Number of Local Governments in Indonesia over time Year Province Regency Municipality Total Prior to 1999 26 234 54 319

1999 2 34 9 45 2000 3 - - 3 2001 - - 12 12 2002 1 33 4 38 2003 - 47 3 49 2004 1 - - 1 2005 - - - - 2006 - - - - 2007 - 21 4 25 2008 - 27 3 30 2009 - 2 - 2 Autonomy by Proliferation post Law 22/1999 7 164 34 205 Total of Local Governments (2009) 33 398 93 524

However, in practice, local autonomy has not Since it had formed its own government apart been successful because it has not obtained as from Pasaman Regency, it had recorded the autonomy has promised, i.e. freedom of satisfying, significant improvement both in movement and better opportunities for the quality and in quantity. The study found that the locals. Most autonomous areas failed because key to proliferation success for West Pasaman either original area declined due to the existence Regency was capacity building. of newly proliferated area, newly proliferated Capacity building in West Pasaman, an declined due to its disintegration from the autonomous, newly proliferated area (Autonomy original area, or massive decline between the Regional Result of Unfoldment, DOHP) in West original and the newly proliferated areas. This Sumatera Province, Indonesia, is part of failure has surely resulted in inadequacy in strategies towards improvement of capacity, community service provision and local people effectiveness and (Keban, 2004) has theorized well-being efforts. This worsening trend has responsiveness of local civil servants, as what. urged the central government of Indonesia to West Pasaman Regency has been organizing a take a critical measure: the President issued a capacity building process in three dimensions of moratorium in 2010 to halt temporarily the capacity building, i.e. individual, institutional, proliferation (Viva news, 14 July 2010). The and system, to answer questions provided by President's statement concerning his decision is literatures in (Grindle, 2011), (Keban, 2004), as follow: and (Ammitsboll, 12AD). However, this study “The moratorium is still in effect. We must wait would limit its discussion to individual for further policies on proliferation based on dimension. evaluations we have done so far, on grand West Pasaman Regency as the autonomous, design, and on strategic policy the government newly proliferated area only established in 2003 has been making.” under the provincial administration of West While the moratorium has been in effect, the Sumatera Province. At the time of its proliferation continues to fail. Two periods of establishment, the regency consisted of 11 the Ministry of Interior reported a similar trend. districts and 19 areas namely Nagari. Figure 1 In 2012, the Minister of Interior stated that 70 provides the territorial area map of the regency. per cent of the proliferated areas failed The formation of West Pasaman Regency as a (KOMPAS, 15 December 2012). In 2015, the new autonomous area was the result of mutual Minister of Interior announced that 62 per cent aspiration of its local community. The official of the proliferated areas failed (Republika, 16 recognition of West Pasaman Regency provided April 2015). by and guaranteed in (Pemerintah Republik Indonesia, 2004) on the Establishment of New This study found a phenomenon in West Regency/Municipal Governments in West Pasaman Regency. Amidst failures the other Sumatera Province. Furthermore, the areas had been experiencing, West Pasaman Government of Indonesia officially established Regency demonstrated a phenomenal success. it on 6 January 2004 with the appointment of the

25 International Journal of Research in Humanities and Social Studies V6 ● I5 ● 2019 Individual Capacity Building in Newly Proliferated West Pasaman Regency, West Sumatera Province, Indonesia interim Regent by the Governor of West regency divided into 216 jorong. The history of Sumatera. the establishment of the new proliferated area of West Pasaman began with the promulgation of RESEARCH OBJECTIVE Act 38/2003. Furthermore, four additional Research observation of the current study only districts established according to Local Act focused on individual dimension of the capacity 4/2003. building. Therefore, this study aimed at Different authors have performed previous assessing the individual capacity building of the studies on capacity building. Triana (2013) government staff in West Pasaman Regency. performed a research of capacity building in RESEARCH METHODOLOGY local government with the aim to examine the concept of local government capacity building This study performed the research observation in both theoretical and operational aspects. This using a qualitative methodology. (Sugiyono, study concluded that capacity building is a huge 2013) stated that the qualitative research job for autonomous local governments to give methodology is a research performed in a priority to public serving. (Arka, 2008) in his natural condition. Furthermore, (Creswell, 2013) paper on local autonomy, local capacity divided qualitative methodology into five building, and support for minority languages, a different categories, i.e. phenomenology, field experience from Indonesia, examined the grounded theory, ethnography, case study, and complexity of language/cultural maintenance narrative research. and revival, highlighting the significance of This study used a phenomenological research building and long-term local capacity. In this method to find out the essence of experiences study, comparison between different local aimed at understanding those experiences in a customs helped clarify political and economic conscious manner (Sugiyono, 2013). A variables at local level and the necessary phenomenological research has four main bottom-up community-based initiatives in stages, i.e. determination of objects studied and language/cultural maintenance and revival. whom to investigated, data collection, (Honadle, 2001) in her theoretical and practical phenomenological data analysis, and individual issues of local government capacity in an era of critical review (Sanders, 1982). (Creswell, devolution described the process the United 1998) added that the collection of information States experienced in decentralization of by means of phenomenological approach takes domestic programs in health care, welfare, and place through in-depth interviews. other functions. The local governments had more responsibility for policymaking, THEORETICAL REVIEW management, and implementation of important Capacity building in the context of national goals. Therefore, it is important to decentralization is a need for adapting local consider local capacity to cope with the policies and regulations, for reforming local responsibilities. governmental institutions, modifying work FINDINGS procedures and coordination mechanism, improving human skills and qualifications at Initial preparation for the proliferation emanated local levels, and alternating value system and from the original area, Pasaman Regency, by readiness towards the fulfillment of local fulfilling the needs for government staff and autonomy needs. civil servants who had to perform duties and responsibilities in the newly established West The concept of capacity building ranges three Pasaman Regency. The preparation included the aspects, as follows: (a) capacity building as a shift of authority of Nagari Government to process; (b) the process is run at individual, interim Regent of West Pasaman. Furthermore, institutional, and system dimensions, as well as staff and civil servants from the original regency institutional reform and networks; and (c) the who had worked at the administrative territory process aims at creating organization that would become the autonomous, newly sustainability towards its goals and objectives. proliferated area of West Pasaman Regency also West Pasaman Regency covers 3,887.77- occupied the new regency. By doing so there kilometer square area situated in the west coast would not be divided commands for the staff, of West Sumatera Province. Recently, the but instead, they were under one administration, regency has 11 districts and 19 "Nagari". The the newly established West Pasaman Regency.

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The staff and civil servants placed in so-called class activity under the immediate supervision Local Performing Work Units (Satuan Kerja of the heads and qualified colleagues of each Perangkat Daerah, SKPD) by a cultural local performing work (Satuan Kerja Pelaksana approach according to representativeness of Daerah, SKPD) which had been available. The three major ethnics, i.e. Minang, Batak, and regency has only managed to provide its official Javanese. The establishment of the work education and training program since August 27, followed the order of Anak Nagari House of 2005, after the inauguration of the Regent and Representatives (Perwakilan Anak Nagari). Vice Regent. Proliferation at the early stage needed leadership The regent passed the authority of the priority competency. The leadership had a responsibility duties to the Head of Local Apparatus Agency to provide out-of-class education and to give a (Badan Kepegawaian Daerah, BKD) to direct example of responsibilities implemented coordinate with all heads of the SKPDs to by the staff in charge. In other words, the organize and to invest eligible staff to government authority performed a leading by participate into the education and training example. activities. As the interview recorded (21 February 2016): West Pasaman Regency had a responsibility for providing services for its local citizens. To this “Our regency could not make any policy to end, there had to be skilled and knowledgeable implement any in-class training and education staff and civil staff as the service providers. In for the staff. However, we still managed to the interview, the interim Regent of West deliver knowledge and skills out-of-class, that is Pasaman explained (23 February 2016): by organizing education and training under immediate supervision of their superiors.” “The availability of the staff had not been adequate at the beginning of the proliferation The education and training established under the process. The staff competences on education Government Decree 101/2000 on Education and and technical skills were limited, while we had Training for Government Staff. Article 1(1) to address demands from the community and requires that a learning-teaching process used provide service.” for improving the capacity of the staff. The main target of the education and training is to create The individual dimension of the capacity government staff or apparatus with good building requires human as major actor who competencies in order to perform must be capable of doing things for life and responsibilities given according to their future. The Regency Government of West respective duties and responsibilities. There are Pasaman had taken measures to improve the three kinds of education and training program individual capacity building by providing them provided by the Government of West Pasaman with education and training and further Regency, i.e. functional, technical, and education program. leadership education and training programs. The Education and Training Program for Regent of West Pasaman believed that human Government Staff at West Pasaman Regency resource is an indispensable and undisputed Education and training program is an individual asset towards the ultimate goal of the proliferation of the newly autonomous investment. Such effort becomes a medium by which the authors approached it from the government. Below is the interview (21 government staff of capacity building. In February 2016): addition to access towards better education, “The staff must be encouraged and given equal capacity building helps the staff participate opportunities to improve their capacities and much better in social processes (Ammitsboll, skills according to their jobs and 12AD). Therefore, education is very important responsibilities. Therefore, I, as the regent, gave to improve the quality of human resource and to priority to the Head of BKD to coordinate with execute duties and responsibilities efficiently heads of other local performing units to organize and effectively. and to arrange inventory of the public servants to join the education and training programs in Within the span of ten years, West Pasaman Regency has been providing education and line with the necessity of each local performing training program for its government staff. unit.” Furthermore, the Head of BKD of West Pasaman Regency explained in the interview Initially, the program took the form of an out-of- that the regency had only implemented the

27 International Journal of Research in Humanities and Social Studies V6 ● I5 ● 2019 Individual Capacity Building in Newly Proliferated West Pasaman Regency, West Sumatera Province, Indonesia technical education and training since 2012 (1 Pasaman Regency revealed as follows (1 March March 2016): 2016): “From 2005 to 2011 the technical education and “We have already organized it since we have training was held in collaboration with the had technical service unit. Each local Center for Education and Training of West performing unit permitted to organize its Sumatera Province. By 2012, however, we had functional education and training. In doing so, managed to organize it ourselves because the the head of the local performing unit must give a regency had already had a Technical Service proposal to the head of BKD, with whom he or Unit for the Education and Training. It is she would facilitate for the implementation. The noteworthy that West Pasaman is by far the only BKD provides trainers necessary for the regency in West Sumatera Province that has the functional education and training activities. Technical Service Unit for the Education and Furthermore, the local performing unit has an Training.” authority to establish its own curriculum, in particular those related to functional skill The functional education and training provides education and training.” knowledge and/or skills for the staff according to their specialty and competency. It needed to In the functional education and training help them execute the functional duties. The participants learnt skills and proficiencies. Table functional education and training applied to 2 summarizes the programs for the period of fulfill the competency requirements. An 2012-2015 in West Pasaman Regency. interview with the Head of BKD of West Table2. Functional Technical Education and Training in West Pasaman (2012-2015) Functional Technical Education and Training Year No. Activities Participants No. Of Particiants 2012 1. E & T for spending treasury Spending Treasury 30 2. E & T for Public Health Extension Staff Health Extension Staff 30 (Nurse) 3. Functional E & T for Teachers Teachers 30 4. Functional E & T for School Surveillance Officers from 30 Surveillance Officer elementary to highschool levels (general and vocational) 2013 1. E & T for Teacher’s Credit Score Teachers 30 2. E & T on Credit Score for Medical Staff Laboratory and Pharmacy 30 and Paramedics Practitioners 2014 1. TOC Education and Training Local Performing Units as 30 E & T organizers 2. E & T and Selection for Local TOT Public servants 30 3. E & T on Credit Score Calculation for Extension staff 30 Extension Staff 2015 1. Technical E & T on SOP Development Echelon IV officers 60 for Local Apparatus 2. Public Service Education and Training Echelon IV officers and 60 staff 3 E & T on Education and Training Echelon IV officers 30 Necessity Assessment Source: Regency Government of West Pasaman (2016) Technical education and training implemented and management and the other for substantive to fulfill technical competency requirements, in matter. West Pasaman Regency provided the which the staffs posited at particular technical technical education and training in concert with posts. The Decree of State Administration the Center for Education and Training of West Agency (Lembaga Administrasi Negara, LAN) Sumatera Province for the period of 2005-2011. 13/2011 requires two kinds of technical It had only managed to organize the technical education and training, one for administration education and training independently by 2012 as

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Technical Service Unit (Unit Pelayanan Teknis, performing unit made an inventory of their staff UPT) for Education and Training had with required criteria and endorsed them to the established. UPT has contributed to accelerate BKD. After that, the BKD would review the the education and training process and to data available. The third phase would be a minimize budgets because the local government proposal from the BKD to the Local Secretary itself provides the program. In order to improve of the West Pasaman Regency for agreement. the capacity, the UPT must take a further Finally, the BKD sent the civil servants to the measure by having networks with fellow education and training program. The program education and training institutions from other took place at the Center for Education and regions, which have a good competency. The Training of West Sumatera Province.” networks, as applied by the Regency Leadership education and training functions are Government of West Pasaman, was by as teaching visions, knowledge, skills, cooperating with other institutions, such as proficiencies, attitudes, and behaviors of the universities and institutes, and other fellow leadership of the state apparatus. The West education and training bodies. Pasaman Regency have been providing the According to the Head of BKD of West leadership education and training since the Pasaman Regency, the technical education and establishment of Government Decree 101/2000. training was under the coordination of the heads In which its article 10 divides the leadership of the SKPDs (1 March 2016): education and training into four different levels, i.e. Level I for first echelon staff, Level II for 2nd "In order to determine criteria by which the civil echelon staff, Level III for 3rd echelon staff, and servants could attend technical education and Level IV for 4th echelon staff. The fourth training, coordination was necessary with all echelon staffs are responsible for planning for local performing units. The potential trainees institutional activities (Decree of State had to fulfill the following requirements: Apparatus Agency 13/2013). The third echelon position and level; potential to develop; high staffs are responsible for describing institutional motivation for self-development; competency to vision and mission and are required to have maintain reputation and credibility of the civil tactical leadership skills of how to persuade servants; and dedication and loyalty to their structural and functional leaders. The second organizational duties."Furthermore, an interview echelon staffs play an important role in with the Secretary of BKD of West Pasaman determining strategic policies and leading Regency revealed as follow (5 March 2016): subordinates as well as all strategic “We provided a simple process for the civil stakeholders. Table 3 summarizes efforts of the servants who were willing to attend the leadership education and training that been education and training. The head of each local taken by West Pasaman Regency.

Table3. Leadership Education and Training in West Pasaman Regency (2013-2016) Leadership Education and Training Year No. Activities Participants No. of Participan ts 2013 1. Public Servant sourched Police Unit Public Servant sourched 8 Education and Training Police Unit 2. E & T on Capacity of District Heads District Heads 3 3. TOT Education and Training - Regency Office of Education 5 Afffairs - Regency Office of Agriculture 4. Leadership E & T II, III, and IV Leadership E & T II: 3 - Head of Athletics and Youth Affairs Regency Office - Heads of Welfare, Development, and Politics Regency Office - Secretary of House of 5 Representatives

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Leadership E & T III: - Head of Gunung Taleh District - Head of Sungai Alur 20 District - BPBD Secretary - Division Head of Local Development Plann Office Leadership E & T IV: - Echelon IV officers at Local Performing Units 5. Technical Guidance on Local Assets Holders of assets 30 Management Local Performing Units 6. Technical Guidance on MC and Local Performing Units 45 Protocol 7. Technical Guidance on Good and - Acting officer of 30 Service Provision Technical Activities - Commitment makers of Local Performing Units 8. Technical Guidance on Administrative Subdivision Head of 45 System of Promotion and Employment of Local Retirement for Public Servants Performing Units 2014 1. Leadership E & T IV Echelon IV officers 40 2. Leadership E & T III Echelon III officers 5 3. Leadership E & T II Echelon II officers 3 4. E & T on Capacity Building for District heads 4 District Heads 2015 1. E & T on Capacity Building for District heads 3 District Heads 2. Leadership E & T IV Echelon IV officers 30 3 Leadership E & T III Echelon III officers 5 4. Leadership E & T II Echelon II 3 2016 1. Leadership E & T IV Echelon IV 40 2. Leadership E & T III Echelon III 20 3. Leadership E & T II Echelon II 8 Source: Regency Government of West Pasaman (2016) Further Studies for Government Staff at form of cost sharing. The master degree on chief Pasama Barat Regency information officer (CIO) provided in concert Staff as the state apparatus at the local with the State University of Padang via cost government of West Pasaman given opportunity sharing method. Another cost sharing based to continue their study to higher education to master degree education on integrated lowland gain new knowledge and experience. As part of and management planning was also established this objective, the Government of West Pasaman by West Pasaman Regency. In cooperation with Regency have already cooperated with several Sriwijaya University Palembang, master degree notable higher education institutions nationwide, in public activity is planning with University of such as the Institute of State Administration Indonesia, master degree in area management (Sekolah Tinggi Administrasi Negara, or STAN) and development planning with Bandung Jakarta, Institute of Transportation (Sekolah Institute of Technology, master degree on Tinggi Transportasi, or STT) Kendal, Andalas economics and development studies with Syah University Padang, University of Indonesia Kuala University Banda Aceh and Bappenas. A Jakarta, and State University of Padang. The further education program for teachers took regency provided opportunity to the staff to place as the regency cooperated with Center for continue their master degree by collaboration Education Quality Control (Lembaga with the Andalas University and the National Pengendali Mutu Pendidikan, LPMP) of the Agency for Development Plan (Bappenas) in the State University of Padang. All of this cooperation established is under the

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Memorandum of Understanding (MoU). The learning task must choose the study program in Memorandum of Understanding proves the legal line with their responsibilities and duties at work status, which guarantees mutual benefits. provided the higher education institutions that Further education program was divided into two had cooperation with Pemda Pasbar. categories, i.e. study permit (izin belajar) (Table The staffs who attend the study permit liberated 4), and learning task (tugas belajar) (Table 5). to choose the higher education institutions that The study permit given to the staff without provided the study program in line with their removing them from daily responsibilities and responsibilities and duties at work albeit not in duties at work, whereas learning task given by cooperation with Regency Government of West liberating the staff from their responsibilities Pasaman. and duties at work. The staffs who attend the Table4. Scholarship for government staff in Barat Regency (2010-2015) Education Year Total Vocational Undergraduate Graduate Postgraduate 2010 4 3 - - 7 2011 - - - - 0 2012 - - 4 - 4 2013 - 4 2 - 16 2014 - 3 4 - 7 2015 - 3 11 - 14 Source: Local State Apparatus Agency of West Pasaman Regency (2016) Table 5. Study Permit for Government Staff in West Pasaman Regency (2010-2015) Education Year Total Vocational Undergraduate Graduate Postgraduate 2010 24 589 2 1 616 2011 33 37 2 - 72 2012 5 147 37 - 189 2013 9 85 30 - 124 2014 - 67 9 - 76 2015 - 61 45 - 106 Source: Local State Apparatus Agency of West Pasaman Regency (2016) The staffs that were qualified to continue the (Badan Perencana Pembangunan Nasional, or study to the higher education, either at diploma, Bappenas), the Ministry of Communication and graduate, or master degrees, then divided into Informatics (Kementerian Kominfo), and the two funding categories. Those in the learning Ministry of Transportation (Kemenhub). The task category were given a scholarship by the civil servants have got similar responsibilities to Government of West Pasaman Regency and cost those attending either. sharing between Government of West Pasaman Interviews during field observation, as those Regency and Bappenas, Kemenkominfo and with the Head of the Local Income Agency Ministry of Transportation (Kemenhub). (Dinas Pendapatan Daerah, or Dipenda) of Whereas, those in the study permit category West Pasaman Regency, revealed that all the were granted semester tuition. staff/civil servants who had graduated from the In pursuing the higher education, the staffs were higher education (universities or institutes) to limited to finish the study in eight, ten, and six disseminate knowledge and skills they had semesters, respectively for the diploma, obtained during the studies as well as socialize graduate, and master degree. their individual competencies. Furthermore, the Regency Government of West It was evidenced that staff competency turned Pasaman also provided a programe namely job- out to be improving. In addition, it had also related education (pendidikan kedinasan) in proven that disciplines and responsibilities cooperation with the National Apparatus became more prioritized (7 March 2016). Agency (Lembaga Administrasi Negara, or LAN), the National Development Plan Agency

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DISCUSSION parties, or the stakeholders, united into tungku tigo sajarangan. Individual Capacity Building Leadership competency is very necessary to West Pasaman created a history on 6 January give knowledge and to provide learning process 2004 when the Governor of West Sumatera to the civil servants. It improves awareness of appointed an interim Regent for this atomies, value and the importance of duties and works. newly proliferated area. The date became a This competency directs the civil servants to stepping-stone towards a new government and focus on their organizational purpose and to an its governmental duties. The interim Regent of optimal potential development. The competent West Pasaman had a main duty of preparing leaders are capable of creating a good learning institutional aspect and human resource process of the civil servants at the local management under guidance and supervision of apparatus organization. The necessary learning both Provincial Government of West Sumatera in the organization is to get used to thinking and Regency Government of Pasaman. systematically, not individually or separately. At the initial stage of the proliferation, the Each member of the organization has a mutual original area of Pasaman Regency did not divide objective, i.e. towards organizational objective. its civil servants to the newly proliferated West Competency-based leadership in West Pasaman Pasaman Regency. Instead, Pasaman handed- Regency became the guidance for the interim over the civil servants who had worked in the regent to perform his duties and responsibilities. would-be administrative areas of West Pasaman The leadership competency deals with ability of and the Nagari Government. The congruency an individual leader to develop vision and between demand and supply of the civil servants objective, conflict management, problem in West Pasaman during the first stage of solution, social and environmental responsibility proliferation was still inadequate due to, among according to the organizational culture others, lacking competency of the human (Thompson, Jones, & Warhurst, 2007). resource. Such condition, however, did not Leadership competency for managers of suspend efforts of performing the governmental multicultural group comprises five duties. The competency extremely needed by characteristics, as follows: (1) cultural empathy; the autonomous, newly proliferated area of West (2) learning about work; (3) communication Pasaman Regency was leadership at structural competency; (4) managerial skill; and (5) posts. Under coordination of the Governor, personal style. Regent of Pasaman and leading actors of the proliferation, a strategic and innovative policy The cultural approach of the interim Regent of made by the interim regent to appoint leadership West Pasaman in performing the leadership was according to competency and job description shown by considering representativeness of using a cultural approach. The involvement of Anak Nagari and three major ethnics (Minang, stakeholders in the policy-making by the interim Batak, and Javanese). The cultural approach to regent agrees with a statement from (Rhodes, leadership positions had complied with articles 1997) stated that the most difficult job in 2(22) of the Law 5/2014 on Merit System. A governance is how to manage relations between system merit is policy and management of autonomous and complicated actors in order to Indonesia's National Civil Apparatus (Aparatur manage mutual interest. Sipil Negara, or ASN) based on qualification, competency, and performance in fair and natural The involvement of stakeholders in the policy- manners without discriminating political, racial, making also complied with the local tradition of religious, gender, marital status, age, and West Pasaman. There are Minang saying stated disability backgrounds (article 1(22) of the Law “duduak surang basampik-sampik, duduak 5/2014). (Herdiansyah, Brotosusilo, Agustina, & basamao balapang-lapang (sitting alone has a Berkademi, 2018) stated that the non- narrow space, sitting together has a large space). discriminative position appointment works as This saying means that in determining the best practice of objectiveness and something for mutual interest, a collective selectiveness towards healthy competitiveness dialogue, namely musyawarah, in which all and true professionalism among the civil affected parties are involved, is the most servants in providing services to their local important aspect towards collective decision citizens. (mufakat). In Minang tradition, the affected

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Education and Training and Further Studies efficiency, their ethics, communication, co- Programs operation at work. Education and Training Program Education and training as an investment can be useful for individuals, organization, and staff Education and training program is an investment management. Education and training is useful for individuals. This program becomes a for (1) organization as the higher improvement medium for capacity building of local state in knowledge achieved. This better knowledge apparatus. The individual capacity building as will enhance productivity, motivation, and the main asset for running the local government responsibility of the individuals; (2) individual at the original area and at the autonomous, as the individual will get improvement in newly proliferated area at the early state of thinking and behaving, making decision and proliferation took the form of out-of-class style. solving problems; and (3) staff management as The out-of-class education and training it help create a good communication between (learning at workplace) West Pasaman Regency individuals, groups and organizations. The staff applied was an “on the job training” method. management will get better so that rights and The staff trained and educated internally by their responsibilities of each individual is fairly peers with higher qualifications and more facilitated and accommodated (Phillips & knowledge (Miles & Snow, 1984). The out-of- Tessin, 2001). class education and training activities in West Pasaman Regency took place in an outdoor At the early stage of proliferation, the Regency setting, at workplace, and distance learning as Government of Pasaman Barat sent the staff as required by Government Decree 101/2000, in trainees to the Center for Education and particular article 21(3). Training of West Sumatera Province, so that it had to comply with the provincial education and The out of class education and training is useful training schedule. On the other hand, West for the staff to obtain knowledge and skill under Pasaman was in need of acceleration in the supervision of either superiors or more providing education and training for the staff. colleagues that are experienced. This method Therefore, Pasaman Barat Regent issued a can motivate the staff to learn by doing. The policy in 2011 on the establishment of Technical out-of-class education and training programs Performing Unit (UPT). In addition to were provided in an on the job training system acceleration, the establishment of the UPT by coaching (person-to-person) and monitoring aimed at budget efficiency and developing (under the supervision of skilled guides and curriculum based on skill and expertise needs of advisors). These efforts aimed at helping the the staff in their daily duties. Following up the staff individual development. This was pursuant UPT establishment, the UPT needs networks to to the Presidential Regulation 59/2012, article improve its quality and qualification. It could 7(1). obtain by having co-operation with fellow The out-of-class education develops creativity education and training centers from other and intelligence as well as identifies regions and private-owned education and personalities of the trainees (Zhang, Wang, Xi, training providers. The purpose of such Yang, & Li, 2018). The out-of-class education education and training program networks is to stimulates individuals to optimize their improve the quality and compliance between the autonomy in creative thinking (Lai, Yeung, & program and market demand and to improve Hu, 2016; Teach. Res. Auton. Lang. Learn., service quality for innovation-based program 2014). (Hamri, Putri, Siregar, & Bratakusumah, development. 2017) added that out-of-class education and The authority of developing curriculum for training implemented in on-job-training setting. Substantive Technical and Vocational By such method, the staffs use their time in the Functional Education and Training programs office to plan and to manage changes under the was in the hands of each Local Performing guidance of superiors and colleagues (Hartini, Work Unit (SKPD) by considering progress and Ariana, Dewi, & Kurniawan, 2017). The out-of- change in duties and functions. This curriculum class education and training programs are complied with duty and responsibility important for individuals as they offer solutions competency and other competencies needed for according to the individuals’ duties and technical and vocational works as part of the responsibilities, their effectiveness and responsibilities of the civil servants. The

33 International Journal of Research in Humanities and Social Studies V6 ● I5 ● 2019 Individual Capacity Building in Newly Proliferated West Pasaman Regency, West Sumatera Province, Indonesia curriculum also contained local contents, which materials and work needs, and even the quality has positive values, such as egalitarianism, of either trainers or training facilities. transparency, responsiveness, wisdom, openness Further Studies Program to criticism, and politeness. The curriculum development of substantive technical and The individual capacity building in West vocational functional education and training in Pasaman Regency also provided in the form of Pasaman and West Pasaman Regencies further study opportunities pursuant to implemented by SKPD under the coordination Presidential Decree 59/2012, article 7(2), which of the Head of Local Apparatus Agency of regulates formal education. West Pasaman Pasaman and West Pasaman Regencies, Regency provided two categories of further academics from Andalas University, State study program, i.e. study permit and scholarship University of Padang, Bung Hatta University, program. The civil servants who attended a and local leaders. The curriculum focused on study permit not granted scholarship, but only knowledge and technical skill mastery directly semester-based tuition fee. Whereas, those who related to the main responsibility of each attended scholarship program received a government unit and institution and developed scholarship from the regency government pursuant to the Letter of Decree of the Head of through a cost sharing with either the National State Apparatus Agency 8/2003, article 12(1) Development Plan Agency (Bappenas), the and 12(3). Ministry of Communication and Information (Kemenkominfo), or the Ministry of In addition to the parties involved in the Transportation (Kemenhub). The regency had a curriculum development, graduates of the Memorandum of Understanding (MoU) to education in addition, training program can also enable the civil servants to attend the further be the key players that can be involved in the study programs. Therefore, the staff had to curriculum development. Such graduate attend the higher education institutions, which involvement contributes to potential deficiencies had the MoU. The study programs attended by found during the previous education and both learning task or study permit staff had to be training program and such involvement is useful relevant to their duties and responsibilities at for solving problems related to work, creating work. Those attending this program had to autonomous learning process with group fulfill all requirements from the Local orientation, and strengthening the focus on Apparatus Agency (Badan Kepegawaian discussion rather than instruction. Daerah, or BKD) under the evaluation of Center The education and training programs were for Title and Position (Badan Pertimbangan found by BKD and each SKPD. The BKD Jabatan dan Kepangkatan, or Baperjakat). allocated 10% of the total budget in each Formal education (learning task; study permit) financial year. Whereas, the budget provided by is a competency development of the civil BKD fluctuated according to the necessity. As servants based on competency (competency the Head of BKD that reported in an interview standards and position requirement owned by on 10 February 2016. In terms of budget the staff). Learning task program is a part of allocation, education and training programs reward to performance and dedication. Both considered as investment, instead of merely learning task program and study permit were spending. As an investment, they contribute planned as part of the individual career benefits to individuals, organizations, and staff development. Degrees and study programs were provided according to the needs of the apparatus body. organization and by qualified education The success of the individual capacity building institutions (B-accredited by authorize through education and training programs in the institution). The further plan for the further newly proliferated West Pasaman Regency must studies requires age limitation for the sake of be measurable. The measuring instrument is investment utility value. This regulation post-training evaluation. The post-training comprises rights and responsibilities of either evaluation is an objective instrument to measure the receivers or the providers of the scholarship. the education and training program of In a broader meaning, education may function achievement level. Furthermore, it can be useful as a means for preventing marginalized for finding out the training graduates’ individuals in developing their critical and empowerment and competency in applying the organizational capacities as well as contributing training materials, synergy between training to transformation of the local people they

International Journal of Research in Humanities and Social Studies V6 ● I5 ● 2019 34 Individual Capacity Building in Newly Proliferated West Pasaman Regency, West Sumatera Province, Indonesia encountered. Individual capacity building by  In 2011 the regency established its own further studies according to the needs at work Technical Performing Unit (UPT) so that by place can help the civil servants perform their 2012 the West Pasaman Regency had been jobs. able to provide its own education and Strong enthusiasm of the staff in building their training program; individual capacity through further education  Curriculum for substantive and functional should motivate the Regency Government of technical education and training was West Pasaman to issue a policy, which opens developed by each SKPD by involving more opportunities to the staff to fulfill the academics, local leaders, and stakeholders; further education at doctoral level. The  Each SKPD allocated 10% of the total annual implementation of such policy is by extending budget for supporting the education and networks with ministries and other government training program; bodies providing the further education programs  Further education took place by learning task at the doctoral. The funding of such program is and study permit; by cost-sharing method.  Learning task staff were granted full The policy made on individual capacity building scholarship and released from their job in the form of further education is in line with routine; local tradition. In Minang tradition there is a  Study permit staff were granted semester saying “Panakiak pisau sirawuik, ambiak galah tuition but not released from their job batang lintabuang, silodang ambiak ka niru, routine; nan satitiak jadikan lawuik, nan sakapa jadikan  The study terms for diploma (D3), gunuang, alam takambang jadi guru”. This undergraduate (S1), and master (S2) degrees saying means that local people of Minangkabau were limited to, respectively, eight, ten, and must work hard to investigate, read, and learn six semesters; requirements, terms, and conditions in nature and absorb them as a knowledge used for  Each staff who attended further education had to attend the higher education regulating community life. Therefore, what institutions, which had cooperated with the happens in the nature exploited for learning? In Regency Government of West Pasaman other words, alam takambang becomes the under the MoU; teaching that sets the foundation of the Minangkabau cultural principles.  The study programs attended had to comply with the staff’s duties and responsibilities at CONCLUSION work; The conclusion remarks for the study on the  Individual capacity building by education individual capacity building of the newly and training and further education complied proliferated Regency Government of West with local cutural values of Minangkabau, Pasaman are as follows: which prioritises education as the leading factor for human development.  At the early stage of proliferation the structural posts were fulfilled by cultural RECOMMENDATION approach according to three majority ethnics In order to improve the individual capacity and Anak Nagari Representatives as a building by education and training program and manifestation of sense of belonging of the further study program in West Pasaman new regency, while leadership competency Regency this study recommends as follows. remained the leading aspect; Networks between Technical Performing Unit  Staff individual capacity building is provided (UPT) of Education and Training with fellow by education and training program and units from different regions and education and further education program; training providers from private sector, which  At early stage of proliferation the regency have quality and qualification at the national provided out-of-class education and training; level;  During the period 2005-2011 the trainees Networks with ministries and other government were sent to the Center for Education and bodies, which provide cost-sharing program for Training of West Sumatera Province; further education at doctoral (S3) degree;

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Citation: Khairul, Sri Suwitri, Hartuti Purnaweni, Son Diamar.” Individual Capacity Building in Newly Proliferated West Pasaman Regency, West Sumatera Province, Indonesia”. (2019) International Journal of Research in Humanities and Social Studies, 6(5), pp. 24-37 Copyright: © 2019 Khairul, et al. This is an open-access article distributed under the terms of the Creative Commons Attribution License, which permits unrestricted use, distribution, and reproduction in any medium, provided the original author and source are credited.

37 International Journal of Research in Humanities and Social Studies V6 ● I5 ● 2019