Volume 9 Number 1 / July – December 2019 ISSN (Print): 2086-6364 ISSN (online): 2549-7499 Acreditation Number: (RISTEKDIKTI) 21/E/KPT/2018
Volume 9 Number 2 / July– December 2019 ISSN (cetak): 2086-6364 ISSN (Online): 2549-7499 Acreditation Number: (RISTEKDIKTI) 21/E/KPT/2018
JURNAL ILMIAH ILMU ADMINISTRASI PUBLIK Jurnal Pemikiran dan Penelitian Administrasi Publik EDITOR IN CHIEF
Haedar Akib, Public Administration Department, Universitas Negeri Makassar, Indonesia
REVIEWERS Muhammad Kristiawan, Universitas Bengkulu (ID Scopus: 57205367909), Indonesia Ilham Rifai Hasan, Universitas Negeri Makassar, Indonesia Dahyar Daraba, Institut Pemerintahan Dalam Negeri (IPDN) Jatinangor (Scopus ID:57203950667), Indonesia Risma Niswaty, Universitas Negeri Makassar (ID Scopus: 57203950667), Indonesia Rudi Salam, Universitas Negeri Makassar (ID Scopus: 57203402520), Indonesia M. Ikhwan Maulana Haeruddin, Universitas Negeri Makassar (ID Scopus: 57189044445), Indonesia Didin Hadi Saputra, University of Nahdlatul Wathan Mataram, Indonesia Rakhmat Prof, Universitas Hasanuddin, Indonesia Rifdan, Universitas Negeri Makassar Sam'un Jaja Raharja, Padjajaran University, Bandung fakhri kahar, Universitas Negeri Makassar, Indonesia
SECTION EDITORS Ahmad Wahidiyat Haedar, Univerisitas Negeri Makassar, Indonesia Nur Aliah, Universitas Negeri Makassar, Indonesia Haerul Haerul, Universitas Negeri Makassar, Indonesia
COPY EDITOR Muh. ilham bakhtiar, Fakultas Ilmu Pendidikan, Universitas Negeri Makassar, Indonesia Nasrul Ihsan, Universitas Negeri Makassar
EDITORIAL ADDRESS
Program Studi Administrasi Publik PPs Universitas Negeri Makassar Jl. Bonto Langkasa Gunungsari Baru Makassar, 90222, (0411) 830366, Fax (0411) 855288, Email: [email protected] Website:http: http://ojs.unm.ac.id/iap/
Volume 9 Number 2 / January – December 2019 ISSN (cetak): 2086-6364 ISSN (Online): 2549-7499 Acreditation Number: (RISTEKDIKTI) 21/E/KPT/2018
FOREWORD
Alhamdulillah, Praise be to Allah SWT, because the Jurnal Ilmu Administrasi Publik: Jurnal Pemikiran dan Penelitian Administrasi Publik (JIAP) Volume 9 (2) 2019 has been published. In this issue there are twelve scientific articles which are the results of research and one scientific article which is a theoretical study. All articles published have passed the review process by at least 2 reviewers. Article management follows nationally accredited journal governance standards and each process is recorded in the Open Journal System (OJS).
We express our gratitude to bestari partners who have studied the article substantially, so that the quality of articles published by JIAP is always guaranteed, both the originality of his work and the novelty of the focus of the study and the quality of his writing. JIAP has been Nationally Accredited with Rank 3 SINTA Predicate by the Republic of Indonesia Ministry of Research, Technology and Higher Education Number 21 / E / KPT / 2018 which has been recognized since Volume 6 edition 1 of 2016 to Volume 10 2020.
We do not forget to express our gratitude to the writers who entrust the publication of the results of their research, and have followed each stage of the article management process properly. Hopefully this publication can contribute to the development of the treasury of science and research in the field of Public Administration.
Makassar, December 2019
Volume 9 Number 2/ July – December 2019 ISSN (cetak): 2086-6364 ISSN (Online): 2549-7499 Acreditation Number: (RISTEKDIKTI) 21/E/KPT/2018
Table of Contents
Articles
Analysis of Implementation of E-Legislation Based on Public Participation at 125-136 the National Law Development Agency Ari Khusrini Teguh Kurniawan
10.26858/jiap.v9i2.11525
The Implementation of Providing Performance Allowance Policy in the 137-158 Secretariat of the General Election Commission Kota Ternate, Indonesia Eko Ady Prabowo Muhlis Hafel Agus Joko Purwanto Anfas Anfas
10.26858/jiap.v9i2.11529
The Role of the Civil Service Police Unit in Implementing Regional Regulation 159-172 No. 10 of 2014 concerning the Arrangement of Street Vendors in Ambon City Hendry Selanno
10.26858/jiap.v9i2.11526
Raising Fisheries Development Program Evaluation in The District Lingga 173-184 Riau Islands Province Desi Waryanti Kismartini Kismartini Triyuniningsih Triyuniningsih
10.26858/jiap.v9i2.11528
The Fusion of Competence and Integrity Problems in Transformation of 185-190 Public Human Resources Management Model Dahlan Dahlan Fatmawada Fatmawada
10.26858/jiap.v9i2.11530
An Analysis of the Effectiveness of Allocation of Village Fund Policy 191-202 Implementation and Its Determining Factors in Gorontalo Regency Ismet Sulila
10.26858/jiap.v9i2.10947
Bureaucratic Reform: A Case Study in Secretariat General of the Ministry of 203-212 Education and Culture Muhammad Qudrat Wisnu Aji
10.26858/jiap.v9i2.10799
Potential policy impacts: Establishment of Indonesian mining state-owned 213-224 holding company Chandra Wijaya Rina Andriani
10.26858/jiap.v9i2.11762
Encouraging Collaborative Governance in Badan Usaha Milik Desa (BUM 225-236 Desa) Management in Indonesia Chandra Wijaya Vicky Dian Pratama Sari
10.26858/jiap.v9i2.11763
The Analysis of The Work Environmental and Organizational Cultural Impact 237-246 on The Performance and Implication of The Work Satisfaction Denok Sunarsi
10.26858/jiap.v9i2.11761
The Implementation of Providing Performance Allowance Policy in the 247-268 Secretariat of the General Election Commission Kota Ternate, Indonesia Eko Ady Prabowo Muhlis Hafel Agus Joko Purwanto Anfas Anfas
10.26858/jiap.v9i2.12202
Inhibiting Factors in the Administration of Education (Senior High School) in 169-276 Kepulauan Riau Province Auly Fikry Endang Larasati Ida hayu Dimawati
10.26858/jiap.v9i2.12222
Influence of Enso to Variability of Rain Chain at Tropical Cyclon in Southern 277-286 East Nusa Tenggara Candra Febryanto Patandean
10.26858/jiap.v9i2.12305
Practical Model of Organizational Personnel Competence Initiation Via 287-294 Competency Based Interview Djamil Hasim
10.26858/jiap.v9i2.12309
Institutional Capacity in Clean Water Management in Jeneponto Regency 295-304 Herlina Sakawati Sulmiah Sulmiah Novayanti Sopia Rukmana Widyawati Widyawati Andi Tenri Citra Sari
10.26858/jiap.v9i2.12311
Analysis of the Principal's Role in Improving the Quality of Primary School 305-314 Management Kadariah Kadariah
Financial Performance and Share Prices of Banks of State-Owned Enterprises 315-326 in Indonesia Nureny Nureny
10.26858/jiap.v9i2.12335
Position Promotion and Employee Performance in The Regional Secretariat 327-334 of Makassar City Muhammad Nur Yamin Herlina Sakawati Nur Qamaria Putri
10.26858/jiap.v9i2.12336
The Urgency of Management Functions in Improving the Quality of Education 335-344 Services in Public Senior High Schools 1 Biak Hermanu Iriawan Wilda Sasmita Muhammad Rusdi
10.26858/jiap.v9i2.12337
Jurnal Ilmiah Ilmu Administrasi Publik: Jurnal Pemikiran dan Penelitian Administrasi Publik Volume 9 Number 2, July– December 2019. Page 125-136 p-ISSN: 2086-6364, e-ISSN: 2549-7499 Homepage: http://ojs.unm.ac.id/iap
Analysis of Implementation of E-Legislation Based on Public Participation at the National Law Development Agency
Ari Khusrini1, Teguh Kurniawan2 Study of E-Government, Faculty of Administrative Sciences, University of Indonesia Email: [email protected], [email protected]
(Received: May 15-2019; revised: Juny 10-2019; published: December 31-2019)
ABSTRACT
Previous studies of e-rulemaking that have not touched the theme of e-rulemaking in Indonesia or e- legislation, findings of the observations of the BPHN's website are technical constraints and low public comment statistics, the urgency of the needs of the Indonesian Government in improving democracy and the quality of policies, as well as the legal vacuum regarding the provision of the implementation of e- legislation since 2014 until now, hence the review of this paper will be focused on the preparation of a research framework to address the quality of implementation of public participation with e-legislation. The qualitative research method used is literature review and observation on the BPHN’s website with a study period of October 2016-January 2019. The results of the literature review show, conceptually, quality of the e-rulemaking cannot only be seen from a large number of participants, but rather to the quality of comments that has a substantial depth to get the quality of policy and compliance in its implementation. The dimension of public administration is used to photograph the stages: (i) system input; (ii) system process, including processing and managing data and information; and (iii) the quality of public comments and the policy of draft output.
Keywords: e-rulemaking, BPHN, public participation, e-legislation
INTRODUCTION
The dynamic of technology development has influenced all aspects of human life. Internet Communication Technology (ICT) becomes important in the formation of policies and regulations (rulemaking) in terms of accelerating the dissemination of information to the public in order to revive good governance. Rulemaking, according to Law & Lau (2006) is a comprehensive view of lawmaking activities includes drafting laws/regulations, notifications, and public comments, regulatory validation, a publication of regulations, and compliance and law enforcement. While electronic rulemaking (e-rulemaking) is the use of ICT in the process of rulemaking. Shulman, Schlosberg, Zavestoski, & Courard-Hauri (2003) in the Electronic Rulemaking a Public Participation Research Agenda for the Social Sciences stated that, Governments in the world do not escape from various problems including environmental problems, the solution to the problem depends on the science underlying the problem, the use of internet technology can provide a flexible mechanism and can make easy for public participation, and the potential to preserve infrastructure that can facilitate unique process and culturally specific. In order to answer various problems, the Governments in the world began to transform along with the development of information technology in the process of contemporary lawmaking by using a
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web-based program to collect public comments about the draft regulation as a voice channel of democration (Shulman et al., 2003), technology helps identify new process in the policy formation process (Williams, 2009), namely by the mechanism of e-rulemaking which includes drafting laws/regulations, notification and public comments, regulatory validation, publication of regulations, and compliance and law enforcement (Law and Lau 2006). Digital technology is a public media inclusiveness that enables the term of electronic mechanism in: sharing information, giving input from the public, and making decisions become real. In sequential term, the term describes the level of maturity of the e-government that is more open in sharing information, consideration, and even authority in a public participatory context in the policy cycle. A number of countries have simultaneously carried out the electronification mechanism of public participation in drafting Government regulations in various government sectors (including the sectors of: health, taxation, population administration, and licensing) by actively involving the public to use media of Information Communication Technology (ICT). Trends in the use of ICT in the formulation of Government regulations involving broad public participation or e-rulemaking have been running in countries in the world, both developed and developing countries, including: Britain, South Korea, South Africa, Mexico, Jordan, Iraq, Belarus, Croatia, Germany, Vietnam, and Spain. The results of the study of the practice of e-rulemaking in the world have broadly mapped the urgency or benefits, preconditions, barriers encountered. The benefits of e-rulemaking include: 1. increasing of substantial in potential that changes the process and use of information on regulations; improvement to internal government operation, increasing transparency and public involvement, creating more productive consideration and collaboration mechanism, reducing delay, simplifying terminology, more consistent in drafting document format, easy to understand, and improving regulatory outcomes; and increasing the potential to coordinate law, regulation, legal review, compliance, law enforcement, and program evaluation (Khusrini & Juwono, 2018); 2. promising the creation of new opportunities for public deliberation in making regulations; increasing the legitimacy of democracy, increasing public understanding of rulemaking, making the process more interactive and deliberative, and making it easier for institutions that are more democratically responsible, such as the legislative, to oversee the regulatory process; ensuring better decisions, it is easier for regulator to analyze large volumes of data taken from various sources, helping analysts to make better predictions; reducing administrative burden, allowing agency manager to efficiently coordinate regulatory staff and other resources; expansion of compliance with regulations, increasing public understanding of what regulations are needed and reducing compliance costs through ICT (Anttiroiko, 2006); 3. drafting the law became more citizen-centric and promoting business innovation; as a multidisciplinary research platform (Law and Lau 2006); and
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4. improving traditional democratic processes, providing more technical and political opportunities for citizens in the political process, and leading to increased government transparency (Harechko, 2011). The general use of e-rulemaking which can be concluded from the results of research is: (i) the more effective and efficient of the Government internal administration; (ii) improving the quality of Government policies; and (iii) increasing understanding, ownership and public compliance with rules. The foregoing implies a bright side from the implementation of e-rulemaking. However, the perception of the usefulness of e-rulemaking is criticized skeptically by Zavestoski, Shulman, & Schlosberg (2006), based on the results of research in the United States, e- rulemaking provides an arena for playing three types of conflicts that have long interfered with the decision-making process, namely: (i) the issue of trust in federal institutions; (ii) the use of science; and (iii) the role of public values. In addition to the benefits, in practice, e-rulemaking does not escape the barriers that must be considered and addressed in order to optimize the objectives of e-rulemaking itself. Barriers in the implementation of e-rulemaking were identified by researchers, among others, namely: 1. silos for operating steps that result in delay, confusion, and loophole to make mistakes (Khusrini & Juwono, 2018); 2. the moderation policy of comments is not carried out in objective standards that cause time delay (Dooling, 2011); 3. big data processing problem for government agencies (Law & Lau, 2006); 4. dominance of certain interest groups without being able to be controlled by the agency (Jones, 2010); 5. weaknesses of the data security system (Lubbers, 2010); 6. internet connection instability; lack of responsiveness and feedback from the Government to the community (Welch, Hinnant, & Moon, 2004); 7. the absence of a state transformation framework (Boyer, 1990); and 8. motivational, cognitive, and substantial information that is insufficient (Coglianese, 2004). Thus, the barriers to implementing e-rulemaking, in general, are: (i) the absence of a comprehensive, integrated and standardized e-rulemaking framework (legally and technically); (ii) inability to provide resources that are suitable for system requirements (sources of funds and human resources); (iii) the weak of work ethic of the system organizer in terms of responsiveness and control; (iv) lack of substance in the information provided; (v) low public motivation. Precondition as an ideal condition is urgently needed to ensure e-rulemaking runs effectively and efficiently by answering the potential risks of barriers that may arise as mentioned above. This was done before the official implementation of e-rulemaking was launched or generally called precondition. The application of e-rulemaking has preconditions that must be met, namely e-readiness. (Seliger, 2010) defines that, e-readiness is a form of readiness of a country, region or entity (for example, a corporation) to utilize information and
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communication technology to maintain prosperity and growth. Whereas according to Jukic, Kunstelj, Decman, & Vintar (2009), e-readiness is the maturity of citizens, businesses, non- governmental organizations/NGOs and the Government to participate in the world of electronics (e-commerce, e-government, etc.). Thus, e-readiness is considered important to be studied before the implementation of the electronic mechanism is carried out. Pre-condition findings as ideal system requirements, then faced with the existing conditions that will produce a map containing suitability and/or gap which must then be answered with a strategy to ensure that the objectives of e-rulemaking are achieved. Public participation is a core concept of the practice of e-rulemaking in order to realize the quality improvement of the policies produced. The definition of public participation is the process of public concern, needs, and values that are incorporated into government decision making, in the form of two-way communication and interaction, with the aim of producing better decisions that are supported by the public (Creighton, 2005). Thus, the principle of public policy, namely prioritizing the interests of policy stakeholders in each policy taken with involvement or community participation becomes important as one of the sources of public intervention in order to open wider democratic channels in order to improve the quality of better public policies Badranaya (2006), Rokilah (2018), and (Rosalina, 2014), and increasing public acceptance in the policy implementation phase (Simpson & Clifton, 2014). The role of the Government, in this case, is to identify potential negative externalities and strengthening the directing function (Lewis & Marsh, 2012). Furthermore, in the dimension of public policy, it is closely related to codified basic norms that describe authority, provisions and become a reference for taking actions in the context of policy. This was agreed by (Coglianese, 2004) that, joint consensus (Government and public) on compiled regulations becomes important with hope to get high acceptability either socially, economically and politically so that the law can be enforced more effectively and efficiently. As for the role of the advancement of information technology will greatly expand the potential of public participation in making such policies. As such, public participation in e-legislation is urgently needed and e-legislation becomes a meeting point between the government and public interests.
METHOD
This article is a review paper that uses qualitative research method in the form of literature review of various relevant literature, including: provisions for regulation and policy planning for the e-legislation program, and theoretical and practical reviews of e-rulemaking and public participation; and observation activities on public participation portals on the website of BPHN. The literature study data is obtained from official academic journals, from the results of previous studies in the form of articles and books; credible sources from international institutions in the form of research reports; and the results of expert writings presented in discussion activities with limited circulation. While statistical and technical data is obtained by conducting direct research on the results of observations on the Ministry of Law and Human Rights’ BPHN portal with data series starting in October 2016 until January 2019. The data in
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question is collected, processed, and analyzed in order to answer the research problems appropriately.
RESULT AND DISCUSSION
Along with the development of world ICT in terms of e-rulemaking that there is the potential for an increase in the number of public participation before and after the mechanism of e-rulemaking, especially those originating from interest groups (Stromer-Galley, Webb, & Muhlberger, 2012), however, Benjamin (2005) argues, a more comprehensive study is needed with the support of sufficient data to prove empirically the notion that e-rulemaking will capture benefits that are better compared to the resources invested. Furthermore, (Farina, Newhart, & Heidt, 2012) criticize e-rulemaking in the context of public participation, testing causality relationship that is generally believed but it is considered not confirmed in practice, namely, the more the amount of public participation, the better Government policy making will be. The above assumptions are based on a series of causality, including: (i) if the public is given the opportunity to participate, they will use it; (ii) if the public is given information that the Government is making an important decision for the public, then the public will care about the decision making; (iii) if the public is given relevant information, it will be used meaningfully; (iv) if the Government embodies this, the public will enthusiastically welcome; and (v) if the public has participated, there will be better Government policies. This is answered in the study, namely, the causal relationship in question depends on the design of e-rulemaking being built. Departing from the initial conclusions, the draft of the e- rulemaking design recommendations are drawn up which can be a reference to the positive realization of causality above, namely by designing responsible e-rulemaking. The design of the e-rulemaking can begin with: (i) defining the type of public participation needed (who, what, when); (ii) tailored made for the type of information given to each stakeholder with their interests to build attention and motivation; (iii) attention to the capacity and capabilities of Government agents is needed in terms of assessing, identifying and analyzing, and taking priority decisions in the formation of regulations; and (iv) efforts from the community side in the form of investing time and resources in accessing and participating in e-rulemaking. The Government of Indonesia since 2004 through Law Number 10 of 2004 concerning Establishment of Law and Regulations amended by Law Number 12 the Year 2011 and Presidential Regulation Number 87 the Year 2014 as the implementing regulation, has opened conventional public consultation channel as well as using ICT media that enable the public to participate in e-rulemaking. Public involvement in e-rulemaking in Indonesia or called as e- legislation. In this case, the e-legislation program as stated in the National Law Development Document in Indonesia in the national scope is the duty and authority of the Ministry of Law and Human Rights (Kemenkumham) with the implementing unit, namely, the National Legal Development Agency (BPHN). Until now, the technical provisions for implementing e- legislation are still in the form of a Draft Regulation of the Minister of Law and Human Rights concerning the Implementation of Public Consultation in the Establishment of Law and
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Regulations, which has caused the condition of a legal vacuum, the regulation draft as referred to is as attached. In this case, it means that e-legislation cannot be said as a policy yet. However, research on e-legislation is worthy of further research by considering things, namely: 1. referring to the urgency of e-rulemaking or in this case e-legislation namely, (i) increasing public access to democracy; (ii) increasing the effectiveness and efficiency of the Government's internal administrative process; (iii) improving the quality of Government policies; and (iv) increasing of understanding, ownership and public compliance with rules, so that the rule of law can be enforced; 2. barriers to the implementation of e-rulemaking, in general, are: (i) the unavailability of strategic e-rulemaking framework (both legally and technically) that are comprehensive, integrated and standardized; (ii) inability to provide funding resources and human resources needed by the system (iii) the weak work ethic of the system organizer in terms of responsiveness and control; (iv) lack of substance of information; (v) low public motivation; 3. Referring to the same causality relationship with the results of Farina and colleague's research on conceptual work and practical observation in the United States Regulations.gov which is a developed country that, the more the amount of public participation, it will improve the quality of Government policy, but in reality requires certain terms and conditions, then skeptical thinking arises, will the practice be similar in developing countries like Indonesia, with differences including: governance, resources, level of education quality, and social culture?; 4. the needs of the Indonesian Government for quality and successful policy products in achieving development goals conducted through the e-legislation program and focusing on an effective and efficient process both from the Government side as the organizing of government affairs, and from the public side in general in terms of support in the policy cycle; 5. the results of preliminary observations on the BPHN website still indicated a technical problem: (i) still lack of introductory information about the program in the form of history and legal basis so that the public with diverse levels of education and knowledge do not get an introduction to the knowledge base regarding the concept and context of e-legislation and this is one of the barriers in starting its contribution to the system in question; (ii) the explanation of the substance distribution of material (especially the evaluation of Laws and Regulations and academic texts) presented is not clear, so that the instant information regarding the concept of input that is expected to be given by the public is not obtained; (iii) the substance of the type of input is not yet in accordance with the material requirements of different academic texts, so it can be ascertained that public input will not be in accordance with the needs of material substance; (iv) on the Prolegnas material even only presents a draft list of Laws and Regulations which will be discussed without the filling form for the public to provide input, so the concept of public consultation in the National Legislation Program is not reflected; (v) illustration of the business process of the e-legislation system not yet presented both in the form of narratives and infographics, thus providing barriers to
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the distribution of information for the public who want to give their participation in the system; (vi) there are documents that still cannot be downloaded and some document views still have errors (especially in academic text material), so that it becomes a barrier for the public to be able to access the academic texts intended for further study in order to provide productive input to build the formulation of academic texts; (vii) application that is built has not been properly able to be accessed using a smartphone due to the limited ownership of a computer or laptop, and wired internet access, meanwhile on the other hand smartphone ownership and use and cellular internet networks which are actually increasingly massive in Indonesia; this what prevents the public at large from being able to access e-legislation wherever and whenever via a smartphone; (viii) the application system is still one way (not interactive yet), there is no personal chat, interactive forums, or direct feedback to the public that provides input, so that engagement with the public is not formed, and raises the potential for gradual decline in public interest in providing input to the system; and (ix) presentation of input resume data is still limited to quantitative measures, in this case the quality of public input is not displayed in terms of the number of inputs that can be used in the formulation and evaluation of the Draft Laws and Regulations, academic papers, and Laws and Regulations that have been issued, so that information for internal (BPHN) for the justification of optimizing the use of the e-legislation system is difficult to be formulated empirically and this means that for the public it will erode the motivation for participation in e-legislation (bphn.go.id, accessed on 12 January 2019); 6. the level of public curiosity was high, but the number of low realization comments was reflected in the total hits that increased from 35,858 per October 1, 2016 to March 31, 2018 to 52,491 times as of January 12, 2019. However, the total comments coming in decreased from 1.14 percent to 0.82 percent, as shown in Table 1 below.
Table 1. Statistical Data on Public Participation in Implementation E-legislation October 1, 2016 - January 12, 2019
Total comments Period Total Hit (%) October 1, 2016 until March 31, 2018 35.858 409 1,14 October 1, 2016 until January 12, 2019 52.491 429 0,82 Source: BPHN Website, 2016-2019 7. referring to the condition that, until now no research has been conducted on the practice of the intended e-legislation. Referring to the things above, it becomes interesting if further research is done on aspects: information technology, agency management, public participation, and regulatory compliance, (Coglianese 2007). Thus, in assessing the implementation of e-legislation in terms of aspects of public participation, it is recommended to use the dimensions of public administration by portraying the stages of the management process, namely: (i) system input as precondition that
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must be met before implementation is carried out; (ii) system processes, including processing and managing data and information; and (iii) the quality of public comments and output of policy draft that will be recommended during joint discussions between the executive and the legislative. Concretely, the variable to be examined is the quality of the implementation of e- legislation. As for the operational dimension and definition as shown in Table 2 below.
Table 2. Concept of Operationalization
Dimension Indicator 1. Social environment (one of 1. Level of education (measured by school life and the prerequisites for ICT users participation rates) in the implementation of e- 2. Motivation (all forms of encouragements which is the legislation is in the form of basis of a decision and public behavior in e- supporting social legislation) environmental condition 3. ICT Literacy (level of mastery and use of ICT by the includes education level, public) participant motivation, and ICT literacy) 2. E-rulemaking Framework (a 1. The existence of regulations is needed (the entire state complete framework for the legal framework governing all aspects relating to e- implementation of e- legislation) rulemaking includes: legal 2. Effectiveness of the substance of regulation basis framework, and (assessment of the use of existing regulatory technical in the form of a substances in supporting the implementation of e- governance process legislation) mechanism, ICT 3. Type of participation (who, what, when) (classification infrastructure planning, and type of participation includes: who are the subjects of human resources) e-legislation; what or the depth of substance of the incoming comments; and when or the right time, measurable, and predictable on the schedule of giving input) 4. Comment processing (the mechanism for processing comment data input that will be chosen to be the substance of the regulation consulted with the public) 5. Planning for ICT needs (planning system requirements in the form of hardware, network infrastructure, and applications, as well as back up planning, disaster recovery site, and other things)
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6. Planning for human resource needs (planning for brainware needs that support the system as a whole) 7. Information dissemination strategy (strategic steps in conveying information on the existence, importance, and mechanism of e-legislation to the public through various communication media) 8. Model of implementing organizational structure (organizational model of the implementing executive unit in the implementation of e-legislation) 3. Quality of Portal (is a degree 1. Technical quality (degree of assessment of the of assessment of the reliability reliability of the features required by the e-legislation of features on the e-legislation system in the website or e-legislation portal) portal and the quality of 2. Quality of information (quality of substance information about the information presented on a regulation plan consulted substance of the draft with the public) regulation consulted with the public) 4. Resources (is an inventory of 1. Availability of existing funding sources (conditions of existing resource support for existing or not existing, and the pattern of allocation of the implementation of e- funding sources at the BPHN financial planning legislation covering: document) availability and adequacy of 2. Adequacy of the number of existing funds (assessment funding sources; and the of the adequacy of the number of sources of funds for capacity and capability of the the needs of implementing e-legislation) human resources) 3. The capability of existing human resources (specific capabilities of existing human resources in implementing e-legislation) 4. The capacity of existing human resources (assessment of the carrying capacity of human resources in terms of number and workload in the implementation of e- legislation) 5. Communication between 1. Informal communication (all forms of communication stakeholders between stakeholders carried out in the implementation of e-legislation) 2. Formal communication (all forms and guidelines for formal communication between stakeholders carried out in implementing e-legislation) 6. E-legislation output 1. Quality of public comments (assessment of the degree of fulfillment of the substance needed in e-legislation derived from the input of public comments)
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2. The quality of the regulation draft produced by e- legislation (the assessment of the substantial degree of adequacy of the regulation draft as the output of e- legislation that will be used as input in the process of further policy discussion) Source: Processed by Researchers, 2019 It is expected to use the above dimensions as the basis of the research framework, then it will illustrate the quality of the implementation of e-legislation in terms of aspects of public participation, so that it can provide conclusion for analyzing existing condition to be used as the basis for preliminary evaluation and the formulation of recommendations towards the inauguration of e-legislation into a complete policy that has a certain quality, effective, and efficient in achieving its objectives. Furthermore, by paying attention to the opinion of Labelle, (2005) where assessment must be more centered among others on cultural sensitivity, ICT mastery; for this purpose, qualitative research method is used by taking public perception of the informant of the Government as e-legislation agency, academics, Non-Governmental Organizations as government watcher, public who has given their participation, as well as the public who have not provided their participation by using technical triangulation analysis.
CONCLUSION
The leadership style of the Aliyah Madrasah in the North District of Polongbangkeng District has leadership styles that have leadership aspects, directive, supportive, participatory and achievement oriented leadership. In addition, the motivation and work discipline of teachers at the Aliyah Madrasah in North Polongbangkeng Subdistrict, Takalar District are in a very high category. There is also an influence between the leadership style of the Madrasah Aliyah head towards work discipline and teacher motivation.
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Jurnal Ilmiah Ilmu Administrasi Publik: Jurnal Pemikiran dan Penelitian Administrasi Publik Volume 9 Number 2, July– December 2019. Page 137-158 p-ISSN: 2086-6364, e-ISSN: 2549-7499 Homepage: http://ojs.unm.ac.id/iap
The Implementation of Providing Performance Allowance Policy in the Secretariat of the General Election Commission Kota Ternate, Indonesia
Eko Ady Prabowo1, Muhlis Hafel2*, Agus Joko Purwanto3, Anfas4* Universitas Terbuka Email: [email protected], [email protected], [email protected], [email protected]
(Received: September 1-2019; revised: Oktober 25-2019; published: December 31-2019)
ABSTRACT
This study aims to evaluate the implementation of the policy of providing performance allowance to employees at the Secretariat of the General Elections Commission (GEC) Kota Ternate, as well as their supporting and obstacle factors. This research is a descriptive qualitative research by using case study. The research data were obtained from informants who were respondents, ranging from staff to officials at the Secretariat of the General Elections Commission Kota Ternate. The results of the study showed that although the implementation of the performance allowance was already running there were still some deviations in its management, namely: 1) no socialization or training was held on the management of performance allowance involving GEC Kota Ternate; 2) there is no appointment of a performance allowance management officer, namely the Performance Allowance Management Officer or the control book Management Officer, therefore, it happens overlap working with routine treasurer; 3) there is not a standard operating procedure (SOP) as an assessment standard that aims to provide an assessment and sanctions against employees who do not carry out their duties and functions.
Keywords: Implementation , Policy, Allowance, Performance.
INTRODUCTION
Bureaucratic reform is carried out in the form of organizational structure , working procedures and the determination of performance success measures (Dhaliwal & Hanna, 2017; Johnsen, 2015; Mathwich & Pavao-Zuckerman, 2018; Wihantoro, Lowe, Cooper, & Manochin, 2015). One of the steps to reform the bureaucracy is to carry out improvements to compensation to employees especially in public organizations based on performance. Performance is a process of how the work takes place to achieve work results (Pratiwi, Jamaluddin, Niswaty, & Salam, 2019; Shet, Patil, & Chandawarkar, 2019; Wilfahrt, 2018). However, the results of the work itself also show performance (Akib & Salam, 2016; Pratiwi et al., 2019; Saggaf et al., 2018). Employee performance is one of the most important elements in achieving the goals to be achieved. Employees contribute to good performance in achieving organizational goals, then the organization will also make a good contribution to increase employee morale and enthusiasm, one of which is through performance allowances. Performance allowance based on the decision of the General Secretary of the Election Commission of Republic of Indonesia No. 935/SDM.07-Kpt/05/SJ/XII/2017 About the Technical Guidelines for Granting Performance allowance in the area of Secretariat General 138 Jurnal Ilmiah Ilmu Administrasi Publik: Jurnal Pemikiran dan Penelitian Administrasi Publik Volume 9 Number 2, July– December 2019. Page 137-158
Election Commission is the allowance given to employees as a function of the successful implementation of bureaucratic reform based on class positions and employee performance achievements. Basically, the bureaucratic reform program determines the allowance performance policy as an inseparable part of the bureaucracy reform policy, which is included in the scope of the bureaucratic system structuring. The foundation of allowance performance policy is the awareness and commitment of the government is to realize clean and good governance. Changes and reforms that are carried out in the context of realizing clean and authoritative governance are unlikely to be carried out properly (effectively) without the proper welfare of the state civil apparatus as executing the government working. These changes and renewals were carried out to erase the impression of a government that had been considered bad. Based on the Minister of Administrative Reform and Bureaucratic Reform Regulation No. 20 in 2010 concerning to Bureaucratic Reform Road Map, states that the performance allowance is a function of the successful implementation of bureaucratic reform on the basis of the performance achieved by an individual employee, which of course must be in line with the performance to be achieved by an institute. In this case, both directly and indirectly, performance allowance is one of the driving factors for improving employee performance, by utilizing and using then maximizing the resources, it is expected to be able to improve optimally performance. Performance allowance is expected to be able to encourage to improve the performance of employees to work opitmally. Performance allowance is expected to encourage to improve the performance of employees to work diligently in accordance with their main job and function. The implementation of bureaucratic reform within the General Secretariat of the General Election Commission has begun with the sending of proposed documents and road map for bureaucratic reform in the General Secretariat of election commision in 2013. Then continue by forming the Bureaucratic Reform Team which carry out activities according to the road map, until it is done the field verification process by the Ministry of Administrative Reform and Bureaucratic Reform in 2014, therefore it became a requirement for general election commision to receive an award in the form of Performance Allowance which determined through a Presidential Regulation. In 2015 and 2016 evaluation is done again to the implementation of bureaucratic reform within the General Secretariat of general election commision by Ministry of Empowerment of the State Apparatus and Bureaucratic Reform. The result of the assessment was the implementation of bureaucratic reform within the General Secretariat of the General Election Commission which received 66.22 (sixty six point twenty two) so that it was declared eligible to receive an award in the form of 70% (seventy percent) Performance Allowance increase, marked by the issuance of the Regulation of the President Number 126 in 2017 focus on Employee Performance Allowanc in the Secretariat General Election Commission (State Gazette of the Republic of Indonesia in 2017 Number 270) replace the Presidential Regulation Number 157 in 2015 concerning to employee performance allowance in Secretariat General Election Commission. General Election Commission Kota Ternate is an extension of the general election commisson of Republic of Indonesia that located in the district or city level who has implemented a policy of providing employee performance benefits since 2014 based on the decision of the Secretary General of the election commission RI No.526 / Kpts / Setjen / Eko Ady Prabowo, et all.; The Implementation of Providing Performance Allowance Policy... | 139
2014 regarding to determination of position rank at the Secretariat General of Election Commission, Provincial Election Commission Secretariat, and district / City Election Commission Secretariat. The provision of performance benefits is aimed to improving employee welfare and preventing KKN by hoping the employees can work fully responsible. However, based on the results of observations fields there are still some deviations that can be seen in the following table:
Table 1 . The deviation of Employee Performance Allowance at the election commission Secretariat Kota Ternate No Case Deviasion 1 The division of main job and functions through the Decree of Unproportional Appointment in the General Functional Position has done but the implementation of the main jobs and functions are carried out by different personnel, such as treasurers who have functional position decree as Salary List Maker but the officer who makes payroll has a functional position as compiler of Financial Statements. 2 There is no Decree on the appointment officer of data management Unprofessional of performance allowance and the officer of managing control book. 3 Circular letter from the Secretary General Number 5 in 2016 Unprofessional stipulates the maximum number of employees in the Distric / City Commission is 17 people, therefore, it cuses the employes are in Ternate Election Commission still lack. KPU. 4 Recording the employees’ attendance do not use electronic Not Transparent, attendance (finger print) as a basis for payment of employee Accountable, performance allowance. and Not Professional 5 The Employees do not make an employee achievement report. Unprofessional
From the table above it can be seen that there are deviations in the management of employee performance allowance and do not meet the elements contained the Decree of the General Commission Secertary of Indonesian No.526 / Kpts / Setjen / 2014 concerning to Determination of Position Rank at the General Secretariat of General Election Commission, Provincial General Elections, and distric/City Election Commission Secretariat. Officials and employees who work in the Secretariat of election commission Kota Ternate in managing employee performance allowance in an effort to implement the policy has not do the main job and functions as what was expected. It can be seen such as: First, the employees are not proportional in working based on their duty and functions. Secondly, there was not decision letter in appointing the Management of data Official for Employee Performance allowance and organizing the management Officials at commession office. Third, Circular letter of General secretary number 5 in 2016 determines the maximum number of employees in the Regency/City is 17 people , therefore the Election Commission Kota Ternate has lack of amployees. Fourth, it 140 Jurnal Ilmiah Ilmu Administrasi Publik: Jurnal Pemikiran dan Penelitian Administrasi Publik Volume 9 Number 2, July– December 2019. Page 137-158
is not transparent, accountable, and professional because the calculating the payment of employee performance allowance still using the manual system not electronic attendance. Fifth, the employees do not make a report of Employee Performance achievement. Based on this phenomenon, it is interesting to study by referring to amount literature about the standar of the implementation of existing policies, by doing this study it can be known that how far the the implemention of amployees performance allowance policy at the commission, specially in the Secretariat of general Commission Kota Ternate. In addition, researchers also want to know the officials’ understanding in secretariat regarding to performance allowance.
METHOD
This research is a descriptive qualitative research by using case study design. Data collected in the form of words or images rather than numbers. The form of research data such as interview transcripts, field notes and other official notes. The use of qualitative research aimed to obtained the more extensive data and depth so that it can help the research process (Creswell & Poth, 2018). This research focuses on the implementation of providing employee performance allowance policy in General Election Commission Kota Ternate through Decree of the General Secreraty of Election Commission No. 935 / SDM.07-Kpt / 05 / SJ / XII / 2017 relating to Technical Guidelines for the Implementation of Performance Allowances at General Election Commission Secretariat, as a guideline in organazig the employee performance allowance in General Election commission. There are some indicators are as follows: 1. Communication, delivering the information about a policy should be clear to executors of the policy so that they know what must be done in the policy of employee performance allowance. 2. Resources, consisting of: a. The quality of human resources, implementers’ skills and motivation in implementing policy to organaze the performance allowance. b. Facilities as a support capacity to implement the providing the employee performance allowance policy. 3. Disposition, these are the characteristics and commitments of the policy implementers in providing employee performance allowance. 4. Bureaucratic structure, in the form of Standard Operating Procedures (SOP) which serves as a guideline for implementing policy practically. The subjects of the study were 8 (eight) people that consist of: the Secretary of election commission Kota Termate (1person) , the head of financial, general and logistics subdivision (1 person) , the head of technical Subdivision and public participation relations (1 person) , Treasurer (1 person) , Secretariat Staffs (2 people), the head of human resourse subdivision Genaral Election commission North Maluku Province (1 person), and the officer of data management of employe Performance allowance in North Maluku Provincial election commission. (1 person). To the determine the subjects of the study the researchers used purposive sampling technique, purposive means the sujects are selected based on particular considerations with previous charateristics which have been known before. The considerations Eko Ady Prabowo, et all.; The Implementation of Providing Performance Allowance Policy... | 141
namely: first, the subjects must master and understand something through the process of inculturation, therefore something is not only known, but also comprehending fully. Second, the sujects still including a person who actively doing activities which became research problems. Third, the subjects who have sufficient opportunity and time to ask for information. Fourth, the subjects who do not tend to convey the information from their own perspective. Fifth, the subjects were initially quite foreign to researchers so that they were more directed to become a kind of teacher or resource person (Blatt, Bogdan, Biklen, & Taylor, 1977).
RESULT AND DISCUSSION
Based on the Presidential Regulation No. 81-2010 referring to the Grand Design of Bureaucracy Reform in 2010-2025, mandates that all ministries / institutions and local governments must do bureaucratic reform. The implementation of bureaucratic reform in General Secretariat of Election Commission has begun with sending of proposed documents and road maps bureaucratic reform in General Secretariat of Election Commission in 2013. Afterwards, it was continued by formating Bureaucratic Reform Team which do the activities beased on road map, until it was done the field verification process by the Ministry of Administrative Reform and Bureaucratic Reform in 2014. Therefore it becames a requirement for General Election Commision to receive an award in the form of Performance Allowance which was determined through a Presidential Regulation. As a preliminary analysis, what was asked for the respondent about the background of existence of a performance allowance policy. respondent "ARH" explains "Yes, actually tukin that used to be the remuneration is mandated by the law, that civil servants or now ASN must obtain a suitbale salary or income so that finally the Presidential Regulation comes out to regulate that the employees in election commision must also obtain this tukin ". Furthermore, regarding to background of the policy in providing performance allowance itself, "SMS" explains: "In my observation, Election Commission provides this performance allowance add spirit to the secretariat staffs and support the working in the secretariat. Beside from meal llowance and others, tukin supports and helps to improve the performance" From this statement it can be seen that the policy of providing performance allowance encourage to improve the performance of employees to work then maximize available resources that are expected to be able to improve optimal performance. Performance allowance is expected to be able to give encouragement to improve the performance of employees to work diligently in based in on their main job and function. Dessler (1999) mention that employee performance is obtained from defining work , namely ensuring that superiors and subordinates agree with their duties and job standards. The Secretariat of Election Commission Kota Ternate, when the first time they received the performance allowance, they had made a devition of class positions and the amount of the value of the performance allowance based on the Decree of the Secretary General of the Election Commission No. 526 / Kpts / Setjen / 2014 about the Position of Designation at the secretariat of General Election Commission , 142 Jurnal Ilmiah Ilmu Administrasi Publik: Jurnal Pemikiran dan Penelitian Administrasi Publik Volume 9 Number 2, July– December 2019. Page 137-158
Provincial Election Commission Secretariat, and Regency / City Election Commission Secretariat. Therefore, the employees work in the office based on main job and function respectively. Sopiah (2008) states that the atmosphere can also affect a person's performance. A conducive environmental situation, for example support from leader, patners, facilities and infrastructure will create its own comfort and will spur a good performance. Conversely, an uncomfortable working atmosphere due to inadequate facilities and infrastructure, lack of support from leader, and many conflicts will have a negative impact in deterioration one's performance. The discussion onof he atmosphere in secretatriat genaral Election Commission Kota Ternate will be discussed in the next chapter.
The Implementation of Performance Allowance Policy General Election Commission Kota Ternate is as an extension of the General Election Commission of Republic of Indonesia (RI) at the district / city level, they have implemented a policy of granting employee performance since 2014 according to Decision of the Secretary General of the Election Commission RI No.526 / Kpts / Setjen / 2014 based on the determination of level of the position in the Secretariat General of Election Commission, Provincial Election Commission Secretariat, and Distric/ City Election Commission Secretariat. This study using the implementation model of George Edward III , because it is suitable to be implemented at the bureaucratic level structured at General Commission institutions. Each level of the hierarchy has a role in accordance with the duties and functions in eleborating of policy to each bureaucracy with four components of bureaucracy analysis namel; communication, resources, disposition, and a bureaucratic structure. 1. Communication Good communication is one of the determinants of the success of the implementation of the performance allowance policy. The implementation can be achieve the target of policy if the role of decision makers already known what they must do. It can be done if the communication can run well, so that every policy that is implemented can be coordinated in the right section, besides that communication is also related to the policy to be implemented must be accurate and consistent, therefore communication is a very important role and function in a policy. According to Wibowo (2015) communication is the exchange of information between sender and receiver and drawing the conclusions as perceptions about the meaning of something between the individuals involved. Communication in this case concerns to the means or efforts in the process of delivering information. Besides the important of information to support communication, it is also needed the process of transmitting or delivering information, clarity and consistency of information. a. Transmission (Information Submission Process) The process of delivering information referred to in this study is how to deliver information from the policy makers with the implementing parties as well as the targets of the policy, namely the employees at general election commission secretariat Kota Ternate. This is important because the distribution of good communication will be able to produce a good implementation as well. Based on the results of the interview, it was revealed that according to the level of Commission institution, the General Secretary Eko Ady Prabowo, et all.; The Implementation of Providing Performance Allowance Policy... | 143
of election commission RI as the Budget User Authority (BUA) in issuing policies and rules are actively delivering the policy. The communication developed to each level of election commission institutions has been going well through online media and directly socializing to policy targets. This was revealed by the the respondent "BMIA": "The first time tukin socialization took place,the socialization was folloewed by the Secretary and the Head of the Data Program and human resources Division. But in WA grop of the human resources devision has ,informed the information about tukin and if there is something that we don't understand, we usually discuss it directly through the WA group ”. The same argument was expressed by "SMS" that: " When talking about communication problems, it is often between the secretary with the head of the sub-division or between the head of the sub-division with the staff under it, and it runs smoothly for the creation of a safe atmosphere, synergized in work. In terms of the tukin problem, the provincail commission has conducted a socialization event once, but I haven't remembered it because it is a long time ago. From the Secretary himself always socializes about the tukin in order to improve the performance of the staff under him ". From the statement above, it can be seen that the transmission of communication from policy makers to policy implementers has been going well. Delivering a good communication will be able to produce good implementation too. It often happens in the process of implementing communication delivery, namely the existence of miscommunication, so, the policies made will not be conveyed properly when arriving at a certain position. b. Clarity In this research, what it meant by clarity is the content of information both through verbal and nonverbal communication conveyed from policy makers to policy implementers. Regard to clarity of information on communication factors as revealed by the "BMIA" that: "Submission of socialization is done by the leadership not formally but only informally like hung out together like this. In the past time we had a meeting for the first time but only a few staffs came. The distribution of tukin information through technical guidelines distributed to employees I feel is ineffective because many of staff do not read so it is only getting through verbal. " The same argumentation also stated by "ARH" that: "The rules are clear because I am also a policy implementer and I also read the rules that explain it. So far, socialization for all matters including staffing has been done by the Election Commision RI and ifinviting the Provincial election Commission. To whole distric/ City KPU is usually done through a circular letter from the General Secretary Genral RI, but in the implementation, the provincial Election as an extension 144 Jurnal Ilmiah Ilmu Administrasi Publik: Jurnal Pemikiran dan Penelitian Administrasi Publik Volume 9 Number 2, July– December 2019. Page 137-158
of commission RI.. very much.. it still very poor in order to conduct employee coaching in the form of socialization to districts/cities it's still very lack. " Based on the explanation from respondents, it can be concluded that the clarity of information for policy implementers so far is good and very clear, but in its implementation there are still shortcomings. This is due to the unwillingness of the policy implementers to understand the policies that serve as a guideline and become a reference in the implementation of the performance allowance policy and there is no knowledge delivery in terms of managing performance allowanve from the North Maluku Provincial Commission to the Ternate Election Commission. This is as revealed by the respondent "NA" "If tukin information is in the office ... if I am not mistaken, it was ever socialized in the form of a meeting, soit was deliverd the information about the tukin. If it's from the Provincial Commission or from the Central Commission I think it hasn't. so we only refer to the existing from technical guidelines " The explanation from respondent above, it can be concluded that the information conveyed by policy makers to the implementers of the policy has been done properly, which refers to the technical guidelines for the provision of performance allowance delivered by the Central Commission However, in its implementation, according to the level North Maluku Province institution never done any socialization to commission from distric/city. c. Consistent The Implementation must be consistent, clear and clean so that the policy can run effectively. Information is clear and clean, but instructions/command are contrary to information received, so it will be difficult to implement the policy easily on operations to accelerate implementation. However, the implementers are sometimes charged with conflicting or unsuitable information. The socialization of providing performance allowance policy in Election Commission Secretariat has gone well through formal and informal communication as stated by respondent "ARH" as follow: " Related to the tukin policy, it is done formally and informally. So it was conveyed in a meeting regarding to tukin information. " When it was confirmed respondent "BMIA" he also conveyed the same argument namely: "The socialization is done by the leadership both formally but also informally, just like chatting together like this. If it was the first time we had a meeting but only a few staffs came " Communication is the most effective thing in an effort to change a person's attitude, opinion or behavior, because it is dialogic in the form of conversation. The reverse flow is direct, and the communicator knows the communication response right then and there during the communication. In managing performance allowance, Eko Ady Prabowo, et all.; The Implementation of Providing Performance Allowance Policy... | 145
communication of every official must be carried out, in oder that the process of supervision and control and evaluation can proceed, so, the implementation of the performance allowance can gain well. Supervision and control is the responsibility of the head of the office of the Ternate KPU Secretariat working unit, the Secretary. Supervision and control in managing performance allowance can be in the form of supervision conducted by leader to employee. Based on observations, the Secretary of the Ternate Election Commission has conducted direct supervision and control of the employees. This is stated by respondent "SMS": "When talking about the problem of supervision we are very grateful to our current leader because he always reminds us about tukin was given not for free but to increase enthusiasm as I said earlier as a vitamin to increase we have the stamina for us to work so tukin it was not given in vain .. " The same command stated by respondent "HN" "... besides the lack of tukin because of the consequences of being late or not entering the office ... there is also a reprimand from the leader" The effectiveness of work relationship in an organization will be realized by intense communication. This was proven by Febriyana, et al (2015) in their research, to achieve or realize the implementation of the job properly and optimally, communication between individuals and groups is absolutely necessary, especially communication that is built with specific goals for institutional interests. Communication that was built by employees in the area of Ternate Election Commission has been going well, itis proved as by respondent SMS’ statament as follow: " When talking about communication problems, it is very often between the secretary with the head of the division and between the head of the sub-division with the staff under it, and it runs smoothly for the creation of a safe atmosphere, synergized in working" Communication process is very important in human life, as well as in the life of an organization. In the practice of organizational life, communication activities are very complex which involves all elements in the organization, of course all members in organization have a high degree of heterogeneity or diversity so the possibility of homogeneity in organizations is almost not existent. Effective communication within an organization can occur between leaders and staffs or vice versa between staffs and leaders and between staffs and staffs. An agency or organization needed a system that can support performance, one of that is organizational communication. Implementing a good performance allowance policy will show the level of performance produced by the government organization. Organizational communication is a part that must be present if the activities/work processes want to run smoothly. Good organizational communication, organizational goals can be achieved based on the planning. In organizational life the achievement of goals with all its processes requires good communication. Organizational members absolutely need to communicate with each other. Good communication in implementing policies make what will be done clearly 146 Jurnal Ilmiah Ilmu Administrasi Publik: Jurnal Pemikiran dan Penelitian Administrasi Publik Volume 9 Number 2, July– December 2019. Page 137-158
and directed. Every policy submitted by the leadership will be clearly and understood by the employees in doing their duties. 2. Resources According to Edward III in Mulyadi (2016) implementation is a policy process that can be implemented easily. In doing so, it requires conditions including people or executors, money and organizational competance. The important aspects that need to be considered in the resource factor in policy implementation are related to the number of staff, information, authority (authority), and facilities (facilities) as a support for implementing the policies, which include the availability of buildings , equipment, and supplies as well as employee training and development facilities. a. Staff (human resources) Resources that support or hinder the implementation of policies in the management of performance allowances at Ternate Election Commission Secretariat related to understanding of human resources and facilities and infrastructure, the success of an organization is strongly influenced by the quality of Human Resources (HR) . Human Resources (HR) will be good quality and its performance if it is led and managed properly. Every leader and manager as well as the part that handles HR must understand and appreciate HR management issues as well. Determine the needs of human resources in an organization, especially those related to its quality, the organization must first of all know to recognize and understand the goals, structure, functions and jobs that exist in the organization. Likewise, to be able to create the right supervision, namely placing the right person in the right position, every position in the organization must know the details of what tasks are needed and what personal requirements are required by that position. As the results of observations and interviews with respondent, related to the knowledge of human resources is still very lack so that the impact on the process of managing performance allowances cannot run optimally. Based on General Election Commission Regulation Number 2 in 2012 Concerning to Career Patterns of Civil Servants in the Secretariat General Election Commission, Provincial Election Commission Secretariat, and Regency / City Election Commission Secretariat in filling structural positions within Certral Commission, Provincial Commission, and Distric/City aboau the officials who occupy structural positions, the Secretary of Ternate Commission forms Departement Consideration Team for Secretariat to examine proposals for appointment or dismissal or mutation of positions in Ternate Secretariat Commission. One of the requirements to occupy this position is to have expertise, knowledge and experience in accordance with the field of duty for the position to be occupied. However, the phenomenon that occur in the implementation of the performance allowance policy at the Ternate Election Commission Secretariat besed on obervation and results revealed that in the placement of officials at Ternate Commission Secretariat, the Ternate Commission did not form a Position and Rank Advisory Board Team and they did not consider the requirements as stipulated in the provisions referred to. The proposed placement of positions is only based on the Decree of the North Maluku Provincial Commission Secretary after being proposed from the Eko Ady Prabowo, et all.; The Implementation of Providing Performance Allowance Policy... | 147
Ternate Commission Secretary. This was revealed from the results of the interview with respondent"BMIA" : "... at the Commission here, when the placement of employees does not consider skills and background then experience, but only based on rank, closeness, and tolerance." Recruitment or procurement of personnel is an activity to attract qualified personnel based on what is needed by the organization. Personnel needs include the number and expertise to be recruited adjusted to Human Resource Devision plan that has been determined. The importance of placing officials in filling positions with regarding to educational background and taking into account existing skills is very supportive of what will be done by these officials. Based on observations, the executor of the performance allowance policy does not understand and carry out the HR plan that has been set in the technical instructions contained in the Decree of the Secretary General of the General Election Commission No. 935 / SDM.07-Kpt / 05 / SJ / XII / 2017 Regarding to the Technical Guidelines for the Implementation of Performance Allowance at the General Election Commission Secretariat. In the technical guidelines, the Commission from Distric /City KPU must through a dicision letter to appoint attendance management officials consisting of: First, Performance Allowance Data Managers, namely officials at the Distric/City Secretariat who handle staffing, tasked with managing the performance allowance data at Commission in Distric/City. Second, the Control Book Manager is the official at Commission in Distric/City Secretariat whose job is to manage the control book including recording and verifying the attendance and absence of employees in each work unit. However, based on observations, Ternate Commission Secretariat did not have a presence management official. The attendance recapitulation is only carried out by a staff member in the Finance, General and Logistics Subdivisions. This was revealed from the results of the following interview with "NA": "To manage tukin I myself records the attendance after that I give to to finance devision, so l finance will process until payment, I only record the attendance results every month. For the manager's decree, there isn't any ... " When confirmed to Respondent "ARH" She also conveyed the same statment: " Well ... that is the requairment, there must be an official then in the decree, but the decree if not mistaken, there is no honorarium, so the decree is not made haha ... (laughs). Now this must be reviewed so that the operator of the official manager of tukin has an existing position and can be likened to a financial manager, archive management, then an inventory of BMN and so on ” Similar information was also conveyed by respondent "HN" as follows: "Until now there is no tukin payment manager... there is no Decree because the workload is given especially since they are in the public section so it is their duty to recap attandance so the decree does not need to be made ... we are also in terms of limited human resourses. " 148 Jurnal Ilmiah Ilmu Administrasi Publik: Jurnal Pemikiran dan Penelitian Administrasi Publik Volume 9 Number 2, July– December 2019. Page 137-158
Based on the explanation from the respondent above, it can be concluded that in the implementation of the policy, officials do not understand what are the aims and objectives of the Human Resources planning that have been set in the policy, thus causing the implementation of the policy to deviate from the initial goal. b. Information Information relating to how the policy is implemented is one of the indicators in the resources who must be known by the policy implementer. The implementers need to know what is done and how they should do it. Thus, the implementers of the policy must be given instructions to implement the policy. General Commission RI as a policy maker has published technical guidelines for the implementation of performance allowance from the Central Commission to the Distric /City Commission. However, in conveying that information Commission RI socialized the technical guidelines only facilitating the Provincial Commission level and does not invite the Commission from Distric / City KPU, therefore the information obtained from the Ternate General Commmission is only learning from the technical instructions published by Commission RI. This statament supported by "ARH" commands as follow: " so far the socialization so for everything including staff is done by the Central Commission RI then inviting the Provincial Commission. Nah as a whole until the Commission in the Distric / City is usually done through a circular letter from the General Secretary of Commission RI, but in the implementation, the provincial Commission as an extension of Commission RI still very poor in order to conduct employee coaching in the form of socialization to districts / cities ... c. Authority Implementing officials or implementors are the factors that determine whether a policy is difficult or not implemented. Commitment to behave based on the important policy goal is held by implementing officials. Therefore sufficient authority is needed which is the authority or legitimacy for policy makers such as the development of clear rules, effective monitoring and control then transparent in implementing policy so to prevent the possibility of official behavior that is contrary to the goals. Based on observations, the authority of the policy maker in providing performance allowance is Central Commission RI in terms of the authority of monitoring and control has not been running optimally. It causes that up to now there has not been regular supervision and control and tiered to all levels of commission below it, therefore control function in the implementation of the granting policy performance allowance is still weak. This was also revealed from the results of interviews with respondent "DD" "Supervision ... in my opinion the supervision of tukin has not yet been established until now from the policymaker ... Commission RI ... until now I also see that no inspectorate come down to audit tukin. ... only if we are late or do not enter the office we will usually be immediately deducted by the funds. "
Eko Ady Prabowo, et all.; The Implementation of Providing Performance Allowance Policy... | 149
d. Facilities According to Widodo (2014) training and development are all efforts made to improve employee performance through enhancing their abilities and knowledge by attending training or learning. Training and learning facilities here involve formal and non-formal education both owned by the employees especially the officials managing the performance allowance. The limited understanding of human resources in managing work in the office needs to be addressed by reevaluating officials who have technical competence, can use office equipment properly (e.g computers) whose recruitment through selection of due diligence and proper test, pay attention to employee backgrounds, and provide good training formal or informal for employees. From the results of the interview with the respondent "NA" it was faund that so far there is never any training provided either from the North Maluku Provincial commission or the Central Commission RI regarding to the management of performance allowance. The following statement below: "for tukin itself, there has not been any special training so far ... so in the management of tukin, yeah ... we learn by ourselves ... just read the rules" The same statement was stated by respondent"ARH" as follow: "So far, socialization or training for everything including staffing has been done by the Central Commission and inviting the Provincial Commission. Nah to all Commission from Distric/City is usually done through a circular letter from the General Secretary of Central Commission, but in the implementation the provincial Commssion as an extension of Commission RI ee.. ..it is still very poor in order to conduct employee coaching in the form of socialization to commission in districts/cities " From the above explanation it can be concluded that performance allowance management official never participated in training facilities regarding to performance allowance because indeed both the North Maluku Provincial Commission and Central Commission have never been invited the performance allowance management officials at the Ternate Election Commission level to participate in the training. In addition, the employee training and development facilities, there are several facilities to support the implementation of policy, which include the availability of buildings, equipment, and supplies. Based on observations, Ternate Election Commission has already office building located on Jalan Kalumata Puncak No. 2 South Ternate, with office equipment and supplies such as tables and chairs, computers and so on to support the implementation of the main jobs and functions of the employees. 3. Disposition The third factor analyzed in this study is disposition, namely the occurrence of trends concerning to the impact of disposition, staff bureaucracy, namely the appointment of bureaucrat. Every policy implementation instructed by the leader through communicative, persuasive instructions and the behavior of the administrator, accepts the implementation of the policy or program well. Implementation of the policy is very possible for the disposition 150 Jurnal Ilmiah Ilmu Administrasi Publik: Jurnal Pemikiran dan Penelitian Administrasi Publik Volume 9 Number 2, July– December 2019. Page 137-158
of the implementer, obstructing the implementation of the policy if the implementor does not agree with the substance of the policy they must carry out. In case of disposition or attitude is found a good response from the implementor. Implementors still do according to their respective duties and functions although there are still shortcomings and limitations such as overlapping positions. This was revealed from the results of interviews with respondent "NA" namely: "Regarding to the policy of providing my performance allowances ... yes ... I have to be responsible do the work even though the work is a lot because it has already been paid for." Regarding to overlapping positions or concurrent positions, this was revealed by repondent "CNR" namely: " If in a functional position, yes ... or in this tukin I am a Salary List Builder, but in reality I was appointed as treasurer by the Budget User Authority, that is the Secretary, well, what I do is also the work of the treasurer, then to make a salary list there are also other financial management staff but his own position is as a Compiler of Financial report. " Additional information about overlapping positions or double positions, the "CNR" stated that: "I don't know either. But from the Commission’s technical guidelines governing Tukin there is also no treasury position so I can't help but I accept it when I get a functional position decree as a Salary List Maker. At that time, I had asked the Provincial Commission, but they were also the same, he said, throughout North Maluku and nationally, there had not been a treasury position for a while. So like it or not, it has to be done, yeah, what does this include ... " The implementation of performance allowance policy at the General Election Commission Secretariat relation to the disposition aspects, as a result of observations and interviews with number of responend that in the implementation of performance allowance management all processes start from recording the attendent list done by e General Subdivision and the counting process until the payment is made at the Sub Division Finance. The Secretary of Ternate Election Commission in his authority has never made a Secretary's Decree to appoint officials of performance allowance management officers, both the Performance Allowance Data Management Officer and the Management Book but only instructing a senior high school graduate staff to be in the general subdivision to assist the treasurer to record the employee attandent list . In implementing this performance allowance policy, the Secretary of the Ternate Election Commission did not describe the commitment contained in the technical guidelines for managing performance allowance. This is reflected in every request for disbursement of employee performance allowance which should go through the officials managing the performance allowance precisely to the treasury desk without going through a process that is ideally carried out. Commitment is a person's willingness to improve themselves and show loyalty to the organization because they feel themselves involved in organizational activities. Organizational commitment is outside the Eko Ady Prabowo, et all.; The Implementation of Providing Performance Allowance Policy... | 151
manager's control and thus provides little opportunity to improve feelings. Commitment tends to decrease when there are many job opportunities (Wibowo, 2015).
4. Bureaucratic Structure Bureaucracy has an important role in policy implementation even though it is a large and complex organization, a dominant organization capable of implementing every policy or program, and there is not organization as strong as a bureaucracy is able to survive in any situation, however external influences. Bureaucratic structure factor found in management of performance allowance Ternate Election Commission includes several aspects, especially Standard Operating Procedure (SOP) and sanctions imposed to employeea who have an impact to the coordination and motivation of employees in doing their duties and functions. This dimension has an impact on policy implementation in the sense that policy implementation will not succeed if there are weaknesses in the bureaucratic structure. Problems related to bureaucratic structure can be seen from the position of each employee in carrying out their work. There is no Standard Operating Procedure (SOP), sanctions, and lack of supervision conducted by inspectorate which has oversight functions to staff, finance, and equipment as well as the implementation of election operational activities at the Provincial Commission and Distric/City Commission . it can be supported by the statement of respondent "ARH" "The Certraal Commission, the Provincial Commission, and the Ternate Commission have not yet established SOP, the process of managing employee performance allowance just refers to the Minister of Finance regarding to it. the procedures for payment of the performance allowance or the tukin also referring to the Commission RI Decree on the Technical Guidelines to the Implementation of Performance Allowance at the General Secretariat of the Election Commission " The management of performance allowance needs to be put in order with control, both internally and externally. At Ternate Election Commission, supervisory function is attached to the element of Commission Secretary appointed by the head e of Ternate Commission. In process of supervision and control, Secretary of Commission never supervised the implementation of policy in the management of performance allowance. The General Secretary has delegated the authority of the Budget User Authority (BUA) to the Provincial Commission and Districs/City KPU Secretary whose aim to minimize problems that could hinder the process of implementing the policy of providing performance allowance to each work unit. However, in its implementation, the Commission Secretary did not understand his duties and responsibilities as a BUA. This was revealed from the results of interview with respondent "ARH" " Now there is operator, as manager if attendance list for the tukin itself but the form of supervision is still using the SKP itself. Incidentally, tukin punishment itself is only not paid but the punishment itself has implications to PP 53 regarding to employee discipline that has been set there. Based on the reward or award it must also be considered " 152 Jurnal Ilmiah Ilmu Administrasi Publik: Jurnal Pemikiran dan Penelitian Administrasi Publik Volume 9 Number 2, July– December 2019. Page 137-158
The implementation of the policy on the provision of performance allowance is done to avoid deviation in the management of performance allowance and to realize an increase the employee performance in implementing bureaucratic reform based on the basic rules stipulated in constituation Number 43 in 1999 and Presidential Regulation Number 126 of 2017 which is followed up by a Decree of the Secretary General Election Commission Number 935 / SDM.07-Kpt / 05 / SJ / XII / 2017 regulates the management of performance allowance. The policy of implementation is done through employees to cooperate with each other structurally depicted in the organizational structure of government. The organizational structure performs various functions which are part of the division of work and the rational organization requires systemic division of work, rights, and power.
Factors Supporting the Implementation of the Performance Allowance Policy There are several factors that support the implementation of providing performance allowance policy to the Ternate Commission Secretariat, including: 1. Increasing performance allowances In 2015 and 2016, it is done an evaluation of the implementation of bureaucratic reform within Secretariat General by the Ministry of Empowerment of the State Apparatus and Bureaucratic Reform. The results of the assessment of implementation of bureaucratic reform within the General Secretariat Election Commission received a value is 66.22 (sixty six point twenty two) so it was declared eligible to receive an award in the form of 70% (seventy percent). Performance Allowance increase from the original is 60% (sixty percent), this increase is marked by publishing th of Presidential Regulation Number 126 in 2017 regarding to Employee Performance Allowance in the General Secretariat Election Commission (State Gazette of the Republic of Indonesia in 2017 Number 270) replaces Presidential Regulation Number 157 in 2015 concerning to Employee Performance Allowance in General Secretariat of the Election Commission. The increasing of performance allowance is one of a good news for all Commission employees because it can improve enthusiasm for working and it will improve their performance. This is supported by statement from respondent"SMS" below: "Thank God, until now the employees are very thankful because they feel helped because we now that 99 percent Sevil Sevent letter of dicision was pawned in the bank so, with an increasing tukin they are like to get vitamins to increase stamina or enthusiasm so" 2. Human Resourses An organization needs the support from human resources. Therefore, an organization needs to provide support for human resources. Thus, there will be a feeling of interrelation between the organization and human resources. Human resources organizations feel that the organization in which they work is an organization that cares them and is the best place to work, because they feel attached to the organization and are unfit to leave it. This situation shows that human resources have a commitment to the organization. The Ternate Commission Secretariat's resources are very limited but from the Eko Ady Prabowo, et all.; The Implementation of Providing Performance Allowance Policy... | 153
results of the interviews they are able to carry out the job assigned by the leader, it stated by respondent "HN" as follow: "we can see the ability ... based on their work ... able to record absences and it is done every month" The same was expressed by respondent"ARH" below: " Until now there is not a significant problem, the fact that every month the tukin is paid on time. Then we still pay attention to those rules and up to now, yes ... ” The resource factor is one of the determinants of the successful implementation of the performance allowance policy. Although in terms of the number of managers of performance allowances are limited but by the ability, the employee is able to complete the work. 3. The Commitment of implementing the policy The attitude of implementing the policy is a very important factor related to the implementation in a public policy. The most important characteristics owned by implementers are honesty, commitment, and democracy. The implementers who are highly committed and honest will always survive among the obstacles encountered in policy. Honesty drives the the implementator to keep the direction of based on program / policy guidelines. His/her commitment and honesty brought him/her to more enthusiasm in doing the steps of program consistently. A democratic attitude will increase the impression of both the implementator and the policy in front of the target group members. The commitment of the executors of this performance allowance policy is illustrated from the following statement from respondent "DD" below: "for me I am not burdensome, yes ... so I just follow what has become the rule in this tukin" A similar statement expressed by an respondent "NA" stated that: "Well, we have to take responsibility because they we have already paid" Based on the statement above, it can be generally described that the tendency of implementer in the implementating of the performance allowance policy has been going well. Employees who receive performance allowance have attitudes or perspectives that support the policy so that the process of implementing the performance allowance policy is effective.
Obstacle factors in implementing of the Performance Allowance Policy Besides supporting factors, there are also hider factors to the implementation of providing performance allowance policy at Ternate Election Commission Secretariat, including: 154 Jurnal Ilmiah Ilmu Administrasi Publik: Jurnal Pemikiran dan Penelitian Administrasi Publik Volume 9 Number 2, July– December 2019. Page 137-158
1. The Employees do not set an Employee Performance Goal at the beginning of the year
Based on the Decree of the Secretary General of the Election Commission No. 935 / SDM.07-Kpt / 05 / SJ / XII / 2017 Regarding to the Technical Guidelines for the Implementation of Performance Allowance at the General Election Commission Secretariat basis for calculating performance besides the attendance of course also the performance of employees. The employee's performance is stated in the performance goals must be prepared at the beginning of the year and assessed by leader directly as the main jobs and function of the employee for a year and of course as a basis for evaluating employee performance in calculating performance allowance payments. But in reality the new employees compile their respective performance goals in the middle or end of the year when the work is in progress. This was revealed from interviews with respondent "BMIA" as follow: "Ideally, they should have made it at the beginning of the year, but in reality, in the middle there was even a new year end. The obstacle I don't understand why? But it leader and HRD are likely know only, but I am trying to convey them that the performance goals must be made at the beginning of the year. Nahl, these employees are also confused about what their job title is? Some of them have already know their jobs and functions, but some of them do not know yet. " A similar opinion was expressed by respondent "HN" below: "yaa ... if the problem is the employee's target obligation ... because If he/she wants to know a performance he/she makes sure by him/herself recapitulated of the results of performance. It means that if the payment based on the performance of employees in t one year, employee must have a full month recap the results of his performance. Now it is because of coinciding with the election stage it's very busy so it is only made at the end of the year " Based on the technical guidelines that have been determined, performance allowance received by employees are determined based on performance achievements measured by 2 (two) elements, which include performance appraisal ( 40%) and employee attendance (60%). But in reality from the statement above so far the TernateCommission paid performance allowances to employees based on attendance. This is due to the assessment of work performance still awaiting technical guidance from the Secretary General RI. 2. Lack of facilities and infrastructure The lack of facilities and infrastructure is one of the factors hampering the implementation of the policy of providing performance allowance to the Ternate Election Commission Secretariat. One of the facilities and infrastructure in managing performance allowanve is the use of electronic attendance records or finger print. This was revealed from interviews with respondent "DD" as follow: " the finger print is it just the first time. Now the machine is broken, so we just do it manually ... the signature is always on the attendance list " The same statement stated by respondent"SMS" below: Eko Ady Prabowo, et all.; The Implementation of Providing Performance Allowance Policy... | 155
" there was a finger print a long time ago, but for one reason or another it was broken we are now in manual attendance list." Based on the explanation from the respondents, it was revealed that Ternate Election Commission Secretariat was still using manual attendance recording despite the General Election Commission Decree No. 53 / Kpts / Setjen / 2016 concerning to Technical Guidelines for Implementing Performance Allowance at the General Election Commission, it stipulates that the use of an electronic attendance registration machine must be carried out starting from June 2016, this is justified by respondent "ARH": "Ternate Election Commission has received assistance from the Ternate City Government to buy the equipment and it was able to use it until a few months later but for the time being it was damaged haha ... (laughs) and it has not been repaired, we are temporarily returning to the manual list. Now this is interesting because in terms of equipment related to tukin it needs to be increased including the costs for the pepairing itself. We have equipment, but maintenance is not provided by the budget, so if it is damaged, then we have to wait for it to be repaired ... like this time .. " The same was expression stated by respondent "CNR" that: "..Because our finger print attendance machine is in trouble so go back to the first time. The employees are free to come at any time but later write the absence according to the time of entering the office" The use of recording attendance manually will cause in the lack of supervision and not transparancy in the processing of calculating the performance allowance so that the process of implementing the policy of granting performance allowance does not run as determined by the policy maker. 3. Lack of Budget The lack of a budget is also an obstacle in the implementation of the performance allowance policy, this was revealed from the results of an interview with respondent "ARH" below: "... Problem in the implementation of the tukin policy, first, related to regulations of the tukin, the socialization needs to be reproduced to improve the performance of the management of the tukin so that from the center commission to the distric / city have the same understanding related to the technical guidelines of the tukin, so that it does not have multiple interpretations, let alone circulating new technical guidelines yea ... especially from the provincial commission which is often invited by the center commission to take the bimtek when returning here it must be conveyed to the ranks of the commission below it. Second, in terms of budget, before there was a minus the tukin budget but after it is proposed now for the Ternate commission there is no problem in the payment of the tukin but there is an increase this year we will count again. In terms of equipment related to tukin it needs to be increased including the 156 Jurnal Ilmiah Ilmu Administrasi Publik: Jurnal Pemikiran dan Penelitian Administrasi Publik Volume 9 Number 2, July– December 2019. Page 137-158
cost for the maintenance itself. We have the equipment but the maintenance is not provided with the budget so if it breaks then we have to wait again to be repaired ” From the explanation above it can be concluded besides the lack of budget for employee performance allowance, there is also no budget for equipment and machine maintenance, especially for electronic finger print machines, there is not honorarium for the performance allowance manager, it explained by the respondent" ARH ”the below: "Well ... that is the stipulation, there must be an official then in the decree, but then there is not the decree, if not mistaken, there is no honorarium, so the decree is n't made haha ... (laughs)" The budget for the performance allowance is very important for the smooth process of managing the performance allowance, so it is good planning is needed so that it does not become an obstacle in the implementation of the performance allowance policy.
CONCLUSION
The implementation of the policy on the provision of employee performance allowance at Ternate General Election Commission related to communication, resources, disposition, and bureaucratic structures has been running well but they are not maximally, therefore it causes several deviations the management of performance allowances. The supporting factors for the implementation are: 1) The increasing performance allowance is a motivation factor in appreciating of the commitment of employees in completing their job well. With this increasing performance allowance, employees increase their performance, 2) Human resources (HR), is a factor that can help the implementation of the performance allowance policy, because the increase human resource basis on their competencies will guarantee the realization of the rules that have been set, and 3) The Commitment of implementing the policy, the performance allowance recipient employees who have attitudes or perspectives that support the policy will realize the process of implementing the policy of providing performance benefits effectively. Factors which become obstacles in the implementation of implementation are: 1) Employees do not set up Employee Performance goals at the beginning of the year which are the basis for calculating performance allowance besides employees’ attendance, 2) Lack of facilities and infrastructure, in this case is the list of electronic attendance records or finger print, and 3) The lack of a performance allowance budget is one of the factors that hinders the process of implementing the performance allowance policy because it will affect the process of disbursing the performance allowance expenditure.
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Jurnal Ilmiah Ilmu Administrasi Publik: Jurnal Pemikiran dan Penelitian Administrasi Publik Volume 9 Number 2, July– December 2019. Page 159-172 p-ISSN: 2086-6364, e-ISSN: 2549-7499 Homepage: http://ojs.unm.ac.id/iap
The Role of the Civil Service Police Unit in Implementing Regional Regulation No. 10 of 2014 concerning the Arrangement of Street Vendors in Ambon City
Hendry Selanno Administrasi Negara FISIP Universitas Pattimura Email: [email protected]
(Received: September 1-2019; revised: Oktober 25-2019; published: December 31-2019)
ABSTRACT The main problem in this study is "How the Role of Civil Service Police Unit in Implementing Ambon City Regulation No. 10 of 2014 at Ambon City Mardika Market?". This study uses a single variable, which involved 41 respondents by including 3 indicators: (1). The role of Civil service police Unit in controlling street vendors, (2). The role of Civil service police Unit in the supervision of street vendors, (3). The role of Civil service police Unit in enforcing the law against street vendors. The results showed that: the average role of Civil service police Unit in the three indicators, namely: control, supervision, and law enforcement against street vendors was considered to be still not good and showed that the role of Civil service police Unit was not fully in implementing Regulation No.10 of 2014. Problems experienced by Civil service police Unit officers in implementing Regional Regulation No.10 2014 in the Ambon City Mardika market are the number of street vendors is increasing from time to time and also the lack of awareness of street vendors in maintaining environmental cleanliness and also compliance with applicable regulations and the absence of special locations provided by the government for street vendors selling.
Keywords: Civil service police Unit, Street Vendors, Regional Regulations
INTRODUCTION
Population growth in urban areas has increased rapidly, due to the increasing number of people in rural areas who are migrating to urban areas (Pettigrew et al., 2019). The basic reason that people from rural areas who move to cities is that they think that life in urban areas is better than in rural areas(Andersson, Lavesson, & Niedomysl, 2018; Źróbek-Różańska & Zadworny, 2016). The assumption makes population density in urban areas so that the population growth rate is soaring, competition is so strong in the world of work, and lack employment in urban areas is causing more and more people to become unemployed. As a result, many unemployment choose becoming a peddler or also called a street vendor (Peou, 2016). Street Vendors (PKL) are informal sector businesses such as trading businesses. Usually street vendors settle in certain locations, there is also mobilization from one place to another (using a stroller, pick up,) peddling a variety of food and drinks and a variety of other consumer goods needed by the community in retail. Street vendors usually have a small capital, sometimes also as a tool for capital owners by getting a commission as their efforts. Street Vendors (PKL) are part of the informal sector. According to Evers & Korff (2002) street vendors are part of the urban informal sector that develops activities of producing goods and services outside of government control and is not registered. 160 Jurnal Ilmiah Ilmu Administrasi Publik: Jurnal Pemikiran dan Penelitian Administrasi Publik Volume 9 Number 2, July– December 2019. Page 159-172
The existence of street vendors opening employment causes unemployment as much as possible can be suppressed and the existence of street vendors is needed for the lower class because the prices offered are relatively cheap from modern shops or restaurants (Martínez, Short, & Estrada, 2017; Ojeda & Pino, 2019; Widjajanti, 2016). Nevertheless, the existence of street vendors can be beneficial but also bring new problems (Akib, 2012; Simatupang & Akib, 2011). The activities of street vendors are likened to illegal activities because the use of space that is not in accordance with its designation results in disruption of public interests. Such as street vendor (PKL) activities that use roads or roads and sidewalks for trading places, and littering behavior. To overcome this problem. Ambon City Government issues Regional Regulation (Perda) No. 10 of 2014 concerning the Arrangement of Street Vendors. This Perda regulates the Arrangement of Street Vendors. In this regulation, there is an article concerning the prohibition of street vendors to sell in certain places, namely as written in Article 4 paragraph 3 which reads as follows: a) Within the environment of Government agencies, b) Within the School environment, c) Within the environment worship, d) Around the market location, e) Above the roil and sewers, f) In city parks and green lanes, g) Around hero monuments and tombs, and h) All over the road body. Nevertheless, in reality, there are often street vendors, roadside sidewalks, and the outskirts of shops, in the center of the crowd and in front of shopping centers that should not be used for trading. The City Government less desires the activity of street vendors (PKL). Its presence is very contrary to the desire of the city that wants comfort, order, security, and beauty of the city. Street Vendors (PKL) who occupy the location of the business as they throw garbage everywhere. In carrying out the authority to enforce Regional Regulations, this task is left to the Civil Service Police Unit, which is regulated in Perda No. 5 of 2014 concerning the Establishment of the Organization and Administration of Ambon City Civil Service Police Unit Type A. Article 1 No. 8 which said that:
"The Civil Service Police Unit, hereinafter abbreviated as Civil service police Unit, is part of the regional apparatus in the enforcement of local regulations and the implementation of public order and public peace".
Implementation of law enforcement against street vendors Civil service police Unit Ambon City has main task and functions contained in Perda No. 5 of 2014 Article 4 and 5 which reads: "Article 4: Ambon City Civil service police Unit has the task of upholding the Regional Regulation and organizing public order and public peace and community protection. Article 5: In carrying out the tasks referred to in article 4, Ambon City Civil service police Unit has function: a) Preparation of the program and implementation of law enforcement, implementation of public order and public peace and community protection; b) Implementing the enforcement of regional regulations and regional head regulations; c) Implementing policies on the implementation of public order and public peace in the regions; d) Implementation of community protection policies; e) Implementation of coordination of enforcement of regional regulations and regional head regulations, implementation of public order and public peace with the Republic of Indonesia National Police, regional Civil Servant Hendry Selanno.; The Role of the Civil Service Police Unit... | 161
Investigators, and / or other apparatuses; f) Oversight of the community, apparatus or legal entity in order to comply with and obey Regional Regulations and regional head regulations; and g) Performing other tasks given by the regional head. The Civil Service Police must be able to take appropriate and wise actions, in accordance with the new paradigm of the Civil Service Police that is to be a friendly, friendly apparatus, can create an atmosphere of calm and coolness for the community, but remain firm in acting for the sake of enforcing regulations. According to the author's observations in the downtown crowd, the writer found several phenomena or symptoms that indicate that the government's role is still weak in controlling street vendors, these symptoms include: 1) Lack of firmness of Civil service police Unit officers in controlling street vendors. What is meant by the lack of firmness of Civil service police Unit members in controlling street vendors is that, in controlling street vendors sometimes Civil service police Unit members choose to love things because they are influenced by various factors including acquaintance factors, or because of compassion or pity for street vendors; 2) Lack of supervision carried out by Civil service police Unit officers. Lack of supervision by Civil service police Unit on street vendors because the number of Civil service police Unit personnel is less when compared to the number of street vendors who are so widespread, especially in Mardika Market, so that street vendors can sell arbitrarily and freely in the Mardika Market area; 3 ) Sanctions are given less firmly so that it does not give a deterrent effect to street vendors. Referring to the symptoms above, the main problem to be examined in this paper is: "What is the role of the Civil Service Police Unit in implementing Perda No. 10 of 2014 concerning the Arrangement of Street Vendors in Ambon City.
METHOD
This research uses qualitative methods and types of descriptive-analytical research. Qualitative research in political science is a general terminology to refer to data collection techniques such as observation, participant observation, intensive individual interviews, and focus group interviews, which seek to understand the experiences and practices of key informants and to place them appropriately in their context. Qualitative research is not aimed at confirming reality as in testing hypotheses but rather showing or constructing what was previously hidden becomes real, explicit (Creswell & Poth, 2018). This research was conducted at the Ambon City Civil Service Police Unit Office. The technique used in the collection of research data consisted of several ways, namely: Interviews, Observation, Documentation, and Questionnaires. Informant is a person who has information about the subject that the researcher wants to know. Technically, the informant is a person who can provide a rich, detailed and comprehensive explanation regarding what, who, where, when, how and why, for example, an event occurs or does not actually occur. The selection of informants is an important factor in a study that will be conducted. This is because the capacity of informants as providers of information needed in research. The informants were in the community of 30 people, and key informants as many as 5 people: Secretary of the Civil service police Unit 1 person, 2 employees of the Ministry of Industry and Trade, 8 street vendors and 30 people of Ambon City. The data collected related to each of the above indicators will be analyzed using 162 Jurnal Ilmiah Ilmu Administrasi Publik: Jurnal Pemikiran dan Penelitian Administrasi Publik Volume 9 Number 2, July– December 2019. Page 159-172
descriptive methods where the data obtained is displayed through a frequency table, then to draw conclusions about each indicator, seen through the tendency of respondents' answers. Then complicated with the results of interviews with key informants as long as needed.
RESULT AND DISCUSSION
Efforts to present a description of the condition of street vendors (PKL) in Ambon City Mardika Market, it can be seen in table 1 below.
Table 1 Street vendor data based on location of sale No. Location of sale Frequency (f) Percentage (%) Notes 1 In front of Bank Mandiri 49 17.37 2 Beside Bank AG 30 10.63 3 In Station Mardika 172 60.99 N = 282 4 Along the PU Bridge 31 10.99 Total 282 100 Data Source: Empirical Research in 2019
In table 1, it shows that street vendors selling at the front location of Bank Mandiri are 49 people (17.37%), selling in addition to Bank Arta Graha as many as 30 people (10.63%), selling in Mardika Station as many as 172 people (60.99%), and as many as 30 street vendors selling along the PU bridge (10.99%).
Table 2 Street vendors data based on gender No. Gender Frequency (f) Percentage (%) Notes 1 Female 104 36,87 2 Male 178 63,12 N = 282 Total 282 100 Data Source: Empirical Research in 2019
In table 2, it shows that the street vendors who are female are 104 people (36.87%), and those who are male are 178 people (63.12%).
Table 3 Street vendors data based on type of trade No. Type of Trade Frequency (f) Percentage (%) Notes 1 T-shirts, shoe pants etc. 192 68, 08 2 Fast food (meatballs, soup, ice, etc.), 52 18,43 N = 3 Basic food (vegetables, fruit, etc.), 38 13,47 282 Total 282 100 Data Source: Empirical Research in 2019 Hendry Selanno.; The Role of the Civil Service Police Unit... | 163
In table 3, it shows that street vendors selling shirts, pants, shoes and other equipment are 192 people (68.08%), street vendors selling fast food (meatballs, soto, ice, etc.) as many as 52 people (18 , 43%), and street vendors selling groceries (vegetables, fruit fish, etc.) as many as 38 people (13.47%). Control of street vendors is needed to provide a sense of comfort, security, and peace for the community. The increasing number of street vendors has resulted in an irregular arrangement of the city, and the result of street vendors is congestion that occurs in the Ambon Mardika market, not only the traffic jams that are generated but also the large number of street vendors selling garbage on the streets, sewers, and times and on bridges. For this reason, the role of the municipal police must be increased in controlling street vendors. Implementation of controlling street vendors conducted by Civil service police Unit against street vendors not only involve members of the municipal police but also involve many parties in controlling street vendors. Based on the results of an interview with Mr. YS as Secretary of the Civil service police Unit on the following are:
"In curbing the street vendors who violated the rules of the Civil service police Unit members, they did not work alone, but there were many parties involved, including the Transportation Agency, the Industrial Service, and the TNI / Polri"
Based on the results of the interview above, it can be seen that the controlling of street vendors is not only done by the municipal police but also involves various parties or agencies in it. To prevent street vendors from violating government regulations, there are various efforts taken by the municipal police to overcome the problems of street vendors, one of which is by promoting local regulations. The results of an interview with Mr. YS as Secretary of the Civil service police Unit who said that:
"The effort to socialize this regulation has been carried out by the government, where the socialization of this regulation involves various parties, ranging from the Department of Trade and Industry, Civil service police Unit itself, various street vendors representatives and also involving the Street Vendors Association in it so that these regulations on street vendors can be known by various parties involved ".
However, in reality, there are still many street vendors who sell on the sidewalks, bridges and others. This is because most street vendors think that their sales will be in demand when they sell in downtown places, this was also conveyed by Mr. Sarjuan, one of the street vendors who sell green banana ice on the PU bridge. He said that:
"The merchandise will run out quickly if I sell in this market, because many people who come like this now, if outside the market well, the merchandise is not in demand."
Not much different from the opinion of Mr. Sarjuan, a street vendor named Mr. Abdul who sells sharp objects such as knives, matches, and crowbars that sell around Bank Mandiri also said that: 164 Jurnal Ilmiah Ilmu Administrasi Publik: Jurnal Pemikiran dan Penelitian Administrasi Publik Volume 9 Number 2, July– December 2019. Page 159-172
"In the market this Mardika is the right place to sell my handiwork machetes, knives, crowbars because in the market many people come to the market to buy their wares." Based on the results of an interview with Mr. YS said that:
"In carrying out patrols in the context of controlling street vendors by Civil service police Unit members, there are several obstacles or difficulties faced by Civil service police Unit members, including the lack of awareness of street vendors about the cleanliness of the market environment and legal compliance coupled with the growing number of street vendors more and more days which resulted in the density of space for people to do activities "
The results of the interview above can be concluded that in controlling street vendors, Civil Service Police Unit members experienced problems in the form of a lack of street vendors' awareness of environmental cleanliness and legal compliance as well as the increasing number of street vendors from day to day. Based on the results of an interview with the Head of Ambon Mardika Market UPTD Mr. VM who said that:
"The number of street vendors in the Mardika market is very many that have just been registered in the Mardika Market data alone as many as 282 people, while there are many more street vendors who are not yet registered, he also added that all the street vendors in the Mardika market do not have permission to sell at a government-owned facility, he also added that every street vendors located in the Mardika market area must pay a levy of Rp. 2000 to Department of Industry and Commerce,officers while for street vendors who sell in the station Mardika they pay retribution to the transportation officer because the street vendors who are in it are included in the transportation environment. He also added that transportation officers should not charge levies to street vendors selling in the Mardika station, because it is not their authority but in order to avoid misunderstandings between Department of Industry and Commerce officers and Department of Transportation, there is already a policy from above, so transportation officers can collect levy fees. Street vendors who sell in the station ".
Furthermore, to find out the response or response from the community about the role of the municipal police in controlling street vendors can be seen in table 4.
Hendry Selanno.; The Role of the Civil Service Police Unit... | 165
Table 4 Public Response to the Role of Civil service police Unit in disciplining street vendors No. Question F % Ket 1 According to you, are the members of the municipal police in disciplining the well-behaved street vendors? a. Well 9 30 b. Not good 21 70 c. Not good - - 2 According to you, how is the Civil service police Unit's performance in controlling against street vendors? a. Good b. Fairly good 12 40 c. Not good 18 60 - - 3 According to you, how is the Civil service police Unit's performance in controlling against street vendors? N = 30 a. Good b. Fairly good c. Not good 13 43 17 57 - - 4 According to you, has the revision done so far by Civil service police Unit members made changes? a. Give change b. Giving less change - - c. Do not Provide changes 25 83 5 17 Data Source: Empirical Research in 2019
Based on the above table data it can be said that the responses of respondents regarding the attitude of the municipal police in curbing the street vendors in the market of Ambon Ambon, is not good seen from the results of research showing that 21 respondents (70%) say that the attitude of the municipal police officers is not good towards street vendors, while 9 respondents (30%) said that the attitude of the municipal police in curbing the street vendors had a good attitude. Furthermore, regarding the performance of Civil service police Unit in controlling street vendors, it can be seen that 18 respondents (60%) said that the performance of Civil service police Unit in controlling street vendors was not good, and as many as 12 respondents (40%) who said that the performance of the municipal police officers was good in controlling Street vendors. Regarding the task of Civil service police Unit in enforcing regulations, it can be seen from the results of the study that showed that as many as 17 respondents (57%) said that the task of Civil service police Unit in enforcing perda was still not good, and as many as 13 166 Jurnal Ilmiah Ilmu Administrasi Publik: Jurnal Pemikiran dan Penelitian Administrasi Publik Volume 9 Number 2, July– December 2019. Page 159-172
respondents (43%) who said that the Civil service police Unit task it is good in enforcing local regulations. While regarding the impact or changes that occur after the implementation of PPL policing by the Civil service police Unit, it can be seen that 25 respondents (83%) said that there was no significant change given by Civil service police Unit officers after curbing the street vendors, and as many as 5 respondents (17% ) said there was no change after the municipal police ordered the street vendors to curb. Thus from the description above, it can be concluded that the role of the municipal police in controlling street vendors in terms of attitude, performance, implementation of tasks and the impact felt by the community after controlling street vendors by the municipal police, is considered to be still not good. Supervision is an important element in achieving a certain goal. With good supervision, we can know the development of the objectives to be achieved. According to Sule and Saefullah (2005: 317), the supervisory function is basically a process carried out to ensure that what has been planned is running as it should. The supervisory function also processes to correct ongoing activities so that they can continue to achieve what was planned In the context of controlling street vendors in the Mardika Civil service police Unit market, they routinely conduct surveillance by Civil service police Unit members who have been placed in designated locations. According to an interview with YS as the Civil service police Unit Secretary who said that:
"The form of the role of the Civil service police Unit in the supervision of street vendors is by conducting routine patrols and 24-hour pickets by Civil service police Unit members, he also added that patrols in the context of public order are carried out 3 times a day, morning, afternoon and evening"
This is inversely proportional to the opinion of the community, which mostly said that the Civil service police Unit members only supervised or patrolled at certain times or at a predetermined time and this monitoring process did not occur at any time. Mr. Abdul PKL seller of green banana ice that said that also confirmed this:
"Members of the municipal police usually carry out surveillance as well as control in the morning around 08.00-11.30 after that they return to their posts and we can sell again as usual".
Based on the results of the interview above, it can be concluded that the street vendors who are in the Mardika market are only in an orderly manner when members of the municipal police conduct raids or control, after the raid ends, the street vendors can be free to sell as usual. From the interviews above, the Civil service police Unit members should increase their role as local law enforcers by increasing supervision so that street vendors can be well controlled. Talking about the level of supervision carried out by the municipal police then the secretary of the municipal police said that
Hendry Selanno.; The Role of the Civil Service Police Unit... | 167
"Supervision of municipal police is maximized by the construction of 4 permanent picket posts located in the mardika market located next to: BCA Bank, in front of Bank Mandiri, station A1 and station A2 and each post is occupied by between 6 to 10 members of the police force pp.
From the results of the above interview, it can be concluded that there is already a good oversight role from the members of the civil service police Unit, as the Head of UPTD Pasar Mardika VM he said that:
"Civil service police Unit members have carried out their duties well by controlling the traders who sell at markets and street vendors who sell at random places around the location of the Mardika market. There is a difference between traders who sell in the mardika market and street vendors where traders are people who run businesses selling, handicraft businesses, or small carpentry businesses, and in general, they sell with relatively varied capital who is engaged in the production and sale of goods or services. Services to meet the needs of community groups. Traders can be categorized into: 1). Wholesaler, operates in a distribution chain between producers and retailers. 2). Retailers, also called retailers, sell commodity products directly to consumers. The owner of a shop or stall is a retailer, while street vendors are people who sell by the side of the road, sidewalks, or who use public facilities, and they are temporary or do not settle using mobile or immovable equipment. He also added that for the provision of merchant places for traders, they have been placed in locations that have been provided by the government, namely by constructing shanties that are bounded by fences, while locations for street vendors have not yet existed, while the government is currently reviewing locations that will later be used for a place to sell street vendors ".
The following is the community's response to the role of the municipal police in supervising foot traders, which can be seen in the table 5. Based on the above table data it can be said that the responses of respondents regarding the active role of the municipal police in supervising street vendors, seen from the results of the study that as many as 23 respondents (77%) said that the municipal police had an active role in the supervision of street vendors, and as many as 7 respondents (23%) who said the municipal police were less involved in the supervision of street vendors. Regarding the implementation of supervisory tasks by the municipal police for street vendors, it can be seen that as many as 14 respondents (47%) said that the implementation of the supervision by the municipal police was good for street vendors, while 16 respondents (53%) who said that the implementation of supervisory duties by Civil service police Unit to street vendors is still not good. Furthermore, regarding the pattern of distribution of Civil service police Unit members in supervising street vendors, seen from the results of the study that as many as 18 respondents (60%) who said that the pattern of spreading Civil service police Unit members had been regular in overseeing street vendors while as many as 12 respondents (40%) who said that the pattern of distribution of members of the municipal police was considered to be less regular in overseeing street vendors.
168 Jurnal Ilmiah Ilmu Administrasi Publik: Jurnal Pemikiran dan Penelitian Administrasi Publik Volume 9 Number 2, July– December 2019. Page 159-172
Table 5 Public Response to the Role of Civil service police Unit in Supervision of street vendors No. Question F % Notes
1 According to you, do the municipal police really play a role in the supervision of street vendors? a. Play a role 23 77 b. Not playing a role 7 23 c. No role - - 2 According to you, have the Civil service police Unit members been carrying out the supervision of the street vendors well? a. Good 14 47 b. Fairly good 16 53 c. Not Good - - 3 According to you, is the pattern of the deployment of Civil N = 30
service police Unit members in order to supervise street
vendors? 18 60 a. Regular 12 40 b. Less regularly - - c. Irregular 4 According to you, do the members of the municipal police always monitor the violations committed by street vendors? a. Routine b. Sometimes 10 33 c. Never 20 67 - - Data Source: Empirical Research in 2019
While regarding the level of supervision carried out by members of the municipal police for street vendors, it can be seen that as many as 10 respondents (33%) said that the level of supervision carried out by members of the municipal police was routine in conducting surveillance, and as many as 20 respondents (67%) said that the level of supervision carried out by members of the municipal police sometimes in carrying out supervision of street vendors. Thus from the description above it can be concluded that the role of the municipal police in supervising street vendors is seen in terms of: the role, and pattern of distribution of members of the municipal police are considered to be good, while in terms of supervisory duties, and the level of supervision carried out by municipal police is less good. The role of the civil service police in enforcing regional regulations in Ambon city is quite a role because the civil service police have the main task of assisting the Mayor and Regional Head in carrying out governmental tasks in the field of public order and peace and Hendry Selanno.; The Role of the Civil Service Police Unit... | 169
enforcement of regional regulations. Based on interviews with Mr. YS as Secretary of the Civil service police Unit said that:
"The Civil Service Police has played a sufficient role in the framework of enforcing Local Regulations by conducting extension activities, operating with a hunting system (car), conducting routine and regional patrols, holding guarded vulnerable places, and controlling the street vendors."
In accordance with the Civil service police Unit procedure in following up actions that violate local regulations violated by street vendors, the steps taken by Civil service police Unit officers are confiscation of merchandise. Based on the results of an interview with the Secretary of the Civil service police Unit said that
"If it is found that street vendors who violate regional regulations, the first step taken is to provide guidance, or non-judicial actions in the form of reprimands and confiscation of merchandise, reprimand is given to the street vendors three times, if the street vendors still commit violations then his merchandise will be secured, he also said that if a street vendor wants his merchandise back, it must be accompanied by signing a statement stating that he will not violate it again, and if one day a street vendor is found violating, his merchandise will automatically be confiscated by officers Civil service police Unit and will not be returned to the street vendor. He also said that there were already regulations on sanctions for street vendors, namely regulation 7 on 2017 for fines. But this regulation is still being socialized or in the testing phase, because the one who has the right to determine the amount of the fine for violators is the court ".
The following is a response from the community about the role of the municipal police in law enforcement against street vendors, which can be seen in table 6. Based on the above table data it can be said that the respondent's response regarding sanctions in accordance with the applicable rules given by the municipal police to street vendors, can be seen from the results of the study which said that as many as 19 respondents (63%) who agreed with the appropriate sanctions given by the civil service police unit to street vendors, while as many as 11 respondents (37%) who did not agree that the sanctions imposed by the municipal police on street vendors did not comply with applicable regulations. Regarding the deterrent effect arising from the law enforcement given by the municipal police on street vendors, it can be seen that as many as 24 respondents (80%) said that the sanctions imposed by the municipal police on street vendors could not provide a deterrent effect on street vendors, while as many as 6 respondents (20%) said that the sanctions imposed by the municipal police on street vendors did not provide a deterrent effect at all. Furthermore, regarding the firmness of the Civil service police Unit members in law enforcement for violations committed by street vendors, it can be seen that as many as 25 respondents (83%) said that the Civil service police Unit members had taken a firm stance in enforcing the law against violations made by street vendors, while as many as 5 respondents 170 Jurnal Ilmiah Ilmu Administrasi Publik: Jurnal Pemikiran dan Penelitian Administrasi Publik Volume 9 Number 2, July– December 2019. Page 159-172
(17%) who said that members of the municipal police could not take a firm stand in law enforcement against street vendors.
Table 6 Public Response to the Role of Civil service police Unit in Law Enforcement Street vendors No. Question F % Notes 1 According to you, have the sanctions given by the municipal police in disciplining street vendors in accordance with applicable regulations? a. Corresponding 19 63 b. Not suitable 11 37 c. It is not in accordance with - - 2 Do you think that the sanctions imposed by the municipal
police officers on street vendors have a deterrent effect?
a. Give a deterrent effect - - b. Lack of a Deterrent Effect 24 80 c. Does not give a deterrent effect 6 20 N = 30 3 According to you, have members of the municipal police have been firm in law enforcement for violations committed by street vendors? a. Assertive 25 83 b. Lack of firm 5 17 c. Not strict - - 4 According to you, so far has the municipal police unit been able to carry out the enforcement of regional regulations? a. Able 14 47 b. Less fortunate 16 53 c. Unable - - Data Source: Empirical Research in 2019
Whereas regarding the ability of the municipal police to carry out regional regulations in Ambon city, seen from the results of the study that as many as 14 respondents (47%) said that the municipal police were able to carry out the enforcement of local regulations, while as many as 16 respondents (53%) who said that the members of the civil service police unit has not been able to carry out the enforcement of regional regulations in Ambon City. Thus based on the description above, it can be concluded that the role of the municipal police in law enforcement against street vendors is seen in terms of: the suitability of the sanctions given by the municipal police for street vendors, and the firmness of the municipal police in providing sanctions to street vendors considered to be appropriate and firmly, whereas in terms of: deterrent effect arising from law enforcement by the municipal police, and Hendry Selanno.; The Role of the Civil Service Police Unit... | 171
the ability of the municipal police to implement enforcement of regional regulations is considered not to provide a deterrent effect and has not been able to implement law enforcement against street vendors.
CONCLUSION
Based on the results of research and discussion, it can be concluded that in implementing Regulation No. 10/2014 on the Arrangement of Street Vendors in Ambon City in terms of the role of Civil service police Unit in: 1) policing of street vendors in the Mardika Ambon market is still less than the maximum in terms of human resources and in terms of carrying out tasks because up to now street vendors are still difficult to control, 2) supervision of street vendors has not been able to bring order to street vendors even though the distribution of Civil service police Unit members is evenly distributed, 3) Law enforcement of local regulations has not been able to provide significant changes to the community, imposing less strict sanctions so as not to cause a deterrent effect for street vendors.
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Raising Fisheries Development Program Evaluation in The District Lingga Riau Islands Province
Desi Waryanti1, Kismartini2, Triyuniningsih3 Master of Administrative Sciences, Diponegoro University Email: [email protected], [email protected] 2, [email protected]
(Received: July 25-2019; revised: November 28-2019; published: December 31-2019)
ABSTRACT This study aimed to analyze the evaluation of aquaculture development program in the District Lingga Riau Islands province with output policy indicators and policy outcomes. This research is a descriptive qualitative research. Research site located in the District Lingga Riau Islands province with informants (1) Head aquaculture Marine and Fisheries Agency of Riau Islands province; (2) The chairman, secretary and members of the technical team; (3) Extension of fishery labor contract; (4) The Board pokdakan, then the secondary data, documents, and statistical data. Collection technique used is the technique of in-depth interviews (in-depth interview), observation, documentation, and literature. Engineering validation test data in this study using the technique of triangulation of data, with data analysis techniques of data reduction, data presentation, and draw conclusions (verification). Results showed that the implementation of the program is not maximized especially at the stage of monitoring, coaching and mentoring. Then the program implementation performance is still low. Advice can be given is to improve the monitoring system, the appointment of a companion with consideration of domicile, and coaching and training routine.
Keywords :Evaluation of the program, the Program Implementation, Program Development
INTRODUCTION
Aquaculture Development Program is one of the strategic program Riau Islands provincial government to support business development in the field of fish farming and aquaculture optimize resource utilization, with the purpose of the activities is to increase production and income, foster entrepreneurship, institutional strengthening and improving environmental groups. The program is based on the Riau Islands Provincial Regulation No. 6 of 2006 on Marine Enterprises which urged that the regional resource use must be made in efficient and effective manner. One of the districts in Riau Islands province who runs this program is Lingga District. Aquaculture development program in the District Lingga, implemented by providing assistance / grant Keramba cage (KJA) HDPE to fishermen in 2012 and 2013. Through this program, the government actually hope efforts of fish farmers will be more advanced and increased welfare and people's economy will develop well. The indicators to measure the success of efforts pokdakan Aquaculture Development Program recipients are increasing production, improving incomes, and access to financing at a fish farmer group (pokdakan). However, apparently the result of production of fish farmers in the district of Linga can be said not stable even though the district has received aid Aquaculture Development 174 Jurnal Ilmiah Ilmu Administrasi Publik: Jurnal Pemikiran dan Penelitian Administrasi Publik Volume 9 Number 2,July – December 2019. Page 173-184
Program as shown in the following table: actually the government hopes the effort will be more advanced fish farmers and increased welfare and people's economy will develop well. The indicators to measure the success of efforts pokdakan Aquaculture Development Program recipients are increasing production, improving incomes, and access to financing at a fish farmer group (pokdakan). However, apparently the result of production of fish farmers in the district of Linga can be said not stable even though the district has received aid Aquaculture Development Program as shown in the following table: actually the government hopes the effort will be more advanced fish farmers and increased welfare and people's economy will develop well. The indicators to measure the success of efforts pokdakan Aquaculture Development Program recipients are increasing production, improving incomes, and access to financing at a fish farmer group (pokdakan). However, apparently the result of production of fish farmers in the district of Linga can be said not stable even though the district has received aid Aquaculture Development Program as shown in the following table: The indicators to measure the success of efforts pokdakan Aquaculture Development Program recipients are increasing production, improving incomes, and access to financing at a fish farmer group (pokdakan). However, apparently the result of production of fish farmers in the district of Linga can be said not stable even though the district has received aid Aquaculture Development Program as shown in the following table: The indicators to measure the success of efforts pokdakan Aquaculture Development Program recipients are increasing production, improving incomes, and access to financing at a fish farmer group (pokdakan). However, apparently the result of production of fish farmers in the district of Linga can be said not stable even though the district has received aid Aquaculture Development Program as shown in the following table:
Table 1 Total production of Aquaculture in the District Lingga
Type No. Year sea bargain Brackish
1 2015 400.84 9.04 22.98
2 2016 118.78 18.81 0.13 3 2017 2.36 18.06 20.87 Source: Department of Marine and Fisheries LAKIP Riau Islands province, 2018
Then, the level of prosperity of the farmers in the district Linga can also be said to be still lacking, this is caused by lack of access to capital, markets and technology, social protection culture, no assets as active capital, the poor quality of the environment as well as weak institutional business group of marine and fisheries, including group fish farmers (pokdakan). Some of these problems are also found in previous studies related to the implementation of the Development of Fish Cultivation in Keramba cage in Maninjau, West Sumatra, in the results of this evaluation, it is known that the use of floating cages still produce a lot of trash fish feed is wasted that is not environmentally friendly, management of aquaculture in Lake Maninjau is also relatively simple,(Rasidi, Erlania, & Prasetio, 2010), Then, the results of research Wahyuni Desi Waryanti, Kismartini, Triyuniningsih; Raising Fisheries Development Program... | 175
et al, in a study Evaluation Program Aquaculture Development in Batu, program development of aquaculture can provide a less than optimal in terms of fish production and prosperity of farmers due to weak institutions farmers, allocation of funds according to needs, and marketing difficulties resulting from cultivation(Wahyuni, Hanafi, and Saleh, 2013) Noted several problems related to the implementation of the Program Development of Aquaculture in Lingga Regency which was also experienced by other regions as outlined in earlier studies although not in areas of the same, hence the need for further research related to the evaluation of program development of Aquaculture in the District Lingga so that later it can be seen how the implementation of the program and why the implementation of this program has not been maximized (Farida, 2017; Nawir, Maulana, Nuryamin, & Husain, n.d.; Niswaty, Juniati, Darwis, Salam, & Arhas, 2019; Syamsiar, Saggaf, Salam, & Ihsan, 2018)(Langkai, Akib, Musah, & Naharia, 2016; Simatupang & Akib, 2011; Smith & Akib, 2015; Suprapto, Pomalingo, & Akib, 2018). Evaluation is one stage in public policy (Dunn, 2003, pp. 24-25) in the evaluation are true systemic mindset consists of three (3) components: Input, Process, Output (Sabdaningtyas, 2018), In the public policy there is also the implementation stage (Purwanto & Sulistiyastuti, 2012) explains that the core of the implementation phase is an activity to distribute the output of the policy (to deliver policy outputs) conducted by the implementor to target groups (target groups) in an effort to realize the objectives of the policy, which in its evaluation can use two (2) output indicators ( policy outputs) and impact indicators (Policy outcomes). For research related to program evaluation, researchers used the policy theory output(Ripley & Franklin, 1968)where in evaluating a program, can use indicators - output indicators consisting of: (a) access, (b) Scope, (c) Frequency, (d) Bias / Distortion, (e) the accuracy of the Service, (f) Compliance program with needs. The theory of policy outputs can be used to determine the direct consequence received or perceived by the target group of the realization of an activity or program (Hariani, 2017), Departing from the problems and theories that have later this study will examine how the evaluation of the implementation of the program development of aquaculture in the District Lingga Riau Islands province and how the real impact on the development of aquaculture in the District Lingga Riau Islands province where the research has not been conducted in the district, so this research is research that is new to the district Lingga.
METHOD
The approach used in the study is a qualitative research, because the problem of the dynamic nature of this study, which according Singarimbun (Sugiyono, 2009)Qualitative methods are used to the problems that remain unclear, the little population and the limited area coverage, while descriptive used to measure carefully to uncover phenomena that exist in the field and develop concepts and collect data and facts, but does not test the hypothesis. The approach used next is the type of approach used descriptive perspective is the perspective of formal evaluation. Research site located in the district taken Lingga Riau Islands province with study sites Medang Island Village, District Senayang, because the village is a village, which is supported aquaculture development programs in the form of grants Keramba cage in 2012-2013. The data used in this research is primary data obtained directly from informants consisting of: 176 Jurnal Ilmiah Ilmu Administrasi Publik: Jurnal Pemikiran dan Penelitian Administrasi Publik Volume 9 Number 2,July – December 2019. Page 173-184
(1) Head aquaculture Marine and Fisheries Agency of Riau Islands province; (2) The chairman, secretary and members of the technical team; (3) Extension of fishery labor contract; (4) The Board pokdakan. Determination of informants in this study using purposive sampling technique, the technique of determining the informant in a way been directly according to the research objectives(Afifuddin & Beni, 2009), Then the secondary data obtained through documents grouped data, production data and revenue fish farmers who are members of pokdakan and other official documents, then the data obtained from statistical data Aquaculture Marine and Fisheries Agency of Riau Islands province. Collection technique used is the technique of in- depth interviews (in-depth interview), observation, documentation, and literature. While the data validation testing technique(Bungin, 2015) in this study using triangulation techniques of data, with data analysis techniques of data reduction, data presentation, and drawing conclusions (verification) (Miles, Huberman, and Saldana, 2014).
RESULT AND DISCUSSION
Aquaculture Development Program is one of the strategic program Riau Islands provincial government to support business development in the field of fish farming and aquaculture optimize resource utilization, with the purpose of the activities is to increase production and income, foster entrepreneurship, institutional strengthening and improving environmental groups. Aquaculture Development Program being implemented in some counties and cities in the province of Riau Islands one of them in the district of Linga. This program has been implemented in Lingga District since 2012. The main components of Aquaculture Development Program activities in the District Lingga is channeling aid Keramba cage (KJA) HDPE, as an effort to increase the production of marine fish farming. In 2012 this program has collected as many as 20 (twenty) heads of household who are members of one (1) pokdakan beneficiary form Keramba cage (KJA), then in 2013 the number of heads of families in pokdakan acceptance of assistance increased by 20 (twenty) Head of the family consisting of 2 (two) pokdakan beneficiary Keramba cage, bringing the total pokdakan who have received the benefits of aquaculture development program in the form of Keramba cage for three (3) pokdakan. Keramba cage, which was given to 40 (forty) of fish farmers is composed of 80 (eighty) swath cages 3x3 meters each needs plots where the whole plot is centralized in one place and each member is responsible for the care of two (2) swath cages , then in 2013 the number of heads of families in pokdakan acceptance of assistance increased by 20 (twenty) Head of the family consisting of 2 (two) pokdakan beneficiary Keramba cage, bringing the total pokdakan who have benefited from the program development of aquaculture in the form of cages Floating net 3 (three) pokdakan. Keramba cage, which was given to 40 (forty) of fish farmers is composed of 80 (eighty) swath cages 3x3 meters each needs plots where the whole plot is centralized in one place and each member is responsible for the care of two (2) swath cages. Then in 2013 the number of heads of families in pokdakan acceptance of assistance increased by 20 (twenty) Head of the family consisting of 2 (two) pokdakan beneficiary Keramba cage, bringing the total pokdakan who have benefited from the program development of aquaculture in the form of cages Floating net 3 (three) pokdakan. Keramba cage, which was Desi Waryanti, Kismartini, Triyuniningsih; Raising Fisheries Development Program... | 177
given to 40 (forty) of fish farmers is composed of 80 (eighty) swath cages 3x3 meters each needs plots where the whole plot is centralized in one place and each member is responsible for the care of two (2) swath cages, bringing the total pokdakan who have received the benefits of aquaculture development program in the form of Keramba cage for three (3) pokdakan. Keramba cage, which was given to 40 (forty) of fish farmers is composed of 80 (eighty) swath cages 3x3 meters each needs plots where the whole plot is centralized in one place and each member is responsible for the care of two (2) swath cages, bringing the total pokdakan who have received the benefits of aquaculture development program in the form of Keramba cage for three (3) pokdakan. Keramba cage, which was given to 40 (forty) of fish farmers is composed of 80 (eighty) swath cages 3x3 meters each needs plots where the whole plot is centralized in one place and each member is responsible for the care of two (2) swath cages , The process of implementation of the program development of aquaculture in the District Lingga begins with the preparation from planning to budgeting, at this stage also formed the Technical Committee, comprised of Extension Fisheries Labor Contract (PPTK) 1 (one), in others years, the Technical Team as much as 3 (three people. Then be disseminated to pokdakan in stages. Aquaculture Development Program Socialization Lingga District level held in conjunction with the process of identification, verification and selection of prospective beneficiaries, have been in the absence of specific budget for prospective beneficiaries gather in one place to anticipate these conditions. So socialization is done to prospective beneficiaries are predetermined and resumed at the stage of filing of administrative requirements pokdakan of beneficiaries. Once set anyone pokdakan receiver, then the next is the distribution of aid in accordance with the Decree of the Governor of Riau Islands province, along with the minutes to be taken by the chairman pokdakan, at this stage there is a monitoring system which then continued with the help of guidance and assistance of the Technical Committee. The implementation of the process then researchers sought to evaluate the process of implementation of the program using the 2 (two) indicators, namely Output Policy and Policy Outcome. In a second evaluation indicators are included in the dimensions of policy performance evaluation, and as a true indicator measuring devices can bersfat narrative and figures(Hariani, 2017), The results obtained from this research with the study site in the village of Medang Island are as follows:
Evaluation of the Policy Indicators Output
Policy output in a dimension of evaluation presented what is actually done from a program (Poister, 2013), In this study, to see the direct consequences of perceived and experienced by groups of beneficiaries / target in this case is a group of fish farmers (pokdakan) in the district of Linga beneficiaries Aquaculture Development Program assistance in 2012 and 2013. The results of the evaluation of these indicators are as follows:
(a) Access: Access indicator used to see if the implementor can easily be reached by the target when needed (Rachman, 2014), In this component, the study will look at in terms of communication between the implementor with pokdakan to find out information about the program and to submit a complaint if they had experienced problems during the 178 Jurnal Ilmiah Ilmu Administrasi Publik: Jurnal Pemikiran dan Penelitian Administrasi Publik Volume 9 Number 2,July – December 2019. Page 173-184
implementation process of Aquaculture Development program. Communication between the implementer with pokdakan while it is still less than the maximum, because the officer escort drawn from extension agents Fisheries Tenga Contract (PPTK) not being in the midst of society although communication via phone or sms can still be done, but the interaction is intense between companion with pokdakan less developed well. If there is a problem, (b) Scope: Indicators of this scope is used to assess how much of the target group can be reached Aquaculture Development Program in the District Lingga. The yield on this indicator can be said is still low, the percentage of beneficiaries fish farmers in the village of Island Medang when compared with the total number of fish farmers in the district of Lingga each year has a lower percentage. In 2012 the percentage of fish farmers in the village Medang beneficiaries only about 1.77% and 2.67% next year, but the figures show no more than 2.67%. This illustrates that the scope or coverage of the program to the population of fish farmers in the district of Lingga still low.
Figure 1. Scope of Aquaculture Development Program in the District Lingga with Medang Island Village Study Area in 2012 (left) and 2013 (right)
(c) Distortion: This indicator is used to assess whether the services provided by the implementer deviate from a specified target group of Aquaculture Development Program. The yield on these indicators demonstrate that the discovery of bias / distortions in the implementation of the program. One of the requirements of Aquaculture Development Program is the nominee is a community of fishermen / fish farmers who are interested, willing to develop fish farming, and committed to managing the benefit package. However, there are still communities are not fishermen participate merima aid Aquaculture Development Program. The number of people receiving non-fishermen aid amounting to 10 (ten). (d) Accuracy of Service: What is meant in this indicator is the timely implementation of the program on the disbursement of aid in the program Aquaculture Development Program. On the implementation in 2012 and 2013 aid Aquaculture Development Program submitted to pokdakan in October, in which the moon has entered the rainy season so the fish farming activity mainly enlargement can be run as usual for this business unit's supply required plenty of water and continuously. Desi Waryanti, Kismartini, Triyuniningsih; Raising Fisheries Development Program... | 179
(e) Conformity of the program to the needs: This indicator is used to measure whether the various outputs of Aquaculture Development Program in the District Lingga received by the target group in this case pokdakan is consistent with the requirements or not. Requirements referred to in this context is the need to increase the production of fish farming. Based on the results of observations and interviews to 3 pokdakan beneficiaries of Aquaculture Development Program concluded that the aid granted in the form of aid Keramba cage (KJA) HDPE has been in accordance with the need to increase the production of fish farming. Because since the beginning of the relief is based on the basic needs pokdakan for the development of fish farming.
Figure 2. Production Value graph Pokdakan Beneficiaries Aquaculture Development Program Medang Desa Lingga District in the year 2013 - 2015 Source: Processed researchers
Figure chart 2 shows an increase in the value of fish production in the village Pokdakan Medang. The graph shows the increase after the aid granted, this shows that the program complies with the requirements. But still there is 1 (one) pokdakan which actually declined in 2015, namely pokdakan Tunas Baru.
Outcome Evaluation of the indicator Policy
Policy outcomes are the results obtained from the program (Poister, 2013), This indicator can be seen from three (3) components: First: initial direct impact or outcome of the implementation of the program; Second: the impact of mid-term or intermediate outcomes; Third: the impact of long-term or long-term outcome. The results showed as follows: a) Direct Impact (Initial Outcome): This impact is the impact that is felt directly by the target group when receiving assistance from the program, in this study the views from the increase in fisheries production and the average - average incomes of farmers’ pokdakan. The existence of these programs have a direct impact in the form of an increase in production value in 2015 Pokdakan although Pokdakan Tunas Baru decreased, even in 180 Jurnal Ilmiah Ilmu Administrasi Publik: Jurnal Pemikiran dan Penelitian Administrasi Publik Volume 9 Number 2,July – December 2019. Page 173-184
2016 was not found pokdakan production value data is different from the two (2) pokdakan another. However, despite increased sabra pokdakan waiting and new business declined rapidly in 2016. The increase in production was followed by an increase in income as can be seen in the following graph:
Figure 3. Graph Pokdakan Aquaculture Production Value in Area Studies Medang Island Village, Lingga District in 2013-2015 Source: Processed researchers
Figure 4. Graph pokdakan Income levels in Medang Island Village Study Area, Lingga District in 2013-2015 b) Medium Impact (Intermediate Outcome) On the medium-term impact indicators, which in the evaluation consists of two (2) things: 1). The growth of entrepreneurship in the field of aquaculture, where pokdakan have been able to grow market share by expanding the marketing of products, from developing new business units that support the activities of the fisheries industry and started his access to capital from microfinance institutions or banks, as well; 2). Increasing the institutional capacity of the group of fish farmers, where pokdakan has been able to position and its role as a vehicle of learning both for its Desi Waryanti, Kismartini, Triyuniningsih; Raising Fisheries Development Program... | 181
members as well as fish farmers more, pokdakan able to take the role as a vehicle for cooperation between fisheries business and future pokdakan been able to perform its role as social institutions as well as institutions economy.
Table 2. Business development and capacity pokdakan in Area Studies Medang Island Village Linga District in 2012-2013
No Pokdakan Year Received Pioneering New Venture Capacity Help effort Pokdakan Pokdakan 1. Tunas Baru 2012 enlargement enlargement Savings and grouper snapper Loan 2. Patiently 2013 enlargement There is no There is no waiting snapper 3. New venture 2013 enlargement There is no There is no grouper Source: processed researchers
Table 2 shows that the secondary effects of this program does not appear on pokdakan Sabar Menanti and New Business, otherwise the impact is felt by Pokdakan Tunas Baru, pokdakan is able to develop a new business venture that enlargement snapper and micro-credit. Tunas Baru Pokdakan also able to increase institutional capacity in the form of savings and loans institutions managed by the pokdakan with the aim of meeting the needs of member pokdakan. While pokdakan Sabar Menanti and New Venture does not happen the development of business and strengthening institutional capacity pokdakan, is caused by high feed prices, so that the crop unprofitable because of high operating costs. While strengthening the institutional capacity of pokdakan Sabar Menanti and New Business does not exist,
Impact Long (Long-term Outcome): This impact seen from the extent to which pokdakan pokdakan able to become a prosperous and independent. So far the long-term impact has not been visible. Pokdakan members' income is not significant in the long term even some groups temporarily cease due to the dry season, then pokdakan also still rely no capital granted by the relevant department and there is no one who can access the program credit (KUR and KKP-E).
CONCLUSION
The results showed that the implementation of aquaculture development program in the District Lingga Riau Islands Province conducted since 2012 and still not up because there are 182 Jurnal Ilmiah Ilmu Administrasi Publik: Jurnal Pemikiran dan Penelitian Administrasi Publik Volume 9 Number 2,July – December 2019. Page 173-184
some components in the output policy indicators and policy outcomes is still less than the maximum. In the evaluation result indicator output policy on access components constrained in the presence of a technical team that is not always in the field so as to interrupt the direct communication, the components of the coverage, scope of programs in the study area is low at 1-2% range, the bias component still seen in this case the recipient is not in accordance with predetermined rules, there are still non-farmers are getting help, sselanjutnya terms of promptness of service of this program has been judged appropriate for the help given during the rainy season so that development activities are carried out as usual, and component conformity of the program with the need also considered appropriate because since the beginning of the relief is based on the basic needs pokdakan for the development of fish farming , While the indicator policy outcomes, indicators direct impact there is an increase in the value of production and revenue although in 2015 Pokdakan Tunas Baru decreased followed by two (2) pokdakan other, the medium-term impact is only felt by 1 (one) pokdakan, next to term impact length of the long-term impact so far has not seen. It can be concluded that the Aquaculture Development Program in the District Lingga by looking at study sites in the Village of Medang Island is not maximized.
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The Fusion of Competence and Integrity Problems in Transformation of Public Human Resources Management Model
Dahlan1, Fatmawada2 Institut Ilmu Sosial dan Ilmu Politik Yapis Biak Papua Email: [email protected]
(Received: May 15-2019; revised: Juny 10-2019; published: December 31-2019)
ABSTRACT
The limited quality of human resource management in the Biak Numfor Regency in Papua requires fundamental transformation. Based on available data, the determinants that reject the transformation process include two categories, namely, lack of competence and integrity. This study uses a post- positivistic interpretive phenomenological philosophy that emphasizes the meaning and descriptive process to understand the process of transformation. Local government leaders who are not trustworthy in applying the concept of human resource management based on the Cakar thesis latently significantly affect the integrity of the domestic apparatus. That has an impact on the lack of credibility of the Biak Regional Human Resources Development Agency. In short, increasing the competency of human resources as an effort to produce adequate human resources in this region becomes an important key for successful transformation.
Keywords: Competence, Integrity, and Transformation of HRM Model
INTRODUCTION
The credibility of the managers of human resources (HR) in developing the quality of the apparatus in Indonesia has drawn criticism (Arndt, 1975; van Dijk & Szirmai, 2006). In the network of government organizations, criticism is directed at agencies, fields or parts of HR which are still commonly identified with mere personnel administration issues, and are only played marginally in controlling the strategic direction of the organization (Arndt, 1975; Nomura, 2009; Wihantoro, Lowe, Cooper, & Manochin, 2015). Therefore, the HR department is less viewed as an equal partner by other fields or sections in moving the direction of the organization (Akib, Guntur, & Salam, 2016; Ismail, Sulur, Akib, & Salam, 2016; Said, Salam, Akib, & Baharuddin, 2017). This reality happens in the network of government organizations in Indonesia today. To reverse this kind of situation, there are at least two strategic steps to improve the internal self of HR managers that need to be confirmed and practiced immediately. This strategic step will enable the apparatus of HR managers to adapt to the organization's strategic environment and conceptual options that allow it to be practiced in an organizational climate where managerial structures and functions still tend to be rigid. Kwon (2009) emphasis on the urgency and relevance of human capital strategies in the management of HR management is very relevant in this regard. First, every public HR manager must understand the sectoral dynamics they are working in (Harris Mulvaney, Zwahr, & Baranowski, 2006; Hiltrop, Despres, & Sparrow, 1995; Saidi, Mansor, Anvari, & Hassan, 2014; Shukla, 2014; Zhang & Nesbit, 2018). At least know the 186 Jurnal Ilmiah Ilmu Administrasi Publik: Jurnal Pemikiran dan Penelitian Administrasi Publik Volume 9 Number 2,July – December 2019. Page 185-190
position of the organization in the competition map and be able to read the direction of future development. It is time for public organizations to delve into the meaning of competition because a few public goods and services have been managed through public service agencies that receive their income directly from the public (market) in competition with operators of public goods services of the private sector. The apparatus HR managers are still stuttering and have not yet mastered the dynamics of the sector's development in their fields or also about the configuration of future competition. Even many of them do not know the achievement/performance of services and other competitors' innovations on the market share of public goods and services that they manage. Second, equip yourself with a solid understanding of various concepts and practices of right HR management. The apparatus HR managers must be able to formulate and realize an HR development strategy that is integrated with the needs of the organization. In this case, HR managers must be able to understand and be able to apply various methods of HR development on target. But the facts prove, with the knowledge that is not yet solid and comprehensive, the apparatus HR managers have not been able to find the right settings for the implementation of the human capital strategy in the structural constellation and managerial functions of the organization formed by the current regulations. This phenomenon is illustrated in the research of Simon, Mas’ ud, & Su’un (2016) who found that core competence is one of the empirical categories that become the weakness of the apparatus in the adaptation and implementation of conceptual models into the operation and implementation of the tasks and functions of public organizations. Resolving the problem of apparatus competency is the key to the ability of public organizations to transform the implementation of human resource management that adapts the human capital strategy in it. Conversely, without the transformation of the management of apparatus HR management, public organizations will increasingly be marginalized in competition and will continue to be pressured in the increasingly progressive constellation of society. Regarding the urgency and relevance of human capital strategy adaptation in the management of apparatus human resources, a prospective data presented by Gamerschlag, (2013) is very appropriate for that in 1975, the contribution of intangible assets to the success of an organization was only 17%. But in 2015 it had reached 84%. Intangible assets are all human potential as organizational resources, which are used as indicators of measurement of a human capital strategy in the implementation of human resource management. In the context of the current challenges, the management of public human resources will considerably require the role of human capital strategies in increasing the professional competence (intangible assets) of the apparatus in order to achieve organizational goals and objectives. In the turmoil of the problems of public organizations, there is a great responsibility to provide quality services to the community that will only be possible if supported by professional and competent apparatus resources. For this purpose, the plan for the development of HR for professional apparatuses has been set out in a visionary manner in Presidential Regulation No. 81 of 2010 concerning the Grand Design of the 2010-2025 Bureaucracy Reform. Some related laws to support this vision have also been issued, such as Law Number 25 of 2009 concerning Dahlan, Fatmawada; The fusion of Competence and Integrity Problems... | 187
Public Services, whose substance mandates the competence and professionalism of the apparatus. The variety of policies that have been present mandating and supporting the transformation process of the HR management of the apparatus are a few facts besides other factual issues that is, there is no significant change in public HRM practices. This is a phenomenon that presents its own interference value for public HR research. Although it must also be acknowledged that there are a small number of regional governments that have demonstrated their efforts in organizing part by part of their organizations in order to create professional and competent apparatuses.
METHOD
Data collection is done through interview techniques to obtain primary data. Secondary data collected through observation techniques and document review. The primary data sources are from the following informants, including (1) one Head of the Human Resources and Human Resources Development Agency of Biak Numfor Regency; (2) one Secretary of the Regional Human Resources and Human Resources Development Agency of Biak Numfor Regency; (3) one Head of Employee Development; (3) one Head of Employee Mutation Division; (4) one Head of the Education and Training Apparatus Division; (5) one Head of Employee Data and Information Division; (6) one Head of Planning and Procurement Sub-Division; (7) one Head of Position and Mutation Position Sub-Division; (8) one Head of Program Preparation Subdivision; (9) one Head of Finance Sub Division; (10) one Head of General Subdivision; (11) five program implementers. Regular informants are all employees within the scope of the Regional Human Resources and Human Resources Development Agency of Biak Numfor Regency who have the potential to provide the necessary information and data. Secondary data sources are sources of supporting data needed to complete the primary data collected. This is done as an effort to adjust to the needs of field data related to the focus being studied.
RESULT AND DISCUSSION
Based on the preliminary document review, what is conceptually called by Pakar (2003) as the 'formulation of HRM strategy', has been outlined in the Biak Numfor District BKD Strategic Plan document for 2016-2021. Although it seems clear that it does not show cohesion, but the objectives of the organization and various main processes in the organization have been determined. On that basis, the capabilities of the apparatus have been calculated and established (establishing current capabilities). The boundaries of objective activities, which are attached later to the strategy to be used in connection with the needs and objectives of the regional HRM are also established. However, the setting of human resource policy activities still includes traditional aspects, not yet indicating a continuous performance evaluation method, forming a training scheme and apparatus development. This is evident in the series of indicative and implemented program activities. 188 Jurnal Ilmiah Ilmu Administrasi Publik: Jurnal Pemikiran dan Penelitian Administrasi Publik Volume 9 Number 2,July – December 2019. Page 185-190
With the factual data on the formulation of the HRD Strategy of BKD in Biak Numfor Regency, the prospect that is expected to take place optimally is the stage of implementing the HRM strategy that has become the area's formulation as a form of consistency and innovation transformation in the management of regional human resources. Including in this case, how the process of organizing HRM Human Resources and Human Resource Development Agency of Biak Numfor Regency is monitoring the impact of the results achieved by the organization related to the HR management strategy applied. Cakar's thesis of thought (2003) interpreted into the reality of the implementation of HRM in Biak Numfor Regency moved through the assumption that there is still a set of factual problems in this area as a factor that weakens the application of HRM even though it seems clear the desire and efforts to make changes. As with the wide range background in the opening of this discourse, the fact that the units and employees who manage this area of HR and the implementation of competency-based HR management must be considered must be considered. Don't even have the expertise needed. The commitment of the parties in the organization in the framework of implementing competency-based HR management must still be considered. To get out of the situation, shortcuts to submit competency-based HR management programs and activities, entirely to external consultants, are also not implemented. Of course, it is necessary to consider the budgeting and software needed to support the apparatus competency management data. The use of the theoretical tool Hamdan (2015) clearly helped the effort to identify and analyze the factual conditions of the transformation of the regional HR management model in Biak Numfor. Based on available data, the factual issues surrounding the transformation process revolve around two problem categories namely, the problem of knowledge of the regional apparatus HR manager as the first category and the integrity problem as the second problem category. The competence of regional apparatus HR managers in Biak is still not solid, resulting in HR managers still tend to work with the automation of work habits that have taken place as long as this. Especially related to how to create novelty in the Biak apparatus HR management model by shifting the theoretical categories of HRM into the daily work. This analysis is in line with the findings of Simon et al., (2016) which states that core competence is one of the empirical categories that becomes the weakness of the apparatus in the adaptation and implementation of conceptual models into the operation and implementation of the tasks and functions of public organizations.
CONCLUSION The competency issue lately colors the integrity of the HR management of the regional apparatus in Biak. Powerlessness then becomes a strong characteristic of the inability of the way the field of education and training of the Biak Regional Personnel Agency has been to develop the competency of the personnel managing the apparatus. This core competence further strengthens the analysis as a core problem that hinders the process of transforming the HR management model of the Biak area because in fact the HR managers state that the strategic Dahlan, Fatmawada; The fusion of Competence and Integrity Problems... | 189
development of the HR apparatus has been mandated starting from the previous staffing law. However, so far, the implementation of the Biak apparatus HR development strategy is only able to carry out education and training activities that are not based on competency assessment. HR managers are also unable to be creative in presenting knowledge packages for development, especially for HR managers. As a continuation of the results of the identification and analysis of research problems using the theoretical set of the conceptual model of Paws (2003), the right recommendation is to adapt the thesis of Lengnick-Hall & Lengnick-Hall (2003: 33-43) which integrates all organizational matters into policy human resource management program. This perspective can help the development of apparatus HR development program policies with factual conditions in the Biak Regency. Thus, solving the problem of apparatus competency is the key to the ability of public organizations to transform the implementation of human resource management that adapts the human capital strategy in it. Conversely, without the transformation of the management of apparatus HR management, public organizations will increasingly be marginalized in competition and will continue to be pressured in the increasingly progressive constellation of society.
REFERENCES
Akib, H., Guntur, M., & Salam, R. (2016). Civitas Academic Perception of “Blissful Services" for Recipient Postgraduate Program State University of Makassar, Indonesia. International Conference on Public Organization VI (ICONPO VI), 340–350. Thammsat University, Tha Prachan Campus. Arndt, H. W. (1975). Development and equality: The Indonesian case. World Development, 3(2), 77–90. https://doi.org/https://doi.org/10.1016/0305-750X(75)90039-X Gamerschlag, R. (2013). Value relevance of human capital information. Journal of Intellectual Capital, 14(2), 325–345. Hamdan, H. (2015). Administrative Accountability in the organization of Secondary Education Program on Education Department in Biak Numfor Regency, in the year 2014. Universitas Negeri Makassar. Harris Mulvaney, R. R., Zwahr, M., & Baranowski, L. (2006). The trend toward accountability: What does it mean for HR managers? Human Resource Management Review, 16(3), 431– 442. https://doi.org/https://doi.org/10.1016/j.hrmr.2006.06.003 Hiltrop, J.-M., Despres, C., & Sparrow, P. (1995). The changing role of HR managers in Europe. European Management Journal, 13(1), 91–98. https://doi.org/https://doi.org/10.1016/0263-2373(94)00061-B Ismail, A., Sulur, A. H., Akib, H., & Salam, R. (2016). Snapshot of Society Social-Economic Welfare based on Human Development Index in Polewali Mandar Regency, Indonesia. International Conference on Public Organization VI (ICONPO VI), 847–858. Thammsat 190 Jurnal Ilmiah Ilmu Administrasi Publik: Jurnal Pemikiran dan Penelitian Administrasi Publik Volume 9 Number 2,July – December 2019. Page 185-190
University, Tha Prachan Campus. Kwon, D.-B. (2009). Human capital and its measurement. The 3rd OECD World Forum on “Statistics, Knowledge and Policy” Charting Progress, Building Visions, Improving Life, 27–30. Nomura, K. (2009). A perspective on education for sustainable development: Historical development of environmental education in Indonesia. International Journal of Educational Development, 29(6), 621–627. https://doi.org/https://doi.org/10.1016/j.ijedudev.2008.12.002 Said, F., Salam, R., Akib, H., & Baharuddin, A. (2017). An Analysis of Tourism Visit Trend. 149(Icest), 34–36. Saidi, M. I., Mansor, N. N. A., Anvari, R., & Hassan, M. A. (2014). Defining HR Roles of Nursing Line Manager in Workplace Learning. Procedia - Social and Behavioral Sciences, 129, 148–155. https://doi.org/https://doi.org/10.1016/j.sbspro.2014.03.660 Shukla, S. (2014). Emerging Issues and Challenges for HRM in Public Sectors Banks of India. Procedia - Social and Behavioral Sciences, 133, 358–363. https://doi.org/https://doi.org/10.1016/j.sbspro.2014.04.201 Simon, Y., Mas’ ud, M., & Su’un, M. (2016). The role of apparatus competence, internal control system on good governance and the quality of financial statement information. Researchers World, 7(4), 123. van Dijk, M., & Szirmai, A. (2006). Industrial Policy and Technology Diffusion: Evidence from Paper Making Machinery in Indonesia. World Development, 34(12), 2137–2152. https://doi.org/https://doi.org/10.1016/j.worlddev.2006.03.004 Wihantoro, Y., Lowe, A., Cooper, S., & Manochin, M. (2015). Bureaucratic reform in post- Asian Crisis Indonesia: The Directorate General of Tax. Critical Perspectives on Accounting, 31, 44–63. https://doi.org/https://doi.org/10.1016/j.cpa.2015.04.002 Zhang, Y. E., & Nesbit, P. L. (2018). Talent Development in China: Human resource managers’ perception of the Value of the MBA. The International Journal of Management Education, 16(3), 380–393. https://doi.org/https://doi.org/10.1016/j.ijme.2018.06.001
Jurnal Ilmiah Ilmu Administrasi Publik: Jurnal Pemikiran dan Penelitian Administrasi Publik Volume 9 Number 2, July– December 2019. Page 191-202 p-ISSN: 2086-6364, e-ISSN: 2549-7499 Homepage: http://ojs.unm.ac.id/iap
An Analysis of the Effectiveness of Allocation of Village Fund Policy Implementation and Its Determining Factors in Gorontalo Regency
Ismet Sulila Department of Public Administration, Faculty of Economics, Universitas Negeri Gorontalo Email: [email protected]
(Received: November 11-2019; revised: December 1-2019; published: December 31-2019)
ABSTRACT
This study aims at examining the realization of the allocation of village fund, income per capita, and what factors determine the effectiveness of the implementation of village fund allocation policies in Gorontalo District. The complexity of implementing village fund policies requires caution in empirical studies in the field. Therefore the research approach uses qualitative methods. The data source in this study was primary data, which was conducted using a matrix of problem-based interview guidelines. Further, the data analysis techniques used consisted of data collection, data display, data condensation and verifying drawing conclusions. Data obtained in the field show that the allocation of village fund continues to increase. The impact of an increase in the allocation of village fund to the level of development in the village can be seen through per capita income in the last five years that has increased. Furthermore, the results of empirical studies in the field show that there are five important factors that determine the effectiveness of the implementation of village fund policies in Gorontalo District, namely 1) Participation, 2) communication, 3) resources, 4) attitude of implementers 5) organizational structure of implementers, 6) environment.
Keywords: Effectiveness, Policy, Allocation of Village Fund
INTRODUCTION
Law of the Republic of Indonesia Number 6 of 2014 concerning Villages is a product of the reform era, which became the initial form of village independence in the administration of Government and in the management of Village Finances. The village occupies a very important position in the national development process because it is the smallest government structure and comes into direct contact with the community. For this reason, according to Abidin (2015) the government and the DPR have a strong commitment by issuing a government policy on villages. Villages that were once only used as objects of development now have a very important role in national development. One of the government's strategies to make villages independent is to provide allocation of village fund. Allocation of Village fund sourced from the state income and expenditure budget which are intended for villages that are transferred through the regency/city regional income and expenditure budget and are used to finance governance, development implementation, community development, and community empowerment (Nawir, Maulana, Nuryamin, & Husain, 2018; Syamsiar, Saggaf, Salam, & Ihsan, 2018). In the implementation of the fund received by the Village, the amount is quite large and continues to increase every year, so in organizing Government and Village Financial Management, it needs a capacity of Village Apparatus that is reliable and other adequate facilities so that its implementation becomes more directed and accountable. The Allocation of Village Fund is a form of financial relations between levels of government, namely the financial 192 Jurnal Ilmiah Ilmu Administrasi Publik: Jurnal Pemikiran dan Penelitian Administrasi Publik Volume 9 Number 2,July – December 2019. Page 191-202
relationship between the Regency Government and the Village Government. To be able to formulate an appropriate financial relationship, an understanding of the authority of the village government is needed. This means that the government budget given to the village is fully related to development facilities and village empowerment as one of the institutions that contribute to the governance format. These fund must be used and allocated as appropriate in accordance with applicable laws and regulations set by the government. Village development has been one of the topics that have always been discussed in the discussion of the practice of regional autonomy in Indonesia. Yet according to Hehamahua (2015), the main goal of development is to increase the distribution of development and other programs in rural areas. That is, rural areas are the subject of development, which rests on the paradigm that the essence of regional autonomy is to realize regional independence through strengthening local potential. According to Prasetyo & Masdjojo (2015), in the framework of village autonomy, all forms of village government affairs become village authority, including in terms of village financial management. The allocation of village fund program has an impact on facilitating community mobility, improved irrigation channels that can increase crop yields, increase knowledge and create public awareness. Village fund has been able to reduce poverty, although allocation of village fund is used more for infrastructure development than for community empowerment. Through the Ministry of Finance Regulation number 93 / PMK.07 / 2015 concerning Procedures for Allocation, Distribution, Use, Monitoring, and Evaluation of the Allocation of Village Fund. The government is trying to make the mechanism for using village fund as simple as possible so that the community has no difficulty in receiving or using it and is responsible for it. The allocation of village fund is prioritized to finance the implementation of programs and activities in the field of village development and village community empowerment. The field of village development is procurement, development, and maintenance of basic infrastructure facilities for infrastructure needs, residential environment, transportation, energy and communication information, health infrastructure, education, and culture. However, if we look directly at the village there are still many obstacles encountered in realizing allocation of village fund, such as not in accordance with government regulations in their implementation, not involving the community in planning and human resources, which are not ready to receive allocation of village fund. According to Sulila (2019), the Government is the highest authority in managing State finances as well as possible in order to achieve Good Government through policy implementation. Whereas Implementation according to Keban (2014) relates to various activities directed at the realization of the program. Therefore, Gorontalo District Government has sought to implement the Allocation of Village Fund Policy to all villages. The policy for allocating village fund in the Regency is based on the policy of the Regents of Gorontalo Regency Number 78 of 2017 concerning the procedure for allocating the Allocation of Village Fund originating from the 2018 APBD. Although it seems slow in responding to the Allocation of Village Fund policy that has been rolled out by the central government since 2006, the spirit of Gorontalo Regency to implement the Allocation of Village Fund is driven by the importance of the Village's position in regional development. The Allocation of Village Fund is the acquisition of a portion of the Village's finance from the Regency whose distribution is through the Village treasury and is part of the Central and Regional Financial Balance fund received by Ismet Sulila; An Analysis of the Effectiveness of Allocation... | 193
the Regency. The allocation of village fund is necessary because its policy is in line with the regional autonomy agenda, where the Village is placed as the basis of decentralization. The Policy is relevant to the perspective that places it as a basis for participation. The Allocation of Village Fund is intended to finance village government programs in terms of implementing government activities and community empowerment. The purpose of the Allocation of the Village Fund among others, is to improve the administration of the village government in carrying out government, development and community services in accordance with its authority. In addition, it is also intended to be able to improve the ability of community organizations in the Village in planning, implementing, controlling development in participation in accordance with the potential of the Village. The allocation of village fund is expected to increase every year, bearing in mind the population also continues to increase. Based on data from the population in Gorontalo Regency (BPS, 2019) it has reached 388,821 people. In general, the composition of the population is balanced between male population and female population (sex ratio), a number of 193,413 women and male population reaching 195,408 inhabitants. The importance of allocating village fund to communities in Gorontalo regency in efforts to improve welfare has attracted the interest of researchers to carry out empirical studies in the field about the implementation of the allocation of village fund policies and the complexity of the problem. Based on the above documentation, this study focuses on the factors that determine the effectiveness of the implementation of village fund policies in Gorontalo Regency.
METHOD
This study used qualitative research methods. According to Moleong (2014), qualitative research methods intend to understand the phenomena experienced by research subjects, by describing them in the form of words and language, in a particular context is natural and by utilizing various natural methods. Based on the results of preliminary observations in the field and the complexity of the issue of village fund, the data collection was carried out through 1) Library research, namely research carried out by citing several kinds of literature and previous research results that have a relationship with the focus of village fund policy studies researched. 2) Field Research (Field Research), which consists of: a) Observation, i.e. observing and examining things and circumstances that have relevance to the research material. b). Interview, Namely conducting interviews with parties who are considered to have a strong relationship with the issues examined. c). Documentation, which is collecting data by compiling data and information needed in this study, especially those sourced from agencies that have something to do with this research. The interactive data analysis components used are, according to Miles, Huberman, & Saldaña (2014), described as follows.
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Figure 1. Analysis componentInteractive Data Model
Based on the complexity of the problem and the method approach, the Types and Sources of Data used are: 1) Data Types. Qualitative data, namely descriptive data that is expected to explain the focus of the problem to be examined. The data can be in the form of various factors that determine the effectiveness of public policy implementation, including participatory, communication, resources, implementing attitudes, organizational structure, and environment. 2) Data Sources. The data used in this study were taken from key informant sources related to the realization of the allocation of village fund each year, per capita income, and various determinants of the effectiveness of the implementation of village fund allocation policies in Gorontalo Regency.
RESULT AND DISCUSSION
Gorontalo Regency was formed based on Law Number 29 of 1959 concerning the Establishment of Second Level Regions in Sulawesi with its original capital city, Isimu. In 1978 the Capital of Gorontalo Regency was moved to Limboto. Until 2019, Gorontalo Regency consists of 19 districts, with the population in the last five years can be seen in the following table.
Table 1. Total Population Gorontalo Regency
Total No Year Population Explanation 1 2014 368.149 - 2 2015 370.441 - 3 2016 372.856 - 4 2017 374.923 - 5 2018 388.014 - Source: BPS Gorontalo Regency in 2019
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The table above the population in 2014 was 368, 149, in 2015, the population increased to 370,441, in 2016 and 2017 there was an increase of 372,856, and 374,923, and in 2018 it became 388.014. As previously explained, the Allocation of Village Fund policy is based on Gorontalo District Regulation No. 78 of 2017 concerning the procedures for allocating Allocation of Village Fund originating from the 2018 APBD. Realization of the Use of Village Fund Allocation The use of Village Fund allocation was issued from 2014-2018. So the financing of government administration has been financed in the last 5 years, which originates from the Village Fund Allocation, which has helped the village government a lot. To find out how the Realization of Village Fund Allocation in Gorontalo Regency can be seen in the following table:
Table 2. Realization of Village Fund Allocation Gorontalo Regency. Village Fund Realization No Year (Rp.) (Rp.) 1 2014 19.302.645.000 19.302.645.000 2 2015 63.458.614.796 63.458.614.796 3 2016 67.478.016.196 67.478.016.196 4 2017 68.325.863.000 68.325.863.000 5 2018 66.660.738.600 66.660.738.600 Source: Village Community Empowerment Agency Gorontalo Regency.
Based on the field studies, the results show that the GDP of Gorontalo Regency in the last 5 years is as follows: in 2014 it reached 7,939,141, in 2015 it reached 8,983,341, 2016 reached 9,993,983, in 2017: 10,886,346, and in 2018 it reached 11,835. 690. Furthermore, to find out the income per capita is calculated based on the following formula:
GRDP Per year GDP Per capita = Total Population Figure 2. Calculation of GDP per capita Data obtained in the field show that the implementation of the allocation of village fund policy has a real impact on the community by increasing per capita income each year, namely in 2014 reaching 21,565.02 then in 2015 it increased to 24,007.44 and in 2016 it increased to 26,804.59 and then in 2017 increased to 29,045.61 and in 2018 to 30.503,25. Based on the study of various literature in general, there are several aspects that need to be considered in the implementation of the Village Fund Allocation policy, namely: 1) The existence of 8 Village Fund Allocation Objectives which, when concluded in general, the Village Fund Allocation aims to improve the development aspects of both physical and non-physical infrastructure in order to encourage the level of community participation for empowerment and improvement of their standard of living. 2) The principles and principles of Village Fund Allocation management are transparent, accountable, and participatory. This means that the Village Fund 196 Jurnal Ilmiah Ilmu Administrasi Publik: Jurnal Pemikiran dan Penelitian Administrasi Publik Volume 9 Number 2,July – December 2019. Page 191-202
Allocation must be managed by promoting openness, carried out responsibly, and must also involve the active participation of all local communities. 3) The Village Fund Allocation is an integral part of the Village budget and income (hereinafter referred to as APBDes) starting from the planning, implementation, accountability and reporting. 4) The use of Village Fund Allocation is set at 30% for Village apparatus and operational expenditure and 70% for community empowerment expenditure. 5) Although the accountability of Village Fund Allocation is integral to the APBDes, it is still necessary to report on activities financed from the Village Fund Allocation budget periodically, and the final results report on the use of Village Fund Allocation. This report is separated from the accountability of the APBDes, as a form of control and monitoring as well as evaluation material for regional governments. 6) For the fostering and supervision of the management of the Village Fund Allocation a Regency / City Facilitation Team and the District Assistant Team were formed with obligations according to their level and authority. Funding for the referred Team is budgeted in the APBD and is outside the Village Fund Allocation budget. The eight important points above are intended to ensure the effectiveness of the implementation of village fund policies in accordance with the needs of community priorities. This is as according to Purwanto & Sulistiyastuti (2012) explains, the suitability of the program with the needs is one indicator to measure whether the various policies carried out or programs received by the community in accordance with their needs or not. In an effort to achieve policy effectiveness requires a measure of the accuracy of expectations, accuracy of implementation and accuracy of results achieved. In the literature study found an explanation according to Warsono & Ruksamin (2014), there are three obstacles in policy implementation, namely 1) low community education, 2) low managerial ability from villages and other supporting institutions, 3) failure of the mechanism of socialization. Based on the results of empirical studies in the field, there are six determinants in the effectiveness of the implementation of village fund policies in the Gorontalo Regency. The six factors are explained as follows.
Participatory
Participation is a form of active participation in a series of activities with established goals and targets. In the context of the allocation of village fund policy, participation from each part of the village is needed to realize village development in accordance with the needs of the village itself. Community participation is one of the factors that influence the success of rural development and development programs. The results of the field study indicate that efforts are needed in inviting and realizing community participation in village community empowerment programs in a sustainable manner. Community participation not only involves the community in making decisions in every development program but the community is also involved in identifying problems and potential that exist in the community. Without a tangible form of active community participation, every program in the allocation of village fund policy will not be effective. Whatever the form of participation aims to improve the ability of everyone involved directly or indirectly in development by involving them in decision making and subsequent activities. Village community participation in the allocation of village fund policy Ismet Sulila; An Analysis of the Effectiveness of Allocation... | 197
varies relatively in terms of their intensity and in terms of their forms. In terms of intensity there are those whose participation is very low, and some are very high. In addition, in terms of form there are those whose participation is in the form of thought and there are also those who participate in the form of active participation in each activity. In relation to the participatory concept, Uphoff, Cohen, & Goldsmith (1979) divided participation into several stages, as follows: a) The stage of decision making. This concept was realized through community participation in meetings. The decision making stage in question is the planning of activities. b) Implementation phase. This concept is the most important stage in development because the core of development is its implementation. Real manifestations of participation at this stage are classified into three, namely participation in the form of thought contributions, material contribution forms, and actions as program members. c) The stage of enjoying results. This concept can be used as an indicator of the success of community participation at the planning and implementation stages of the program. In addition, by looking at the position of the community as the subject of development, the higher the benefits of the program are felt, meaning that the program is successful on the target. d) Evaluation Phase. This concept is very important because community participation at this stage is feedback that can provide input for the improvement and sustainability of the program.
Communication
Communication is the process of interacting with the delivery of messages through mediators. The influence of communication factors on implementation is on the clarity and content of messages to be understood thoroughly by the recipient of the message or program. To elaborate on how this communication factor influences, the writer will look at it from various phenomena during field observations related to the process of implementing the Village Fund Allocation policy. a) The intensity of the Socialization of Village Fund Allocation Policy. Associated with the intensity of socialization between policy actors and policy actors obtained information that normatively the socialization activities have been running. However, there are some informants who want to increase the intensity of the socialization of the Village Fund Allocation policy. b) Clarity of Communication. All information regarding the implementation of the Village Fund Allocation has been clearly described in the technical manual. Most of the Village Fund Allocation implementers have enough experience in carrying out Village Fund Allocation activities, it's just that in administrative management it is sometimes still confusing. From this information, it can be interpreted that the implementers of the Village Fund Allocation have obtained a clear message regarding the Village Fund Allocation policy. c) Consistency of Message. All information has been conveyed clearly and considers no overlapping explanation by the District Team with existing provisions. All Village Fund Allocation policy information must refer to technical guidelines set by the Regional Head. It can be concluded that there has been a consistency of messages, meaning that there are no conflicting messages.
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Resources
The ability and availability of resources are one of the determining factors in the implementation of the Village Fund Allocation policy in Gorontalo Regency. Information sourced from the informants has quite diverse responses. But in essence they agree on the need to increase resources, both human resources and others. 1) Human Resources Capability. In general, the condition of the HR implementation of Village Fund Allocation is still limited, thereby affecting the quality of the implementation of the Village Fund Allocation. Village Fund Allocation to achieve standards on time, on quality and on administration. In other words the implementers of the Village Fund Allocation policy are not in accordance with competency standards even though they have enough experience. 2) Supporting Facilities. Village Fund Allocation Policy Relating to supporting facilities. However good participation and communication, but if not supported by supporting facilities, the implementation of the program in the field will not be effective. Therefore, in the implementation of the village government, they should prepare various supporting facilities needed in the operation of village fund policies.
Implementer's Attitude.
The attitude of the executor who supports the implementation of the Village Fund Allocation is very influential on the quality of the implementation of the Village Fund Allocation policy in Gorontalo Regency. The extent of the influence of the attitude of the executor in the implementation of the Village Fund Allocation can be explained through information sourced from the informants. In this case the informants tend to have the same view, namely the attitude of the executor who supports the implementation of the Village Fund Allocation. a) Implementing Perception. Implementers of the Village Fund Allocation policy have very supportive perceptions and expect the Village Fund Allocation Fund to continue to be rolled out and even increased. b) Implementing Response. Implementing responses were quite diverse, not all village heads responded quickly to the Village Fund Allocation policy. This can be seen from the fact that there are still many villages that are slow to complete the Village Fund Allocation requirements. This information shows that not all implementers have a good response to the Village Fund Allocation policy, because they consider the Village Fund Allocation Fund has become a routine every year. c) Implementing Actions. Although there are still implementers of the Village Fund Allocation policy that is lacking in response, informants stated that the Village Fund Allocation implementer has made activities and follow up. The implementers have had a stage of program activities to create activities that support the operations of the Village Government and community empowerment and infrastructure development.
Implementing Organizational Structure.
Bureaucratic structure influences the smooth implementation of Village Fund Allocation in Gorontalo Regency. The extent of the influence of the organizational structure factors in implementing the Village Fund Allocation can be explained through information sourced from Ismet Sulila; An Analysis of the Effectiveness of Allocation... | 199
informants who have the same response. This can be seen from the existence of the organizational structure implementing the Village Fund Allocation policy. Nevertheless there needs to be a clear division of tasks from the implementers of the Village Fund Allocation. The results of the field study can be explained as follows: a) Formation of Organizational Structure. The formation of the organizational structure implementing the Village Fund Allocation has been carried out in each village. The organizational structure in the implementation of the Village Fund Allocation has been regulated in the Bupati technical guidelines. b) Distribution of Tasks. In terms of the division of tasks within the implementing organization, the informant provided almost the same explanation. The informant stated that the need for emphasis and division of tasks was clear and measurable. Thus it is expected that the work is not only dominated by certain people. c) Coordination of policy implementers. The village head has not been able to coordinate all stages and sequences of activities so that the government partners in the village and the apparatus do not know clearly what must be done in the implementation of the Village Fund Allocation. Normatively it can be understood that actually in the Village Fund Allocation technical guidelines the division of tasks has been arranged among the Village Fund Allocation implementers, however the coordination problem often does not work which can be caused by synergy and togetherness and communication between fellow implementers in the field.
Environment.
Community institutions have a large enough role in channeling aspirations in the implementation of the Village Fund Allocation in Gorontalo District. The extent of the influence of environmental factors in the implementation of the Village Fund Allocation. The results of the field study indicate a) Environmental capacity. The intended environmental capacity is related to the ability of village representative institutions and village community organizations to influence the Village Fund Allocation policy. Village representative institutions and Village Community Institutions have the capacity, namely the authority in the form of supervision by village representative institutions whereas social institutions will assist the Village Head in implementing the Village Fund Allocation activities program. b) Role Stability. Related to the stability of the role of village representative institutions and village social institutions in supporting the Village Fund Allocation policy. The results of the field study indicate that village representative institutions have supported the Village Fund Allocation policy by participating in overseeing the implementation of the Village Fund Allocation. However, village representative institutions have not carried out their duties to assist the Village Head in implementing the Village Fund Allocation to the maximum. c) Complexity. Regarding the issue of environmental complexity, that is how much is the intervention of the community and social institutions towards the implementation of the Village Fund Allocation policy. The results of the field study showed a similar view. The government together with village institutions should try to accommodate the various interests of the community component through the Village Fund Allocation policy. Therefore in the future, togetherness and synergy are needed and establishing priority programs between the village government, the community, and their partners in the implementation of the allocation of village fund policy. 200 Jurnal Ilmiah Ilmu Administrasi Publik: Jurnal Pemikiran dan Penelitian Administrasi Publik Volume 9 Number 2,July – December 2019. Page 191-202
Based on the results of the field study and discussion, various determinants of the effectiveness of the implementation of the allocation of village fund policies in the Gorontalo Regency can be described as follows.
Determinants of the Allocation of Village
Fund Policy
1. Participatory 4. Implementing Attitudes
2. Communication 5. Organizational Structure
3. Resource 6. Environment
Effectiveness of the Allocation of Village Funds Policy in Gorontalo Regency
Figure 3. Determinants of village fund policies in Gorontalo Regency
CONCLUSION
The results show that the realization of the allocation of village fund in Gorontalo Regency continued to increase. In 2014 the realization of 19.302.645.000, in 2015 the realization of 63.458.614.796, in 2016 the realization of 67.478.016.196, in 2017 the realization of 68.325.863.000 in 2018 the realization reached 66.660.738.600. The increase in the allocation of village fund has an impact on increasing income per capita every year. In 2014 it reached 21,565.02 then in 2015 it increased by 24,007.44, and in 2016 was 26,804.59 then 2017 increased by 29,045.61 and in 2018 it became 30.503,25. The results of empirical studies in the field show that there are five important factors that determine the effectiveness of the implementation of village fund policies in Gorontalo District, namely 1) Participation, 2) communication, 3) resources, 4) attitude of implementers 5) implementing organizational structure, 6) environment. Based on the discussion and conclusions, it is suggested as follows: 1) to increase the realization of the allocation of village fund every year followed by the level of village development and increase in per capita income in a gradual, realistic, measurable and Ismet Sulila; An Analysis of the Effectiveness of Allocation... | 201
sustainable manner; 2) To be able to realize the real impact of the allocation of village fund, it should focus on various important aspects that determine the effectiveness of the implementation of the allocation of village fund policy as outlined in the research results and conclusions above.
REFERENCES
Abidin, M. Z. (2015). Tinjauan atas pelaksanaan keuangan desa dalam mendukung kebijakan dana desa. Jurnal Ekonomi Dan Kebijakan Publik, 6(1), 61–76. Hehamahua, H. (2015). Impact Analysis of the Village Fund Allocation (ADD) Toward Economic Community (Case Study on the Rural District of Namlea Siahoni), Buru Regency. Journal of Social and Development Sciences, 6(3), 15–23. Keban, Y. T. (2014). Enam Dimensi Strategis Administrasi Publik Edisi 3. Yogyakarta: Gava Media. Miles, M. B., Huberman, A. M., & Saldaña, J. (2014). Qualitative data analysis: A methods sourcebook. 3rd. Thousand Oaks, CA: Sage. Moleong, J. (2014). Metodologi Penelitian kualitatif. Bandung: PT. Remaja Rosdakarya bandung. Nawir, R., Maulana, R., Nuryamin, M., & Husain, T. (2018). Implementation Program of Poor Rice Copyright. The International Conference On Social Sciences And Humanities 2018. Prasetyo, Y., & Masdjojo, G. N. (2015). Implementasi Kebijakan Alokasi Dana Desa di 10 Desa Wilayah Kecamatan Rembang Kabupaten Rembang. Purwanto, A., & Sulistiyastuti. (2012). Implementasi Kebijakan Publik: Konsep dan Aplikasinya di Indonesia. Yogyakarta: Gaya Media. Sulila, I. (2019). The Effect of Human Resource Competency and Implementation of SIMDA on the Quality of Financial Statement at BPKAD Office of Gorontalo City. Publik (Jurnal Ilmu Administrasi), 8(1), 67–74. Syamsiar, S., Saggaf, M. S., Salam, R., & Ihsan, S. R. (2018). Implementation Of Supervision On Office Of Community Empowerment And Makassar City Village. The International Conference On Social Sciences And Humanities 2018. Uphoff, N. T., Cohen, J. M., & Goldsmith, A. A. (1979). Feasibility and application of rural development participation: a state-of-the-art paper. Warsono, H., & Ruksamin, D. (2014). The Obstacles of Implementation of Village Allocation Fund Program in the North Konawe Southeast Sulawesi. J. Mgmt. & Sustainability, 4, 175.
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Jurnal Ilmiah Ilmu Administrasi Publik: Jurnal Pemikiran dan Penelitian Administrasi Publik Volume 9 Number 2, July– December 2019. Page 203-212 p-ISSN: 2086-6364, e-ISSN: 2549-7499 Homepage: http://ojs.unm.ac.id/iap
Bureaucratic Reform: A Case Study in Secretariat General of the Ministry of Education and Culture
Muhammad Qudrat Wisnu Aji Sekretariat Jenderal Guru dan Tenaga Kependidikan Email: [email protected]
(Received: October 10-2019; revised: December 4-2019; published: December 31-2019)
ABSTRACT
Bureaucratic reforms are remedial steps to government tasks and public services, building good governance. The scope of bureaucratic reforms involves not only processes and procedures, but also changes in organizational structure and mindset and behavior of the implementers. The aim of the study is to evaluate the implementation of bureaucratic reform policies carried out by the Secretariat General of the Ministry of Education and Culture. The purposive survey method is used in this study. 80 Echelon III and IV officials in the bureaus within the Secretariat General of the Ministry of Education and Culture participated in this study. The questionnaire was used as an instrument to collect the data in this study. There are three dimensions of bureaucratic reforms examined, namely the basis of reform, the agent of reform and the bureaucratic environment. It was found that bureaucratic reforms significantly influence organizational performance at the Secretariat General of the Ministry of Education and Culture. Bureaucratic reforms are characterized by a good basis of reforms, a strengthening of Human Resources as an agent of bureaucratic reforms and a conducive environment to support the success of bureaucratic reforms to be achieved by the Ministry of Education and Culture.
Keywords: Bureaucratic reform, basis of reform, agent of reform, environmental reform
INTRODUCTION
Management and public administration are about the institutionalization and structuring arrangement. Structural is integral to all organizations. Structural reforms change the dominant system that touches key elements. Most structural reforms have not touches public administration and its core elements such as the bureaucracy (Mukhtar, 2015). On one hand, bureaucratic studies are complex because they are related to various aspects, such as institutions, human resources, systems and procedures created and carried out by the bureaucracy, as well as aspects of bureaucratic renewals or bureaucratic reforms (Yusriadi & Misnawati, 2017). Bureaucratic reforms are defined as a practice of power that operates through a discursive process, namely the creation of truth claims on certain reform models, which are then followed by disciplinary practices to change the behaviors of bureaucrats (Paskarina, 2017). Bureaucratic reforms are aimed at producing public services that are responsive to change, impartial, and professional in meeting and serving public interests. In other words, bureaucratic reforms are steps to improve government tasks and public services, develop governance that is free of corruption, collusion and nepotism, form professional state apparatuses, and develop more effective and efficient organizations (Aji, Heru, & Turmudzi, 2013). The scope of bureaucratic reforms involves not only processes and procedures, but also 204 Jurnal Ilmiah Ilmu Administrasi Publik: Jurnal Pemikiran dan Penelitian Administrasi Publik Volume 9 Number 2,July – December 2019. Page 203-212
changes in organizational structure and mindset and behavior of the implementers. Bureaucratic reforms are top down, so to realize a sustainable process of bureaucratic reforms requires regulations that can cover and provide clear direction for ministries and institutions in implementing them. Without strict regulations, the policies and programs of bureaucratic reforms in ministries and institutions are not well integrated, which results in inconsistencies, collisions, and confusion in their implementation by both the institution and the implementing agency (Aji et al., 2013). The process of bureaucratic reforms has become a focus in various fields and in many countries as a form of service change towards a better direction like the bureaucratic reform carried out by Jordan to improve its bureaucratic system that has no a clear career path, no relationship between career training and career advancement, has discretionary promotion that depends on ethnicity, lacks recognition of services and incentives for good jobs (Kassay, 1998). Developing countries like Indonesia, in general, are still highlighted as organizations that have not fully implemented public services. Studies on bureaucratic reforms in Indonesia have been done by several researchers, such as the study on bureaucratic reforms in Integrated Licensing Services in Bone Regency (Yusriadi & Misnawati, 2017), one-stop administration system services in Gorontalo City (Aneta, Aneta, & Dama, 2018), and the best-practice bureaucratic reform from various other regions in Indonesia (Prasojo & Kurniawan, 2008). In general, the obstacle faced by Indonesia is that many bureaucrats are not ready to change. This condition resulted in the quality of public services received far from public expectations (Tandi Datu & Nawawi, 2014). Public administration and policy practices in Indonesia are still influenced by the classical paradigm that relies on the top-down hierarchical approach. Government bureaucratic activities should start from a policy, planning and the implementation of the policy, including public services. Yet, there is no evaluation, and, therefore, there is no feedback to policy makers and decision makers. Therefore, this study was conducted to evaluate the implementation of bureaucratic reform policies conducted by the Indonesian government through surveys. The focus of the survey is on the Secretariat General of the Ministry of Education and Culture. It is expected that this survey provides updated information and feedbacks on bureaucratic reform policies carried out at the Secretariat General of the Ministry of Education and Culture.
METHOD
The purposive survey method is used in this study. The study was conducted at the Secretariat General of the Ministry of Education and Culture. The population members in this study were 80 people, consisting of echelon III and IV officials in the bureaus within the Secretariat General of the Ministry of Education and Culture. Due to this number, the census technique was used in the collecting respondents by involving all members of the population as the respondents. The number of echelon III and IV officials in the bureaus at the Secretariat General is presented in Table 1. The questionnaire was used as an instrument to collect the data in this study. There are three dimensions of bureaucratic reforms examined, namely the basis of reforms, the reform agent and the environment. The questionnaire blueprint used is presented in Table 2. Muhammad Qudrat Wisnu Aji; Bureaucratic Reform: A Case Study in Secretariat General... | 205
Table 1. Member of Population
No Work Unit Echelon III Echelon IV Number 1 General Bureau 4 12 16 Bureau Planning and International 4 12 2 Cooperation 16 3 Financial Bureau 4 12 16 4 Personnel Bureau 4 12 16 5 Law and Organization Bureau 4 12 16 Total 80
Table 2. Bureaucratic Reform Questionnaire Blueprint No Variable Dimension Indicator Item Bureaucratic Basis of reform; a. Service provider staff 1 Reforms b. Budgeting system performance 2 c. Organizational structure 3 Agent of a. Support of all elements 4 reform; b. Systematic employeetraining 5 c. Recruitment system 6 Environment a. Legislative pressure 7 b. Institutional relations 8 c. Legislative demands 9 d. Systemic relationship 10 e. Human resource relations 11
.
RESULT AND DISCUSSION
The conditions of bureaucratic reforms are analyzed using a questionnaire consisting of 11 statements, each of which is accompanied by five possible answers to choose and consider according to the respondents. The bureaucratic reform variable has three categories, namely the basis of reform category, the agent of reform category, and the environmental category.
Basis of Reform The basis of reforms is the first dimension of bureaucratic reforms, which is represented by three statements. The maximum score range of 80 respondents with three statements is Smax = 1200 while the minimum score obtained is Smin = 240. The scores are then classified according 206 Jurnal Ilmiah Ilmu Administrasi Publik: Jurnal Pemikiran dan Penelitian Administrasi Publik Volume 9 Number 2,July – December 2019. Page 203-212
to Table 3. The scores obtained based on the survey on respondents are shown in Table 4.
Table 3 Total Score Classification No Total Score Classification 1 x ≤ 240 Very Low 2 240 < x ≤ 480 Low 3 480 < x ≤ 720 Moderate 4 720 < x ≤ 960 High 5 x > 960 Very High . Table 4 Total Scores of Basis of Reform Dimension No Statements Total Scores 1 As the employee of the Ministry of Education and Culture, I support 360 the implementation of bureaucratic reforms by providing optimal services. 2 The Ministry of Education and Culture's budgeting system has been 303 allocated efficiently, effectively, accountably and measurably as a prerequisite for implementing bureaucratic reforms. 3 Organizational restructuring. which is one of the bureaucratic reform 317 agendas, has made the Ministry of Education and Culture the right function and right sizing. Total 980
Based on Table 4, the score obtained for the basis of reforms of the survey of respondents is 980. This score is classified as very high. The success of bureaucratic reforms is indicated by a strong basis of reforms by strengthening the staff as service providers (Lee, 1970), where the substance, levels of complexity, and goals of reforms are the focus of attention and are related to the strategy and implementation of reforms (Miftah, 2008) The performance of the budgeting system is one of the basic indicators of bureaucratic reforms. The budgeting system provides an overview of the interrelationships between programs, goals and strategies. This can be a multilevel benchmark (Lee, 1970) between facilities and strategies (Morgan, 1997) followed by programs (Sobirin, 2007). The data in Table 4 state that the basis for bureaucratic reforms is determined by the existence of an organizational structure that has the right function and sizing (Robbins, 1990; 1998; 2003; 2009 Morgan, 1997; Gibson, 1997). In general, the findings regarding the basis of reform dimension in the Secretariat General of the Ministry of Education and Culture have been good. This indicates that the employees have tried to provide good service, the event budget has been planned and distributed well and the existing organizational structure has been run to the maximum.
Agent of Reform Muhammad Qudrat Wisnu Aji; Bureaucratic Reform: A Case Study in Secretariat General... | 207
Agent of reforms is the second dimension of bureaucratic reforms. This dimension is represented by three statements. The maximum score range of 80 respondents with three statements is Smax = 1200 while the minimum score obtained is Smin = 240. The scores are then classified according to Table 3. The scores obtained based on the survey on respondents are shown in Table 5.
Table 5 Total Scores of Agent of Reform Dimension No Statements Total Scores 1 As the employee of the Ministry of Education and Culture, I have 290 understood the goals, objectives and programs of bureaucratic reforms through intensive training/socialization. 2 The success of bureaucratic reforms within the Ministry of Education 251 and Culture is marked by the emergence of agents of change. 3 The emergence of agents of change in the Ministry of Education and 242 Culture is not the result of a transparent and competitive employee recruitment system. Total 783
Based on the table above regarding the bureaucratic reform variable, the agent of reform dimension is in the high category. In the statement that the support of all elements in carrying out bureaucratic reforms is an absolute prerequisite (Lee, 1970), this support leads to the strengthening of human resources (Caiden, 1991). In the statement 2 that the success of bureaucratic reforms requires the existence of agents of change that act as role models at all levels of the organization, this role will save the bureaucratic position and minimize bureaucratic “red tape” that seeks to weaken its image (Dwiyanto, 2011). A transparent and competitive employee recruitment system is a strong foundation for the emergence of agents of change in every organization that play a role in dynamically strengthening the elements of bureaucratic reforms that creates a “role model” in every level of decision making (Dwiyanto, 2011). The findings show that in the implementation, the support from various parties is necessary to accelerate the implementation of bureaucratic reform and to realize better changes in every organization in the Ministry of Education and Culture.
Bureaucratic Environment The environment is the third dimension of bureaucratic reforms and this category is represented by five statements. The maximum score range of 80 respondents with five statements is Smax = 2000 and the minimum score obtained is Smin = 400. The scores are then classified according to Table 6. The scores obtained based on the survey on respondents are shown in Table 7.
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Table 6 Total Score Classification No Total Score Classification 1 x ≤ 400 Very Low 2 400 < x ≤ 800 Low 3 800 < x ≤ 1200 Moderate 4 1200 < x ≤ 1600 High 5 x > 1600 Very High
Table 7 Total Scores of Bureaucratic Environment Dimension No Statements Total Scores 1 The success of bureaucratic reforms is indicated by a balance between 317 environmental demands and interests. 2 Bureaucratic reforms have strengthened institutional relations within the Ministry of Education and Culture which is characterized by an 325 increasingly conducive bureaucratic climate. 3 The diminishing legislative demand is the success of reforms within 263 the Ministry of Education and Culture. 4 The success of bureaucratic reforms within the Ministry of Education and Culture is systemically influenced by increasingly strong 332 institutional relations. 5 Human resource relations do not affect the success of bureaucratic 289 reforms at the level of decision making. Total 1526
Based on Table 7, the bureaucratic environment category of bureaucratic reforms is classified as high. Regarding the statement that the success of bureaucratic reforms is indicated by the balance between environmental demands and interests (Lee, 1970), this condition allows the synergy between organizational and public expectations (Cheung, 2005; Morgan, 2011) Institutional relations are characterized by the strengthening of an increasingly conducive bureaucratic environment (Lee, 1970). Institutional relations are the basis of bureaucratic reforms (Miftah, 2008), which can be seen from the strengthening of organizational systems and behaviors so that this relationship gives a role for leaders to be more confident. The diminishing legislative intervention is the success of reforms at the executive level, where the balance system between the dominant bureaucracy and the political domination (Sondang, 1995) will strengthen the role of bureaucratic reforms as the driver of the organization's ability for better changes (Miftah, 2000). Institutional systemic relationship is one of the environmental demands in bureaucratic reforms. 62.5% of the respondents agree with the statement. This condition is in line with the view that a bureaucratic reform restores inter-bureaucratic relations (Turner and Hulme, 1997), Muhammad Qudrat Wisnu Aji; Bureaucratic Reform: A Case Study in Secretariat General... | 209
where the institutional approach adds values to the potential for bureaucratic reforms (Caiden, 1991). The relationship of human resources has little influence on the success of bureaucratic reforms at the level of decision making (Sondang, 1995; Tjokroamidjojo, 1997). This really makes sense because bureaucratic reforms shape changes in the organizational structure and culture. The findings show that a conducive environment has an important role in supporting the success of the bureaucratic reform that the Ministry of Education and Culture wants to achieve. Internal bureaucratic reforms of the Ministry of Education and Culture are one of the government's priority agenda by making some improvements in order to improve the performance and the image of the bureaucracy which has been less than optimal in carrying out its duties. Not only are bureaucratic reforms within the Ministry of Education and Culture intended to improve the performance and the image of the educational bureaucracy, but public also have a very high expectation that the reforms will improve the quality of education through affirmative policies towards the general public. Bureaucratic reforms can be interpreted as an effort to carry out fundamental reforms in the government system, to eliminate elements that are not good and add things that are good in accordance with the needs of the times, especially those relating to aspects of the organization, business processes, and human resources. Bureaucratic reforms are implemented to form good governance. In other words, bureaucratic reforms are a strategic step to build the state apparatus to be more efficient and effective in carrying out the tasks of governance and community services. The scope of bureaucratic reforms is not only limited to processes and procedures, but also links changes to the level of structures, attitudes and behaviors of the implementers. This is related to problems that intersect with authority and power (Aji et al., 2013). If bureaucratic reforms are successfully implemented, the expected benefits are as follows: (1) Reducing and ultimately eliminating all types of abuse of authority by the state apparatus in related institutions; (2) Making the state have the best state bureaucracy system; (3) Improving the quality of services to the society; (4) Improving the quality of the planning and implementation system of each program in each institution; (5) Increasing efficiency (cost and time) in all aspects of organizational tasks; and (6) Making the Indonesian bureaucracy more anticipative, proactive, and effective in the face of globalization and dynamic environmental changes. The implementation of bureaucratic reforms can run well if carried out with the management of change steps. Management of change is the process of diagnosing, initiating, implementing, and integrating changes in individuals, groups, or organizations in order to adapt and anticipate changes in their environment so that they continue to grow, develop, and produce profits. Among the most common, there are seven steps of management of change. The first is mobilizing the energy and commitment of the members of the organization through the determination of the ideals, challenges, and solutions by all members of the organization. At this stage, each line in the government agency must know what the agency is dreaming about, what they are facing, and how to deal with or solve the problem together. In trigger them to run a joint solution; they need to be involved in discussions and decision making. The second is developing a shared vision, how to organize and organize themselves and institutions in order to achieve what they aspire to. The last is determining leadership (Aji et al., 2013) 210 Jurnal Ilmiah Ilmu Administrasi Publik: Jurnal Pemikiran dan Penelitian Administrasi Publik Volume 9 Number 2,July – December 2019. Page 203-212
CONCLUSION Bureaucratic reforms have significantly influenced organizational performance at the Secretariat General of the Ministry of Education and Culture. The dimensions of bureaucratic reforms have quite varied impacts. The basis of reform dimension shows the best result among others. This shows that bureaucratic reforms are characterized by a strong basis of reforms by strengthening the staff as service providers. The agent of reform dimension shows a good performance. The support of all elements including the staff in carrying out bureaucratic reforms is a required prerequisite. This support leads to the strengthening of Human Resources as an agent of bureaucratic reforms. The bureaucratic environment dimension shows a good result. The findings show that a conducive environment has an important role in supporting the success of the bureaucratic reform that the Ministry of Education and Culture wants to achieve.
REFERENCES
Aji, M. Q. W., Heru, B., & Turmudzi, D. (2013). Impact of bureaucracy reforms and cultural organization to the performance of organization secretariat general ministry of education and culture. Pasundan University. Aneta, A., Aneta, Y., & Dama, H. (2018). Institutional Problems in Regional Public Services. Jurnal Ilmiah Ilmu Administrasi Publik, 8(2), 79–86. https://doi.org/10.26858/jiap.v8i2.7877 Caiden, G. E. (2014). Administrative reform comes of age (Vol. 28). Walter de Gruyter GmbH & Co KG. Dwiyanto, A. (2013). Mengembalikan kepercayaan publik melalui reformasi birokrasi. Gramedia Pustaka Utama. Cheung, A. B. L. (2005). The politics of administrative reforms in Asia: Paradigms and legacies, paths and diversities. Governance, 18(2), 257–282. https://doi.org/10.1111/j.1468-0491.2005.00275.x Gibson, Ivancevich., Donnely. 1997, Organisasi, Perilaku, Struktur, Proses, alih bahasa Wahid, Jakarta: Erlangga. Kassay, A. (1998). Administration and efficiency - bureaucratic reform: The case of Jordan. Mediterranean Politics, 3(3), 52–62. https://doi.org/10.1080/13629399808414665 Lee, H. B., & Samonte, A. G. (Eds.). (1970). Administrative reforms in Asia. Eastern Regional Organization for Public Administration. Miftah, T. (2008). Birokrasi Pemerintah Indonesia di Era Reformasi. Edisi Pertama, Cetakan ke-1, Kencana Pranada Media Group, Jakarta. Morgan, G. (1997). Images of organization. Thousands Oaks. Cal.: Sage Publications Muhammad Qudrat Wisnu Aji; Bureaucratic Reform: A Case Study in Secretariat General... | 211
Morgan, G. (2011). Reflections on images of organization and its implications for organization and environment. Organization and Environment, 24(4), 459–478. https://doi.org/10.1177/1086026611434274 Mukhtar, M. I. (2015). The public manager, the structure of public institution, and implementation: The 2002-2012 finnish senior bureaucratic manager reform. Teaching Public Administration, 33(1), 40–61. https://doi.org/10.1177/0144739414532283 Paskarina, C. (2017). The making of competitive bureaucracy: A case of bureaucratic reform in West Java province. Cogent Social Sciences, 3(1), 1–13. https://doi.org/10.1080/23311886.2016.1273748 Prasojo, E., & Kurniawan, T. (2008). Bureaucracy Reform and Good Governance: the case of the best practices from several regions in Indonesia. Symposium A Quarterly Journal In Modern Foreign Literatures, 1–15. Retrieved from https://scholar.google.com/scholar?oi=bibs&cluster=360656420083251686&btnI=1&hl=i d Robbins, S. P. (1998). Organisation Behaviour. Eight Edition. Robbins, S. P. (2003). Perilaku Organisasi.(judul asli: Organizational Behavior Concept, Controversies, Applications 8th edition) Jilid 1. Penerjemah Hadyana Pujaatmaka. Jakarta: PT. Prenhallindo. Robbins, S. P. (2009). organisational behaviour in Southern Africa. Pearson South Africa. Robbins, S. P. (1990). Organization Theory: Structures, Designs, And Applications, 3/e. Pearson Education India. Sobirin, A. (2007). Budaya Organisasi: Pengertian, makna dan aplikasinya dalam kehidupan organisasi. Yogyakarta: UPP, STIM YKPN. Sondang, S. P. (1995). Teori Pengembangan Organisasi. Jakarta, Bumi Aksara, Sinar Grafika Offset. Tandi Datu, T., & Nawawi, H. J. (2014). Implementation of good governance and bureaucratic reform in Indonesia. International Journal of Academic Research, 6(3), 5–9. https://doi.org/10.7813/2075-4124.2014/6-3/b.1 Tjokroamidjojo, Bintoro. 1997. Perencanaan Pembangunan. Jakarta: Gunung Agung Turner, M., & Hulme, D. (1997). Governance, administration and development: Making the state work. Macmillan International Higher Education. Yusriadi, & Misnawati. (2017). Reformasi Birokrasi dalam Pelayanan Publik. Jurnal Ilmiah Ilmu Administrasi Publik, 7(2), 99–108. Retrieved from http://ojs.unm.ac.id/iap/article/view/4954
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Potential policy impacts: Establishment of Indonesian mining state-owned holding company
Chandra Wijaya1*, Rina Andriani2 Magister Administrasi dan Kebijakan Publik, Fakultas Ilmu Administrasi Univeristas Indonesia Email: [email protected], [email protected]
(Received: May 15-2019; revised: Juny 10-2019; published: December 31-2019)
ABSTRACT
Government of Republic of Indonesia has been working to establish and operate the State-Owned Holding Company for Mining sector. There has been a long debate in whether in public, government institution, even in the industry on how this policy would give impact to all stakeholders within the business. While this mining state-owned holding company keep going on its mission to achieve the policy’s objectives, in order to monitor the track we are at, this paper is trying to observe on the potential policy impacts and how can we manage to solve any damage, if there is any, so that the negative implications from the policy can be understood better and well handled by the government as well as the holding.
Keywords: mining sector; policy impact; public policy; state-owned enterprises; state-owned holding company.
INTRODUCTION
The Government of the Republic of Indonesia through the Ministry of State-Owned Enterprises (BUMN) acts and is authorized to handle policies surrounding the management of State-Owned Enterprises (Hermawan & Adinda, 2012; Warganegara, Hutagaol, Saputra, & Anggraini, 2013; Wicaksono, 2009). BUMN is often understood as a line of important contributors in managing the economic system in Indonesia. For this reason, every decision taken will be able to influence other economic chain conditions starting from the private sector to abroad. In connection with this, State-owned Enterprises (SOEs) also play a role in determining the course of the economy, especially in stimulating growth in the field of industry, diluting opportunities and job vacancies, business and business potential to strengthen the state budget condition through achieving the economy as tax and non-tax revenues (Du, Tang, & Young, 2012; Menozzi, Gutiérrez Urtiaga, & Vannoni, 2011; Wei & Wang, 1997). Then, SOEs also have a role in the supply and supply of goods and services as public needs where these needs have not been fulfilled by the private sector (Alford, 2002; Essig & Batran, 2005; Fountain, 2001; Karnani, 2007). The strategic role concerns various sectors such as the economy, banking and non-banking finance, manufacturing, agriculture, electricity, transportation, construction, telecommunications and others. As an upstream industry, the performance of BUMNs will influence the level of efficiency of the industry below (Siahaan, 2005). 214 Jurnal Ilmiah Ilmu Administrasi Publik: Jurnal Pemikiran dan Penelitian Administrasi Publik Volume 9 Number 2,July – December 2019. Page 213-224
BUMN represents State ownership. In its operational activities, BUMN is bound by various regulations attached to it as part of the company or public company. While in terms of management of State Assets, for BUMN, through Government Regulation Number: 228 in 2001, then Government Regulation number 64 was issued in the same year regarding the position, duties and authority of the General Meeting of Shareholders (GMS) or shareholders in Company. The task of the Ministry of BUMN is to assist the president in formulating and formulating policies and coordinating BUMN governance. The following is an explanation of the functions of the Ministry of BUMN: a) Formulate government policies in the field of fostering and managing BUMN and include controlling activities, privatization, increasing efficiency and restructuring or reorganizing BUMN; b) Coordinate and improve the preparation and integration of the program plan, analysis, monitoring and review and evaluation in the field of SOE guidance and governance; c) Submitting a report which is the result of the evaluation above, including suggestions and considerations in terms of developing BUMN. In the process of carrying out its duties and functions, the existence of the Ministry of BUMN refers to the State Policy Outline as follows: a) Carrying out efficient, transparent and professional SOE arrangements, especially for BUMNs whose businesses are related to the public interest and related to the implementation of public, industrial, security and defense facilities and managing assets which are considered strategically followed by other business activities that are not carried out by the private sector; b) Carry out the development of cooperative relations in the form of mutually beneficial business ties between corporations, the private sector and also state-owned enterprises which include large-scale businesses, the middle and small classes in the mission of strengthening the structure and resilience of the national economy; c) Healthy SOEs, especially those whose business is related to the public interest of SOEs and not related to the public interest, are driven towards privatization-based management through the capital market.
Based on Law Number 19 of 2003 which was then processed by Toto (2017), the role of BUMN can be described as follows: Chandra Wijaya, Rina Andriani; Potential policy impacts: Establishment of Indonesian... | 215
Figure 1 The role of SOEs in accordance with Article 2 of Law No. 19 of 2003 Source: Ministry of BUMN, data processed by Toto (2017)
The mining industry is one of the industrial sectors that has a large contribution to Indonesia starting from increasing export revenues, regional development, increasing economic activity, opening employment and income sources to the central budget and regional budgets. Based on data from the Ministry of Finance, currently non-tax state revenue (PNPB) from the mineral and coal sector reaches 75 percent to 80 percent of the total PNPB. Recorded, the non- tax revenues from the mining sector until December 2018 reached Rp 46.6 trillion or 146% of the target set at Rp 32.1 trillion. BUMN Mining Holding officially formed on November 29, 2017. The process of establishing Mining BUMN Holding is carried out through the following process:
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Figure 2 Indonesian State-owned Mining Holding Company – Ownership Structure Source: www.inalum.com
The establishment of the Indonesian State-Owned Mining Holding company is expected to achieve several goals as follows: a) Control mineral reserves; b) Run the program of the downstream and local content; c) Make the mining SOEs as one of the world-class companies. Taking into account the exposure to the role of the BUMN, then it will be discussed about how the restructuring process is through the establishment of BUMN Holding, including the potential analysis of its impact on holding members. What is the potential policy impacts of the establishment of the Indonesian mining state-owned holding company? How to deal with the initial implications so that the main objectives of the policy can be achieved? The findings and discussions session will elaborate these questions further.
METHOD
The object of this research is financial performance, three members of the Indonesian mining holding company under PT Indonesia Asahan Alumunium namely PT Antam Tbk, PT Timah Tbk, and PT Bukit Asam Tbk. The period under study covers the years 2017-2019 in the first quarter by taking into account the formation time of state-owned holding companies so that financial performance can be known several years before and after holding. With the period covered, the analysis of the effect of holding only includes short-term effects. Quantitative data is obtained from secondary sources (Creswell & Creswell, 2017), namely from the financial statements of the BUMN company that are downloaded from the site of each BUMN. In addition, other data is obtained from the stock site which includes information relating to these companies. Chandra Wijaya, Rina Andriani; Potential policy impacts: Establishment of Indonesian... | 217
The dependent variable in this study is the financial performance of SOEs as measured by Financial performance, Corporate governance, Operational efficiency, and Joint projects among sub-holdings. The indicators used for the financial performance are the value of Return on Assets (ROA) and Earnings Per Share (EPS). As for the Corporate governance, the writer will observe on how this policy creates an impact to the sub’s corporate governance. This observation will be conducted by analyzing the value of each company’s rate of Good Corporate Governance (GCG) after the establishment of Holding company.
RESULT AND DISCUSSION
As per the end of November 2017, the Government of Indonesia had at last officially established the Indonesian State-owned Mining Holding Company. This action is a follow up item from the issuance of Government Regulation (PP) Number 47/2017 concerning the Addition of State Capital Participation (PNM) to PT Inalum's Shares issued on 14 November 2017. In the past year from the implementation of the policy, several implications are believed to occur in the holding environment, especially the members of the holding. According to Anderson (1984), in order to analyze the impact of implemented policy, we shall have in mind, the distinction between policy outputs and policy outcomes. Policy outputs are things governments do, for example, arrests for burglary, highway construction, operation of public schools, or payment of welfare benefits. These activities may be measured by such arrests for burglary per 100,000 population, standards as per capita highway expenditures, per pupil school expenditures, per capita welfare expenditure, and the like. Such figures tell us little about the outcomes, or impacts, of public policies because, in trying to determine policy outcomes, our concern is with the changes in the environment or political system caused by policy action. The impact of a policy has several dimensions, all of which must be taken into account in the course of evaluation. These include: the impact on the public problem at which it is directed and on the people involved, policies may have effects on situation or group other than those at which they are directed, policies may have impacts on future as well as current conditions, the direct costs of policies, and indirect costs that are experienced by the community or some of its members. Referring to the all 5 dimensions mentioned above, writer has observed those implications and divided them into 4 aspects which consisted of: Financial performance, Corporate governance, Operational efficiency, and Joint projects among sub-holdings.
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Financial Performance
In the same week of the official announcement that the mining state-owned holding company will be formally established, shares of PT Antam, PT Timah and PT Bukit Asam dropped 2.9%, 1.1% and 4.8%, respectively, at the close of trading on Wednesday during the announcement -- sharper than the benchmark Jakarta Composite Index's 0.27% decline. This finding is somewhat interesting to elaborate to get a bigger picture on how this policy can impact the holding subs financially. Based on value-increasing theory, mergers are carried out in order to produce synergies between companies so as to increase the value of the company. With the efficiency process, if a merger is carried out, value-creation with positive returns are expected to occur for each company (Akpan, Wanke, Chen, & Antunes, 2019; Alexandridis, Antypas, & Travlos, 2017; Banerjee & Eckard, 1998). This is especially seen from the value of Return On Assets (ROA).
Table 1 ROA Growth of Indonesian State-owned Mining Holding Company’s Members
Details 2017 2018 2019 (quarter I) Industry PT Antam Tbk 0.45% 0.74% 0.51% -1.93% PT Timah Tbk 4.23% 3.51% 1.68% 0.16% PT Bukit Asam Tbk 20.68% 21.19% 4.63% 0.88% Source: Processed data from corporate’s financial statement (2018-2019Q1)
Basically, the ROA told us about how a company could make out of profit over assets they do have. A high number of ROA provides a higher value of company's capabilities to efficiently operate its business. And it's safe enough to say, each industry have their own standard of ROA, according to the differences between one and another in using company's assets in order to gain profits (Muhammad, Rehman, & Waqas, 2016; Purnamasari, 2015). Back to the table. In the last one year since the establishment of Indonesian mining state-owned holding company with PT Inalum as the holding of its subs- PT Antam, PT Timah and PT Bukit Asam, we can observe that both Antam and Bukit Asam has increased the number of Return on Assets. In 2017, PT Antam’s ROA was at 0.45%, reached 0.74% in 2018, and was at 0.51 by the end of the first quarter of 2019. PT Bukit Asam’s ROA in 2018 was 21.19% which previously at 20.68% in 2017, and reportedly was at 4.63% by the end of March 2019. It might be quite early to say that the increased number is a result of the acquisition of the companies by the holding. However, it is important to understand that the five years average of PT Antam’s ROA was at -0.79%, while the five years average of standard ROA in the industry was 3.3%. This increase shall be a good start for PT Antam to keep on going with its ROA growth to show its effectivity in managing assets to get more profits. Different situation happens to PT Bukit Asam. The five years average ROA was strong compared to the average in the industry, 17.28% compared to 6.2%. In the other hand, PT Timah’s ROA was decreased from 4.23% in 2017 to 3.51% in 2018, and 0.51% in the end of the first quarter of 2019. The decrease in ROA of state-owned holding Chandra Wijaya, Rina Andriani; Potential policy impacts: Establishment of Indonesian... | 219
indicated that the contribution of state-owned holding to state revenues was not optimal. The government established a state-owned holding with the aim that SOEs engaged in the same business sector can work together to achieve optimal profits. It turns out that these objectives based on the data in Table 1 have not been relatively achieved, at least when measured by profitability ratios in the form of ROA. Thus, an analysis is needed to determine the impact of restructuring through BUMN holding on the financial performance of SOEs. In addition to the ROA calculation, the data on the Earnings per share (EPS) will be also provided. The EPS rating is one of reliable key when a shareholder is picking the best and most favorable stocks. This information is calculated by dividing a company’s net income by its number of shares outstanding. For more details, the Table 2 below reflects the number of Holding members’ EPS for the past year until the most recent quarter.
Table 2 EPS of Indonesian State-owned Mining Holding Company’s Members
Details EPS (MRQ) vs Q1 Industry EPS TTM vs Industry 2018 TTM 2018 PT Antam Tbk -30.12% 53.29% 113.13% -10.26% PT Timah Tbk 440.2% -593.49% 65% -99.09% PT Bukit Asam Tbk -21.82% 23.53% -6.97% -15.98%
Source: Processed data from corporate’s financial statement (2018-2019Q1) Notes MRQ: Most Recent Quarter TTM: Trailing Twelve Months
Referring to investors.com, it is said that stocks with EPS growth rates of at least 25% with the previous year levels reflect a company has services or products in very strong demand. From the Table 2 we can see that. This observation through the statistic on the number of company’s ROA, shall provide us with initial understanding on how the establishment of the Indonesian mining state-owned holding company may created impact to its subs. The next observation will be based on the corporate governance of the holding and its subs.
Corporate Governance
According to Kim (2018), currently, State-owned enterprises that have been partially privatized are the largest companies in their respective industries, including mining. PT Antam as nickel producer, PT Timah as tin miner and PT Bukit Asam as coal producer. On the other hand, smaller state-owned enterprises with limited expected benefits from privatization have largely remained fully owned by the government. In this situation, the balance of power is expected to be carried by the subsidiaries, leading to a situation where “children control their parents,” and the holding's coordinating capacity will be limited. Moreover, the situation will become even more complicated when the holding with limited management capacity must deal with larger SOEs' minority private shareholders. 220 Jurnal Ilmiah Ilmu Administrasi Publik: Jurnal Pemikiran dan Penelitian Administrasi Publik Volume 9 Number 2,July – December 2019. Page 213-224
Therefore, in this section, the writer will observe on how this policy creates an impact to the sub’s corporate governance. This observation will be conducted by analyzing the value of each company’s rate of Good Corporate Governance (GCG) after the establishment of Holding company. As for PT Antam, since 2004, ANTAM has appointed an independent assessor to assess the GCG implementation. In accordance with regulatory developments related to GCG implementation, in 2018 the Board of Commissioners of ANTAM has appointed PT RSM Indonesia, an independent assessor to conduct assessment and implementation of GCG in ANTAM with 3 (three) methods of assessment in accordance with SK-16/S.MBU/2012 on Assessment and Evaluation Indicators or Parameters for the Implementation of Good Corporate Governance in State-Owned Enterprise, parameters from ASX Corporate Governance Principles & Recommendations 3rd Edition, and the ASEAN Corporate Governance Scorecard v.2.0 recently released in May 2017 by ASEAN Market Capital Forum (ACMF). Assessment on GCG Implementation in ANTAM is also conducted in accordance with the scorecard defined by the SOE Ministry in the SK-16/S.MBU/2012 dated June 6, 2012 on Assessment and Evaluation Indicator or Parameter of GCG Implementation within SOE. The followings are the result of the GCG assessment of PT Antam for the last there years.
Table 3 Achievement of ANTAM's GCG Implementation
Source: PT Antam’s Website (www.antam.com)
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The GCG Implementation assessment conducted for Antam in 2018 based on BUMN scorecard was 97.01 or “Very Good”, based on the ASX Corporate Governance Principles 3rd Edition was 27 of 29 or equal to 93.11% with Recommendations Fulfilled as “Very Good” and Based on Implementation ASEAN Corporate Governance Scorecard, the fulfillment rate was 84.07%. The followings are the achievement records for the last three years from PT Timah.
Figure 3 PT Timah’s achievements in the implementation of GCG practices (2017) Source: PT Timah Annual Report 2017
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Figure 4 PT Timah’s achievements in the implementation of GCG practices (2018) Source: PT Timah Annual Report 2018
And as for PT Bukit Asam, the followings are the result of its GCG assessment for the last three years.
Table 4 GCG Assessment of PT Bukit Asam (2017)
Source: Annual Report of PT Bukit Asam (2017)
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The result of GCG for the year 2018 is not available (in numbers) in PT Bukit Asam’s Annual Report 2018. This shall be taken into account that such management capacities and capabilities is important to take a whole role as GCG is one of key factor to determine a company’s overall performance.
CONCLUSION
All in all, the implications we can observe from the establishment of the Indonesian mining state-owned holding company are first, the Financial performance where we could see there’s trust issue from the minority shareholders within the implementation of the policy temporarily. However, at some point, the financial performance through the value of ROA and EPS show cast a good sign for the long-term growth for the company. Even though one of the holding members – PT Bukit Asam – is not currently in its best condition after the establishment of the mining SOHC.
REFERENCES
Akpan, M., Wanke, P., Chen, Z., & Antunes, J. M. (2019). Unveiling the Endogenous Relationship Between Technical Efficiency and Value Creation in Mergers and Acquisitions in Nigeria. South African Journal of Economics. Alexandridis, G., Antypas, N., & Travlos, N. (2017). Value creation from M&As: New evidence. Journal of Corporate Finance, 45, 632–650. Alford, J. (2002). Defining the client in the public sector: A social‐exchange perspective. Public Administration Review, 62(3), 337–346. Banerjee, A., & Eckard, E. W. (1998). Are mega-mergers anticompetitive? Evidence from the first great merger wave. The Rand Journal of Economics, 803–827. Creswell, J. W., & Creswell, J. D. (2017). Research design: Qualitative, quantitative, and mixed methods approaches. Sage publications. Du, F., Tang, G., & Young, S. M. (2012). Influence activities and favoritism in subjective performance evaluation: Evidence from Chinese state-owned enterprises. The Accounting Review, 87(5), 1555–1588. Essig, M., & Batran, A. (2005). Public–private partnership—Development of long-term relationships in public procurement in Germany. Journal of Purchasing and Supply Management, 11(5–6), 221–231. Fountain, J. E. (2001). Paradoxes of public sector customer service. Governance, 14(1), 55–73. Hermawan, A. A., & Adinda, G. (2012). The effect of board characteristics and audit committee existence on earnings quality of Indonesian state-owned enterprises. Available at SSRN 2135051. 224 Jurnal Ilmiah Ilmu Administrasi Publik: Jurnal Pemikiran dan Penelitian Administrasi Publik Volume 9 Number 2,July – December 2019. Page 213-224
Karnani, A. (2007). The mirage of marketing to the bottom of the pyramid: How the private sector can help alleviate poverty. California Management Review, 49(4), 90–111. Kim, B. (2018). Is Narcissism Sustainable in CEO Leadership of State-Owned Enterprises? Sustainability, 10(7), 2425. Menozzi, A., Gutiérrez Urtiaga, M., & Vannoni, D. (2011). Board composition, political connections, and performance in state-owned enterprises. Industrial and Corporate Change, 21(3), 671–698. Muhammad, H., Rehman, A. U., & Waqas, M. (2016). The relationship between working capital management and profitability: A case study of tobacco industry of Pakistan. The Journal of Asian Finance, Economics and Business (JAFEB), 3(2), 13–20. Purnamasari, D. (2015). The effect of changes in return on assets, return on equity, and economic value added to the stock price changes and its impact on earnings per share. Research Journal of Finance and Accounting, 6(6), 80–90. Siahaan, R. (2005). BUMN Indonesia: isu, kebijakan, dan strategi. Elex Media Komputindo. Warganegara, D. L., Hutagaol, Y. R. I., Saputra, M. A., & Anggraini, Y. (2013). State-Owned Enterprises and Corporate Governance Strength: Evidence from Indonesia. International Journal of Management and Business Research, 3(4), 325–335. Wei, S.-J., & Wang, T. (1997). The Siamese twins: do state-owned banks favor state-owned enterprises in China? China Economic Review, 8(1), 19–29. Wicaksono, A. (2009). Corporate governance of state-owned enterprises: investment holding structure of government-linked companies. University of St. Gallen.
Jurnal Ilmiah Ilmu Administrasi Publik: Jurnal Pemikiran dan Penelitian Administrasi Publik Volume 9 Number 2, July– December 2019. Page 225-236 p-ISSN: 2086-6364, e-ISSN: 2549-7499 Homepage: http://ojs.unm.ac.id/iap
Encouraging Collaborative Governance in Badan Usaha Milik Desa (BUM Desa) Management in Indonesia
Chandra Wijaya1*, Vicky Dian Pratama Sari2 Magister Administrasi dan Kebijakan Publik, Fakultas Ilmu Administrasi Univeristas Indonesia Email: [email protected], [email protected]
(Received: May 16-2019; revised: Juny 15-2019; published: December 31-2019)
ABSTRACT
This essay tries to explore and develop a collaborative governance concept as an alternative approach for developing BUM Desa program of the Ministry of Village, Development Regions and Transmigration. Recently, there are more than 45,000 units of BUM Desa in which 66% of them were established after 2015. However, the vast majority of them are still under-developed. This study uses a qualitative evaluation method for a deeper and more detailed understanding the dynamics of an ongoing program. Data collection techniques used in this study are in-depth interview, Focus Group Discussion (FGD), observation, documentary, visual material and online data gathering with constant comparative analysis. The result from this study explain that ‘BUM Desa Bersama Program’ is an example of a collaborative governance concept. ‘BUM Desa Bersama’ is a collaboration between village’s economic institutions involving several BUM Desa’s across villages. The government needs to encourage broader partnerships to enable experiences exchange which may strengthen the BUM Desa and expand their business scale and market penetration. This partnerships may involve collaboration with public institutions and private institutions.
Keywords: BUM Desa; Collaborative governance; BUM Desa Bersama; Public institution; and private institution.
INTRODUCTION
Equitable development of rural areas is an implementation of the government's prioritized agenda in an effort of developing Indonesia from peripheral territories by strengthening villages as development base (Farida, 2017; Morss, 2019; Salim & Negara, 2018; Tolkach & King, 2015; Wicaksono, 2018). The development gap in rural areas is a homework for the government to solve. Based on data from Badan Pusat Statistik (BPS) released in January 2017, there were inequalities and prosperity gap between rural and urban areas from 1993 to 2016. The percentage of poverty in rural areas was greater than urban areas. It reached 13.96% in rural areas and 7.73% in urban areas in 2016 (Irawan, 2017). While the latest data (2018) explains poverty in rural areas was 13.10% and 6.89% in urban areas. This figure shows inequality of economic development between rural and urban areas. Therefore, rural regional development is an absolute necessity and a serious concern to be prioritized in order to decrease poverty, especially in rural areas.
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Table 1 Village categories in Indeks Desa Membangun (IDM) Categories Amount Percentage Desa Sangat Tertinggal 14,107 18.87 % Desa Tertinggal 33,948 45.41 % Desa Berkembang 22,916 30.66 % Desa Mandiri 173 0.23 % Desa Maju 3,610 4.83 % Source : Ministry of Village, Development Regions and Transmigration (2016)
Based on these facts, the national development strategy must be sought by giving the village economic development a larger portion. Basically villages have a lot of potentials that can be driven to encourage economic development. Villages can be the main force of national development by mobilizing their economic potentials as development base. This effort can be a practical solution in advancing the national economy through rural areas development (Sumodiningrat & Wulandari, 2016). Attention to the mainstreaming of village economic development has the best momentum with the birth of Undang-undang Desa Tahun 2014 (UU Desa). It was a milestone in the village development. UU Desa provides a special space by recognizing of village’s authority. Irawan (2017) explains the special space is provided by the principle of recognition and subsidiarity. Recognition principle is recognizing the village existence with all of its rights of origin including recognition of its tradition. While the subsidiarity principle refers to respecting village’s authority in accordance with the origin of tradition. Through these two principles, village has local authority and rights of origin authority that can be used to determine their fate and future independently (Moreda, 2017; Murtazashvili & Murtazashvili, 2016). These privileges are expected to encourage village development massively, equitably and sustainably. The problem of village economic inequalities and the birth of UU Desa momentum became important capital in determining government policy direction. Within this framework, government launched the development program of Badan Usaha Milik Desa (BUM Desa) as a solution to overcome rural economic problems and encourage village community participation in achieving their welfare. BUM Desa is projected to be a pillar of village economy which function as a commercial institution in generating economic benefits and at the same time as a social institution to overcome various socio-economic problems. The existence of BUM Desa gives wide opportunity to open village access and economic assets to increase participation, employment opportunities, and village economy (Rhodes & Nabi, 1992; Rozelle & Boisvert, 1995; Tomich, Kilby, & Johnston, 2018; VanStone, 1960). BUM Desa existence is expected to encourage advance changes in village economy for the prosperity of the village community. In conjure with the expectation, BUM Desa rapidly accommodated by villages across Indonesia. Thousands of villages established their own BUM Desa and keep increasing year by Chandra Wijaya, Vicky Dian Pratama Sari; Encouraging Collaborative Governance... | 227
year. In 2014, the number of registered BUM Desa reached 1.022 units. Meanwhile by the end of 2018, this number increased to 45.549 units all across Indonesia. On the other hand, there’s this question about how this number directly affected the economic growth in those villages. In reality, BUM Desa did not have a simultaneous effect to the economic growth of their respective villages. According to a study by Pusat Penelitian dan Pengembangan (Puslitbang), Ministry of Village, Development Regions and Transmigration (2018) who conducted survey on BUM Desa Development Indocators in a number of villages in Java shows that majority of registered BUM Desa still only categorized as “BUM Desa Bentukan” where there economic contribution are below 50 percent. Furthermore, 52.86 percent of these BUM Desa are under developed with annual gross income under 10 million rupiahs. It means, the business and economic contribution of the majority of BUM Desa are still very limited. This reality reflects the conditions of BUM Desa program in Indonesia which requires system improvement and better management. These improvements will affect BUM Desa management program, so these BUM Desa will have quality to match their large quantities and have more substantial impact for the development of the village. Considering the government limitations, it is necessary to build a collaborative system for cross-sectoral cooperative relationships. Moreover, BUM Desa Development Program weaknesses can be addressed through collaborative governance methods which connect the government with various private sectors institutions to support program achievement. Collaborative governance is a concept that describes a process involving various stakeholders based on their individual interests which aim to achieve the common goals and intentions (Bodin, Sandström, & Crona, 2017; Shilbury & Ferkins, 2015). While according to Ansell & Gash (2007) collaborative governance is an arrangement that regulates one or more public institutions directly involved with private stakeholders in a formal collective decision- making process, consensus-oriented, and discussion aimed for making or implementing public policies or managing programs or public assets (Mintrom & Luetjens, 2017). In addition, that collaborative governance as a collective and egalitarian process, has equal opportunity and substantive authority by each participant and in the decision of making process (Bodin, 2017; Bodin et al., 2016; Emerson & Nabatchi, 2015). One of the collaborative governance form is Public Private Partnership (PPP). This concept emphasizes the aspect of cooperation or partnership to unite government and private interests. The main assumption is the limited ownership by each stakeholder are expected to bridge various interests to achieve the common goals. World Bank (2014) describes Public Private Partnership as long-term contract between private sector and government agency to provide a public asset or service. According to the contract, the private sector will be shouldering significant risks and management responsibilities with remuneration determined based on performance. Daraba, Akib, Saggaf, Cahaya, & Salam (2018); Mappasere, Imbaruddin, & Akib (2014); Syam, Lamangida, Madubun, & Akib (2018) concludes that public and private partnerships are collaborations based on agreements in order to produce a public service product with risk sharing, resources accumulation, and common goals. The process should unify various interests, resources, and risk sharing to achieve common goals. Following this, it requires a thorough understanding of the of the policy aspects to be implemented. The collaborative governance concept serves as instrument to dissect a solution framework of BUM Desa development in Indonesia and formulates alternative 228 Jurnal Ilmiah Ilmu Administrasi Publik: Jurnal Pemikiran dan Penelitian Administrasi Publik Volume 9 Number 2,July – December 2019. Page 225-236
perspectives. This concept is considered relevant to examine the phenomenon of BUM Desa which currently is in a growing process. BUM Desa Bersama program which is being developed by the government is closely related to collaborative governance concept, so it may form a deep and comprehensive collaboration.
METHOD This essay is a result of research conducted at the Ministry of Village, Development Regions and Transmigration and focusing on the evaluation of BUM Desa development in Indonesia. This study uses qualitative evaluation method (Creswell & Poth, 2018). Patton (2006) explains this approach describes in depth and detail for understanding the dynamics of running program. The evaluation process requires detailed descriptions of the running program based on observation and interview. An important source of qualitative evaluation data is direct observation. This method emphasizes the process as a focus in evaluation by looking at how the results or outcomes are produced. Thus, the evaluation process will develop, be descriptive, continuous, flexible and inductive. Qualitative evaluation presents more detailed information of program activities, processes and participants. The basis for determining informants uses two ways: purposive procedures and snowball procedures with in-depth interviews, Focus Group Discussions, observation, documentaries, visual or photographic materials and online data accumulation as data collection techniques. In addition to that, this study uses constant comparative analysis. The essence of this technique is used to compare events that occurred when researcher analyzed these events and conducted perform continuously during the study (Bungin, 2007).
RESULT AND DISCUSSION
Badan Usaha Milik Desa (BUM Des) program is the main focal point for economic development. BUM Desa is an institution reflecting the village government and community partnership which truly managed at village level. BUM Desa performs various form of productive activities aimed for the prosperity of the community. BUM Desa may conduct its business from the village own capitals, its natural resources, and other potential resources available. BUM Desa may conduct various business and services appropriate to the existing rules (Setyobakti, 2017; Winarsi, Widyantoro, & Moechthar, 2018). BUM Desa are to be managed by developing its main business or diversification of business units, and sale expansion of its products or services. The types of business it may develop are Social Business, Renting, Brokering, Production, Trading, Finance, and may form a Holding business. These various businesses must be compatible with natural resources and local potencies available. The main principal is to promote a business based on local potencies by utilize available resources as wide as possible for village’s prosperity.
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Table 2 Distribution of BUM Dess per Province Sumatera Total Kalimantan Total Java & Total Sulawesi Total Maluku Total Nusa and Tenggara Papua Aceh 6471 West 509 West Java 3816 West 531 Maluku 715 Kalimantan Sulawesi Sumatra 2130 East 795 Banten 587 Gorontalo 647 North 425 utara Kalimantan Maluku Riau 101 South 1203 Bali 587 South 1931 Papua 598 islands Kalimantan Sulawesi Riau 1013 North 210 Yogyakarta 291 Southeast 1729 West 132 Kalimantan Special Sulawesi Papua Region West 676 Central 846 Central 3057 North 903 Sumatra Kalimantan Java Sulawesi Jambi 911 East Java 5865 Central 1357 Sulawesi South 2338 NTB 881 Sumatra Lampung 2364 NTT 608 Bangka 245 Belitung islands Bengkulu 1080 Source : Ministry of Village, Development Regions and Transmigration (2018)
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BUM Desa Distribution by Province
BUM Desa expected to serve as pulling factor for village’s economic growth. BUM Desa program is the main program between other prioritized government programs. Its existence is expected to provide domino effect to open participation, access, and economic asset for villages communities. Thus, village’s economic development process could be developed independently by the utilization of natural resources and other potencies.
Since its inception, BUM Desa has been growing rapidly. Thousands of villages have established their own BUM Desa, and the number has been increasing year by year. In 2014, the number of BUM Desa registered is 1,022 units, and increased to 11,945 in 2015. This increase was in parallel with Dana Desa reorientation and reformulation which intensively advocating BUM Desa as its prioritized program. In 2016, the number of BUM Desa increased to 18,446 units, and by 2017 BUM Desa program found momentum as it was inaugurated as prioritized program for Dana Desa. BUM Desa number keep increasing to 39,149 units by the end of 2017 and this number reached 45,549 units by the end of 2018.
Table 3 The existence of BUM Desa by Year
The existence of BUM Region Desa 1 2 3 4 5 6 7 National Average A. There is no BUM Desa yet BUM Desa has never 4,1 24,6 0,0 53,1 0,0 20,0 92,9 24,3 been established / has been dispersed B. There is BUM Desa 1. BUM Desa was 8,2 11,5 22,2 3,1 12,5 5,0 0,0 9,0 established before 2015 2. BUM Desa was 87,8 63,9 77,8 43,8 87,5 75,0 7,1 66,7 established after 2015 Note : Region 1.Sumatera, 2.Jawa, 3.Nusa Tenggara, 4.Kalimantan, 5.Sulawesi, 6.Maluku, 7.Papua Source : Ministry of Village, Development Regions and Transmigration (2018) Chandra Wijaya, Vicky Dian Pratama Sari; Encouraging Collaborative Governance... | 231
From Table 3 above, BUM Desa rise to prominent found its momentum since 2015. After the implementation of UU Desa and supported by Dana Desa, BUM Desa program gained more serious attentions. Nationally, BUM Desa established prior to 2015 only amount to 9% of the total number of BUM Desa currently existing. Further, in each main island, the amount are as follows: Sumatera is 8.2%, Java 11.5%, Nusa Tenggara 53.1%, Sulawesi 0%, Maluku 20%, and Papua at 92.9%. Meanwhile, BUM Desa established after 2015 nationally accounted for 66.7%. For each of main islands: Sumatera has 87.7%, Java 63.9%, Nusa Tenggara 77.8%, Kalimantan 43.8%, Sulawesi 87.5%, Maluku 75%, and Papua at 7.1%. The amount of BUM Desa not yet established and/or stopped its operation amount to 24.3% nationally. By islands the number are: Sumatera 4.1%, Java 24.6%, Nusa Tenggara 0%, Kalimantan 53,1%, Sulawesi 0%, Maluku 20%, and Papua at 92,9%. This data shows positive reception and enthusiasm from the community related to the establishment of BUM Desa. Some regions such as Sulawesi and NTT have 0% of villages did not have a BUM Desa established. The massive number of BUM Desa established could serve as important capital and play important part as economic development instrument in their respective villages. By quantity, the existence of BUM Desa has a very promising potential to develop further. But a deeper assessment needs to be conducted to better understand how it influence and push economic growth of the community and village. Furthermore, BUM Desa is vulnerable to complicated procedure which heavily prioritize on administrational processes rather than substantial ones. Evaluation of BUM Desa development is an important and integral step to optimize and increase its productivity and quality. The evaluation should not focus only on profit and loss, but more on how the management of BUM Desa being conducted and improved with monitoring and supervising, mainly for new established BUM Desa. If this process is neglected, the saying “withered before bloom” will in turn become an acute disease in the effort of BUM Desa development in Indonesia. Henceforth, research on BUM Desa development is an absolute necessity so the program orientation and policy intervention by government will solve the urgent and important weaknesses. Research conducted by Ministry of Village, Development Regions and Transmigration (KDPDTT) on BUM Desa development indicators found interesting facts on how BUM Desa took part in economic empowerment. Indikator Perkembangan (IP) BUM Desa is a measurement to evaluate the success and development of BUM Desa by assessing a number of indicators such as social dimension, economical dimension, management dimension, and environmental dimension. These four dimensions are derivatives of the BUM Desa establishment goals as stated in Ministry of Village, Development Regions and Transmigration in which grouped into three categories: BUM Des Bentukan, BUM Desa Berkembang, and BUM Des Desa Maju. Research conducted by Ministry of Village, Development Regions and Transmigration (KDPDTT (2018) explain research result on the forming process of the Indikator Perkembangan (IP) BUM Desa which conducted in Java, with samples from various regions such as: BUM Desa in Bantul Regency represent BUM Desa Maju, Wonogiri Regency represent a region with 232 Jurnal Ilmiah Ilmu Administrasi Publik: Jurnal Pemikiran dan Penelitian Administrasi Publik Volume 9 Number 2,July – December 2019. Page 225-236
less developed access and natural barriers, and Bekasi Regency represent industrial region. This research exercised that 77.33% of BUM Desa are fall under BUM Desa Bentukan category, 21.33% fall under BUM Desa Berkembangcategory , and 1,33% fall under BUM Desa Maju resepectively. Meanwhile, assessment from economic contribution, management, and social aspect shows under 50%, and environmental aspect show 58%. These conditions argue that majority of the BUM Desa were still under-developed and were not yet contribute significantly on their village economic growth. Some factors causing the rather slow development of BUM Desa are the unavailability of training and supervising for the new established BUM Desa, the birth of elit capute where BUM Desa dominated by the elites from local government, limited accesses to capital, limited knowledge, and the lack of managerial prowess. These conditions must be seen as critical notes in the myriad of information about the success of BUM Desa program.
BUM Desa Acceleration Program: Encouraging Collaborative Governance through ‘BUM Desa Bersama '
The problem of stunted growth of BUM Desa Development must be addressed as a common concern. As many as 66.7% of BUM Desa have only been formed after 2015, which means that it is still too early to be allowed to develop independently without intervention by the government and related institutions. The huge potential of BUM Desa could be an important capital for the government to drive wide and massive economic growth. In order to encourage acceleration and penetration of BUM Desa program, government needs to encourage BUM Desa collaboration through development of BUM Desa Bersama Program. This program are becoming a progressive step for government to develop BUM Desa, encouraging partnership between BUM Desa and government or other stakeholder for collective and rapid growth.
Table 4 Institutionalization Aspects of BUM Desa and BUM Desa Bersama
Institutionalization Village-owned Joint Village-owned Enterprise Aspect Enterprise (BUM Desa Bersama) (BUM Desa) Legal Basis Juridical norms about 1). juridical norms about institutional institutionalizing BUM BUm Desa (vide articles 87-90 of the Desa (articles 87-90 of Village Law). (2) social foundation: the Village Law) Cooperation between villages, inter- village business services, BUM desa owned by 2 villages or more (vide article 92 paragraph 6 of the Village Law. 3) locus of inter-village business development positions: rural areas (vide articles 83-85 Law Village) Chandra Wijaya, Vicky Dian Pratama Sari; Encouraging Collaborative Governance... | 233
BUM Desa-scale local Special arrangements for BUM Desa technical-institutional Bersama (Establishment, merging, arrangements Village smelting BUM Desa) Vide article 141 PP (vide article 132-140 No 43/2014 jo. PP No. 47/2015. PP no 43/2014 jo. PP Institutional technical arrangements by No. 47/2015 following the legal substance in the BUM Desa institution at the local scale of the Village Paradigm Village building Build a village Location Basis village, close to the villages that agreed to cooperate between pulse of the efforts of villages the village community Procedure village meeting inter-village discussion or other designation Source : Ministry of Village, Development Regions and Transmigration (2016)
BUM Desa Bersama Program is based on a PP No. 43 of 2014 article 141 which states (1) In the framework of cooperation between villages, 2 (two) villages or more can form BUM Desa Bersama. (2) Establishment of BUM Desa as referred to in paragraph (1) can be done through the establishment, merger, or consolidation of BUM Desa. (3) Establishment, merger or fusion of BUM Desa as referred to in paragraph (1) and paragraph (2) and management of BUM Desa are carried out in accordance with the provisions of the legislation. Thus, the regulation forms the basis for the birth of BUM Desa Bersama program. Until 2018, 64 units of BUM Desa Bersama have been formed in 48 Regencies spread across 16 Provinces. BUM Desa Bersama has 336 managers and produces 185 types of flagship products. BUM Desa Bersama is a collaboration of village economic institutions involving BUM Desa across different villages. BUM Desa Bersama can be a place to unite while providing protection to small economic actors to be able to develop more rapidly without having to comply with available local potential. The government need to encourage business entities to form partnerships or collaborations between BUM Desa, BUM Desa and Private, or BUM Desa with civil groups. Partnerships are important for exchanging information and knowledge and strengthening financial, managerial and digital marketing, so that the business opportunities and market penetration will be broader. This can be fulfilled with efforts to build synergy and collaboration with private elements. In the context of collaborative governance, thousands of BUM Desa currently in still establishing process should be encouraged to form partnerships, either through the BUM Desa Bersama program or independently cooperating with private agencies. The various limitations of BUM Desa such as management, assistance, access to capital and knowledge can be fulfilled by mechanism of cooperation or partnership. Various efforts can be made as follows: 1. BUM Desa can expand its cooperation by synergizing with public institutions such as the Regional Government, related agencies, or SOEs to support the BUM Desa development program. For example, BUMDes that are engaged in tourism can cooperate with the 234 Jurnal Ilmiah Ilmu Administrasi Publik: Jurnal Pemikiran dan Penelitian Administrasi Publik Volume 9 Number 2,July – December 2019. Page 225-236
Department of Tourism, BUMD / BUMN to provide assistance and training to increase the management capacity of BUM Desa. 2. Cooperation between BUM Desa can be done with private institutions, especially in the field of market place or modern market to help promoting the results of BUM Desa products. Cooperation can also be carried out through civil institutions or NGOs to provide assistance and training. 3. Collaboration between BUM Desa can also formed between BUM Desa which are still in the category of BUM Formed Villages and BUM Desa Berkembang with BUM Desa in more advanced categories. Synergy between BUM Desa with large turnover and that BUM Desa with no turnover yet. This is important tthing o do, so that the less developed BUM Desa has best practice examples to follow in developing their business.
CONCLUSION
Encouraging collaborative governance can be an alternative in BUM Desa development program in Indonesia. BUM Desa Bersama program which is currently being developed by the government must be sought as a mean to gain a wider range. These days the program has created 64 units of BUM Desa Bersama. BUM Desa has great potential and is still wide open oppotunity. The number of BUM Desa continues to increase from time to time. In the future, BUM Desa Bersama program needs to get a bigger attention so the majority of BUM Desa which are still in a development proces could also form partnerships and cooperations. Partnership and cooperation can formed with developed BUM Desa as well as other public and private institutions. Thus, the still developing BUM Desa can overcome their limitation by receiving assistance, training, and capital access assistance. Implementation of collaborative governance in BUM Desa programs will certainly be able to elevate and encourage a leap for BUM Desa to develop collectively. In addition to relying on collaborative programs, the government needs to seek other intervention programs specify to further enhance newly established or developing BUM Desa. Hence, all of BUM Desa in Indonesia can progress hand in hand to develop economic centers in their village which can have a big positive impact on the economy of rural communities.
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Jurnal Ilmiah Ilmu Administrasi Publik: Jurnal Pemikiran dan Penelitian Administrasi Publik Volume 9 Number 2, July– December 2019. Page 237-246 p-ISSN: 2086-6364, e-ISSN: 2549-7499 Homepage: http://ojs.unm.ac.id/iap
The Analysis of The Work Environmental and Organizational Cultural Impact on The Performance and Implication of The Work Satisfaction
Denok Sunarsi Pamulang University Email: [email protected]
(Received: Juny 20-2019; revised: December 22-2019; published: December 31-2019)
ABSTRACT This study aimed at analyzing the impact of the work environment and organizational culture on its performance and implications for the satisfaction of elementary school teachers in the region of Bogor - West Java. The method of data analysis uses quantitative decryptive analysis techniques in which its population is an entire elementary school teacher in the region of Bogor - West Java which the total are 18,653. While on collecting sample, the writer used the slovin formula with a 10% error rate in which a 99.47 collected amount of samples would be 100 responders. Research results confirm that (1). The work environment has a partial positive and significant effect on the performance; (2). Organizational culture has a partial positive and significant effect on performance; (3). The work environment and organizational culture simultaneously have a positive and significant impact on the performance; (4). The work environment has a partial positive and significant impact on work satisfaction; (5). Organizational culture has a partial positive and significant impact on work satisfaction; (6). Partial performance has a positive and significant impact on work satisfaction. (7). Work environment, an organizational culture and performance simultaneously have a positive and significant impact on performance.
Key Words: Work Environment, Organizational Culture, Performance, Satisfaction
INTRODUCTION
The Good and qualified education is not apart from the role of a teacher, according to the government regulation of the Indonesian republic of 19, 2017, for a change in government regulation number 74 in 2008 "teacher is the professional workforce who having a strategic role to realize the vision of an arrangement of learning in accordance with professional principles", Working environment or well-financed infrastructure and a well-aimed organization's culture will be able to improve the teacher's performance in carrying out the teaching activity, when all these components are realized the teacher's satisfaction in teaching will be able to create the qualified learners (Sunarsi & Kusjono, 2019). Because of the importance of the teacher's performance factor in his role to improve education's success, so keeping and seeking to make the teacher has a high performanceis is absolutely necessary. The factors affect a teacher's performance improvement need to be sought for answers quickly in order to have a problem with improving education soon. One way to improve the performance of a teacher's work is giving him some motivations such as by having recreation or family gathering while the students complete the national exam, assigning awards to the excelling teachers and so on. The teachers are the key to improving the 238 Jurnal Ilmiah Ilmu Administrasi Publik: Jurnal Pemikiran dan Penelitian Administrasi Publik Volume 9 Number 2,July – December 2019. Page 237-246
quality of education, because the essential requirement for a good education is when its implementation is done by educators were completely professional. In that implementation requires a change of attitude and actions from the entire school component, both the principal, the teachers and the administration staff, including parents and the public's view, understanding and helping as also a monitor through monitoring and evaluation in school performance. The change in attitude and that actions will be able to happen when the school's resources are being exploited and managed optimally and effectively by the headmaster as a person in charge of administrating the school's education. Wakhid (2014) said the conducive work environment provides a sense of security and enables employees to work optimal. Work environment can affect employees' emotional state. If an employee likes the work environment in which he works, so the employee will feel comfortable with his job, doing his activities so his work time can be used effectively. The productivity will increase and automatically the work performance of employees also increases. The work environment includes a work relationship between feudatory and superior and the physical environment in which the employees work. Work environment factors are mutually beneficial for individuals in accomplishing work performance. Among the work environment factors are: (1) health, (2) security, (3) service, (4) pattern of communication, and (5) work facilities. From the preliminary observation, the author found many problems related to primary school teachers' work environment in the bogor county area, among them are dusty and dirty conditions of the environment, and hot air circulation. One of the causes of it is that most of the bogor district is exploitation of sand and rock area so that the teacher's work environment both in the office and the classroom feels inadequate. The uncomfortable classroom, the noise sound because the location on the side of the road, and inadequate infrastructure, causing some teachers lose their spirit to teach then the students are not able to get a good quality of learning (Farida, 2017). (Sedarmayanti (2001) the work environment is the total tool and material that are encountered, the surroundings where a person works, his or her work methods, and work arrangements both as individuals and as groups. According to (Nitisemito (2010) the work environment is everything around the worker and can affect him in performing the borne tasks. Such as hygiene, music and so on. The work environment can create a binding working relationship between the people within the community. Therefore, a working environment should be good and conducive to work because a good working environment will make the employee comfortable and has spirit to do each of his or her duties (Chandrasekar, 2011). According to Schultz & Schultz (2015) the environment or working conditions are all physical working aspects, occupational psychology and work regulations that can affect the job satisfaction and productivity of work. In the context of working environments, Sunusi (2016) stated that the work environment can create a binding work relationship between those within the community. Therefore, the work environment should be good and conducive because a good working environment will make the employees feel comfortable and have spirit to do each of their duties. From those standpoint, so it can be concluded that the work environment is everything around the employee and can influence him in performing his assigned duties. Equal to the work environment, the organizational culture is also important for teachers to create a conducive and focused work environment, the organizational culture can be defined in Denok Sunarsi; The Analysis of The Work Environmental and Organizational Cultural… | 239
various ways, the organizational's cultural definition often presented by experts. According to (Stephen & Judge, 2002) stated, "the organizational culture is a set of values, principles, traditions, and the ways of working that are followed by members of the organization and influence how they act". Bright & Cooper (1993) stated that the organizational culture is a pattern of belief and values that is understood, imbued, and practiced by the organization so that the pattern provides its own meaning and becomes the fundamental rule of behavior in the organization, while Schein (2010) assumed that the organizational culture is a fundamental assumption found, Created and developed by a particular group in order for the organization to learn to solve or to handle the problems resulting from well-handled extrernal and internal adaptation, thus it is needed to teach the new members the proper way to understand, think, and feel on these problems. Thus, it can be concluded that the organizational culture is a pattern of belief and values which all its members contribute in the work as a proper way to understand, think, and feel about related problems, so there will be a value or rule in the organization. With a good working environment and a dedicated organizational culture, so it will increase the teacher's performance to achieve the designated target, which is to create the qualified students and to achieve a full national education goal (Saggaf, Akib, Salam, Baharuddin, & Kasmita, 2018; Saggaf, Nasriyah, Salam, & Wirawan, 2018). According to Richard (2010) the word 'kinerja' is a translation of the performance that means work accomplishment, work implementation, work achievement or work appearance. The success of an organization is so closely related to the quality of performance of its members, so it is required to always develop and improve the performance of its members. The performance is the result that can be demonstrated or the appearance of the employee. Thus, an employee's performance can be measured by the results of work, assignments, or activities within a period of time (Notoatmodjo, 2009). According to Dall’Ora, Ball, Recio-Saucedo, & Griffiths (2016) stated "employee's performance is a comparison of the results which is achieved by the participation of the employee per unit of time". According to Bouckenooghe, Zafar, & Raja (2015) was " A work performance or the work result (output) of both the quality and quantity which is attained by human resources per unit of time periods in performing his work according to the responsibilities given to him." Based on some opinions it can be concluded that performance is the results of the activities were done by employees after being limited by the time and purpose. That work have to be restricted so it can be completed according to the designated target, and not deviate from the company's goals. Furthermore, in order to the work activities can be done according to the standards and procedures, so it can run effectively and efficiently. With the good performance, the process of learning and teaching activity produces qualified students, so it will give the sense of satisfaction to the teachers for what they have done over a period of time. According to Hayes, Douglas, & Bonner (2015) "work satisfaction is connected with one's feelings or attitudes about the job itself, salary, promotion opportunities or education, control, workmates, workload, and so on. He continued his statements that the work satisfaction relates to one's attitude about work, and there are some practical reasons that make job satisfaction is an important concept for a leader. The studies demonstrate that the satisfied workers are more likely to endure with their the job for the organization. The satisfied workers 240 Jurnal Ilmiah Ilmu Administrasi Publik: Jurnal Pemikiran dan Penelitian Administrasi Publik Volume 9 Number 2,July – December 2019. Page 237-246
also tend to engage in organizational behaviors that transcend their job description and role, and help to reduce the workload and stress levels of members in the organization. The disgruntled (Saggaf, Akib, et al., 2018; Saggaf, Nasriyah, et al., 2018)counterproductive behaviors (Sunarsi & Yuliani, 2019)(Niswaty, Juniati, Darwis, Salam, & Arhas, 2019). "The importance in managers on work satisfaction tends to focus on the performance effect of employees. The researchers recognize these importances, because many studies are designed that the effects of work satisfaction on productivity, absence, and employee resignation"(Motlou, Singh, & Karodia, 2016). Whereas, according to (Pundt, Wöhrmann, Deller, & Shultz, 2015), work satisfaction is influenced by many factors, among them are: (a). Fair and deserving retribution; (b). Proper placement and craftsmanship; (c). Workload; (d). Work environment; (e). Supporting tools; (f). Leadership. According to (Sutrisno, 2019) work satisfaction is influenced by several factors, such as: (a). Salary; (b). Security; (c). Opportunities to advance; (d), management and business; (e). Supervision and superior. A bad visionary causes the absentees and turnovers; (f) Intrinsic factor of work. The difficulty levels of work and the pride on duty can increase or decrease the work; (g) Working conditions include cafeteria, ventilation, parking and distribution; Social aspects in the work; (h). Communication; and (j). corporate facilities. From some standpoints of work satisfication referred to by experts, so the writer concluded that work satisfication is either a circumstance and a condition where the employees are satisfied or not in performing their job. The results of this study are expected to provide information that is beneficial for various parties, could provide information and input to the goverment of west java district of bogor to take policies in an effort to improve quality of education,especially at the elementary educayional level in an effoert to achieve national objective, then as a reference material to increas knowledge and to present information about work environment organizational satisfication,broading the insight and expanding the knowledge of researchers in reserch factor such as barriers to national educational objectives and this result is expected to be a source of information for us as a reference and fondation in further reserch.
METHOD
Data analysis method which used in this research is quantitative descriptive analysis technique in which its population is all elementary school teachers in Bogor Regency, West Java Province, Indonesia in 2018-2019, which amount to 18.653. Meanwhile, in sampling, the author used Slovin formula with 10% error level where after calculated, there are 99,47 sample which was fulfilled to 100 resondents. Activities in analyzing data are group data by variables, tabulate data, present data from each variable studied, perform calculations in order to answer formulation of the problem and in order to test the hypotesis that has been proposed. As for testing this instrument there are 2 (two) tests used, that are 1) Validity Test and 2) Reliability Test. Data eligibility or clasical assumption used to know the accuracy of a data. According to Ghinea et al., (2016) a regression model that will be used to forecast a good model is a model with the error of forecasting as small as posible. Therefore, a model, before it was used, necesarily to fulfill some assumptions that commonly called ‘classical assumption’. In this research, the classical assumption test that used are: Normality Test, Multicollinearity Test, and Heteroscedasticity. Denok Sunarsi; The Analysis of The Work Environmental and Organizational Cultural… |2 41
In this research, data that used is Descriptive and Verificative Analysis, therefore, this research demanded researcher to do analysis and studied systematically, deeply, and meaningful, this descriptive analysis will giving an illustration about a data that will be researched that can helped in order to know the characteristic of sample data, analysis was done by looking at the frequency from the option by respondent that was provided in each questionnare that given. Meanwhile, verificative analysis, usually also called as quantitative, that is the research to appraise the condition of infulence value, and the significance of that infulence. The analysis stages that carried out are 1) Correlation coefficient analysis, 2) Analysis of the coefficient of determitation 3) Path Analysis and 4) Hypotesis testing. This research was finished with drawing conclusion, in this research, drawing conclusion answers what has been formulated base on the results of research that has been done processing and analyzing data with the help of the SPSS program for Windows 24.
RESULT AND DISCUSSION
Result The result of data processing can be obtained information base on the result of calculations with the path analysis model as follows.
1. Model-1 1. The contribution of the work environment to performance is 0.3522 = 0.124 (12.4%). 2. The contribution of organizational culture to performance is 0.3912 = 0.153 (15.3%). 3. The contribution of work environment and organizational culture simultaneously to the 2 performance was R square = 0.316 or 31.6% and the remaining 68.4% were not identified in this study. 2. Model-2 Direct and indirect effects (through Y) and the total effect of the work environment (X1), organizational culture (X2), and performance (Y) on Z can be described as follows. a. Effects of X1 to Z and X1 to Z Through Y
The direct effect of the work environment coefficient on job satisfaction is 0.198, while the indirect effect of the work environment (X1) on job satisfaction through performance is: = 0.198 + (0.352 x 0.389) = 0.198 + 0.137 = 0.335 It means that it can be concluded that the total effect of the work environment on job satisfaction is 0.335. b. Effects of X2 to Z and X2 to Z Through Y 242 Jurnal Ilmiah Ilmu Administrasi Publik: Jurnal Pemikiran dan Penelitian Administrasi Publik Volume 9 Number 2,July – December 2019. Page 237-246
The direct effect of organizational culture coefficient on job satisfaction is 0.217, while the indirect effect of organizational culture (X2) on job satisfaction through performance is: = 0.217 + (0.391 x 0.389) = 0.217 + 0.152 = 0.369 It means that it can be concluded that the total influence of organizational culture on job satisfaction is 0.369 c. The value of the contribution of the work environment (X1) directly to job satisfaction (Z) is 0.1982 = 3.9% d. The value of the contribution of organizational culture (X2) directly to job satisfaction (Z) is 0.2172 = 4.7% e. The value of the contribution of performance (Y) directly to job satisfaction (Z) is 0.3892 = 15.13% f. While the contribution of the work environment, organizational culture, and employe performance simultaneously to customer satisfaction is 0.387 or 38.7% and the rest 61.3% are other factors not identified in this study. The following is a summary of path coefficients both direct and indirect effects of the work environment (X1), organizational culture (X2) and performance (Y) on job satisfaction (Z).
Table 1 Summary of Direct and Indirect Model Path Coefficients Influence Of Causal Influence Residue Total Variables Directly Indirectly Through Y 1 And 2 0.198 - - 0.198 X Through Z 1 - 0.198 + (0.352 X 0.389) - 0.335 0.217 - - 0.217 X Through Z 2 - 0.217 + (0.391 X 0.389) - 0.369
X1 X2 Y Through 0.387 - 0.613 1 Z
X1 Through Y 0.352 - - 0.352 X2 Through Y 0.391 - - 0.391
X1 X2 Through Y 0.316 - 0.684 1
Based on statistical tests that have been carried out to answer the formulation of the proposed problem, as well as proof of the hypothesis or provisional answers based on theory. Then the authors can describe the results of research based on statistical tests as follows.
1. Structure Model 1
a. Effect of work environment on performance Denok Sunarsi; The Analysis of The Work Environmental and Organizational Cultural… | 243
Based on the results of statistical tests on the structure model-1 for the first hypothesis is proven Ha is accepted and Ho is rejected, where the value of t count > t table (4.149 > 1.98) and Sig < 0.05 (0.000 < 0.05). This means that the work environment variables partially have a positive and significant effect on performance.
b. The influence of organizational culture (X2) on performance (Y)
Based on the results of statistical tests partially on the structure model-1 for proof of the second hypothesis is proven Ha is accepted and Ho is rejected, where the value of t count > t table (4.609 > 1.98) and Sig < 0.05 (0.000 < 0.05). This means that organizational culture variables partially have a positive and significant effect on performance.
c. Effect of work environment and organizational culture on performance
Based on the results of simultaneous statistical tests on the structure-1 model to prove the third hypothesis is proven Ha is accepted and Ho is rejected, where the calculated F value> F table (22.434> 3.09) and Sig <0.05 (0.000 <0.05). This means that the work environment and organizational culture simultaneously have a positive and significant effect on performance.
1. Structure Model 2
a. Effect of work environment (X1) on job satisfaction (Z)
Based on statistical test results on the 2-structure model to prove the fourth hypothesis is proven Ha is accepted and Ho is rejected, where the value of t count> t table (2.255> 1.98) and Sig <0.05 (0.026 <0.05). This means that the work environment variables partially have a positive and significant effect on job satisfaction.
b. The influence of organizational culture (X2) on job satisfaction (Z)
Based on statistical test results on the 2-structure model to prove the fifth hypothesis is proven Ha is accepted and Ho is rejected, where the value of t count> t table (2.433> 1.98) and Sig <0.05 (0.017 <0.05). This means that organizational culture variables partially have a positive and significant effect on job satisfaction.
c. Effect of performance (Y) on job satisfaction (Z)
Based on statistical test results on the 2-structure model to prove the sixth hypothesis is proven Ha is accepted and Ho is rejected, where the value of t count> t table (4.026> 1.98) and Sig <0.05 (0.000 <0.05). This means that the performance variable partially has a positive and significant effect on job satisfaction. 244 Jurnal Ilmiah Ilmu Administrasi Publik: Jurnal Pemikiran dan Penelitian Administrasi Publik Volume 9 Number 2,July – December 2019. Page 237-246
d. Effect of work environment (X1), organizational culture (X2) and performance (Y) on job satisfaction (Z) simultaneously
Based on the results of simultaneous statistical tests on the 2-structure model for the seventh hypothesis is proven Ha is accepted and Ho is rejected, where the calculated F value> F table (20,206> 2.69) and Sig <0.05 (0.000 <0.05). This means that the work environment, organizational culture and performance simultaneously have a positive and significant effect on performance.
Discussion
Descriptive discussion, intended for exploration and clarification of social phenomena or reality, by describing a number of variables relating to the problem under study.
1. The Situation Or Criteria Of The Object Under Study Based On Work Environment Variables (X1).
Work environment is the overall work infrastructure that exists around employees who are carrying out work that can affect the work itself, the work environment is designed in such a way as to create a work relationship that binds workers with the environment. Overall condition or criteria for the work environment variable questionnaire (X1) obtained an average score of 3.97 where the value is in the scale range of 3.40 - 4.19 with good criteria.
2. The Situation or Criteria of The Object Under Study Based On Organizational Culture Variables (X2).
Organizational culture is the basic assumptions that are found, created and developed by a particular group with the intention that the organization learns to overcome or deal with problems arising from external and internal adaptations that have been going well enough, so it needs to be taught to new members as a correct way to understand, think about, and feel about these problems. The overall condition or criteria for the organizational culture variable (X2) questionnaire obtained an average score of 4.03 where the value is in the scale range of 3.40 - 4.19 with good criteria.
3. The State or Criteria Of The Object Under Study Are Based On The Performance Variable (Y).
Performance means the work that can be displayed or the work performance of an employee. Thus, an employee's performance can be measured from the results of work, task results, or the results of activities within a certain period of time. Overall condition or criteria for the Performance variable questionnaire (Y) obtained an average score of 4.08 where the value is in the scale range of 3.40 - 4.19 with good criteria. Denok Sunarsi; The Analysis of The Work Environmental and Organizational Cultural… | 245
4. The State or Criteria Of The Object Under Study Are Based On The Variable Job Satisfaction (Z). Job satisfaction as a combination of psychological, physiological and environmental causes an individual likes his work. A person with a high level of job satisfaction has a positive attitude towards his work, someone who is dissatisfied with his job has a negative attitude towards the job. The overall condition or criteria of respondents' answers to the job satisfaction variable questionnaire (Z) obtained an average score of 4.29 where the value is in the scale range of 4.19 - 5.00 with very good criteria.
CONCLUSION
According to the results of the study it can be concluded: 1) Effect Of Work Environment (X1) On Performance (Y), 2) Effect of Organizational Culture (X2) On Performance (Y), 3) Effect Of Work Environment (X1) and Organizational Culture (X2) On Performance (Y), 4) Effect Of Work Environment (X1) On Job Satisfaction (Z), 5) The influence of organizational culture (X2) on job satisfaction (Z), 6) Effect of performance (Y) on job satisfaction (Z), 7) Effect of work environment (X1), organizational culture (X2) and performance (Y) on job satisfaction (Z) simultaneously.
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Jurnal Ilmiah Ilmu Administrasi Publik: Jurnal Pemikiran dan Penelitian Administrasi Publik Volume 9 Number 2, July– December 2019. Page 247-268 p-ISSN: 2086-6364, e-ISSN: 2549-7499 Homepage: http://ojs.unm.ac.id/iap
The Implementation of Providing Performance Allowance Policy in the Secretariat of the General Election Commission Kota Ternate, Indonesia
Eko Ady Prabowo1, Muhlis Hafel2*, Agus Joko Purwanto3, Anfas4* Universitas Terbuka Email: [email protected], [email protected], [email protected], [email protected]
(Received: September 1-2019; revised: Oktober 25-2019; published: December 31-2019)
ABSTRACT
This study aims to evaluate the implementation of the policy of providing performance allowance to employees at the Secretariat of the General Elections Commission (GEC) Kota Ternate, as well as their supporting and obstacle factors. This research is a descriptive qualitative research by using case study. The research data were obtained from informants who were respondents, ranging from staff to officials at the Secretariat of the General Elections Commission Kota Ternate. The results of the study showed that although the implementation of the performance allowance was already running there were still some deviations in its management, namely: 1) no socialization or training was held on the management of performance allowance involving GEC Kota Ternate; 2) there is no appointment of a performance allowance management officer, namely the Performance Allowance Management Officer or the control book Management Officer, therefore, it happens overlap working with routine treasurer; 3) there is not a standard operating procedure (SOP) as an assessment standard that aims to provide an assessment and sanctions against employees who do not carry out their duties and functions.
Keywords: Implementation , Policy, Allowance, Performance.
INTRODUCTION
Bureaucratic reform is carried out in the form of organizational structure , working procedures and the determination of performance success measures (Dhaliwal & Hanna, 2017; Johnsen, 2015; Mathwich & Pavao-Zuckerman, 2018; Wihantoro, Lowe, Cooper, & Manochin, 2015). One of the steps to reform the bureaucracy is to carry out improvements to compensation to employees especially in public organizations based on performance. Performance is a process of how the work takes place to achieve work results (Pratiwi, Jamaluddin, Niswaty, & Salam, 2019; Shet, Patil, & Chandawarkar, 2019; Wilfahrt, 2018). However, the results of the work itself also show performance (Akib & Salam, 2016; Pratiwi et al., 2019; Saggaf et al., 2018). Employee performance is one of the most important elements in achieving the goals to be achieved. Employees contribute to good performance in achieving organizational goals, then the organization will also make a good contribution to increase employee morale and enthusiasm, one of which is through performance allowances. Performance allowance based on the decision of the General Secretary of the Election Commission of Republic of Indonesia No. 935/SDM.07-Kpt/05/SJ/XII/2017 About the Technical Guidelines for Granting Performance allowance in the area of Secretariat General 248 Jurnal Ilmiah Ilmu Administrasi Publik: Jurnal Pemikiran dan Penelitian Administrasi Publik Volume 9 Number 2, July– December 2019. Page 247-268
Election Commission is the allowance given to employees as a function of the successful implementation of bureaucratic reform based on class positions and employee performance achievements. Basically, the bureaucratic reform program determines the allowance performance policy as an inseparable part of the bureaucracy reform policy, which is included in the scope of the bureaucratic system structuring. The foundation of allowance performance policy is the awareness and commitment of the government is to realize clean and good governance . Changes and reforms that are carried out in the context of realizing clean and authoritative governance are unlikely to be carried out properly (effectively) without the proper welfare of the state civil apparatus as executing the government working. These changes and renewals were carried out to erase the impression of a government that had been considered bad. Based on the Minister of Administrative Reform and Bureaucratic Reform Regulation No. 20 in 2010 concerning to Bureaucratic Reform Road Map, states that the performance allowance is a function of the successful implementation of bureaucratic reform on the basis of the performance achieved by an individual employee, which of course must be in line with the performance to be achieved by an institute. In this case, both directly and indirectly, performance allowance is one of the driving factors for improving employee performance, by utilizing and using then maximizing the resources, it is expected to be able to improve optimally performance. Performance allowance is expected to be able to encourage to improve the performance of employees to work opitmally. Performance allowance is expected to encourage to improve the performance of employees to work diligently in accordance with their main job and function. The implementation of bureaucratic reform within the General Secretariat of the General Election Commission has begun with the sending of proposed documents and road map for bureaucratic reform in the General Secretariat of election commision in 2013. Then continue by forming the Bureaucratic Reform Team which carry out activities according to the road map, until it is done the field verification process by the Ministry of Administrative Reform and Bureaucratic Reform in 2014, therefore it became a requirement for general election commision to receive an award in the form of Performance Allowance which determined through a Presidential Regulation. In 2015 and 2016 evaluation is done again to the implementation of bureaucratic reform within the General Secretariat of general election commision by Ministry of Empowerment of the State Apparatus and Bureaucratic Reform. The result of the assessment was the implementation of bureaucratic reform within the General Secretariat of the General Election Commission which received 66.22 (sixty six point twenty two) so that it was declared eligible to receive an award in the form of 70% (seventy percent) Performance Allowance increase, marked by the issuance of the Regulation of the President Number 126 in 2017 focus on Employee Performance Allowanc in the Secretariat General Election Commission (State Gazette of the Republic of Indonesia in 2017 Number 270) replace the Presidential Regulation Number 157 in 2015 concerning to employee performance allowance in Secretariat General Election Commission. General Election Commission Kota Ternate is an extension of the general election commisson of Republic of Indonesia that located in the district or city level who has implemented a policy of providing employee performance benefits since 2014 based on the decision of the Secretary General of the election commission RI No.526 / Kpts / Setjen / Eko Ady Prabowo, et all.; The Implementation of Providing Performance Allowance Policy... | 249
2014 regarding to determination of position rank at the Secretariat General of Election Commission, Provincial Election Commission Secretariat, and district / City Election Commission Secretariat. The provision of performance benefits is aimed to improving employee welfare and preventing KKN by hoping the employees can work fully responsible. However, based on the results of observations fields there are still some deviations that can be seen in the following table:
Table 1 . The deviation of Employee Performance Allowance at the election commission Secretariat Kota Ternate No Case Deviasion 1 The division of main job and functions through the Decree of Unproportional Appointment in the General Functional Position has done but the implementation of the main jobs and functions are carried out by different personnel, such as treasurers who have functional position decree as Salary List Maker but the officer who makes payroll has a functional position as compiler of Financial Statements. 2 There is no Decree on the appointment officer of data management Unprofessional of performance allowance and the officer of managing control book. 3 Circular letter from the Secretary General Number 5 in 2016 Unprofessional stipulates the maximum number of employees in the Distric / City Commission is 17 people, therefore, it cuses the employes are in Ternate Election Commission still lack. KPU. 4 Recording the employees’ attendance do not use electronic Not Transparent, attendance (finger print) as a basis for payment of employee Accountable, performance allowance. and Not Professional 5 The Employees do not make an employee achievement report. Unprofessional
From the table above it can be seen that there are deviations in the management of employee performance allowance and do not meet the elements contained the Decree of the General Commission Secertary of Indonesian No.526 / Kpts / Setjen / 2014 concerning to Determination of Position Rank at the General Secretariat of General Election Commission, Provincial General Elections, and distric/City Election Commission Secretariat. Officials and employees who work in the Secretariat of election commission Kota Ternate in managing employee performance allowance in an effort to implement the policy has not do the main job and functions as what was expected. It can be seen such as: First, the employees are not proportional in working based on their duty and functions. Secondly, there was not decision letter in appointing the Management of data Official for Employee Performance allowance and organizing the management Officials at commession office. Third, Circular letter of General secretary number 5 in 2016 determines the maximum number of employees in the Regency/City is 17 people , therefore the Election Commission Kota Ternate has lack of amployees. Fourth, it 250 Jurnal Ilmiah Ilmu Administrasi Publik: Jurnal Pemikiran dan Penelitian Administrasi Publik Volume 9 Number 2, July– December 2019. Page 247-268
is not transparent, accountable, and professional because the calculating the payment of employee performance allowance still using the manual system not electronic attendance. Fifth, the employees do not make a report of Employee Performance achievement. Based on this phenomenon, it is interesting to study by referring to amount literature about the standar of the implementation of existing policies, by doing this study it can be known that how far the the implemention of amployees performance allowance policy at the commission, specially in the Secretariat of general Commission Kota Ternate. In addition, researchers also want to know the officials’ understanding in secretariat regarding to performance allowance.
METHOD
This research is a descriptive qualitative research by using case study design. Data collected in the form of words or images rather than numbers. The form of research data such as interview transcripts, field notes and other official notes. The use of qualitative research aimed to obtained the more extensive data and depth so that it can help the research process (Creswell & Poth, 2018). This research focuses on the implementation of providing employee performance allowance policy in General Election Commission Kota Ternate through Decree of the General Secreraty of Election Commission No. 935 / SDM.07-Kpt / 05 / SJ / XII / 2017 relating to Technical Guidelines for the Implementation of Performance Allowances at General Election Commission Secretariat, as a guideline in organazig the employee performance allowance in General Election commission. There are some indicators are as follows: 1. Communication, delivering the information about a policy should be clear to executors of the policy so that they know what must be done in the policy of employee performance allowance. 2. Resources, consisting of: a. The quality of human resources, implementers’ skills and motivation in implementing policy to organaze the performance allowance. b. Facilities as a support capacity to implement the providing the employee performance allowance policy. 3. Disposition, these are the characteristics and commitments of the policy implementers in providing employee performance allowance. 4. Bureaucratic structure, in the form of Standard Operating Procedures (SOP) which serves as a guideline for implementing policy practically. The subjects of the study were 8 (eight) people that consist of: the Secretary of election commission Kota Termate (1person) , the head of financial, general and logistics subdivision (1 person) , the head of technical Subdivision and public participation relations (1 person) , Treasurer (1 person) , Secretariat Staffs (2 people), the head of human resourse subdivision Genaral Election commission North Maluku Province (1 person), and the officer of data management of employe Performance allowance in North Maluku Provincial election commission. (1 person). To the determine the subjects of the study the researchers used purposive sampling technique, purposive means the sujects are selected based on particular considerations with previous charateristics which have been known before. The considerations Eko Ady Prabowo, et all.; The Implementation of Providing Performance Allowance Policy... | 251
namely: first, the subjects must master and understand something through the process of inculturation, therefore something is not only known, but also comprehending fully. Second, the sujects still including a person who actively doing activities which became research problems. Third, the subjects who have sufficient opportunity and time to ask for information. Fourth, the subjects who do not tend to convey the information from their own perspective. Fifth, the subjects were initially quite foreign to researchers so that they were more directed to become a kind of teacher or resource person (Blatt, Bogdan, Biklen, & Taylor, 1977).
RESULT AND DISCUSSION
Based on the Presidential Regulation No. 81-2010 referring to the Grand Design of Bureaucracy Reform in 2010-2025, mandates that all ministries / institutions and local governments must do bureaucratic reform. The implementation of bureaucratic reform in General Secretariat of Election Commission has begun with sending of proposed documents and road maps bureaucratic reform in General Secretariat of Election Commission in 2013. Afterwards, it was continued by formating Bureaucratic Reform Team which do the activities beased on road map, until it was done the field verification process by the Ministry of Administrative Reform and Bureaucratic Reform in 2014. Therefore it becames a requirement for General Election Commision to receive an award in the form of Performance Allowance which was determined through a Presidential Regulation. As a preliminary analysis, what was asked for the respondent about the background of existence of a performance allowance policy. respondent "ARH" explains "Yes, actually tukin that used to be the remuneration is mandated by the law, that civil servants or now ASN must obtain a suitbale salary or income so that finally the Presidential Regulation comes out to regulate that the employees in election commision must also obtain this tukin ". Furthermore, regarding to background of the policy in providing performance allowance itself, "SMS" explains: "In my observation, Election Commission provides this performance allowance add spirit to the secretariat staffs and support the working in the secretariat. Beside from meal llowance and others, tukin supports and helps to improve the performance" From this statement it can be seen that the policy of providing performance allowance encourage to improve the performance of employees to work then maximize available resources that are expected to be able to improve optimal performance. Performance allowance is expected to be able to give encouragement to improve the performance of employees to work diligently in based in on their main job and function. Dessler (1999) mention that employee performance is obtained from defining work , namely ensuring that superiors and subordinates agree with their duties and job standards. The Secretariat of Election Commission Kota Ternate, when the first time they received the performance allowance, they had made a devition of class positions and the amount of the value of the performance allowance based on the Decree of the Secretary General of the Election Commission No. 526 / Kpts / Setjen / 2014 about the Position of Designation at the secretariat of General Election Commission , 252 Jurnal Ilmiah Ilmu Administrasi Publik: Jurnal Pemikiran dan Penelitian Administrasi Publik Volume 9 Number 2, July– December 2019. Page 247-268
Provincial Election Commission Secretariat, and Regency / City Election Commission Secretariat. Therefore, the employees work in the office based on main job and function respectively. Sopiah (2008) states that the atmosphere can also affect a person's performance. A conducive environmental situation, for example support from leader, patners, facilities and infrastructure will create its own comfort and will spur a good performance. Conversely, an uncomfortable working atmosphere due to inadequate facilities and infrastructure, lack of support from leader, and many conflicts will have a negative impact in deterioration one's performance. The discussion onof he atmosphere in secretatriat genaral Election Commission Kota Ternate will be discussed in the next chapter.
The Implementation of Performance Allowance Policy General Election Commission Kota Ternate is as an extension of the General Election Commission of Republic of Indonesia (RI) at the district / city level, they have implemented a policy of granting employee performance since 2014 according to Decision of the Secretary General of the Election Commission RI No.526 / Kpts / Setjen / 2014 based on the determination of level of the position in the Secretariat General of Election Commission, Provincial Election Commission Secretariat, and Distric/ City Election Commission Secretariat. This study using the implementation model of George Edward III , because it is suitable to be implemented at the bureaucratic level structured at General Commission institutions. Each level of the hierarchy has a role in accordance with the duties and functions in eleborating of policy to each bureaucracy with four components of bureaucracy analysis namel; communication, resources, disposition, and a bureaucratic structure. 1. Communication Good communication is one of the determinants of the success of the implementation of the performance allowance policy. The implementation can be achieve the target of policy if the role of decision makers already known what they must do. It can be done if the communication can run well, so that every policy that is implemented can be coordinated in the right section, besides that communication is also related to the policy to be implemented must be accurate and consistent, therefore communication is a very important role and function in a policy. According to Wibowo (2015) communication is the exchange of information between sender and receiver and drawing the conclusions as perceptions about the meaning of something between the individuals involved. Communication in this case concerns to the means or efforts in the process of delivering information. Besides the important of information to support communication, it is also needed the process of transmitting or delivering information, clarity and consistency of information. a. Transmission (Information Submission Process) The process of delivering information referred to in this study is how to deliver information from the policy makers with the implementing parties as well as the targets of the policy, namely the employees at general election commission secretariat Kota Ternate. This is important because the distribution of good communication will be able to produce a good implementation as well. Based on the results of the interview, it was revealed that according to the level of Commission institution, the General Secretary Eko Ady Prabowo, et all.; The Implementation of Providing Performance Allowance Policy... | 253
of election commission RI as the Budget User Authority (BUA) in issuing policies and rules are actively delivering the policy. The communication developed to each level of election commission institutions has been going well through online media and directly socializing to policy targets. This was revealed by the the respondent "BMIA": "The first time tukin socialization took place,the socialization was folloewed by the Secretary and the Head of the Data Program and human resources Division. But in WA grop of the human resources devision has ,informed the information about tukin and if there is something that we don't understand, we usually discuss it directly through the WA group ”. The same argument was expressed by "SMS" that: " When talking about communication problems, it is often between the secretary with the head of the sub-division or between the head of the sub-division with the staff under it, and it runs smoothly for the creation of a safe atmosphere, synergized in work. In terms of the tukin problem, the provincail commission has conducted a socialization event once, but I haven't remembered it because it is a long time ago. From the Secretary himself always socializes about the tukin in order to improve the performance of the staff under him ". From the statement above, it can be seen that the transmission of communication from policy makers to policy implementers has been going well. Delivering a good communication will be able to produce good implementation too. It often happens in the process of implementing communication delivery, namely the existence of miscommunication, so, the policies made will not be conveyed properly when arriving at a certain position. b. Clarity In this research, what it meant by clarity is the content of information both through verbal and nonverbal communication conveyed from policy makers to policy implementers. Regard to clarity of information on communication factors as revealed by the "BMIA" that: "Submission of socialization is done by the leadership not formally but only informally like hung out together like this. In the past time we had a meeting for the first time but only a few staffs came. The distribution of tukin information through technical guidelines distributed to employees I feel is ineffective because many of staff do not read so it is only getting through verbal. " The same argumentation also stated by "ARH" that: "The rules are clear because I am also a policy implementer and I also read the rules that explain it. So far, socialization for all matters including staffing has been done by the Election Commision RI and ifinviting the Provincial election Commission. To whole distric/ City KPU is usually done through a circular letter from the General Secretary Genral RI, but in the implementation, the provincial Election as an extension 254 Jurnal Ilmiah Ilmu Administrasi Publik: Jurnal Pemikiran dan Penelitian Administrasi Publik Volume 9 Number 2, July– December 2019. Page 247-268
of commission RI.. very much.. it still very poor in order to conduct employee coaching in the form of socialization to districts/cities it's still very lack. " Based on the explanation from respondents, it can be concluded that the clarity of information for policy implementers so far is good and very clear, but in its implementation there are still shortcomings. This is due to the unwillingness of the policy implementers to understand the policies that serve as a guideline and become a reference in the implementation of the performance allowance policy and there is no knowledge delivery in terms of managing performance allowanve from the North Maluku Provincial Commission to the Ternate Election Commission. This is as revealed by the respondent "NA" "If tukin information is in the office ... if I am not mistaken, it was ever socialized in the form of a meeting, soit was deliverd the information about the tukin. If it's from the Provincial Commission or from the Central Commission I think it hasn't. so we only refer to the existing from technical guidelines " The explanation from respondent above, it can be concluded that the information conveyed by policy makers to the implementers of the policy has been done properly, which refers to the technical guidelines for the provision of performance allowance delivered by the Central Commission However, in its implementation, according to the level North Maluku Province institution never done any socialization to commission from distric/city. c. Consistent The Implementation must be consistent, clear and clean so that the policy can run effectively. Information is clear and clean, but instructions/command are contrary to information received, so it will be difficult to implement the policy easily on operations to accelerate implementation. However, the implementers are sometimes charged with conflicting or unsuitable information. The socialization of providing performance allowance policy in Election Commission Secretariat has gone well through formal and informal communication as stated by respondent "ARH" as follow: " Related to the tukin policy, it is done formally and informally. So it was conveyed in a meeting regarding to tukin information. " When it was confirmed respondent "BMIA" he also conveyed the same argument namely: "The socialization is done by the leadership both formally but also informally, just like chatting together like this. If it was the first time we had a meeting but only a few staffs came " Communication is the most effective thing in an effort to change a person's attitude, opinion or behavior, because it is dialogic in the form of conversation. The reverse flow is direct, and the communicator knows the communication response right then and there during the communication. In managing performance allowance, Eko Ady Prabowo, et all.; The Implementation of Providing Performance Allowance Policy... | 255
communication of every official must be carried out, in oder that the process of supervision and control and evaluation can proceed, so, the implementation of the performance allowance can gain well. Supervision and control is the responsibility of the head of the office of the Ternate KPU Secretariat working unit, the Secretary. Supervision and control in managing performance allowance can be in the form of supervision conducted by leader to employee. Based on observations, the Secretary of the Ternate Election Commission has conducted direct supervision and control of the employees. This is stated by respondent "SMS": "When talking about the problem of supervision we are very grateful to our current leader because he always reminds us about tukin was given not for free but to increase enthusiasm as I said earlier as a vitamin to increase we have the stamina for us to work so tukin it was not given in vain .. " The same command stated by respondent "HN" "... besides the lack of tukin because of the consequences of being late or not entering the office ... there is also a reprimand from the leader" The effectiveness of work relationship in an organization will be realized by intense communication. This was proven by Febriyana, et al (2015) in their research, to achieve or realize the implementation of the job properly and optimally, communication between individuals and groups is absolutely necessary, especially communication that is built with specific goals for institutional interests. Communication that was built by employees in the area of Ternate Election Commission has been going well, itis proved as by respondent SMS’ statament as follow: " When talking about communication problems, it is very often between the secretary with the head of the division and between the head of the sub-division with the staff under it, and it runs smoothly for the creation of a safe atmosphere, synergized in working" Communication process is very important in human life, as well as in the life of an organization. In the practice of organizational life, communication activities are very complex which involves all elements in the organization, of course all members in organization have a high degree of heterogeneity or diversity so the possibility of homogeneity in organizations is almost not existent. Effective communication within an organization can occur between leaders and staffs or vice versa between staffs and leaders and between staffs and staffs. An agency or organization needed a system that can support performance, one of that is organizational communication. Implementing a good performance allowance policy will show the level of performance produced by the government organization. Organizational communication is a part that must be present if the activities/work processes want to run smoothly. Good organizational communication, organizational goals can be achieved based on the planning. In organizational life the achievement of goals with all its processes requires good communication. Organizational members absolutely need to communicate with each other. Good communication in implementing policies make what will be done clearly 256 Jurnal Ilmiah Ilmu Administrasi Publik: Jurnal Pemikiran dan Penelitian Administrasi Publik Volume 9 Number 2, July– December 2019. Page 247-268
and directed. Every policy submitted by the leadership will be clearly and understood by the employees in doing their duties. 2. Resources According to Edward III in Mulyadi (2016) implementation is a policy process that can be implemented easily. In doing so, it requires conditions including people or executors, money and organizational competance. The important aspects that need to be considered in the resource factor in policy implementation are related to the number of staff, information, authority (authority), and facilities (facilities) as a support for implementing the policies, which include the availability of buildings , equipment, and supplies as well as employee training and development facilities. a. Staff (human resources) Resources that support or hinder the implementation of policies in the management of performance allowances at Ternate Election Commission Secretariat related to understanding of human resources and facilities and infrastructure, the success of an organization is strongly influenced by the quality of Human Resources (HR) . Human Resources (HR) will be good quality and its performance if it is led and managed properly. Every leader and manager as well as the part that handles HR must understand and appreciate HR management issues as well. Determine the needs of human resources in an organization, especially those related to its quality, the organization must first of all know to recognize and understand the goals, structure, functions and jobs that exist in the organization. Likewise, to be able to create the right supervision, namely placing the right person in the right position, every position in the organization must know the details of what tasks are needed and what personal requirements are required by that position. As the results of observations and interviews with respondent, related to the knowledge of human resources is still very lack so that the impact on the process of managing performance allowances cannot run optimally. Based on General Election Commission Regulation Number 2 in 2012 Concerning to Career Patterns of Civil Servants in the Secretariat General Election Commission, Provincial Election Commission Secretariat, and Regency / City Election Commission Secretariat in filling structural positions within Certral Commission, Provincial Commission, and Distric/City aboau the officials who occupy structural positions, the Secretary of Ternate Commission forms Departement Consideration Team for Secretariat to examine proposals for appointment or dismissal or mutation of positions in Ternate Secretariat Commission. One of the requirements to occupy this position is to have expertise, knowledge and experience in accordance with the field of duty for the position to be occupied. However, the phenomenon that occur in the implementation of the performance allowance policy at the Ternate Election Commission Secretariat besed on obervation and results revealed that in the placement of officials at Ternate Commission Secretariat, the Ternate Commission did not form a Position and Rank Advisory Board Team and they did not consider the requirements as stipulated in the provisions referred to. The proposed placement of positions is only based on the Decree of the North Maluku Provincial Commission Secretary after being proposed from the Eko Ady Prabowo, et all.; The Implementation of Providing Performance Allowance Policy... | 257
Ternate Commission Secretary. This was revealed from the results of the interview with respondent"BMIA" : "... at the Commission here, when the placement of employees does not consider skills and background then experience, but only based on rank, closeness, and tolerance." Recruitment or procurement of personnel is an activity to attract qualified personnel based on what is needed by the organization. Personnel needs include the number and expertise to be recruited adjusted to Human Resource Devision plan that has been determined. The importance of placing officials in filling positions with regarding to educational background and taking into account existing skills is very supportive of what will be done by these officials. Based on observations, the executor of the performance allowance policy does not understand and carry out the HR plan that has been set in the technical instructions contained in the Decree of the Secretary General of the General Election Commission No. 935 / SDM.07-Kpt / 05 / SJ / XII / 2017 Regarding to the Technical Guidelines for the Implementation of Performance Allowance at the General Election Commission Secretariat. In the technical guidelines, the Commission from Distric /City KPU must through a dicision letter to appoint attendance management officials consisting of: First, Performance Allowance Data Managers, namely officials at the Distric/City Secretariat who handle staffing, tasked with managing the performance allowance data at Commission in Distric/City. Second, the Control Book Manager is the official at Commission in Distric/City Secretariat whose job is to manage the control book including recording and verifying the attendance and absence of employees in each work unit. However, based on observations, Ternate Commission Secretariat did not have a presence management official. The attendance recapitulation is only carried out by a staff member in the Finance, General and Logistics Subdivisions. This was revealed from the results of the following interview with "NA": "To manage tukin I myself records the attendance after that I give to to finance devision, so l finance will process until payment, I only record the attendance results every month. For the manager's decree, there isn't any ... " When confirmed to Respondent "ARH" She also conveyed the same statment: " Well ... that is the requairment, there must be an official then in the decree, but the decree if not mistaken, there is no honorarium, so the decree is not made haha ... (laughs). Now this must be reviewed so that the operator of the official manager of tukin has an existing position and can be likened to a financial manager, archive management, then an inventory of BMN and so on ” Similar information was also conveyed by respondent "HN" as follows: "Until now there is no tukin payment manager... there is no Decree because the workload is given especially since they are in the public section so it is their duty to recap attandance so the decree does not need to be made ... we are also in terms of limited human resourses. " 258 Jurnal Ilmiah Ilmu Administrasi Publik: Jurnal Pemikiran dan Penelitian Administrasi Publik Volume 9 Number 2, July– December 2019. Page 247-268
Based on the explanation from the respondent above, it can be concluded that in the implementation of the policy, officials do not understand what are the aims and objectives of the Human Resources planning that have been set in the policy, thus causing the implementation of the policy to deviate from the initial goal. b. Information Information relating to how the policy is implemented is one of the indicators in the resources who must be known by the policy implementer. The implementers need to know what is done and how they should do it. Thus, the implementers of the policy must be given instructions to implement the policy. General Commission RI as a policy maker has published technical guidelines for the implementation of performance allowance from the Central Commission to the Distric /City Commission. However, in conveying that information Commission RI socialized the technical guidelines only facilitating the Provincial Commission level and does not invite the Commission from Distric / City KPU, therefore the information obtained from the Ternate General Commmission is only learning from the technical instructions published by Commission RI. This statament supported by "ARH" commands as follow: " so far the socialization so for everything including staff is done by the Central Commission RI then inviting the Provincial Commission. Nah as a whole until the Commission in the Distric / City is usually done through a circular letter from the General Secretary of Commission RI, but in the implementation, the provincial Commission as an extension of Commission RI still very poor in order to conduct employee coaching in the form of socialization to districts / cities ... c. Authority Implementing officials or implementors are the factors that determine whether a policy is difficult or not implemented. Commitment to behave based on the important policy goal is held by implementing officials. Therefore sufficient authority is needed which is the authority or legitimacy for policy makers such as the development of clear rules, effective monitoring and control then transparent in implementing policy so to prevent the possibility of official behavior that is contrary to the goals. Based on observations, the authority of the policy maker in providing performance allowance is Central Commission RI in terms of the authority of monitoring and control has not been running optimally. It causes that up to now there has not been regular supervision and control and tiered to all levels of commission below it, therefore control function in the implementation of the granting policy performance allowance is still weak. This was also revealed from the results of interviews with respondent "DD" "Supervision ... in my opinion the supervision of tukin has not yet been established until now from the policymaker ... Commission RI ... until now I also see that no inspectorate come down to audit tukin. ... only if we are late or do not enter the office we will usually be immediately deducted by the funds. "
Eko Ady Prabowo, et all.; The Implementation of Providing Performance Allowance Policy... | 259
d. Facilities According to Widodo (2014) training and development are all efforts made to improve employee performance through enhancing their abilities and knowledge by attending training or learning. Training and learning facilities here involve formal and non-formal education both owned by the employees especially the officials managing the performance allowance. The limited understanding of human resources in managing work in the office needs to be addressed by reevaluating officials who have technical competence, can use office equipment properly (e.g computers) whose recruitment through selection of due diligence and proper test, pay attention to employee backgrounds, and provide good training formal or informal for employees. From the results of the interview with the respondent "NA" it was faund that so far there is never any training provided either from the North Maluku Provincial commission or the Central Commission RI regarding to the management of performance allowance. The following statement below: "for tukin itself, there has not been any special training so far ... so in the management of tukin, yeah ... we learn by ourselves ... just read the rules" The same statement was stated by respondent"ARH" as follow: "So far, socialization or training for everything including staffing has been done by the Central Commission and inviting the Provincial Commission. Nah to all Commission from Distric/City is usually done through a circular letter from the General Secretary of Central Commission, but in the implementation the provincial Commssion as an extension of Commission RI ee.. ..it is still very poor in order to conduct employee coaching in the form of socialization to commission in districts/cities " From the above explanation it can be concluded that performance allowance management official never participated in training facilities regarding to performance allowance because indeed both the North Maluku Provincial Commission and Central Commission have never been invited the performance allowance management officials at the Ternate Election Commission level to participate in the training. In addition, the employee training and development facilities, there are several facilities to support the implementation of policy, which include the availability of buildings, equipment, and supplies. Based on observations, Ternate Election Commission has already office building located on Jalan Kalumata Puncak No. 2 South Ternate, with office equipment and supplies such as tables and chairs, computers and so on to support the implementation of the main jobs and functions of the employees. 3. Disposition The third factor analyzed in this study is disposition, namely the occurrence of trends concerning to the impact of disposition, staff bureaucracy, namely the appointment of bureaucrat. Every policy implementation instructed by the leader through communicative, persuasive instructions and the behavior of the administrator, accepts the implementation of the policy or program well. Implementation of the policy is very possible for the disposition 260 Jurnal Ilmiah Ilmu Administrasi Publik: Jurnal Pemikiran dan Penelitian Administrasi Publik Volume 9 Number 2, July– December 2019. Page 247-268
of the implementer, obstructing the implementation of the policy if the implementor does not agree with the substance of the policy they must carry out. In case of disposition or attitude is found a good response from the implementor. Implementors still do according to their respective duties and functions although there are still shortcomings and limitations such as overlapping positions. This was revealed from the results of interviews with respondent "NA" namely: "Regarding to the policy of providing my performance allowances ... yes ... I have to be responsible do the work even though the work is a lot because it has already been paid for." Regarding to overlapping positions or concurrent positions, this was revealed by repondent "CNR" namely: " If in a functional position, yes ... or in this tukin I am a Salary List Builder, but in reality I was appointed as treasurer by the Budget User Authority, that is the Secretary, well, what I do is also the work of the treasurer, then to make a salary list there are also other financial management staff but his own position is as a Compiler of Financial report. " Additional information about overlapping positions or double positions, the "CNR" stated that: "I don't know either. But from the Commission’s technical guidelines governing Tukin there is also no treasury position so I can't help but I accept it when I get a functional position decree as a Salary List Maker. At that time, I had asked the Provincial Commission, but they were also the same, he said, throughout North Maluku and nationally, there had not been a treasury position for a while. So like it or not, it has to be done, yeah, what does this include ... " The implementation of performance allowance policy at the General Election Commission Secretariat relation to the disposition aspects, as a result of observations and interviews with number of responend that in the implementation of performance allowance management all processes start from recording the attendent list done by e General Subdivision and the counting process until the payment is made at the Sub Division Finance. The Secretary of Ternate Election Commission in his authority has never made a Secretary's Decree to appoint officials of performance allowance management officers, both the Performance Allowance Data Management Officer and the Management Book but only instructing a senior high school graduate staff to be in the general subdivision to assist the treasurer to record the employee attandent list . In implementing this performance allowance policy, the Secretary of the Ternate Election Commission did not describe the commitment contained in the technical guidelines for managing performance allowance. This is reflected in every request for disbursement of employee performance allowance which should go through the officials managing the performance allowance precisely to the treasury desk without going through a process that is ideally carried out. Commitment is a person's willingness to improve themselves and show loyalty to the organization because they feel themselves involved in organizational activities. Organizational commitment is outside the Eko Ady Prabowo, et all.; The Implementation of Providing Performance Allowance Policy... | 261
manager's control and thus provides little opportunity to improve feelings. Commitment tends to decrease when there are many job opportunities (Wibowo, 2015).
4. Bureaucratic Structure Bureaucracy has an important role in policy implementation even though it is a large and complex organization, a dominant organization capable of implementing every policy or program, and there is not organization as strong as a bureaucracy is able to survive in any situation, however external influences. Bureaucratic structure factor found in management of performance allowance Ternate Election Commission includes several aspects, especially Standard Operating Procedure (SOP) and sanctions imposed to employeea who have an impact to the coordination and motivation of employees in doing their duties and functions. This dimension has an impact on policy implementation in the sense that policy implementation will not succeed if there are weaknesses in the bureaucratic structure. Problems related to bureaucratic structure can be seen from the position of each employee in carrying out their work. There is no Standard Operating Procedure (SOP), sanctions, and lack of supervision conducted by inspectorate which has oversight functions to staff, finance, and equipment as well as the implementation of election operational activities at the Provincial Commission and Distric/City Commission . it can be supported by the statement of respondent "ARH" "The Certraal Commission, the Provincial Commission, and the Ternate Commission have not yet established SOP, the process of managing employee performance allowance just refers to the Minister of Finance regarding to it. the procedures for payment of the performance allowance or the tukin also referring to the Commission RI Decree on the Technical Guidelines to the Implementation of Performance Allowance at the General Secretariat of the Election Commission " The management of performance allowance needs to be put in order with control, both internally and externally. At Ternate Election Commission, supervisory function is attached to the element of Commission Secretary appointed by the head e of Ternate Commission. In process of supervision and control, Secretary of Commission never supervised the implementation of policy in the management of performance allowance. The General Secretary has delegated the authority of the Budget User Authority (BUA) to the Provincial Commission and Districs/City KPU Secretary whose aim to minimize problems that could hinder the process of implementing the policy of providing performance allowance to each work unit. However, in its implementation, the Commission Secretary did not understand his duties and responsibilities as a BUA. This was revealed from the results of interview with respondent "ARH" " Now there is operator, as manager if attendance list for the tukin itself but the form of supervision is still using the SKP itself. Incidentally, tukin punishment itself is only not paid but the punishment itself has implications to PP 53 regarding to employee discipline that has been set there. Based on the reward or award it must also be considered " 262 Jurnal Ilmiah Ilmu Administrasi Publik: Jurnal Pemikiran dan Penelitian Administrasi Publik Volume 9 Number 2, July– December 2019. Page 247-268
The implementation of the policy on the provision of performance allowance is done to avoid deviation in the management of performance allowance and to realize an increase the employee performance in implementing bureaucratic reform based on the basic rules stipulated in constituation Number 43 in 1999 and Presidential Regulation Number 126 of 2017 which is followed up by a Decree of the Secretary General Election Commission Number 935 / SDM.07-Kpt / 05 / SJ / XII / 2017 regulates the management of performance allowance. The policy of implementation is done through employees to cooperate with each other structurally depicted in the organizational structure of government. The organizational structure performs various functions which are part of the division of work and the rational organization requires systemic division of work, rights, and power.
Factors Supporting the Implementation of the Performance Allowance Policy There are several factors that support the implementation of providing performance allowance policy to the Ternate Commission Secretariat, including: 1. Increasing performance allowances In 2015 and 2016, it is done an evaluation of the implementation of bureaucratic reform within Secretariat General by the Ministry of Empowerment of the State Apparatus and Bureaucratic Reform. The results of the assessment of implementation of bureaucratic reform within the General Secretariat Election Commission received a value is 66.22 (sixty six point twenty two) so it was declared eligible to receive an award in the form of 70% (seventy percent). Performance Allowance increase from the original is 60% (sixty percent), this increase is marked by publishing th of Presidential Regulation Number 126 in 2017 regarding to Employee Performance Allowance in the General Secretariat Election Commission (State Gazette of the Republic of Indonesia in 2017 Number 270) replaces Presidential Regulation Number 157 in 2015 concerning to Employee Performance Allowance in General Secretariat of the Election Commission. The increasing of performance allowance is one of a good news for all Commission employees because it can improve enthusiasm for working and it will improve their performance. This is supported by statement from respondent"SMS" below: "Thank God, until now the employees are very thankful because they feel helped because we now that 99 percent Sevil Sevent letter of dicision was pawned in the bank so, with an increasing tukin they are like to get vitamins to increase stamina or enthusiasm so" 2. Human Resourses An organization needs the support from human resources. Therefore, an organization needs to provide support for human resources. Thus, there will be a feeling of interrelation between the organization and human resources. Human resources organizations feel that the organization in which they work is an organization that cares them and is the best place to work, because they feel attached to the organization and are unfit to leave it. This situation shows that human resources have a commitment to the organization. The Ternate Commission Secretariat's resources are very limited but from the Eko Ady Prabowo, et all.; The Implementation of Providing Performance Allowance Policy... | 263
results of the interviews they are able to carry out the job assigned by the leader, it stated by respondent "HN" as follow: "we can see the ability ... based on their work ... able to record absences and it is done every month" The same was expressed by respondent"ARH" below: " Until now there is not a significant problem, the fact that every month the tukin is paid on time. Then we still pay attention to those rules and up to now, yes ... ” The resource factor is one of the determinants of the successful implementation of the performance allowance policy. Although in terms of the number of managers of performance allowances are limited but by the ability, the employee is able to complete the work. 3. The Commitment of implementing the policy The attitude of implementing the policy is a very important factor related to the implementation in a public policy. The most important characteristics owned by implementers are honesty, commitment, and democracy. The implementers who are highly committed and honest will always survive among the obstacles encountered in policy. Honesty drives the the implementator to keep the direction of based on program / policy guidelines. His/her commitment and honesty brought him/her to more enthusiasm in doing the steps of program consistently. A democratic attitude will increase the impression of both the implementator and the policy in front of the target group members. The commitment of the executors of this performance allowance policy is illustrated from the following statement from respondent "DD" below: "for me I am not burdensome, yes ... so I just follow what has become the rule in this tukin" A similar statement expressed by an respondent "NA" stated that: "Well, we have to take responsibility because they we have already paid" Based on the statement above, it can be generally described that the tendency of implementer in the implementating of the performance allowance policy has been going well. Employees who receive performance allowance have attitudes or perspectives that support the policy so that the process of implementing the performance allowance policy is effective.
Obstacle factors in implementing of the Performance Allowance Policy Besides supporting factors, there are also hider factors to the implementation of providing performance allowance policy at Ternate Election Commission Secretariat, including: 1. The Employees do not set an Employee Performance Goal at the beginning of the year 264 Jurnal Ilmiah Ilmu Administrasi Publik: Jurnal Pemikiran dan Penelitian Administrasi Publik Volume 9 Number 2, July– December 2019. Page 247-268
Based on the Decree of the Secretary General of the Election Commission No. 935 / SDM.07-Kpt / 05 / SJ / XII / 2017 Regarding to the Technical Guidelines for the Implementation of Performance Allowance at the General Election Commission Secretariat basis for calculating performance besides the attendance of course also the performance of employees. The employee's performance is stated in the performance goals must be prepared at the beginning of the year and assessed by leader directly as the main jobs and function of the employee for a year and of course as a basis for evaluating employee performance in calculating performance allowance payments. But in reality the new employees compile their respective performance goals in the middle or end of the year when the work is in progress. This was revealed from interviews with respondent "BMIA" as follow: "Ideally, they should have made it at the beginning of the year, but in reality, in the middle there was even a new year end. The obstacle I don't understand why? But it leader and HRD are likely know only, but I am trying to convey them that the performance goals must be made at the beginning of the year. Nahl, these employees are also confused about what their job title is? Some of them have already know their jobs and functions, but some of them do not know yet. " A similar opinion was expressed by respondent "HN" below: "yaa ... if the problem is the employee's target obligation ... because If he/she wants to know a performance he/she makes sure by him/herself recapitulated of the results of performance. It means that if the payment based on the performance of employees in t one year, employee must have a full month recap the results of his performance. Now it is because of coinciding with the election stage it's very busy so it is only made at the end of the year " Based on the technical guidelines that have been determined, performance allowance received by employees are determined based on performance achievements measured by 2 (two) elements, which include performance appraisal ( 40%) and employee attendance (60%). But in reality from the statement above so far the TernateCommission paid performance allowances to employees based on attendance. This is due to the assessment of work performance still awaiting technical guidance from the Secretary General RI. 2. Lack of facilities and infrastructure The lack of facilities and infrastructure is one of the factors hampering the implementation of the policy of providing performance allowance to the Ternate Election Commission Secretariat. One of the facilities and infrastructure in managing performance allowanve is the use of electronic attendance records or finger print. This was revealed from interviews with respondent "DD" as follow: " the finger print is it just the first time. Now the machine is broken, so we just do it manually ... the signature is always on the attendance list " The same statement stated by respondent"SMS" below: Eko Ady Prabowo, et all.; The Implementation of Providing Performance Allowance Policy... | 265
" there was a finger print a long time ago, but for one reason or another it was broken we are now in manual attendance list." Based on the explanation from the respondents, it was revealed that Ternate Election Commission Secretariat was still using manual attendance recording despite the General Election Commission Decree No. 53 / Kpts / Setjen / 2016 concerning to Technical Guidelines for Implementing Performance Allowance at the General Election Commission, it stipulates that the use of an electronic attendance registration machine must be carried out starting from June 2016, this is justified by respondent "ARH": "Ternate Election Commission has received assistance from the Ternate City Government to buy the equipment and it was able to use it until a few months later but for the time being it was damaged haha ... (laughs) and it has not been repaired, we are temporarily returning to the manual list. Now this is interesting because in terms of equipment related to tukin it needs to be increased including the costs for the pepairing itself. We have equipment, but maintenance is not provided by the budget, so if it is damaged, then we have to wait for it to be repaired ... like this time .. " The same was expression stated by respondent "CNR" that: "..Because our finger print attendance machine is in trouble so go back to the first time. The employees are free to come at any time but later write the absence according to the time of entering the office" The use of recording attendance manually will cause in the lack of supervision and not transparancy in the processing of calculating the performance allowance so that the process of implementing the policy of granting performance allowance does not run as determined by the policy maker. 3. Lack of Budget The lack of a budget is also an obstacle in the implementation of the performance allowance policy, this was revealed from the results of an interview with respondent "ARH" below: "... Problem in the implementation of the tukin policy, first, related to regulations of the tukin, the socialization needs to be reproduced to improve the performance of the management of the tukin so that from the center commission to the distric / city have the same understanding related to the technical guidelines of the tukin, so that it does not have multiple interpretations, let alone circulating new technical guidelines yea ... especially from the provincial commission which is often invited by the center commission to take the bimtek when returning here it must be conveyed to the ranks of the commission below it. Second, in terms of budget, before there was a minus the tukin budget but after it is proposed now for the Ternate commission there is no problem in the payment of the tukin but there is an increase this year we will count again. In terms of equipment related to tukin it needs to be increased including the 266 Jurnal Ilmiah Ilmu Administrasi Publik: Jurnal Pemikiran dan Penelitian Administrasi Publik Volume 9 Number 2, July– December 2019. Page 247-268
cost for the maintenance itself. We have the equipment but the maintenance is not provided with the budget so if it breaks then we have to wait again to be repaired ” From the explanation above it can be concluded besides the lack of budget for employee performance allowance, there is also no budget for equipment and machine maintenance, especially for electronic finger print machines, there is not honorarium for the performance allowance manager, it explained by the respondent" ARH ”the below: "Well ... that is the stipulation, there must be an official then in the decree, but then there is not the decree, if not mistaken, there is no honorarium, so the decree is n't made haha ... (laughs)" The budget for the performance allowance is very important for the smooth process of managing the performance allowance, so it is good planning is needed so that it does not become an obstacle in the implementation of the performance allowance policy.
CONCLUSION
The implementation of the policy on the provision of employee performance allowance at Ternate General Election Commission related to communication, resources, disposition, and bureaucratic structures has been running well but they are not maximally, therefore it causes several deviations the management of performance allowances. The supporting factors for the implementation are: 1) The increasing performance allowance is a motivation factor in appreciating of the commitment of employees in completing their job well. With this increasing performance allowance, employees increase their performance, 2) Human resources (HR), is a factor that can help the implementation of the performance allowance policy, because the increase human resource basis on their competencies will guarantee the realization of the rules that have been set, and 3) The Commitment of implementing the policy, the performance allowance recipient employees who have attitudes or perspectives that support the policy will realize the process of implementing the policy of providing performance benefits effectively. Factors which become obstacles in the implementation of implementation are: 1) Employees do not set up Employee Performance goals at the beginning of the year which are the basis for calculating performance allowance besides employees’ attendance, 2) Lack of facilities and infrastructure, in this case is the list of electronic attendance records or finger print, and 3) The lack of a performance allowance budget is one of the factors that hinders the process of implementing the performance allowance policy because it will affect the process of disbursing the performance allowance expenditure.
REFERENCES
Akib, H., & Salam, R. (2016). Analisis Kualitas Pelayanan Publik Berbasis Importance Performance Analysis (IPA) pada Kecamatan Kota Makassar. Jurnal Ilmiah Scientific Pinisi, 2(April 2016), 16–20. Blatt, B., Bogdan, R., Biklen, D., & Taylor, S. (1977). From institution to community: A Eko Ady Prabowo, et all.; The Implementation of Providing Performance Allowance Policy... | 267
conversion model. Educational Programming for the Severely and Profoundly Handicapped, 40–52. Creswell, J. W., & Poth, C. N. (2018). Qualitative inquiry Research Design Choosing Among Five Approaches (Vol. 53). https://doi.org/10.1017/CBO9781107415324.004 Dessler, G. (1999). How to earn your employees’ commitment. Academy of Management Perspectives, 13(2), 58–67. Dhaliwal, I., & Hanna, R. (2017). The devil is in the details: The successes and limitations of bureaucratic reform in India. Journal of Development Economics, 124, 1–21. https://doi.org/https://doi.org/10.1016/j.jdeveco.2016.08.008 Johnsen, H. (2015). Professional responses to post bureaucratic hospital reforms and their impact on care provision. Women and Birth, 28(2), e19–e25. https://doi.org/https://doi.org/10.1016/j.wombi.2015.01.006 Mathwich, N., & Pavao-Zuckerman, B. (2018). Bureaucratic reforms on the frontier: Zooarchaeological and historical perspectives on the 1767 Jesuit Expulsion in the Pimería Alta. Journal of Anthropological Archaeology, 52, 156–166. https://doi.org/https://doi.org/10.1016/j.jaa.2018.07.002 Pratiwi, N. J., Jamaluddin, J., Niswaty, R., & Salam, R. (2019). The Influence of Work Facilities on Employee Performance at the Regional Financial Management Agency Secretariat Section of South Sulawesi Province. Jurnal Ad’ministrare, 6(1), 35–44. Saggaf, M. S., Aras, M., Akib, H., Salam, R., Baharuddin, A., & Kasmita, M. (2018). The Quality Analysis of Academic Services Based on Importance Performance Analysis (IPA). Shet, S. V, Patil, S. V, & Chandawarkar, M. R. (2019). Competency based superior performance and organizational effectiveness. International Journal of Productivity and Performance Management, 68(4), 753–773. https://doi.org/10.1108/IJPPM-03-2018-0128 Widodo, D. S. (2014). Influence of leadership and work environment to job satisfaction and impact to employee performance (Study on Industrial manufacture in West Java). Journal of Economics and Sustainable Development, 5(26), 2010–2015. Wihantoro, Y., Lowe, A., Cooper, S., & Manochin, M. (2015). Bureaucratic reform in post- Asian Crisis Indonesia: The Directorate General of Tax. Critical Perspectives on Accounting, 31, 44–63. https://doi.org/https://doi.org/10.1016/j.cpa.2015.04.002 Wilfahrt, M. (2018). The politics of local government performance: Elite cohesion and cross- village constraints in decentralized Senegal. World Development, 103, 149–161. https://doi.org/https://doi.org/10.1016/j.worlddev.2017.09.010
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Jurnal Ilmiah Ilmu Administrasi Publik: Jurnal Pemikiran dan Penelitian Administrasi Publik Volume 9 Number 2, July– December 2019. Page 169-276 p-ISSN: 2086-6364, e-ISSN: 2549-7499 Homepage: http://ojs.unm.ac.id/iap
Inhibiting Factors in the Administration of Education (Senior High School) in Kepulauan Riau Province
Auly Fikry, Endang Larasati, Ida hayu Dimawati Magister of Public Administration, Diponegoro Unviersity Email: [email protected]
(Received: September 1-2019; revised: September 16-2019; published: December 31-2019)
ABSTRACT
The policy for transfer of authority to manage high schools from district or city government to provincial governments, in its implementation, experienced various kinds of obstacles. As in the Riau Islands province, with the number of islands reaching 394 inhabited islands scattered throughout the Riau Islands region, the transfer of authority from the district / city to the province will have some changes that must be made. The purpose of this study is to examine the management of high school education in the Riau Archipelago. The research method used is qualitative, data collection is done through interviews and observations. The results showed that there were two factors which became obstacles in the management of senior high school education in the Riau Islands, namely the geographical environment and the national education system. The results showed that the geographical environment of the archipelago which has a 95% sea area had several impacts in running.
Keywords: education management; High School; Archipelago Region
INTRODUCTION
Education is the main supporting factor for the formation of productive human beings and has the skills to create a prosperous and prosperous society and compete not only at the national level but also at the international level (Niswaty, Rusbiati, Jamaluddin, & Salam, 2017; Saggaf, Salam, & Rifka, 2017). According to Lee (1995) is a process in which people with education intentionally transform their cultural heritage, namely knowledge, values and skills from time to time. Education is a pillar for a country to develop a nation. Education itself according to Triwiyanto (2017) Education is a conscious effort made by the community and the government through teaching, guidance and training that takes place at school and outside of school for the whole life to prepare students to be able to play their role in the environment in the right life in the future. This is in accordance with the 1945 Constitution article 31 paragraph (1) and paragraph (2) which reads: (1) Every citizen has the right to get Education, (2) Every citizen must follow basic education and the government is obliged to finance it. Another policy governing education is the National Medium-Term Development Plan (RPJMN) for 2015-2019. The objectives of this RPJMN relating to Education are: (1) Increase the participation rate of primary and secondary education, (2) Increase the sustainability rate of education marked by decreasing dropout rates and continuing rates, (3) Reducing the gap in education participation between community groups , especially between rich and poor residents, between male and female residents, between urban and rural areas and between regions. (4) Increase the readiness of secondary education students to enter the job market or to continue to tertiary education. 270 Jurnal Ilmiah Ilmu Administrasi Publik: Jurnal Pemikiran dan Penelitian Administrasi Publik Volume 9 Number 2, July– December 2019. Page 169-276
Based on the objectives of the RPJMN, specifically in the second and fourth objectives, it is stated that the government is serious in eradicating the number of dropouts in all regions of Indonesia and increasing the readiness of secondary education to enter the labor market or to further the tertiary education level. Therefore the Government of Indonesia is trying to change some of the existing education systems in order to improve the quality of Education (Akib, Guntur, & Salam, 2016; Saggaf, Akib, Salam, Baharuddin, & Kasmita, 2018; Saggaf, Aras, et al., 2018; Saggaf & Salam, 2017). Since the era of policy reforms in the field of education has experienced a variety of changes, one of the most recent is the occurrence of changes in government affairs in the field of education with the enactment of Law No. 23 of 2014 concerning Regional Government. The law mandates the management authority of Senior High Schools (SMA) and Vocational High Schools (SMK) which were previously handed over to the district / city government, the mandate of this policy began to be carried out in March 2016, and it should begin to apply to all of Indonesia in October 2017. There are several articles from Law Number 23 of 2014 concerning Regional Government that are important to be reviewed, including articles 9,11,12 and 15. Article 9 states that government affairs are divided into absolute, concurrent, and general government affairs. What is meant by absolute government affairs is the full authority of the central government, concurrent affairs are functions which are divided into the central government and provincial and district / city governments. General government affairs are government affairs which become the authority of the President as head of government. Various forms of government affairs in accordance with article 9 of Law No. 23 of 2014 as shown in Table 1 below:
Table 1 Education Management Indonesia Sub Affair Central Goverment Province Goverment Regency/city Regional Education 1. Establish national Management of Management of basic Management education standards special secondary education, early age, 2. Management of education dan non formal university education education
Source: Law Number 23 of 2014 (processed by research)
There is a change of authority in managing senior high school and vocational high school education from regency to province. In this case from the District and city education offices to the Riau Islands Province Education Office as related institutions of education management carried out in the Riau Islands. Of course the transfer of authority is also faced with various obstacles in its implementation in various regions in Indonesia, one of which is the Riau Islands Province. Auly Fikry, Endang Larasati, Ida hayu Dimawati; Inhibiting Factors in the Administration ... | 271
Riau Islands was formed in 2002 and is the 32nd province in Indonesia. Riau Islands Province is one of the provinces which is an archipelago in Indonesia. Riau Islands BPS data (2017) shows that the number of islands in Riau Islands is 1796 islands. Complete data from the islands in the Riau Islands Province as shown in Table 2. Tabel 2 The Number of Island in Kepulauan Riau Province Number Regency/City Number of Islands Inhabited 1 Batam city 371 133 2 Tanjungpinang City 9 2 3 Bintan Regency 241 48 4 Karimun Regency 251 73 5 Natuna Regency 392 62 6 Lingga dan Anambas Regency 532 76 Total 1796 394 Source: Central Bureau of Statistics (Badan Pusat Statistik /BPS) Kepulauan Riau 2017
Looking at table 1.2 which states that there are 1796 islands in Riau Islands and 394 inhabited islands, researchers say this is quite unique. The large number of islands and the extent of coverage, where the province has a land area less than the total sea, about 95% of the ocean and the rest of the land. With these conditions, of course, the situation of education will be very different from other regions in Indonesia. With the ocean being very dominant compared to the amount of land available, of course the educational methods applied should be determined according to the conditions of each region. This geographical situation makes Riau Islands unique, especially with regard to senior high school education management. According to Usman (2013) the factors that influence management are the Environment, Educational Organizations, and National Education System. One reason for using the theory put forward by Usman is because the research locus of researchers in the relevant department does not make schools the main focus, it is simpler to want to see how the impact of changing the authority of secondary education that was previously managed by the city / regency related to the province . Frederiks, Stenner, & Hobman (2015) explains in a broad sense the environment includes residence, climate and geography, residence, customs, and knowledge. The environment is everything that is seen and contained in terms of life that always develops from one era to another. While the national education system can be seen from the national education (Law No. 20/2003) which states that national education is education based on the Pancasila and the 1945 Constitution of the Republic of Indonesia which is rooted in religious values, the national culture of Indonesia and is responsive to demands for change era. From this understanding it is very clear that Indonesian national education has values that are based on national religion and culture. The existence of various factors that also influence management activities and also the conditions of the unique region of the Ria Islands Province, because the geographical condition of this Province is slightly different from other regions in Indonesia. With the spread of this area 272 Jurnal Ilmiah Ilmu Administrasi Publik: Jurnal Pemikiran dan Penelitian Administrasi Publik Volume 9 Number 2, July– December 2019. Page 169-276
which is quite difficult to reach, it would be very interesting to see how the management of high school and vocational high school level whose management authority is transferred to the Province. Research on management of secondary school education has also been carried out by Muhdi, Kastawi, & Widodo (2017) where the results of his research indicate that the transfer of authority is expected to be able to improve the quality of education, improve access and equity in education. The challenge faced is that the Province will ignore the welfare of non-civil servant teachers and reduce free education at the secondary level. And finally it is recommended that the government make government regulations on middle management education.
METHOD
This research according to the type and data collected is a qualitative study with descriptive methods. Descriptive research can not only describe or describe it, but can also describe conditions in their developmental stages. According to Creswell & Creswell (2017) qualitative methodology as a research procedure that produces descriptive data in the form of written or oral words from people and observable behavior. This research uses descriptive qualitative research method Sukmadinata (2012) says that "descriptive research is a method that aims to describe the phenomena that exist, which took place in the past or present". Qualitative research, the instrument is the researcher himself. The main data sources in qualitative research are primary data and secondary data. Primary data sources are data obtained directly from the field and are still raw data. Secondary data sources are sources of data obtained from literature studies and documentation studies. According to Satori and Komariah (2010) the determination of informant data sources is purposive, that is determined by adjusting to the research objectives or specific objectives. The informants in this study were the Riau Islands Province Education Agency and six school principals in Tanjungpinang and Bintan. Data collection techniques in this study are interviews, observation, and study documentation. The analysis technique in this study is a qualitative data analysis technique following the concept of (Miles, Huberman, & Saldana, 2014), namely data collection, data condensation, data reduction, conclusion and verification.
RESULT AND DISCUSSION
Education Management is a systematic and comprehensive process of cooperation to realize the goals of national education. Management of education itself can also be interpreted as everything that is concerned with managing the educational process (Gaffar, 2009). The transfer of authority in the management of education in senior high schools from urban district crossers to the provincial government in the Riau Islands Province in its implementation has experienced various obstacles. The results showed that there were two factors which became obstacles in the management of high school education in the Provincial Government, which in the case of the Riau Islands Provincial Education Office, namely; (1) geographical environment and (2) national education system.
Auly Fikry, Endang Larasati, Ida hayu Dimawati; Inhibiting Factors in the Administration ... | 273
The Geographical Environment of the Riau Islands Regarding High School Education Management The environment is all things and conditions, including humans and their activities, which are contained in the space in which humans are and affect the survival and well-being of humans and other living bodies. This environmental factor can also be seen one of them from the geographical conditions in a region. Therefore this environment is one of the factors in the management of education in the Riau Islands Province. Based on the results of the study it can be found that environmental factors that influence in the management of education in Riau Islands Province are geographical conditions. In accordance with the results of the interview with the Principal of SMAN 1 Tanjung Pinang: "Geographical conditions will certainly greatly determine the quality of education in a region, because when different fields will be different things that should be applied, there will be some regions that are lagging behind other regions, for example Indonesia itself must be recognized that the quality of education in Java will be better compared to other regions in Indonesia, it is undeniable that our region is 90% more ocean than the land area, of course processes such as teacher training, book distribution, and costs are different in each region, for example Natuna whose basic food prices can only doubled compared to the Tanjung Pinang city area. "(interview results 03-02-2019)
The same thing was also expressed related to geographical conditions being one of the factors in education management in Riau Islands Province, according to the results of an interview with the Head of the Field of Development
"Geography is indeed an important factor in the quality of an area, for example the island of Java which is no longer a public secret so dominates education in Indonesia. The range of control that is quite far between one island and another island in my opinion is indeed a dilemma in this province not to mention travel costs are so high. "(interview results 03- 12-2019)
Based on the results of interviews and observations in the field geographical conditions will certainly greatly determine the quality of education in an area, because when different fields will be different things that should be applied, there will be some areas that are lagging behind compared to other regions. it is undeniable that the Riau Islands region, which is 95% more than the ocean, compared to the size of its land area, will be very influential in the management of education. Problems that arise such as access to education of the Riau Islands Province are not very evenly distributed to each region. Therefore this environmental factor is an inhibiting factor in the management of education in the Riau Islands Province. Geography is indeed an important factor in the quality of an area, for example the island of Java which is no longer a secret so dominates education in Indonesia. The range of control that is quite far between one island and another island in my opinion is indeed a dilemma in this province not to mention the costs travel so high. In addition, geographical conditions will certainly determine the quality of education in a region, because when different fields will be different things that should be applied, there will be some regions that are lagging behind other regions, for example Indonesia itself must be recognized that the quality of education in Java will be better compared to other regions in Indonesia, it is 274 Jurnal Ilmiah Ilmu Administrasi Publik: Jurnal Pemikiran dan Penelitian Administrasi Publik Volume 9 Number 2, July– December 2019. Page 169-276
undeniable that our region is 90% more ocean than the land area, of course processes such as teacher training, book distribution, and costs are different in each region, for example Natuna with food prices the principal can be doubled compared to the Tanjungpinang city area.
National Education System Regarding the Management of Education of Upper Middle Schools in Riau Islands The national education system is the whole component of education that is interrelated in an integrated manner to achieve the goals of national education, the National Education System is a guideline for education administrators or managers to behave, both individually and in groups so that the relationship between people and people and people with the organization becomes orderly. The interview results are in accordance with the results of the interview with the Principal of SMAN 4
"With the change in the national education system, which now has the authority given to the provincial government to regulate senior secondary education, there are of course some new things, for example the MKKS (Principal Conference). MKKS was formed after the enactment of the policy of Law No. 23 of 2014, with the aim of facilitating coordination between the department and the school. If directly related to the reasons for children dropping out of school with this national policy, of course it is necessary to do a more in-depth study related to that. "(Interview 04-04-2019)
Other information was also obtained based on the results of interviews with the Head of High School Development
"The most fundamental difference from the transfer of authority in question is the difficulty in the management process, especially in terms of supervision, it must be recognized that controlling all schools in the Riau Islands Province is not easy, not to mention related to this education is something that sometimes has enough problems complex. And regarding the increasing number of school dropouts in the Riau Islands in 2018, it is necessary to carry out a special scientific study related to the main cause, in my personal opinion today's teenagers are lulled by technological advancements that tend to facilitate each of their activities, not to mention the juvenile delinquency which is getting day by day more widespread "(interview results 03-12-2019)
Based on the results of the study found that the national education system is one of the inhibiting factors in the management of education in the Riau Islands Province Education Office, this is due to the change in the national education system that is now given authority to the provincial government to regulate senior secondary education. new and need adjustments such as the formation of MKKS, where MKKS was formed after the enactment of the Act No. 23 of 2014, with the aim of facilitating coordination between the provincial office with the school. Besides that, the problems related to school dropouts, I think, still need to be reviewed in fact what causes them to drop out of school, with the education system that also provides free assistance for those who are less able, this should be very helpful. As for the implementation of the new policy related to the transfer of high school authority to the Province with the increasing Auly Fikry, Endang Larasati, Ida hayu Dimawati; Inhibiting Factors in the Administration ... | 275
number of dropouts in Riau Islands Province, more in-depth research needs to be done. The most fundamental difference from the transfer of authority in question is the difficulty in the management process, especially in terms of supervision, it must be recognized that controlling all schools in Riau Islands Province is not easy, not to mention related to education is something that sometimes has enough problems complex. Regarding the increasing number of school dropouts in the Riau Islands in 2018, it is necessary to conduct a special scientific study related to the main cause, in my personal opinion today's teenagers are lulled by technological advancements that tend to facilitate their activities, not to mention the delinquency of adolescents who are increasingly getting more and more bloom. The facts that occur in the field when changing authority must, of course, be more complex in the school that I lead myself these past few years is quite good and almost no students drop out of school, with juvenile delinquency at this time and this globalized era is quite difficult for the school to control them in such a way.
CONCLUSION
The intended environment here is more geographical of Riau Islands, which is 95 percent more territorial waters than terrestrial areas, which will greatly affect the management of education, processes such as teacher training, distribution of books, and costs that differ in each region. With the range of control in managing high school in Riau Islands, management needs to be different from other regions. The existing national education system is actually sufficient to help students, especially in terms of education costs, the enactment of Law No. 23 of 2014 is intended to improve the quality of education so that there is a separation of the focus of the city administration to take care of primary and junior secondary schools while the provinces take care of senior secondary schools, but for the Riau Islands region, the above should be reviewed or there are certain rules for areas that have much less land area with sea areas. As for the related increase in high school dropouts that occur in the Riau Islands based on the results of research there is still a need for deeper study of the schools or children concerned.
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Pendidikan PPS Program Doktor Administrasi Pendidikan Universitas Pendidikan Indonesia. Lee, C. D. (1995). A culturally based cognitive apprenticeship: Teaching African American high school students skills in literary interpretation. Reading research quarterly, 608–630. Miles, M. ., Huberman, A. ., & Saldana, J. (2014). Qualitative Data Analysis, A Methods Sourcebook (3 ed.; Tjetjep Rohindi Rohidi, Ed.). Jakarta: UI-Press. Muhdi, M., Kastawi, N. S., & Widodo, S. (2017). Teknik Pengambilan Keputusan Dalam Menentukan Model Manajemen Pendidikan Menengah. Kelola: Jurnal Manajemen Pendidikan, 4(2), 135–145. Niswaty, R., Rusbiati, S., Jamaluddin, J., & Salam, R. (2017). The Influence of Teacher’s Reinforcement for Students Motivation. International Conference on Education, Science, Art and Technology, 148–152. Saggaf, M. S., Akib, H., Salam, R., Baharuddin, A., & Kasmita, M. (2018). The Quality Analysis Of Academic Services. Saggaf, M. S., Aras, M., Akib, H., Salam, R., Baharuddin, A., & Kasmita, M. (2018). The Quality Analysis of Academic Services Based on Importance Performance Analysis (IPA). Saggaf, M. S., & Salam, R. (2017). Examining Academic Service using Importance Performance Analysis (IPA). Saggaf, M. S., Salam, R., & Rifka, R. (2017). The Effect of Classroom Management on Student Learning Outcomes. International Conference on Education, Science, Art and Technology, 98–102. Sukmadinata, N. S. (2012). Metode Penelitian Pendidikan, PT Remaja Rosdakarya. Bandung. Triwiyanto, T. T. (2017). Regrouping of Schools within One Complex and Teacher Redistribution to Attain Equitable Management and Distribution of Teachers. 2nd International Conference on Educational Management and Administration (CoEMA 2017). Atlantis Press. Usman, M. I. (2013). Pesantren Sebagai Lembaga Pendidikan Islam (Sejarah Lahir, Sistem Pendidikan, Dan Perkembangannya Masa Kini). Jurnal al-Hikmah, 14(1), 127–146.
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Influence of Enso to Variability of Rain Chain at Tropical Cyclon in Southern East Nusa Tenggara
Candra Febryanto Patandean Meteorology, Climatology and Geophysics Agency IV Makassar Email: [email protected]
(Received: July 1-2019; revised: October 10-2019; published: December 31-2019)
ABSTRACT
The Region of East Nusa Tenggara province which is geographically situated around Equator is an area immediately adjacent to place where the growth of tropical cyclones. This research to determine the variability of tropical cyclones that have happened, how the influence of ENSO on the variability of tropical cyclones, and how the impact of tropical cyclones on rainfall in East Nusa Tenggara. In this study, the rainfall data used is represented by 8 stations observations in the region of NTT, namely Kupang, Rote, Sabu, Waingapu, Ruteng, Maumere, Larantuka, and Alor, with period of 19 years ie the assessment year 1996-2014. The data was obtained from Era Interim ECMWF. Tropical cyclone data was obtained from JTWC-Japan and TCWC-Australia, covering a maximum sustained wind data, position, and lifetime cyclone. Rainfall data obtained from Climatological Station of Lasiana-Kupang. Results of the analysis showed that during the study period the total incidence of tropical cyclones in the south of East Nusa Tenggara many as 113 cases, with an average of 6 events cyclones per year and were distributed mainly in the winter between November and April. The results also show that ENSO influence on tropical cyclone variability indirectly to the parameter of tropical cyclones.
Keywords: Tropical cyclone, ENSO, Precipitation, Atmospheric Dynamics.
INTRODUCTION
The mass of warm and humid air in the tropics is very easy to become labile resulting in the condensation process releasing latent heat energy excessively. This energy is then used as the main energy source in the formation of thunderstorms and other tropical disturbances, namely tropical cyclones (McGregor and Nieuwolt, 1998 - in (Larasati, 2013)). Even though it does not cross the Indonesian mainland, the influence of tropical cyclones that occur in the Indian Ocean remains felt in the weather on islands in Indonesia (Tjasyono, 1994 in (Dey, 2014)This is caused by a low-pressure weather system with a diameter of 500-800 km that is owned by tropical cyclones (Holland, 1997) Tropical cyclones are a synoptic scale phenomenon characterized by a low pressure formed generally in the tropics that has a low latitude between 10 ° and 20 ° N / LS from the equator. For the Indonesian region tropical cyclones only appear at 10 ° latitude from the equator. The southern territorial waters of Indonesia are directly adjacent to three cyclone basins namely the western North Pacific ocean basin, the northern Indian Ocean basin and the southern Indian Ocean basin. Tropical cyclone activity in these three basins will influence each other because of the tendency of cyclone activities that correlate between basins (Frank & Young, 2007) so that the global weather phenomenon that occurs in these two basins will affect tropical cyclone variability in the waters of southern Indonesia. 278 Jurnal Ilmiah Ilmu Administrasi Publik: Jurnal Pemikiran dan Penelitian Administrasi Publik Volume 9 Number 2, July– December 2019. Page 277-286
The impacts of tropical cyclones in Indonesia include: Fransesca tropical cyclone which occurred at the end of January 2002 in the northwest of the island of Java with a life time of 15 days which greatly affected the amount of rainfall in the western part of Indonesia, especially Java and Sumatra. The great flood that occurred in Jakarta was allegedly the result of this cyclone. Other than that, at the same time Chris's tropical cyclone took place in northern Australia. The combination of these two cyclones is thought to be the cause of high rainfall on the island of Java to cause flooding in Pekalongan, Sampang and Situbondo (reports of events and effects of tropical cyclones in Indonesia were published by the National Institute of Aeronautics and Space (LAPAN, 2004). The Fiona tropical cyclone that occurred in February 2003 which moved southwest away from the equator in Australia's west coast waters resulted in strong winds and flooding in Indonesia's territory (Dupe, 2003)The Indigo tropical cyclone that (LAPAN, 2004) In the Ende and East Flores (NTT) districts, the Inigo cyclone caused flooding and landslides (Mustika, 2008 in (Novrinda, 2014)). The Australian Bureau of Meteorology (BOM) recorded 189 occurrences of tropical cyclones in the Indian Ocean in 1979-1998. This tropical cyclone consists of tropical cyclones that occur 5 km to 3000 km from Indonesia. Based on the radius of influence and differences in the position of the tropical cyclone path, not all tropical cyclones affect the weather on islands in Indonesia. Likewise it is known that ENSO also plays an important role in tropical cyclone variability in ocean basins from the northern hemisphere, although the influence of environmental factors at the beginning of the occurrence and development of tropical cyclones varies for different basins (Kuleshov et al., 2009) The East Nusa Tenggara Province which is geographically located south of the equator with astronomical location at 11 ° 10'LS - 07 ° 30'LS and 118 ° 30 'BT - 125 ° 20'BT, is an area directly adjacent to the place where tropical cyclone grows (basin), so that the impact must be watched out, both directly and indirectly from tropical cyclones that affect the weather, especially rainfall in the East Nusa Tenggara region. ENSO is the most important ocean-atmosphere interaction phenomenon that influences inter-annual climate variability on a global scale. It has been proven that ENSO is a significant contributor to year-to-year tropical cyclone variability in most ocean basins, (Landsea, 2000), ENSO alters global atmospheric circulation that affects the frequency of tropical cyclones by changing the source of lower tropospheric vortices and vertical wind shear (Landsea, 2000) In response to each different basin to ENSO, some indicate changes in frequency of events, while others affect the displacement of the initial tropical cyclone location (Landsea, 2000). Tropical cyclone activity in the Pacific basin is directly affected by changes in sea surface temperature while for other basins it is only indirectly affected through teleconection (Landsea, 2000) Therefore the authors are interested in examining the Effects of ENSO on the Variability of Rainfall in Tropical Cyclones in the Southern Waters Region of East Nusa Tenggara. The formulation of the problem studied in this study is: what is the tropical cyclone variability in the waters south of NTT? , how does the tropical cyclone affect rainfall in NTT?, what is the contribution of cyclone-affected rainfall to the average monthly rainfall in NTT?, what is the influence of ENSO on tropical cyclone variability in the waters south of NTT? The research objectives studied are: determine the variability of tropical cyclones in the waters south of NTT, analyze the influence of tropical cyclones on rainfall in the NTT region., Candra Febryanto Patandean.; Influence of Enso to Variability of Rain Chain... | 279
identify the contribution of cyclone-affected rainfall to the average monthly rainfall in NTT, knowing the effect of ENSO on tropical cyclone variability in the waters south of NTT using marine and atmospheric parameters. The benefits of the research studied are: making a general weather analysis or description of the existence of tropical cyclones which are very dangerous for the people in Indonesia, especially in the waters south of NTT, roviding extreme weather information to the public, and government agencies regarding the influence of tropical cyclones in the Southern Waters of NTT, poviding an understanding of the theory / concept to the people around the NTT region about tropical cyclones that occur in the waters south of NTT.
METHOD
This type of research is a type of descriptive research. Variable research that is used in tropical cyclones with the following parameters: tropical cyclone events for a year, the Nino Oceans Index (ONI) in several periods, monthly distribution of tropical cyclones in several periods, and monthly distribution of trajectory (distance) of tropical cyclones in several periods. The data sources used in this study are as follows: tropical cyclone historical data for the period 1996 - 2014 for the southern region of East Nusa Tenggara, Indonesia, at 5 ° LS - 20 ° LS and 110 ° East - 135 ° East, downloaded from http://australiasevereweather.com/ Daily rainfall data from 1996 - 2014 for 8 points of BMKG Observation Station in East Nusa Tenggara province, with the position of the Station. Data on months and years of ENSO events. ENSO events are determined based on the Oceanic Nino Index (ONI) downloaded from: https://www.cpc.ncep.noaa.gov/ . From the ONI data, it was known that during the period 1996 - 2014, El Nino events occurred in 1997, 2002, 2004, 2006 and 2007, while La Nina events occurred in 1996, 1998, 1999, 2000, 2007, 2010 and 2011. The rest are years with neutral ENSO conditions. Daily (daily) reanalysis data from the ECMWF Interim Era at a resolution of 0.125ºx0,125º from January 1996 to December 2014, which consists of wind data components u and v (to find vorticity values, divergences, vertical wind shear and to display wind flow patterns), Sea Surface Temperature, and relative humidity. The data analysis method used is 1. the method of trajectory (distance) of tropical cyclones to the maximum contribution of rainfall,then calculating the maximum and minimum distances at the beginning of formation, when reaching maximum intensity, and when the cyclone decays to the position of each station observation when contributing maximum rainfall. The distance of the storm center is calculated based on the position of the center of the storm at the maximum intensity of the position of the rain observation station by using the manual method by calculating the difference in latitude and longitude using the Pythagoras formula. This distance is calculated by the equation:
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By: R = distance (km); X = station longitude (degree); Y = station latitude position (degree); pb = storm center; sta = rain observation station
This composite method is used to averaged several patterns of a particular parameter so that one pattern is expected to represent several existing patterns. Composite analysis of parameters for tropical cyclone formation, namely: SST composite analysis, vertical wind shear, divergence, wind flow pattern, and 850 mb layer vorticity, and relative humidity (500 mb) in the period active cyclone (January) and inactive cyclone period (July). The following is a research flow diagram which is a step to support the research process that will be made so that research can run more directed and systematic.
Figure 1. Flowchart of research
RESULT AND DISCUSSION
Analysis of Annual Tropical Cyclones
In this study, it was known that during the period 1996 to 2014 there were 113 cyclone incidents in the study area with an average incidence of 6 events per year. Of these amounts can be classified based on the annual and monthly distribution of the frequency, type, intensity and life time of tropical cyclones. The plot of the distribution of tropical cyclones in the study area can be seen in Figure 2.
Candra Febryanto Patandean.; Influence of Enso to Variability of Rain Chain... | 281
Figure 2. Tropical cyclone track distribution map in 1996 – 2014 From figure 2, it appears that tropical cyclones occur in the study area not only from the beginning of the formation but also the place where the cyclone ends. When compared with the number of tropical cyclones for all BBS based on the 2014 Annual Report from JTWC, the number of cyclones between 1996 - 2014 was 504 events, so that the number of cyclones that occurred in the study area was 22.42% of the total cyclones on BBS for that time period. This shows that the southern region of Indonesia (especially NTT) is one of the most active tropical cyclone regions. The number of annual tropical cyclones in the period 1996 - 2014 in the study area was distributed evenly between 1-9 events each year with the smallest number of cyclones, namely 1 event in 2014, and the highest as many as 9 events in 1996, 1999, 2000 and 2011. The distribution of tropical cyclone events every year can be seen in Figure 3.
Years Figure 3. Annual tropical cyclone frequency distribution, 1996-2014
From the results of data processing, it is known that the frequency distribution of tropical cyclones is strongly influenced by ENSO phenomena both in the El Nino, La Nina, and neutral 282 Jurnal Ilmiah Ilmu Administrasi Publik: Jurnal Pemikiran dan Penelitian Administrasi Publik Volume 9 Number 2, July– December 2019. Page 277-286
phases. The spatial distribution of tropical cyclone frequencies in the ENSO phase can be seen in figure 4. (Map distribution of tropical cyclones during the ENSO phase in the attachment). In the figure it is clear that the tropical cyclone that occurred in the ENSO phase was 75 events or about 2/3 of the total number of tropical cyclones compared to the number of tropical cyclones that occurred in the neutral phase as many as 38 events or about 1/3 of the total cyclone. Tropical cyclones that occur in the La Nina phase are the highest with 50 occurrences, while in the El Nino phase there are 25 cyclone events, and neutral with 38 cyclone events. Thus an initial conclusion can be drawn that the southern regions of Indonesia (especially NTT) are strongly influenced by the ENSO phenomenon. The type of cyclone that occurred in the study area reached 49 tropical storm conditions, reaching as many as 59 tropical cyclones, and which only reached tropical depression as many as 5 events. If seen from cyclone tracks, tropical depression can occur for a long time if the direction of movement is parallel to the equator, while tropical storm and tropical cyclone conditions generally begin at latitude 10º LS, only around 14.2% (16 events) of the total overall events that occur below latitude 10ºLS.
Analysis of Monthly Tropical Cyclones Monthly distribution for all periods from 1996 - 2014 peaked in January with the number of cyclones as many as 28 cyclones and the lowest in May as many as 1 cyclone, while in 4.2 Analysis of Monthly Tropical Cyclones June to October there is no cyclone (0 cyclone). In the ENSO phase, the number of significant cyclones occurred in the La Nina phase for all active cyclone periods, ie from November to April with a maximum of 12 cyclones in January and March, and the lowest 1 cyclone in November, while in May to October no cyclones occur (0 cyclones).
Figure 4. Distribution of the frequency of monthly tropical cyclones in the period 1996-2014
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Figure 5. Monthly frequency distribution of tropical cyclone ENSO phase
Impact of Tropical Cyclones on Rainfall in East Nusa Tenggara The most obvious tropical cyclone impact is on rainfall increase and reduction (CH). The rainfall data used are daily CH data and monthly CH average data for the period 1996-2014 for each observation point. In this study, the initial study was carried out by separating rainfall data (CH) when there was a cyclone, hereinafter referred to as CH cyclone, and there was no cyclone, hereinafter called CH without cyclones, in the study area (5ºLS - 20ºLS and 110ºBT - 135ºBT), then CH cyclones are compared with their monthly average rainfall to see the percentage of CH cyclone contributions to their monthly averages. The following is a graph of the monthly CH distribution at cyclone, without cyclones, and the monthly CH average for 8 observation station points:
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From the results of data processing it is known that throughout 1996-2014, the influence of tropical cyclones that occurred in the study area on rainfall for 8 rain observation points was relatively the same. In general, almost all areas of the CH observation cyclone are lower when compared to CH without cyclones, except on Sabu and Larantuka. On Sabu, CH cyclones were higher than CH without cyclones in April of 1.46 mm, while in Larantuka, CH cyclones were higher than CH without cyclones in March and April which were 20.79 mm and 4.46 mm. The dominance of CH without cyclones against CH cyclones is because throughout 1996 - 2014 there were 3 cyclones that contributed CH in November. The highest contribution of CH cyclone to monthly CH occurs in Waingapu which is equal to 6.6% with the highest contributor of Alessia's tropical cyclone in 2013 at 71 mm. The distance from the tropical cyclone at the beginning of its formation to extinction was (±) 2487.04–3205.82 Km, whereas when it reached MSW (Maximum Sustained Wind) it was ± 2686.63 Km from Waingapu. cyclone active period that occurs simultaneously the monsoon active period of Asia (rainy season) over the territory of Indonesia, including the East Nusa Tenggara region. CH's cyclone contribution to the average monthly throughout 1996-2014 for 8 stations (points) observations ranged from 2.7 - 56.3%. The lowest contribution (2.7%) occurred on Sabu in November with the highest contributors from Alessia's tropical cyclone in 2013, and the highest occurred in Larantuka (56.3%) in March with the highest contributor of tropical cyclones Jacob and George in 2007. In general the average contribution of CH cyclones to the monthly average in each observation point in the active cyclone period occurred in March at 46.6%, while the smallest contribution in November was 4.5%. The highest contribution of CH cyclone to CH monthly occurred in Kupang, which amounted to 40.1% with the highest contributor of tropical cyclone Ophelia and Nicholas in 1996 amounting to 831 mm. The distance from the two tropical cyclones at the beginning of their formation to extinction are respectively (±) 1584.30 - 1691.44 Km (Ophelia) and 613.55 - 1186.92 Km (Nicholas), whereas when both tropical cyclones reach MSW each of them is ± 1480.55 and 502.87 Km from Kupang. In January, there were 28 cyclones contributing CH this month. The highest contribution of CH cyclone to CH monthly occurred in Waingapu which was 42.8% with the highest contributor of Vince tropical cyclone in 2011 amounting to 101 mm. The distance from the tropical cyclone at the beginning of its formation to extinction is (±) 1176.21 - 1184.56 Km, while at the moment reaching MSW is ± 1510.62 Km from Waingapu. Furthermore, in February, there were 26 cyclones contributing CH this month. The highest contribution of CH cyclone to CH monthly occurs in Alor, which is equal to 49.0% with the highest contributor of Fiona tropical cyclone in 2003 of 223 mm. The distance from the tropical cyclone at the beginning of its formation to extinction was (±) 1104.86 - 3899.61 Km, while when it reached MSW it was ± 2982.60 Km from Alor. In March, there were 22 cyclones which contributed CH this month. The highest contribution of CH cyclone to monthly CH occurred in Larantuka, which amounted to 56.3% with the highest contributor of tropical cyclone Jacob and George in 2007 amounting to 330 mm. The distance from the two tropical cyclones at the beginning of their Candra Febryanto Patandean.; Influence of Enso to Variability of Rain Chain... | 285
formation to extinction were respectively (±) 834.20 - 1714.03 Km (Jacob) and 1345.29 - 1719.30 Km (George), whereas when the two tropical cyclones reached MSW each each is as far as ± 1664.22 and 1364.71 Km from Larantuka. In April, there were 17 cyclones contributing CH this month. The highest contribution of CH cyclone to monthly CH occurred in Larantuka which was 52.8% with the highest contributor of Inigo tropical cyclone in 2003 amounting to 258 mm. The distance from the tropical cyclone at the beginning of its formation to extinction was (±) 855.37 - 1761.48 Km, while when it reached MSW it was ± 932.35 Km from Larantuka.
CONCLUSION
From the results of the processing of cyclone data, rainfall and cyclone formation factor analysis, some conclusions were obtained: during the research period (in 1996-2014) there were 113 cyclones in the study area with an average incidence of 6 events per year. The number of annual tropical cyclones is distributed almost evenly between 1 - 9 events each year with the smallest number of cyclones, namely 1 event in 2014, and the highest as many as 9 events in 1996, 1999, 2000 and 2011. The effect of tropical cyclones that occur in the study area on rainfall for 8 rain observation points is relatively the same. In general, almost all areas of the CH observation cyclone are lower when compared to CH without cyclones, except on Sabu and Larantuka. On Sabu, CH cyclones were higher than CH without cyclones in April of 1.46 mm, while in Larantuka, CH cyclones were higher than CH without cyclones in March and April, which were 20.79 mm and 4.46 respectively. mm. Contribution of CH cyclones to monthly averages throughout 1996-2014 for 8 stations (points) of observations ranged from 2.7 - 56.3%. The lowest contribution (2.7%) occurred in Sabu in November and the highest occurred in Larantuka (56.3%) in March. ENSO has an indirect effect on tropical cyclone variability by changing SST, vertical wind shear (VWS), wind flow patterns and vortices at 850 mb, as well as relative humidity in the mid-troposphere (500 mb) in tropical cyclone formation, although not significantly.
REFERENCES
Dey, D. (2014). Analysis of the Impact of 2012 Tropical Cyclones on Weather Conditions in the East Nusa Tenggara Region,. Thesis Meteorology Study Program, STMKG, South Tangerang. Dupe, Z. L. (2003). Tropical Storm and Extreme Weather, in Indonesia,. Frank, W. M., & Young, G. S. (2007). The interannual variability of tropical cyclones. Monthly Weather Review. https://doi.org/10.1175/MWR3435.1 Holland, G. J. (1997). The maximum potential intensity of tropical cyclones. Journal of the Atmospheric Sciences. https://doi.org/10.1175/1520- 0469(1997)054<2519:TMPIOT>2.0.CO;2 Kuleshov, Y., Ming, F. C., Qi, L., Chouaibou, I., Hoareau, C., & Roux, F. (2009). Tropical cyclone genesis in the Southern Hemisphere and its relationship with the ENSO. Annales 286 Jurnal Ilmiah Ilmu Administrasi Publik: Jurnal Pemikiran dan Penelitian Administrasi Publik Volume 9 Number 2, July– December 2019. Page 277-286
Geophysicae. https://doi.org/10.5194/angeo-27-2523-2009 Landsea, C. W. (2000). El Nino Southern Oscillation and the Seasonal Predictability. Diambil dari www.aoml.noaa.gov/hrd/Landsea/ el_nino/ index.html LAPAN. (2004). Report on Events and Effects of Tropical Cyclones in Indonesia. Diambil dari www.Lapanrs.com/result/php Larasati. (2013). Contributions of Rainfall Affected by Tropical Cyclones on Monthly, Seasonal, and Annual Rainfall in Southern Indonesia in 1979-1998. Yogyakarta: , Faculty of Geography, UGM. Novrinda. (2014). Study of the Effects of Tropical Cyclones on the Western Pacific Ocean on Rainfall in the East Kalimantan Region (Case Study of Chancu Tropical Cyclone, 11 and 16 May 2006). Thesis, Meteorology Study Program, STMKG,.
Jurnal Ilmiah Ilmu Administrasi Publik: Jurnal Pemikiran dan Penelitian Administrasi Publik Volume 9 Number 2, July– December 2019. Page 287-294 p-ISSN: 2086-6364, e-ISSN: 2549-7499 Homepage: http://ojs.unm.ac.id/iap
Practical Model of Organizational Personnel Competence Initiation Via Competency Based Interview
Djamil Hasim Ilmu Administrasi Negara, Institut Ilmu Sosial dan Ilmu Politik Yapis Biak Papua Email: [email protected]
(Received: July 1-2019; revised: October 10-2019; published: December 31-2019)
ABSTRACT
The phenomenon of the quality of human resources in organizations, commonly discussed in a broad general framework. Even the arguments presented in the general context even tend to lose practical focus, including when examining the competence of organizational personnel. In this study, experimentation is carried out by placing competencies as initial access to the quality of organizational personnel resources, then the focus is directed at the recruitment program. This study considers that the recruitment program is the first opportunity for the organization to pay attention to the ability (quality of HR) of prospective personnel who will work later. This perspective brings us to the importance of professional recruitment filtration design and integrity in its implementation. The two aspects support one another, including in; (1) The recruitment filtration process that applies the interview mechanism requires the design of competency-based interviews whose details are examined; (2) Competency-based interview design is implemented with blind professional integrity. For this reason, this study presents a practical model of competency-based interview design that is ready to be implemented with a single condition, blind professional integrity.
Keywords: Competency-based interviews Design; Performance; Competency of organizational personnel.
INTRODUCTION
Performance is the result of the work implementation process. Therefore, performance is commonly described as the ability of individual personnel to complete work tasks they carry. The deduction is relevant to performance as defined by Donelly et al., (1994), which refers to the level of success in carrying out the task and the ability to achieve the goals set. The performance is declared good and successful if the desired goals can be adequately achieved (Atkinson et al., 2006; Lent et al., 1994; Sachs & McArthur, 2005; Sols et al., 2007). If the deduction is patterned into the reality of the organization, where there are still various factual problems regarding the quality of personnel resources, it appears that attention to the initial process of institutionalization, in which prospective personnel undergoes a series of filtration, to affiliate into the organization, has not yet received in-depth treatment (Fayol, 1916; Salam, 2015). Supposedly, the phenomenon of the quality of organizational personnel resources will be different when great attention is paid to the initial process of institutionalization, namely implementing the filtration design of competency-based interviews that are examined (Fitzgerald et al., 2006; Kulvisaechana, 2005; Lam, 1998; Toth, 2015). Prospective organizational personnel who are not competent to occupy and work on a type of work tasks in the organization are not "forced" into the organization (Ismail et al., 2016; Jamaluddin et al., 288 Jurnal Ilmiah Ilmu Administrasi Publik: Jurnal Pemikiran dan Penelitian Administrasi Publik Volume 9 Number 2, July– December 2019. Page 287-294
2017). Likewise, prospective personnel who in the filtration process can show an indication of their ability/competence for specific work tasks are affiliated without the "difficulties" that are held (professional integrity). That way, the phenomenon of the quality of organizational personnel will then transform, no longer dealing with the factual problem of incompetence but rather the need for 'strengthening competencies'. Within the work parameters, the problem changes from performance achieved to performance improved. However, many practitioners encounter obstacles and difficulties in designing the design of competency-based interviews. This condition presents the question of how to interpret the concepts of performance creatively to produce a competency-based interview design? This confusion is possible because several terms are often used to refer to one thing without regard to the typical differences in it. The use of competency-based interview terminology, behavioral event interviews and competency-based human resource management are often confusing. Even though they are correct, the three terminologies can be used to refer to the question material used in interview activities, but there are ordinary meanings with distinguishing characteristics from each other. During the recruitment process, interviews can be carried out by anyone. Generally, the interviewer is played by internal organizations, although it can also be transferred to competent parties such as specialized consultants (Saggaf et al., 2014). However, it is commonly known that interviews have high subjectivity. The accuracy of the interview is very dependent on the skill of the interviewer. Things commonly known as biases in interviews caused by human errors include the hallo effect, similarity effect, likeability, stereotyping, and information favorability. This problem can seem natural because, generally, the interviewer is an experienced figure and his skills have been honed. However, the problem caused by the competency-based interview instrument is its agenda, namely the capacity of the information to be obtained. Therefore, correctly, the intended competency-based interview practical model will be presented.
LITERATUR REVIEW
Competency-based human resources management (CBHRM) is an integrated strategy between HR management and the overall organizational strategy. The CBHRM is a competency-based human resource management approach that includes strategic components, recruitment and selection, training, performance appraisal, rewards and sanctions as well as pension programs (Glyricidia, 2017). The purpose of CBHRM is to manage human resources as capital or intellectual capital through the development of personnel competence (Currie & Darby, 1995). In other words, human resource management is the activity of obtaining, managing and releasing resources Although private organizations commonly use the concept of this strategy, this strategy has become the needs of today's organizations in general. Today, all types of organizations face the same society, the same demands and expectations. More specifically, it requires the same competitiveness. In order to be competitive, organizations must have core competencies as the basic framework for the quality of human resources needed. One effort to maintain the organization's core competency framework is to ensure and guarantee that in each recruitment process, the filtration instruments are used. The aim is that the person accepted to affiliate to the Djamil Hasim.; Practical Model of Organizational Personnel Competence... | 289
organization, carry out their duties and work are personnel who indeed can be assured of having the competencies needed by the organization (Zwell, 2008). Thus, from a few critical CBHRM tasks, one of which is to recruit and select HR personnel based on the required competencies. Then the next issue is how to apply competency- based in the selection process (recruitment)? Competency-based interviews require three approaches at the same time, the biographical interview, the backward-looking interview and forward-looking interview (Zwell, 2008). (1) Through biographical interviews, it is possible to explore the competency of candidates through their CVs, exploration of their experiences, candidate's motivation for the job for which he is applying, considerations in applying for a job, and aspirations. This category of the interview is structured and chronological, accompanied by a clear set of criteria, especially indications of competencies needed as a means of evaluating information that has been extracted (Spencer & Spencer, 2008). (2) The backward-looking interview is the most used model in competency-based interviews. Departing from the determination that experience that has been experienced in the past is an excellent predictor for the success of future work. The design of the questions used in this approach is designed to reveal specific behaviors in the past as a reflection of competency indications which are then evaluated based on behavioral indicators described from competencies. (3) Practically speaking, forward-looking interviews are commonly used as a complement to backward-looking interviews, especially if dealing with fresh graduate candidates with no experience. The interviewer submits hypothetical question material by describing situations that are appropriate for the competency in question. In the context of competency-based applications in the interview, there are many question design techniques such as double-headed questions, leading questions, hypothetical questions, self-assessment questions and probing questions. Probing questions that use the funnel technique is very good at digging in-depth information, especially in biographical interviews and backward-looking interviews. While forward-looking interviews use many hypothetical questions (Currie & Darby, 1995; Spencer & Spencer, 2008; Zwell, 2008). Although it is beyond the attention of this manuscript, it should be stressed that the interview is only one technique to dig up information about someone's competence. It would be very good if it is equipped with other techniques or methods such as Human Resources Potential Assessment (HRPA) or Octagon Competencies Profile (JCG).
RESULT AND DISCUSSION
Competency-based interviews that are practiced using behavioral event interviews are a type of structured interview. The structure of the question focuses on the disclosure of examples of behavior displayed in the past. The interview process is intended to reveal in detail and specific examples of past behavior. Questions are designed based on the premise: past behavior predicts future behavior (Candidates are most likely to repeat these behaviors in similar situations in the future) (Spencer & Spencer, 2008; Zwell, 2008). With that in mind, the basic concept of the Behavioral Event interview instrument is described as follows: 290 Jurnal Ilmiah Ilmu Administrasi Publik: Jurnal Pemikiran dan Penelitian Administrasi Publik Volume 9 Number 2, July– December 2019. Page 287-294
Competency
Ficture 1 Conceptual Interpretation, analyzed in 2019
In applying the design of the interview instrument, the basic concept is presented in the questions that the design can be displayed as an example design of the following questions:
Question design with Situation (S) Can you explain the situation? Where and when did the situation occur? Who is involved in it (coworkers, superiors, customers?) What is the background of this situation? Question design with Tasks (T) What tasks should you do at that time? What were you really doing at that time? How do you do it? What specific steps do you take? Involve who you do the action? Question design with Result (R) Can you tell the results of your actions? What specific consequences have your actions produced? What happens after you take these actions? Source: Conceptual Interpretation, analyzed in 2019
Through the design of questions in all three tables, the candidate's professional experience can be revealed. The professional experience described by the candidate is a surface profile of his competency (if proven to exist). Therefore, furthermore, by still referring to the results of the Djamil Hasim.; Practical Model of Organizational Personnel Competence... | 291
identification of the three groups of questions mentioned above, candidate competencies are identified using questions designed based on competency indicators (Spencer & Spencer, 2008; Zwell, 2008):
Design of the Indicator Persistence Question In the process of selling, sometimes we are not successful in obtaining new transactions: Can you tell me one or two situations where you repeatedly fail to get new clients? How is the situation? What specific steps do you take? How is the result? Design of Questions on Influence Others Indicators Can you tell us one or two cases about your efforts to get new customers? What are you doing? What results did you get? Design of Interpersonal Understanding Indicator Questions Can you describe a situation where you face a client who is disappointed with your product? How is the situation? What specific steps do you take? How is the result? Design of Questions on Planning and Organizing Indicators In our work, we are often faced with many priorities that must be done together: Can you tell one or two real cases when you face something similar? What do you do to deal with it? What are the consequences? Source: conceptual interpretation, analyzed in 2019
Some things need to be considered in applying the behavioral model of the practical event interview mentioned above. The interviewer needs to inform and explain the interview process in detail that; (1) The interviewer will ask the candidate questions to explore many behavioral samples that the candidate has done in the past; (2) Questions raised are based on behavioral indicators of competencies needed for the position to be filled by candidates. Related to this, techniques and tips in carrying out the behavioral model of the interview event need to be considered carefully; (1) Starting the interview event positively; (2) Trying to get a story line/sample coherently from beginning to end; (3) Guide candidates to reveal stories or samples of behavior coherently and systematically (Spencer & Spencer, 2008). For the quality of the story/sample to be coherent and systematic, the interviewer needs to note that the question is responded by focusing on actual and real situations so that what is revealed is a real experience in the past and not a hypothetical or abstraction response. Therefore, the interviewer must try to always ask for specific examples, especially if the answer that appears 'unclear' (for example, appears in the answer "Usually, I ...."). Consistently, asking 292 Jurnal Ilmiah Ilmu Administrasi Publik: Jurnal Pemikiran dan Penelitian Administrasi Publik Volume 9 Number 2, July– December 2019. Page 287-294
and asking specific facts; "When did that happen? Who was involved? What are you doing? What then happens?” Along with that, it is best always to remember to give appreciation and 'reinforcement' to the detailed and specific responses that have been obtained (Zwell, 2008). In contrast to these techniques and tips, Spencer and Spencer (2009) also caution against avoiding questions that lead candidates to answers that are abstract or analytical/theoretical. As for the question, "Why did you do that?" Or "What should you do?" And such. Also avoid analytical/theoretical questions, such as "What sales techniques do you usually take?", Alternatively, "What factors do you consider in the sales process?". Avoid 'leading questions' or questions that jump to conclusions; For example, the following question "So you try to influence it?" The more appropriate question is, "can you tell a real example where you do the sales process?" If technically, all the principles are implemented but some problems may arise in conducting interviews, there is a way to manage them in an orderly manner (Blackhurst* et al., 2005; Chenail, 2011; Collins et al., 2004; Mitroff & Denton, 1999). If the candidate cannot disclose the specific case/sample as asked, the interviewer is required to provide an example of the case/sample of the intended behavior and give the candidate time to think. The same thing if the answers are not clear and floating, the interviewer is needed to focus the direction of the interview on specifics and details. For example, if there is a response such as "I feel I must respect my customers," then you should be asked, "Can you give a specific example of when you did that?" How do you do it?"
CONCLUSION
As a form of attention to human resource management (CBHRM) on the quality of personnel to be recruited, careful preparation is needed regarding the following matters; (1) Competency-based interview instruments, which in this study recommend the behavioral event interview practical models as recommended practical models; If this instrument is prepared in a structured manner, then (2) Management needs to decide on the interviewer to be assigned selectively. If the organization's internal personnel do not meet the criteria, the option of engaging a specialized consultant is the best solution; (3) Ensuring that blind professional integrity can be applied throughout the selection process.
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Atkinson, R., Crawford, L., & Ward, S. (2006). Fundamental uncertainties in projects and the scope of project management. International Journal of Project Management, 24(8), 687– 698. Blackhurst*, J., Craighead, C. W., Elkins, D., & Handfield, R. B. (2005). An empirically derived agenda of critical research issues for managing supply-chain disruptions. International Journal of Production Research, 43(19), 4067–4081. Chenail, R. J. (2011). Ten Steps for Conceptualizing and Conducting Qualitative Research Djamil Hasim.; Practical Model of Organizational Personnel Competence... | 293
Studies in a Pragmatically Curious Manner. Qualitative Report, 16(6), 1713–1730. Collins, A., Joseph, D., & Bielaczyc, K. (2004). Design research: Theoretical and methodological issues. The Journal of the Learning Sciences, 13(1), 15–42. Currie, G., & Darby, R. (1995). Competence‐based management development: rhetoric and reality. Journal of European Industrial Training. Donelly, J. H., Gibson, J. L., & Ivancevich, J. (1994). Fundamental of Management, Texas: Business Publication. Fayol, H. (1916). General principles of management. Classics of Organization Theory, 2, 15. Fitzgerald, L., Lilley, C., Ferlie, E., Addicott, R., McGivern, G., & Buchanan, D. (2006). Managing change and role enactment in the professionalised organisation. London: NCCSDO. Glyricidia, A. (2017). Merancang Competency Based Human Resources Management (CBHRM) PT. Corak Warna Advertising Bandung. Ismail, A., Sulur, A. H., Akib, H., & Salam, R. (2016). Snapshot of Society Social-Economic Welfare based on Human Development Index in Polewali Mandar Regency, Indonesia. International Conference on Public Organization VI (ICONPO VI), 847–858. Jamaluddin, J., Salam, R., Yunus, H., & Akib, H. (2017). Pengaruh Budaya Organisasi terhadap Kinerja Pegawai pada Dinas Pendidikan Provinsi Sulawesi Selatan. Jurnal Ad’ministrare, 4(1), 25–34. Kulvisaechana, S. (2005). The rhetoric and reality of developing human capital in the organization: a case study. University of Cambridge. Lam, A. (1998). Tacit knowledge, organisational learning and innovation: a societal perspective (Vol. 98). DRUID. Lent, R. W., Brown, S. D., & Hackett, G. (1994). Toward a unifying social cognitive theory of career and academic interest, choice, and performance. Journal of Vocational Behavior, 45(1), 79–122. Mitroff, I. I., & Denton, E. A. (1999). A study of spirituality in the workplace. Sloan Management Review, 40(4), 83–84. Sachs, J. D., & McArthur, J. W. (2005). The millennium project: a plan for meeting the millennium development goals. The Lancet, 365(9456), 347–353. Saggaf, S., Salam, R., Kahar, F., & Akib, H. (2014). Pelayanan Fungsi Administrasi Perkantoran Modern. Jurnal Ad’ministrare, 1(1), 20–27. Salam, R. (2015). Penerapan Fungsi Administrasi Perkantoran Modern berbasis Daya Saing Organisasi dalam menyongsong MEA 2015. SEMINAR NASIONAL “Revolusi Mental Dan Kemandirian Bangsa Melalui Pendidikan Ilmu-Ilmu Sosial Dalam Menghadapi MEA 2015” Himpunan Sarjana Pendidikan Ilmu-Ilmu Sosial Indonesia, 1, 186–190. Sols, A., Nowick, D., & Verma, D. (2007). Defining the fundamental framework of an effective performance-based logistics (PBL) contract. Engineering Management Journal, 19(2), 40– 294 Jurnal Ilmiah Ilmu Administrasi Publik: Jurnal Pemikiran dan Penelitian Administrasi Publik Volume 9 Number 2, July– December 2019. Page 287-294
50. Spencer, L. M., & Spencer, P. S. M. (2008). Competence at Work models for superior performance. John Wiley & Sons. Toth, I. (2015). Benefits of Managing Organizational Capability. Zwell, M. (2008). Creating a Culture of Competence. New York: Jhon Wiley and Sons. Inc.
Jurnal Ilmiah Ilmu Administrasi Publik: Jurnal Pemikiran dan Penelitian Administrasi Publik Volume 9 Number 2, July– December 2019. Page 295-304 p-ISSN: 2086-6364, e-ISSN: 2549-7499 Homepage: http://ojs.unm.ac.id/iap
Institutional Capacity in Clean Water Management in Jeneponto Regency
Herlina Sakawati1, Sulmiah2, Novayanti Sopia Rukmana3, Widyawati4, Andi Tenri Citra Sari5 1’2’3’4Public Administration Science, Fakultas Ilmu Sosial, Universitas Negeri Makassar 5 STAI YAPIS Takalar Email: [email protected]
(Received: September 6-2019; revised: November 15-2019; published: December 31-2019)
ABSTRACT
This study aims to analyze the institutional capacity in Jeneponto Regency in the management of clean water. The study was conducted using descriptive qualitative methods. Data collection is done through observation and interview techniques, which are strengthened from data from related institutions. The results showed that five dimensions were used to look at institutional capacity, only one dimension contributed to increasing the existing institutional capacity, namely the Social Norms, Values and Practice dimensions. And for the other four dimensions namely, individual dimensions, organizational dimensions, organizational network dimensions, and public governance dimensions still need to be improved. Institutional capacity in the management of clean water in Jeneponto Regency requires rules that govern cooperation between all agencies that have a connection in the management of clean water. The government needs to give training and education to employees.
Keywords: Capacity; Institution; management; and clean water
INTRODUCTION
Climate change that occurred in recent years has attracted the attention of many groups, including researchers in various countries. Many studies have shown that climate change has a negative effect on the availability of clean water, (Mizyed, 2009; Iglesias, Garrote, Flores, & Moneo, 2006). This is caused by rising sea levels, flood disasters, changing intensity of rainfall and drought. The availability of clean water is the thing most needed by the community in carrying out activities. Therefore, the role of the government in the management of clean water is needed. This is certainly inseparable from the institutional capacity. Because one of the success factors in clean water management lies in the participation of stakeholders and policies, (McNeill, 2016). In addition, institutional capacity is also one of the keys to success in regional development (Willems & Baumert, 2003; Widyawati, Widianingsih, & Pancasilawan, 2018) including the development of water resources. In Indonesia, clean water management is guided by Law No. 11 of 1974. Based on these regulations clean water management is the responsibility of the central government. If it is related to regional autonomy policy, this is certainly contrary to the principle of decentralization. Since the enactment of regional autonomy, local governments have the authority to explore their own regional potential, including the management of water resources. So that Law No. 11 of 1974 is considered to be incompatible with current conditions. Where 296 Jurnal Ilmiah Ilmu Administrasi Publik: Jurnal Pemikiran dan Penelitian Administrasi Publik Volume 9 Number 2, July– December 2019. Page 295-304
local governments do not have the authority in formulating water management policies in their own regions. Inequality in clean water management policies has an impact on water management patterns in several regions in Indonesia. One of the efforts made by the government to improve clean water management is by optimizing the role of PDAMs in each region. However, the performance of PDAMs is still less than optimal. Various problems with the availability of clean water felt by the community are caused by the ineffectiveness of the services provided by the PDAM. One area that has problems in managing clean water to meet the availability of water for the community is the Jeneponto Regency in South Sulawesi Province. From the data obtained, the availability of clean water in Jeneponto Regency is still lacking. This is due to the Jeneponto Regency which is a coastal area. In addition, Jeneponto regency's raw water source which originates from the Kelara River every dry season experiences drought, and when the rainy season arrives the source of raw water is polluted. From the results of a feasibility study conducted by the United States Agency for International Development (USAID), through the Indonesia Urban Water, Sanitation, and Hygiene (IUWASH) program, to improve the performance of PDAMs in water management, PDAMs are required to carry out all activities related to clean water management in order to meet the needs of the community, such as monitoring the quantity, quality, continuity and affordability of raw water. However, so far the results of the feasibility study have not shown any changes to the PDAM's performance. In addition, the role of the Jeneponto district government in supporting PDAM performance is less than optimal. Local governments do not provide various facilities and infrastructure for the sake of improving PDAM performance. In the management of clean water in Jeneponto Regency there is also no coordination relationship between the government and the Jeneponto PDAM. Coordination between all government officials and other parties basically aims to develop clean water management patterns, so that clean water management can run as expected. New Zealand and Japan are examples of countries that have successfully implemented clean water management. This success was driven by good coordination between the national government, the provincial government and the government and the involvement of the private sector. Based on this, a study entitled Institutional Capacity in Clean Water Management in Jeneponto Regency, which aims to know the institutional capacity that exists in Jeneponto Regency in water management.
METHOD
Government involvement and the ability of PDAMs in managing clean water in Jenponto Regency is still low. This then encourages researchers to use a descriptive qualitative approach in analyzing institutional capacity in water management in Jeneponto. The data from this study consisted of primary and secondary data, which researchers obtained from observations, interviews, and documentation studies. The informants in this study were determined using the snowball technique, which according to (Nemuan, 2013)the informants were determined based on the information that had been obtained, which then became a reference for determining the Herlina Sakawati, et.all.; Institutional Capacity in Clean Water Management | 297
next informant. Informants in this study consisted of, the Director of the Jeneponto Regency PDAM, the Head of the Jeneponto Regency PDAM Finance, the Jeneponto Regency Deputy Regent, the Jeneponto Regency PDAM employee, and the Jeneponto Regency community. For data analysis, use data analysis techniques proposed by (Miles, Huberman, & Saldana, 2014) called interactive models, which consist of data reduction, data display, and conclusion, drawing / verification.
RESULT AND DISCUSSION
This study discusses institutional capacity in clean water management in Jeneponto Regency. Institutional analysis is used by using theoretical tools from Willems & Baumert, 2003, which consists of dimensions of individual capacity, organizational capacity, Network of Organization, Public Governance, and Social Norms, Values and Practice. The results and discussion of further research will be explained as follows:
The Individual
The individual dimension in the management of clean water is related to the performance of employees in carrying out their duties. The function of employee performance is the basis of success in achieving a goal. Relating to institutional capacity, the effectiveness of individual performance is influenced by the compatibility between educational background and skills with work, providing training, and the availability of the number of employees. As an organization that plays an important role in the management of clean water, PDAM Kabupaten Jeneponto must have an adequate number of human resources. To calculate HR needs or the number of employees needed, it is important to pay attention to the ratio of the number of employees to the number of customers. In accordance with the standard Operational Aspects of the PDAM Performance Audit, it is known that the ratio of 8 employees per 1,000 customers, or in other words one (1) employee serves 125 house / customer connections. The number of PDAM customers in the Jeneponto Regency as of July 2019 was 9,800 house connections. Ideally, employees need around 79 people to serve these customers. From the data obtained, it is known that the Jeneponto Regency PDAM has 93 employees, consisting of 84 permanent employees, and 9 contract / voluntary employees. So that in terms of the need for human resources (HR) in PDAM Jeneponto Regency is classified as sufficient. In relation to the level of education, the education of Jeneponto District PDAM employees is relatively low. There are still Jeneponto Regency PDAM employees who have educational levels only up to elementary school (SD) graduates, and still relatively few who have education levels up to the undergraduate level (S1). The educational background of PDAM Jeneponto Regency employees is dominated by high school graduates. For more details can be seen in the following table:
298 Jurnal Ilmiah Ilmu Administrasi Publik: Jurnal Pemikiran dan Penelitian Administrasi Publik Volume 9 Number 2, July– December 2019. Page 295-304
Table 1 Educational Background of Employees No Educational Permanent employee Contract / Voluntary Employees 1 SD 2 3 2 SMP 4 - 3 SMA/SMK/MAN 58 6 4 S1 20 - Amount 84 9 Source: Author's Process, 2019
In the table above, it can be seen that 58 employees have backgrounds up to the middle level, which consists of graduates, high schools, vocational schools, and MAN. Of the 58 employees, 46 of them are high school graduates (dominantly majoring in social studies), 7 graduates of SMK, and 5 graduates of MAN. Whereas at the graduate level, there are only 6 employees who have educational backgrounds that are not suitable for the job. The six (6) employees, 2 of whom were graduates of the Agricultural Social Sciences S1, 1 graduate of Religious Education S1, and 3 graduates of S1 Education. The other fourteen (14) employee are S1 Economics graduates. The low educational background and non-conformance with work are influenced by the employee recruitment system. Recruitment of employees at the Jeneponto Regency PDAM Office has similarities with various government agencies and other BUMNs. The recruitment process has several requirements and stages. However, in education qualifications, the PDAM Office does not emphasize the educational background with the required job vacancies. PDAM Jeneponto Regency, for the requirements only determine the minimum educational qualifications of high school graduates, so that many applicants who have educational backgrounds that are not in accordance with the work required take part in applying for a job. Furthermore, with regard to employee skills, Jeneponto Regency PDAM employees have relatively low skills. Employees do not have sufficient skills to innovate in terms of improving services and improving clean water management. This is caused by the absence of efforts made by the leadership to develop employee capacity. Based on the results of the study, employees in other institu- tions who have a relationship with PDAM Jeneponto Regency in the management of clean water, such as the Regional Government, Health Office, BPKP Representative Prov. South Sulawesi, Office of Public Works, Office of Environment, Center for Water Resources, in general have education that is not suitable for work, and have low ability to innovate in carrying out work. In addition, employees are classified as lacking discipline. Many employees often arrive late. Basically, one of the most important aspects of clean water management in Jeneponto Regency is the skills possessed by employees. Although employees do not have a high education but have good skills, it will certainly make water management better. This is as stated by (Gibson & Donnelly, 2000)that "employee skills have a considerable influence on Herlina Sakawati, et.all.; Institutional Capacity in Clean Water Management | 299
performance, if employees are able to apply the skills they have in carrying out work". Furthermore (Dunnete, 1976)emphasized that employee skills can be developed through the provision of training. Therefore, in the management of clean water in the Jeneponto Regency, the local government needs to pay attention and carry out training and education provision, especially for the Jeneponto Regency PDAM, and all agencies that have a relationship in managing clean water in general.
The Organization
In addition to the individual dimension, the organizational dimension is also the key to success in the management of clean water in Jeneponto Regency. This relates to the mechanism of work and the capacity of organizational resources involved in the management of clean water in Jeneponto Regency. One of the things that can be done to maintain the availability of water in Jeneponto Regency is to carry out regular monitoring of natural assets and the built assets of PDAM Jeneponto Regency. Natural assets need to be considered because to know the condition of raw water sources and various hydrological characteristics of the catchment area and its surroundings. And the assets built are useful for knowing the condition and status of the asset, both the remaining technical life, maintenance and repair schedules and estimated repair costs. Monitoring of natural assets include, spring discharge, river discharge, river water level, spring quality, borehole quality and river water quality. This relates to the role of the Jeneponto Regency Health Office, the Jeneponto Regency Water Resources Center, and the Jeneponto Regency Environmental Agency. But so far the cooperation relationship with these agencies is not going well. In accordance with the 2015 IUWASH (Indonesia Urban Water, Sanitation, and Hygiene) report, it was explained that regular monitoring of PDAM's natural assets was needed, because the data affected the institutional capacity in managing clean water, especially the PDAM of Kabupaten Jeneponto. In reality on the ground, only the Jeneponto District Health Office has helped a lot in managing clean water. Every six (6) months the Health Office will provide a monitoring report on the quality of raw water sources, but its nature is only on invisible monitoring. For visible monitoring, such as the quality of odor, taste and color of raw water sources, it is still carried out by the PDAM of Jeneponto Regency. Seeing that the condition of the Jeneponto Regency PDAM is very alarming, the Regional Government of the Jeneponto Regency should provide assistance, as well as the Public Works Agency (PU), because the Jeneponto Regional Government is the owner of the PDAM itself, and the Public Works Agency has the responsibility to assist the PDAM in matters infrastructure physical operations. But in reality both parties seemed to close their eyes to see the condition of the Jeneponto Regency PDAM. The lack of attention from agencies involved in the management of clean water, causes obstacles for PDAMs to carry out monitoring of built assets. There are a number of PDAM assets that must be replaced and repaired, such as water tank trucks that are 20 years old and facilities and infrastructure damaged by floods. And according to PDAM employees, a proposal for funding assistance to improve the infrastructure has been submitted to the Regional Government of Jeneponto Regency, but until now the budget has not been disbursed. 300 Jurnal Ilmiah Ilmu Administrasi Publik: Jurnal Pemikiran dan Penelitian Administrasi Publik Volume 9 Number 2, July– December 2019. Page 295-304
Furthermore, as an organization that plays an important role in the management of clean water in the Jeneponto Regency, the PDAM of the Jeneponto Regency also has limitations in terms of organizational resources. District PDAMs have low human resources. In addition, since 2017, the PDAM of Jeneponto Regency has a financial problem, which is caused by corruption committed by the Director of the PDAM in the 2014-2017 period. And the most alarming situation is that at the beginning of 2019, the PDAM of Jeneponto Regency was again faced with a new problem, where the flood disaster that struck Jeneponto, made most of the facilities and infrastructure of the PDAM badly damaged. Based on the discussion above, it can be concluded that the institutional capacity in the management of clean water in Jeneponto Regency still has poor organizational capacity. Every organization involved in clean water management does not carry out its role. This is due to the absence of rules regarding the work system of the relevant agencies in the management of clean water. In addition, the Jeneponto Regency PDAM is still trying to rise from adversity, so that it has not been optimal in clean water management.
Network of Organization
Network of organizations or network of organizations in the management of clean water in Jeneponto Regency, will discuss the relationship of cooperation, coordination and communication, which is carried out by all parties involved in the management of clean water. The complexity of clean water management requires the support of cooperation and high commitment from various parties. According to the General Assembly of the United Nations (UN) the cooperation of all parties in the management of clean water is to maintain a balance between the various needs and different priorities for water. The parties referred to in this matter are, the Central Government, Provincial Governments, Regional Governments and PDAM of Jeneponto Regency, as the organization responsible for water management in Jeneponto Regency. After the United Nations established, 2013 as the International Year of Water Cooperation, the central government in this case the Ministry of Finance made a policy related to water management. The policy is expected to help local governments and PDAMs to improve clean water management in their respective regions. However, in its implementation, various facilities and incentives that have been provided by the Ministry of Finance cannot be implemented by the Jeneponto Regency PDAM, because one of the requirements for carrying out the program / policy issued by the Ministry of Finance, only PDAMs are in good health status (Directorate General of Human Settlements, 2013 ). While the PDAM of Jeneponto Regency is still classified as one of the PDAMs that is sick (Ministry of Public Works and Public Housing, 2017). In addition, the commitment of the Jeneponto Regency Government to the acceleration of clean water services is relatively low. esides that, DPRD, BPKP Representative Prov. South Sulawesi and the Regional Government of Jeneponto Regency, so far, has never discussed investment credit for the Jeneponto Regency PDAM. Even though when this is done it is not impossible, for PDAM Jeneponto Regency can overcome the financial crisis that is being faced. Furthermore, the Regional Government of Jeneponto Regency also never tried to think of a strategic step in Herlina Sakawati, et.all.; Institutional Capacity in Clean Water Management | 301
revitalizing the Jeneponto Regency PDAM. Whereas in Jeneponto Regency, clean water is increasingly difficult, while the population is growing exponentially. Furthermore, with regard to the coordination relationship, the Supervisory Board plays a more important role as a bridge between the Government of the Jeneponto Regency and the Jeneponto Regency PDAM. This is caused by the absence of cooperative relations. When there is a problem in the management of clean water, the Jeneponto PDAM often coordinates with the Board of Trustees. With the reason, the supervisory board has the function to oversee all employee performance, and has the role of providing input to improve PDAM performance. When there are problems that are difficult to solve, the Supervisory Board will coordinate directly with the Regional Government. Furthermore, for communication in the management of clean water in the Jeneponto Regency, the PDAM of the Jeneponto Regency has not been able to create an effective communication relationship related to the management of clean water. Whereas in this industrial era, the use of technology can facilitate the establishment of communication between all parties. The PDAM of Jeneponto Regency so far does not have its own website. In fact, almost all organizations both public and private organizations have used the website to facilitate customers to obtain information.
Public Governance
This indicator discusses the broader institutional context, which includes public sector regulation, and legal regulations in water management in Jeneponto district. The overall effectiveness of the public sector in the management of clean water is also influenced by several dimensions including political economy, and other legal rules. After the cancellation of Law No.7 of 2004 concerning Water Resources, and the re- enactment of Law No. 11 of 1974 concerning Irrigation, the government does not have a legal umbrella in the management of drinking water, because all derivatives of Law No. 7 of 2014 was also canceled. So that it causes overlapping policies in the management of clean water, because the existing laws are not in accordance with the current conditions. In Jeneponto District, the PDAM has implemented a strategy to improve drinking water services to the community, by developing a Water Supply System (RI-SPAM) Master Plan. In the draft, there is something quite interesting that there are several points that discuss the involvement of the private sector, for example when BUMD in this case the PDAM of Jeneponto Regency is considered unable to improve the quantity and quality of SPAM services, then with the approval of the supervisory board / commissioner can include cooperatives, private business entity, and / or community. Furthermore, in terms of SPAM development financing includes financing to build, expand and improve physical systems (technical) and non-physical systems can come from the Government and / or Regional Governments, BUMN / BUMD, cooperatives, private business entities, community funds and / or other sources of funds. The source and pattern of funding do not rule out the possibility of involving the private sector. Some points in the Republic of Indonesia-SPAM Jeneponto, when we associate with regulations relating to the management of clean water, of course this is contrary to the applicable law, because in the law, clean water management is the responsibility of the government and is not allowed to intervene the hands of private parties. 302 Jurnal Ilmiah Ilmu Administrasi Publik: Jurnal Pemikiran dan Penelitian Administrasi Publik Volume 9 Number 2, July– December 2019. Page 295-304
However, when looking at the condition of the PDAM of Jeneponto Regency, the PDAM cannot conduct effective and efficient water management. In addition to the problem of low staff capacity, budget problems also make PDAM performance worse. And what needs to be understood is that in the management of clean water, it certainly requires a significant amount of costs, starting from the provision of water to distribution to the community, all of which require costs, with the condition of the PDAM that is certainly needed by other parties to help the PDAM in the Regency of Jeneponto in clean water management. Basically, the involvement of the private sector in the management of clean water consists of several forms of cooperation, depending on the carefulness of the government to choose the form of cooperation that can benefit the community and the government itself in the management of clean water. According to the Deputy Regent of Jeneponto Regency, it is possible that someday there will be a cooperative relationship between the Regional Government and the private sector in the management of clean water. In addition, in the management of clean water in the Jeneponto Regency, the Regional Government does not have rules governing water management carried out by the PDAM of the Jeneponto Regency. And to carry out clean water management PDAM Jeneponto Regency only refers to the rules of the Association of Indonesian Drinking Water Companies (PERPAMSI).
Social Norms, Values and Practice
On this indicator, norms, values and practices indicate the cultural, economic and social environment of an area. The implementation of clean water management is also significantly influenced by the community (socio-cultural) environment. The suitability of policies in the management of clean water to the community environment is able to create a good cooperative relationship between the government and the community, increase community participation and increase the sense of community responsibility for water management. The PDAM of Jeneponto Regency to provide water services to the community has built several Water Treatment Plants (IPA) located in Binamu District, Turatea District and Bangkala District. The construction of the Natural Sciences is in residential areas. The construction of natural sciences in the three districts was welcomed by the local community. Even though they have to pay tariffs to get clean water from the government, the community does not object. They argue that the presence of PDAM water flow in their area is very helpful to them. According to one resident, after entering the PDAM water flow in his area he no longer had to queue to get clean water. Even though the construction of a natural science plant is located in a residential area, it does not mean that the people in the area all get PDAM water pipeline connections. Like the Natural Sciences in Bangaka Subdistrict, located in the village of Kapita, piping connections only reached more than 20 customers. This is caused by the lack of availability of PDAM pipes. In addition, there are a number of people living in urban areas who also continue to use wellbore water, even though they have obtained piped water piping connections. This apparently had an impact on PDAM revenues. Because these customers only pay the burden. Regarding this matter, up to now the Jeneponto Regency PDAM has not provided sanctions or reprimands. Herlina Sakawati, et.all.; Institutional Capacity in Clean Water Management | 303
CONCLUSION
The institutional capacity in managing clean water in Jeneponto Regency still has a number of shortcomings, so this is what causes problems in the management of clean water in Jeneponto Regency. These deficiencies include: 1) employees involved in clean water management have low skills, and have educational backgrounds that are not at work's level; 2) Agencies involved in clean water management have not been able to carry out their respective roles; 3) there is no established cooperative and coordination relationship, and; 4) water management plans that are made contrary to applicable rules.
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Analysis of the Principal's Role in Improving the Quality of Primary School Management
Kadariah Manajemen Pendidikan Universitas Terbuka, Makassar Email: [email protected]
(Received: September 6-2019; revised: November 15-2019; published: December 31-2019)
ABSTRACT
This study aims to: (1) describe the principal’s strategies to plan, organize, actuate, and control the school programs to improve the quality of education at SMP 1 Cilawu; and (2) describe constraints in the improvement of the quality of education. This was a case study with qualitative approach. The research subjects included teachers and educational personnel. The results of the study used the principal’s as a manager: (1) plans programs by specifying the needs for teachers and educational personnel who will carry out duties, programs in the form of policies and the curriculum that will be implemented, and policies to add the time slot for the guidance and counseling subject by two hours a week; (2) makes an organizational structure by involving students’parents through the school committee and completing infrastructure facilities that the school needs; (3) gives examples of how to work well and calmly, motivation, and rewards to the personnel morally and materially, improves welfare, sends teachers and educational personnel to trainings, and motivates senior teachers to have spirit of lifelong education; and (4) controls the output, teaching and learning processes, and students from the enrolment to the graduation. (5) The constraints include the facts that there are personnel who are not disciplined, there is a lack of communication between the principal and some of the personnel, and the school operation aid funds do not match the school’s needs.
Keywords: principal; planning; organizing; leading; monitoring
INTRODUCTION
Education is a human need that is very important in human life itself. Humans in essence will not only depend on nature without any other influence. In this process, the influence that will be obtained by humans from other human beings will bring a change of attitude towards the people they influence. In accordance with the above it is clear that humans need an education, education is a process to change people from certain conditions to other conditions. So with education that change will appear in the process of changing people's minds, from not understanding to understanding, from not knowing to knowing, because education is an absolute thing that must be met in an effort to improve the standard of living of humans, religion, and especially the Indonesian people not to be left behind by other nations. This is in line with the understanding of education listed in the National Education System Law No. 20 of 2003 article 1 which reads "Education is a conscious and planned effort to create an atmosphere of learning and learning process so that students actively develop their potential to have religious spiritual strength, self-control, personality, intelligence, noble character, and the skills needed by themselves , society, nation and country ". Therefore the education system must be able to guarantee equal opportunities for improving the quality and relevance and efficiency of education management to face challenges in accordance with the 306 Jurnal Ilmiah Ilmu Administrasi Publik: Jurnal Pemikiran dan Penelitian Administrasi Publik Volume 9 Number 2, July– December 2019. Page 305-314
demands of changing lives at home and abroad, so that necessary changes in education are planned, directed and sustainable. Therefore education requires professional structuring, it requires capable and tough personal. From this we call education leaders / principals. A principal is not only required to master the theory of leadership but must also be skilled at applying it to practical work situations. The principal is the head of education who has an important role in developing educational institutions, namely as the holder of control in educational institutions. In this case the role of the principal must be moved in such a way as is in his role in improving the quality of education that is as a manager so that it can influence the staff of teachers, both directly and indirectly. In addition, the principal also has a very large role in developing the quality of education in these educational institutions. Correspondingly, the role of the principal is very influential in the growth and development of education, namely to improve human resources and the quality of education. Principals and teachers and other education personnel are required to play an active role in promoting the growth and development of the quality of their profession in the hope of gaining new knowledge. The principal also acts as an educator who is responsible for school management. The success of an educational institution depends very much on the leadership of the principal. Because the principal as a leader in his institution, he must be able to bring his institution towards achieving the goals set, he must be able to see changes and be able to see the future in a better globalization life. The principal must be responsible for the smoothness and success of all matters of governance and formal management to his superiors or informally to the community who have entrusted their students. The success of a school is also inseparable from an effective headmaster, while an effective headmaster shows his quality in the manner as stated by Sorenson & Goldsmith (2008) as follows. “(1) establishes a visible presence in the school. (2) monitors teachers and students; (3) communicates a vision of school goals and objectives; (4) fosters an open and positive school culture and climate; (5) serves as an instructional expert available to faculty and staff; (6) develops a safe and orderly learning environment; (7) facilitates an instructional and curricular program that promotes student archievement; (8) establishes high organizational expectations; (9) initiates a professional development program; (10) Implements ongoing evaluation of all personed; (11) aligns curricular and strategic plans to enhance teaching and learning” But the reality on the ground to make a quality education a lot of problems that occur principals are faced with a variety of problems that are not a few of which are in planning the principal's program sometimes lacking an active role, lack of information about professional development of educators and staff expertise, in organizing schools and monitoring the principal's program is not playing an active role. Problems with facilities and infrastructure are also faced by schools so that the teaching and learning process is less than optimal, in monitoring and evaluation it is not right to identify the cause of the decline in the quality of education in the value of the final national exam results, the existence of educators and education personnel who lack work discipline, student delinquency included in the problem budget that is still felt to be out of balance with needs. The role / role is a concept that cannot be separated from one's status, position and position. Between role and status are like two sides of the same coin, therefore we cannot Kadariah; Analisis Peran Kepala Sekolah dalam Meningkatkan Mutu Manajemen | 307
understand status without role, and vice versa. Robbins (2001) defines a role as "a set of expected behavior patterns attributed to someone occupying a given position in a social unit", whereas according to (Rivai, 2004), "role or role can be interpreted as the behavior that is set and expected from someone in certain position ". Based on this understanding, it can be concluded that the role in the organizational context is behavior that must be carried out by someone based on the position, status, and certain positions held in an organization. The principal can be defined as a functional teacher who is given the task to lead a school where teaching and learning processes are held, or where interaction occurs between the teacher giving the lesson and the student receiving the lesson (Amanda et al., 2017; Asmanurhidayani et al. ., 2018; Iskandar, 2013; Niswaty et al., 2019; Saggaf et al., 2018; Salam, 2015; Salam et al., 2018). In the explanation above, it can be concluded that the position of the principal determines the direction of an institution, the principal is the regulator of the existing program in school. Because it is expected that the principal will bring the work spirit of the teacher and build a school culture in improving the quality of education. Gorton et al., (2006) suggested that "managers are people who do things right, are leaders all people who do the right things and good managers handle routine daily jobs". As a manager, of course, must have certain skills as Handoko (2003) stated: "(a) conceptual skills, namely the mental ability to coordinate all the interests and activities of the organization; (b) humanitarian skills, ability to work by understanding and motivating others as individuals and groups; (c) administrative skills, namely by planning, organizing, staffing and monitoring; (d) technical skills, namely the ability to use equipment, procedures, techniques from a particular field such as machinery, and so on ". Principals as managers are essentially carrying out management functions as stated by Terry & Rue (1987) which explains the notion of management as follows "Management is a distinc process consisting of planning, organizing, actualiting, and controlling, performed to determine and accomplish atated objectives by the use of human beings and other resources. Management is a clear process that includes planning, organizing, mobilizing and controlling that is carried out to achieve the goals set with the potential of humans and other resources. Another opinion expressed about management functions is expressed by Robbins & Coulter (2007) that management functions include planning, organizing, leading, and controlling. From the explanation above, the principal as a school manager organizes and manages all the potential of the school through the stages of planning, organizing, mobilizing, and supervising these potentials to support the achievement of educational goals. The formulation of the problem in this study is How do principals in planning, organizing, mobilizing, and monitoring / evaluating programs in improving the quality of elementary school management.
METHOD This research is a case study with a qualitative approach that focuses on how the principal's role as a manager in improving the quality of elementary school management in Makassar City. Nevertheless the authors do not ignore the quantitative data needed to better describe the situation and the object of the research object (Creswell & Creswell, 2017). A qualitative approach is used on the grounds that this research seeks to uncover the reality in the field about the role of the principal as a manager and can be understood in depth, so that in the end the research findings can be obtained. This research was conducted at an elementary school in Makassar City. The subject of 308 Jurnal Ilmiah Ilmu Administrasi Publik: Jurnal Pemikiran dan Penelitian Administrasi Publik Volume 9 Number 2, July– December 2019. Page 305-314
this study was informants who provided information relating to the role of the principal as a manager. The subjects of this study were 11 principals, teachers, and education staff. The selection of informants in this study was obtained by snowball sampling technique. This research prioritizes data directly from informants and observations made in the field. The object of this research is the activity carried out by the principal as a manager. The data of this study were obtained by means of researchers conducting interviews by conducting direct meetings with school principals, teachers totaling 5 people, educational staff 3 people and representatives of school committees by focusing on the material concerned with ongoing research including the curriculum being carried out at the time this, the principal's role in carrying out the tasks and history of the object under study. This data collection method functions as a digger of information in the form of questions relating to the principal's role as a manager. In this research, documentation study was used to obtain general data about the history of 5 elementary schools in Makassar City, organizational structure, achievements, and school development plans. In this study using the method of analysis by reducing data, display data and draw conclusions from the data collected. Data reduction is carried out by the process of selecting, loading attention to simplification or enhancement of data in the form of detailed descriptions or reports. Data reduction starts by making a summary of each data so that it is easy to understand, discarding data that is considered not important and the whole series is then grouped based on the category of the problem under study. Data display is an effort to present data by looking at the overall picture or a certain part of the research data to make it easier to read the data then the data has been reduced and then presented by combining information arranged in one form that is easily seen for review. Taking conclusions is an attempt to look for meaning to the data collected by studying patterns, themes, similarities, differences, and things that arise the most.
RESULT AND DISCUSSION
Based on the results of the analysis shows that the principal as a manager includes planning the program. In planning the program, the principal starts from: (1) planning the human resources by detailing the needs of the teaching staff who will carry out their teaching duties; (2) planning policies such as the principal's program and curriculum to be implemented in this school; (3) in formulating policies, the principal involves teachers and experts by going through several stages such as holding several meetings with PKS, teachers, school committees and other stakeholders such as supervisors; (4) Based on the principal's policy, there are additional subjects, namely guidance and counseling with 2 hours of teaching / week. The second role of the principal is to organize the program by creating a school organizational structure such as the involvement of parents through the school committee by completing the facilities needed by the school, monitoring classroom learning, assignments such as the existence of PKS and TU according to the ability of teachers both at the level the class and the skills they have, form a committee in dealing with competitions or training. The role of the principal as the third manager is the mobilization of the program that is by moving the existing educators and educational staff such as by giving good and calm examples in work, for teachers there is motivation for the spirit of long life education (teachers must Kadariah; Analisis Peran Kepala Sekolah dalam Meningkatkan Mutu Manajemen | 309
learn), motivating educators and teaching staff morally and materially, improving welfare, giving awards to outstanding teachers and educators, involving teachers in education and training, MGMP, providing guidance to educators in making software (RPP, Syllabus), giving briefings as well as evaluating the performance of educators and staff education at the beginning of the month every once a month, and facilitate subordinates to be able to carry out professional development, as well as supporting educators or education personnel for those who want to continue their studies and who want to get a certification allowance. The fourth role is monitoring and evaluation carried out by supervising both the PBM and in the achievement of improving the quality of education and the achievement of UN scores. Supervision in PBM is carried out with reference to the PKB and PKG and is carried out by a team formed by the school principal. Supervision of improving the quality of education includes supervision of inputs (HR, organizational structure, plans and programs, vision, mission and goals), processes (performance of school principals), and outputs (school achievements generated after the process both academic and non-academic achievements. Supervision is carried out regularly namely at the end of the semester, at the end / beginning of the new school year with its implementation assisted by the Vice Governor, PKS and the Coordinator of the BK (Guidance and Counseling) .After supervision if there are found obstacles either from HR or sources of hope, then what is done is to give a general understanding at the teacher coaching meeting, explore the background of the problem, and find solutions to solve the problem. The latter role is as a culture developer by implementing school culture such as culture in religion, disciplinary culture, culture of achievement and culture of cleanliness in order to improve the quality of education and form students who are characteristically and adhering to religious values.
Principal in Planning Activities In planning a long and short term program the headmaster always calls the PKS, Vice Principal, and representatives of subject teachers to ask for their opinions and assistance in preparing a program. The long-term program of this school wants this school to become a pioneer school in the fields of sports and arts. In formulating a policy, there is a principal who helps, namely PKS in the curriculum. School committees are also involved in formulating policies relating to students and budgetary controls that are accepted by the school. School committees are active in controlling schools, this is evidenced by the frequent presence of school committees in schools and discussions with school principals and other teachers. Changes to self-development are streamlining the type of self-development that the principal had quite a lot but at the moment is limited because too much according to the principal is less effective, self-development which is now prioritized in sports and arts, counseling guidance. In addition there is also English language training for students and the formation of students who are characterized by the way there is guidance on Friday prayers and princess activities carried out one hour before Friday prayers.
Principal in Organizing Activities The role of the principal as an organizer in Elementary School results from parental involvement through the school committee by completing the facilities needed by the school, 310 Jurnal Ilmiah Ilmu Administrasi Publik: Jurnal Pemikiran dan Penelitian Administrasi Publik Volume 9 Number 2, July– December 2019. Page 305-314
monitoring learning in class, assigning tasks according to the ability of the teacher both in class and the skills they have, forming a committee in dealing with the competition. The organizational structure in schools is seen to be in accordance with the needs because in school organizations are the prerogative rights of the principal according to the needs of the principal in carrying out their duties. During the leadership of the school principal, there is currently no recruitment of educators, especially with the current teacher certification, from the previous minimum teaching hours of 18 hours a week to 24 hours per week so to cover the amount of 24 hours per week must teach in other schools and change subjects in accordance with diploma so there is an excess of educators in certain fields of study.
School Principal in Mobilization Activities The role of the principal as an activator in elementary school results is obtained as follows: for teachers there is a motivation for the spirit of life long education (teachers must learn), welfare improvement and the opportunity to ask questions in a pleasant atmosphere, bring in resource persons to guide teachers in making scientific writing, following seminars and others such as involving teachers in MGMP, and making effective peer tutors. In fostering educators, school principals hold rayon-level MGMP and schools where there are 12 people each one subject in a month who are included in the MGMP level and school- level MGMP. Once a month a briefing is held with the teacher and with staff in order to evaluate the teacher's performance for one month. In fostering educators and education staff, school principals always hold guidance to educators and education staff in order to improve the quality of education and clarify the tasks of each, a clear example of the principal in fostering educators is by having in-house training, following the MGMP every month both at the level rayon or district, while from education staff such as at the TU and library in order to improve the performance of the teaching staff, library training is organized to make it neatly organized and students feel comfortable when reading in the library. Welfare improvement is included in the mobilization carried out by the principal, but there are some teachers who say that financial welfare has not been hit by the targets implemented while non-financially is very good with the comfort provided by the school principal and security guarantees.
School Principal in Monitoring Activities The role of the principal as a montor in elementary schools is through the monitoring of all planning, organizing and mobilizing, starting from supervising the making of semester programs, making lesson plans, implementing PBM both directly and indirectly (Crow & Peterson, 2010; Lee & Taylor, 2014). All are evaluated periodically at least at the end of the semester or in the new school year. The evaluation is assisted by PKS and other teachers who are considered capable of carrying out the task of evaluating. In achieving the National Examination (UN) target, the principal always monitors in preparation for the UN, strategies designed for the UN can be successful, for example the principal gives motivation to students, then makes a tutoring program in the face of the UN, PBM programs on existing subjects on the UN only. The headmaster always monitors all academic activities in the school with the assistance of PKS, especially in the past two years the Kadariah; Analisis Peran Kepala Sekolah dalam Meningkatkan Mutu Manajemen | 311
UN results at this school have declined. The school principal wants the results of the national examination this year to increase from the previous year, while the method used by the school principal is to give the task of the head teacher to hold additional hours for subjects available at the national examination so that students can better understand the subjects which will impact on grades UN results will increase.
The Principal as a Cultural Developer In addition to the four roles carried out by the principal above, the principal has another strategy in carrying out his duties as a manager in elementary schools, the strategy is to become a cultural developer that is civilizing for discipline, accustomed to loving hygiene, cultivating achievement, and religious culture implemented with the guidance of Friday prayers and princess activities carried out at one hour before Friday prayer time. Student learning to improve student learning outcomes. Practical Implications The results of this study provide implications for researchers with this research researchers can understand and understand the importance of the effectiveness of parental communication in developing student potential and improving student learning outcomes. Pedagogical Implications Pedagogical implications in this study are the teacher can pay attention so that students are open to the teacher if students have a problem. With the attention of the teacher, students are expected to be comfortable in attending lessons and school activities.
CONCLUSION
The role of the principal in planning the program, starting from planning the needs of human resources who will carry out tasks, planning policies in the form of the principal's program and curriculum that will be run in schools. In this plan the principal always involves the teacher, PKS and the school committee. The role of the principal in organizing the program is to create a school organizational structure that involves parents through the school committee, completing the facilities needed by the school, division of tasks such as the existence of PKS and TU according to the ability of teachers both at class level and the skills they have. In organizing the headmaster does not work alone but is assisted by the assistant headmasters and school committees. The role of the principal in mobilizing educators and education personnel by giving good and calm examples in work, motivating educators and education staff morally and materially, improving welfare, giving rewards to personnel who excel, participating in training and education, MGMP, facilitating subordinates in carry out professional development, support educators for those who wish to continue their studies, and for senior teachers the motivation for the spirit of life long education. The role of the principal in monitoring and evaluation which includes monitoring students from the selection process to completion, school achievements both academic and non academic, supervision of PBM with instruments referring to PKG and PKB, monitoring learning in class. After monitoring, if obstacles are found in both HR and school performance, the principal gives general understanding at the teacher coaching meeting, explores the background of the problem, and seeks solutions to solve the problem. Barriers experienced by 312 Jurnal Ilmiah Ilmu Administrasi Publik: Jurnal Pemikiran dan Penelitian Administrasi Publik Volume 9 Number 2, July– December 2019. Page 305-314
the principal in optimizing his role as a manager include: (a) work and study discipline is still lacking. (b) communication is still lacking between the principal and teachers, (c) implementing BOS funds whose rules have been determined while school needs are not in accordance with the BOS funds rules, (d) facing input coming from other stakeholders which sometimes the stakeholder wants it must be obeyed by the school. Cultural Developers. Implementing school culture such as religious culture, disciplined culture, achievement culture, and hygiene culture in order to improve the quality of education and to form students who are characteristically and adhere to religious values.
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Amanda, M. O., Salam, R., & Saggaf, S. (2017). Pengaruh Supervisi Kepala Sekolah Terhadap Kinerja Guru Di SMK Negeri 1 Bungoro Kabupaten Pangkep. Prosiding Seminar Nasional Himpunan Sarjana Ilmu-Ilmu Sosial, 2, 149–154. Asmanurhidayani, A., Saggaf, M. S., & Salam, R. (2018). The Effect Of Cooperation On Quality Work At Family Planning Office And Family Welfare Office In Wajo Regency. Creswell, J. W., & Creswell, J. D. (2017). Research design: Qualitative, quantitative, and mixed methods approaches. Sage publications. Crow, G. M., & Peterson, K. D. (2010). Principals Role in Restructuring Schools (P. Peterson, E. Baker, & B. B. T.-I. E. of E. (Third E. McGaw (eds.); pp. 66–71). Elsevier. https://doi.org/https://doi.org/10.1016/B978-0-08-044894-7.00423-1 Gorton, R., Alston, J., & Snowden, P. (2006). School Leadership and Administration: Important Concepts, Case Studies and Simulations. ERIC. Handoko, T. H. (2003). Manajemen Edisi Kedua. BPFE. Yogyakarta. Iskandar, U. (2013). Kepemimpinan kepala sekolah dalam peningkatan kinerja guru. Jurnal Visi Ilmu Pendidikan, 10(1). Lee, J., & Taylor, M. S. (2014). Dual roles in psychological contracts: When managers take both agent and principal roles. Human Resource Management Review, 24(1), 95–107. https://doi.org/https://doi.org/10.1016/j.hrmr.2013.03.001 Niswaty, R., Juniati, F., Darwis, M., Salam, R., & Arhas, S. H. (2019). The Effectiveness of Leadership Functions Implementation in The Makassar Departement of Manpower. JPBM (Jurnal Pendidikan Bisnis Dan Manajemen), 5(1), 1–10. Rivai, V. (2004). kiat memimpin dalam abad ke-21. PT RajaGrafindo Persada. Robbins, S. P. (2001). Organisational behaviour: global and Southern African perspectives. Pearson South Africa. Robbins, S. P., & Coulter, M. (2007). Principles of management. Translated by Seyyed Mohammad Arabi and Mohammed Ali Hamid Rafiee and Behrouz Asrari Ershad, Fourth Edition, Tehran: Office of Cultural Studies. Kadariah; Analisis Peran Kepala Sekolah dalam Meningkatkan Mutu Manajemen | 313
Saggaf, M. S., Aras, M., Akib, H., Salam, R., Baharuddin, A., & Kasmita, M. (2018). The Quality Analysis of Academic Services Based on Importance Performance Analysis (IPA). Salam, R. (2015). Penerapan Fungsi Administrasi Perkantoran Modern berbasis Daya Saing Organisasi dalam menyongsong MEA 2015. SEMINAR NASIONAL “Revolusi Mental Dan Kemandirian Bangsa Melalui Pendidikan Ilmu-Ilmu Sosial Dalam Menghadapi MEA 2015” Himpunan Sarjana Pendidikan Ilmu-Ilmu Sosial Indonesia, 1, 186–190. Salam, R., Akib, H., & Daraba, D. (2018). Utilization of Learning Media In Motivating Student Learning. 1st International Conference on Social Sciences (ICSS 2018). Sorenson, R. D., & Goldsmith, L. M. (2008). The principal’s guide to managing school personnel. Corwin press. Terry, G. R., & Rue, L. W. (1987). Principios de administración. El Ateneo,.
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Jurnal Ilmiah Ilmu Administrasi Publik: Jurnal Pemikiran dan Penelitian Administrasi Publik Volume 9 Number 2, July– December 2019. Page 315-326 p-ISSN: 2086-6364, e-ISSN: 2549-7499 Homepage: http://ojs.unm.ac.id/iap
Financial Performance and Share Prices of Banks of State-Owned Enterprises in Indonesia
Nureny Universitas Negeri Makassar Email: [email protected]
(Received: July 30-2019; revised: November 15-2019; published: December 31-2019)
ABSTRACT
This study aims to examine the effect of financial performance, namely; Capital Adequacy Ratio (CAR), Net Interest Margin (NIM), Non-Performing Loan (NPL), Loan to Deposit Ratio (LDR), Return on Assets (ROA) and Operational Cost on Operational Income (BOPO) on stock price of state-owned Bank in Indonesia. The sample in the study is state-owned Bank registered at Indonesia Stock Exchange and still listed until 2018 namely; Bank Mandiri, Bank Negara Indonesia (BNI), Bank Tabungan Negara (BTN), and Bank Rakyat Indonesia (BRI). The collection of data is carried out by documentation technique. Technique employed in analyzing data is multiple regression analysis. The results found that (1) Capital Adequacy Ratio (CAR), Net Interest Margin (NIM), Non-Performing Loan (NPL), Loan to Deposit Ratio (LDR), Return on Assets (ROA) and Operational Cost on Operational Income (BOPO) simultaneously affect stock price of state-owned Bank in Indonesia. (2) Partially, NIM, NPL, LDR, ROA, BOPO variables have an insignificant effect on stock price of state-owned Bank that already have gone public on Indonesia Stock Exchange. While CAR has a significant influence on stock price of state- owned Bank that already have gone public on Indonesia Stock Exchange. This accordingly provides an indication that stock price of a state-owned Bank in Indonesia is not predominantly determined by its financial performance, but by public's trust in state-owned Bank concerned.
Key Words: Financial performance; CAR; NIM; NPL; ROA; BOPO; stock price
INTRODUCTION
Overall bank performance is a picture of the achievements of the bank in its operations, both related to financial aspects, marketing, fundraising, technology, and human resources (Ardimas, Ekonomi, & Gunadarma, 2014; Kurniawan, 2015; Mawardi, 2015). Bank financial performance is a picture of the financial condition of a bank in a given period both concerning aspects of fundraising and fund distribution which are usually measured by indicators of capital adequacy, liquidity, and bank profitability. The financial performance of a company is very beneficial for parties (stakeholders) such as investors, creditors, analysts, financial consultants, brokers, government, and the management itself (Dwi Prastowo D., M.M., 2015; Orniati, 2009; Tambunan, 2018). The banking industry has a large role in the financial system in Indonesia (Lie, 2016; Maryadi, 2017). As an intermediary between parties who have excess funds and those who need funds, banks are required to have a healthy financial performance, so that the intermediation function can be carried out properly. Over the past five years, the shares of state-owned banks have fluctuated. Bank Mandiri 316 Jurnal Ilmiah Ilmu Administrasi Publik: Jurnal Pemikiran dan Penelitian Administrasi Publik Volume 9 Number 2,July – December 2019. Page 315-326
(BMRI) shares have weakened from 2015 to 2016, shares of Bank Negara Indonesia (BBNI) have weakened throughout 2018. The weakening of the SOE financial sector shares is not without cause. The weakening was due to market participants responding negatively to the government's desire to ask state-owned banks to reduce lending rates to an average of below 10 percent alias single digits at the end of 2016. The market also reacted negatively to the Financial Services Authority (OJK) plan to provide incentives to banks that carries out efficiency by reducing net interest margin (NIM) to an average of around 3-4 percent in the next 1-2 years, from now around 5-6 percent. In 2016 the ratio of operating expenses divided by operating income or BOPO of BUMN banks was around 71%. But the ASEAN banks' BOPO is even better at around 40-60 percent. Likewise in terms of assets, national banks are still behind DBS, OCBC, UOB, three big banks from Singapore. Even though the assets of these state-owned banks (Mandiri, BNI, BRI, and BTN) are combined, they are still far from DBS assets (Otoritas Jasa Keuangan, 2016) To encourage banks to reduce their NIMs, OJK has actually prepared an incentive regulation by considering NIMs and operational costs to banking operating income (BOPO). These incentives include regulations in the form of facilities to open branches, and non- regulatory incentives such as training and education incentives. This incentive can be used by banks or not, depending on the desires of the bank concerned. With efficiency, one of which is by pressing margins, OJK hopes that credit interest rates can be lower so that people can get cheap funds. In turn, it encourages economic growth, job creation, and provides opportunities for all sectors, including banking itself to grow. However, OJK's expectations were actually responded negatively by market participants. The market sees that the NIM will reduce the profit performance of the relevant banks. This condition creates negative sentiment towards banking stocks. As a result, investors stay away from banking stocks. The government should pay close attention to the movement of bank stock prices that continue to weaken. As the majority shareholder, the government must not allow the fall in the share price of BUMN banks. The deepening downward depreciation of the market capitalization of the BUMN banks. The financial performance of a banking company can affect its stock price because information from financial statements or financial ratios affect the decisions of investors to invest their capital (Nilayanti & Suaryana, 2019; Retno, 2011; Z, 2017). The better the performance of a bank the more interested investors to invest their capital and vice versa. The stock price increase from time to time is a hope for all management because an increase in stock prices can increase the interest of investors to buy these shares or to invest their capital (Bambang Sudarsono, 2016; Murhadi, 2015; Suharli, 2005; Wulandari, 2009). Indicators that can be used to measure bank performance must include risk, profit, capital, and governance (Al- Gifari, Handoko, & Yani, 2015; Ardimas et al., 2014; Triwahyuningtyas & Ismail, 2017). The hypotheses in this study are: Capital Adequacy Ratio (CAR) affects the stock prices of BUMN banks; Net Interest Margin (NIM) affects the stock prices of BUMN banks; Non Performing Loans (NPL) affect the stock prices of BUMN banks; Loan to Deposit Ratio (LDR) affects the stock prices of BUMN banks; Return on Assets (ROA) affect the stock prices of BUMN banks, and the ratio of operating costs to operating income (BOPO) affects the stock prices of state banks
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METHOD
This research is causal associative research. The sampling technique is a purposive sampling method. The research sample of financial statements of all state-owned banks in Indonesia for 6 consecutive years from 2011-2016, namely; Bank Negara Indonesia (BNI), Bank Mandiri, Bank Rakyat Indonesia (BRI), and Bank Tabungan Negara (BTN). The data collection method in this study is a documentary obtained from the company's financial statements published on www.IDX.co.id to 4 state-owned banks. The data analysis model uses multiple regression analysis. This regression analysis is used to estimate the value of the dependent variable (Y) on the value of certain independent variables (X), so it can be seen how much influence a variable has on other variables. Every change in the independent variable (X) will be offset by changes in the independent variable (Y). The multiple linear regression equation is: Y = a + b1X1 + b2X2 + b3X3 + b4X4 + b5X5 + b6X6+ e
RESULT AND DISCUSSION
Result Data processing in this study uses six independent variables and one dependent variable, namely as follows:
Descriptive Analysis a. Financial Performance and Share Prices of Bank Mandiri in 2013-2018
Table 1. Financial Performance (CAR, NIM, NPL, LDR, ROA, BOPO) and Bank Mandiri Share Prices in 2013-3018 Year CAR NIM NPL LDR ROA BOPO Stock Price % % % % % % Rp. 2013 14,93 5,68 1,60 82,97 3,66 62,41 7.850 2014 16,60 5,94 1,66 82,02 3,57 64,98 10.100 2015 18,60 5,90 2,29 87,05 3,15 69,67 4.625 2016 21,36 6,29 3,96 85,86 1,95 80,94 5.788 2017 21,64 5,63 3,45 87,66 2,72 71,78 8.000 2018 20,96 5,52 2,79 95,46 3,17 66,48 7.375 Source: (OJK, 2018)
Based on table 1, the Capital Adequacy Ratio at PT. Bank Mandiri has been fluctuating for 6 years. The lowest CAR occurred in 2013 which was 14.93% or down from the previous year of 0.52%. While the highest CAR occurred in 2017, which was 21.64%, an increase from 318 Jurnal Ilmiah Ilmu Administrasi Publik: Jurnal Pemikiran dan Penelitian Administrasi Publik Volume 9 Number 2,July – December 2019. Page 315-326
the previous year of 0.28%. Net Interest Margin (NIM) shows a change that is not too significant, although management's ability to process its productive assets to produce interest income decreases. Non-performing loans (NPLs) showed a decline starting in 2014 which was 1.60%, and the highest in 2016 was 3.96%. The Loan to Deposit Ratio (LDR) shows a quite fluctuating value, namely the highest value in 2018 was 95.46%, the lowest in 2014 (82.02%). Return on Assets (ROA) showed that the change was not too significant where the highest was only in 2013 which was 3.66% while after that it showed a decline until 2016 which was the lowest at 1.95%. The highest ratio of operating costs to operating income (BOPO) in 2016 was 80.94% where there was an increase from 2011 which was 18.53%. The share price in 2016 showed the highest number from the previous year of Rp. 11,575 while the lowest share price occurred in 2018, namely Rp. 7,375. b. Financial Performance and Share Prices of Bank Tabungan Negara in 2013-2018
Table 2. Financial Performance (CAR,NIM, NPL, LDR, ROA, BOPO) and Share Price of Bank Tabungan Negara (BTN) in 2013-2018 Year CAR NIM NPL LDR ROA BOPO Stock Price % % % % % % Rp. 2013 15,62 5,44 3.04 104,42 1.79 82,19 870 2014 14,64 4,47 2,79 108,86 1,12 88,97 1.205 2015 16,97 4,87 2,11 108,78 1,61 84,83 1.294 2016 20,34 4,98 1,85 102,66 1,76 82,48 1.740 2017 18,87 4,76 2,66 103,25 1,71 82,06 3.570 2018 18,21 4,32 2,82 103,13 1,34 85,58 2.540 Source: (OJK, 2018)
Based on table 2, the Capital Adequacy Ratio at PT. Bank Tabungan Negara for 6 years has fluctuated. The lowest CAR occurred in 2014 which was 14.64%, down from the previous year of 0.98%. While the highest CAR occurred in 2016, which was 20.34%, an increase from the previous year of 3.37%. Net Interest Margin NIM shows a change that is not too significant, even though management's ability to process its productive assets to produce interest income decreases. Non-performing loans (NPLs) showed a decline starting in 2014 which was 2.79% and the lowest in 2016 which was 1.85%. The Loan to Deposit Ratio (LDR) shows a quite fluctuating value, namely the highest value in 2014 of 108.86%, the lowest in 2016 (102.66%). Return on Assets (ROA) showed that the change was not too significant where the highest was only in 2013 which was 1.79% while afterward, it showed a decline until 2018 which was 1.34%. The ratio of operating costs to operating income (BOPO) was the highest in 2014 at 88.97% where there was an increase from 2013 which was 6.78%. The share price in 2017 showed the highest number from the previous year of Rp. 3,570, while the lowest share price occurred in 2013 which was Rp. 870.
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c. Financial Performance and Share Prices of Bank Negara Indonesia in 2013-2018
Table 3. Financial Performance (CAR,NIM, NPL, LDR, ROA, BOPO) and Share Price of Bank Negara Indonesia (BTN) in 2013-2018 Year CAR NIM NPL LDR ROA BOPO Stock Price % % % % % % Rp. 2013 15,09 6,11 2,17 85,30 3.36 67,12 3.950 2014 16,22 6,20 1,96 87,81 3,49 69,78 6.100 2015 19,49 6,42 2,70 87,77 2,64 75,48 4.990 2016 19,36 6,17 2,96 90,41 2,69 73,59 5.525 2017 18,53 5,50 2,26 85,88 2,75 70,99 9.900 2018 18,51 5,29 1,90 88,76 2,78 70,15 8.800 Source: (OJK, 2018) Based on table 3, the Capital Adequacy Ratio at PT. Bank Negara Indonesia (BNI) has not fluctuated for 6 years. The lowest CAR occurred in 2013 which was 15.1%, down from the previous year of 1.6%. While the highest CAR occurred in 2015 at 19.5%. Net Interest Margin NIM shows a change that is not too significant, even though the ability of management to process productive assets to produce interest income decreases seen from an average NIM of 6.2%. Non-performing loans (NPL) showed a decrease in 2013 and the lowest in 2014 was 1.96%. The Loan to Deposit Ratio (LDR) shows a fairly fluctuating value that is the highest value in 2016 that is 90.41% while the lowest in 2013 is 85.30%. Return on Assets (ROA) showed insignificant changes where the highest was only in 2014 which was 3.49% while afterward, it showed a decline until 2016 which was 2.69%. The ratio of operating costs to operating income (BOPO) was highest in 2015 at 75.48% where an increase from the previous year was 5.7%. The share price in 2017 showed the highest number of Rp. 9,900, a significant increase from the previous year in the amount of Rp. 4,375.
d. Financial Performance (CAR, NIM, NPL, LDR, BOA, BOPP) and Share Price Bank Rakyat Indonesia
Table 4. Kinerja Keaunagan (CAR, NIM, NPL, LDR, ROA, BOPO) dan Harga Saham Bank Rakyat Indonesia tahun 2013-3018 Year CAR NIM NPL LDR ROA BOPO Stock Price % % % % % % Rp. 2013 16,99 8,55 1,55 88,54 5,03 60,58 1.430 2014 18,31 8,51 1,69 81,68 4,74 65,37 2.305 2015 20,15 8,13 2,02 86,88 4,19 67,97 2.260 2016 22,91 8,27 2,03 87,77 3,84 68,93 2.285 2017 22,96 7.93 2.10 88.13 3.69 69.14 2.335 2018 21.21 7.45 2.14 89,57 3,68 68,48 3.640 Sumber: (OJK, 2018)
2018 21.21 7.45 2.14 89,57 3,68 68,48 3.640 Sumber: (OJK, 2018) 320 Jurnal Ilmiah Ilmu Administrasi Publik: Jurnal Pemikiran dan Penelitian Administrasi Publik Volume 9 Number 2,July – December 2019. Page 315-326
Based on table 4, the Capital Adequacy Ratio at PT. Bank Rakyat Indonesia (BRI) for 6 years experienced enough fluctuation. The lowest CAR occurred in 2013 which was 16.99%. While the highest CAR occurred in 2017 at 22.96%. Net Interest Margin NIM shows a change that is not too significant, although the ability of management to process productive assets to produce interest income decreases seen from the average NIM of 8.0%. Non-performing loans (NPLs) showed a decline and the lowest in 2013 was 1.55%. The Loan to Deposit Ratio (LDR) showed a fairly high increase, namely the highest value in 2013 which was 88.54%, while the lowest in 2013 was 81.68%. Return on Assets (ROA) showed the highest value only in 2013 which was 5.03% while after that it showed a decline until 2018 which was 3.68%. The ratio of operating costs to operating income (BOPO) was highest in 2016 at 68.93% where there was an increase from 2013 which was 8.56%. The share price in 2018 shows the highest figure of Rp. 3,640, a significant increase from the previous years
Hypotesis Testing a. Multiple regression analysis
To find out the pattern of the influence of the independent variables in this study, the multiple regression equation was arranged. Multiple regression in this study was used to determine the effect of independent variables (CAR, NIM, NPL, LDR, ROA, BOPO) on the dependent variable (Changes in Stock Prices). The regression analysis produces regression coefficients that show the direction of the relationship between the independent variable and the dependent variable. Based on SPSS 22 computer program statistical calculations obtained the multiple linear regression equation as follows: Y=-11717,768+827,361CAR–1214,970NIM+1413,880NPL+35,963LDR+3.465.820 ROA – 81,956 BOPO Dimana: Y : Change in Stock Prices CAR : Capital Adequacy Ratio NIM : Net Interest Margin NPl : Non Performing Loan LDR : Loan to Deposit Ratio ROA : Return on Asset BOPO: Operating costs against operating income b. F Test
To find out whether there is an influence between the variables CAR, NIM, NPL, LDR, ROA and BOPO together (simultaneously) on variable changes in stock prices in state-owned banks that go public on the Indonesia Stock Exchange (BEI), a F Test (Simultaneous Test) ). For more details about the calculation results can be seen in table 5 below:
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Tabel 5. Hasil Uji Simultan Model Sum of Squares df Mean Square F Sig. 1 Regression 208529315.534 6 34754885.922 5.245 .003b Residual 112644600.424 17 6626152.966 Total 321173915.958 23 a. Dependent Variable: Stock Price b. Predictors: (Constant), BOPO, CAR, NPL, NIM, LDR, ROA
Based on table 5, obtained a significance value of 0.003 and significant at 0.05, this means that CAR, NIM, NPL, LDR, ROA and BOPO jointly (simultaneously) have a significant effect on SOE banking stock prices in Indonesia c. T Test The t-test was used to determine the effect of each independent variable, namely CAR, NIM, NPL, LDR, ROA, and BOPO on the dependent variable, namely changes in the stock prices of BUMN banking companies that went public on the BEI from 2006 to 2008. Decision making is based on a probability significance of 0.05 (5%). T-test results can be seen in the following table 6:
Tablel 6. Partial Test Results Standardized Unstandardized Coefficients Coefficients Model B Std. Error Beta t Sig. 1 (Constant) -11717.768 38938.756 -.301 .767 CAR 827.361 320.619 .492 2.581 .019 NIM -1214.970 2375.757 -.447 -.511 .616 NPL 1413.880 1804.890 .245 .783 .444 LDR 35.963 68.275 .125 .527 .605 ROA 3465.820 5498.073 1.077 .630 .537 BOPO -81.956 442.579 -.186 -.185 .855 a. Dependent Variable: Stock Price
Based on the calculation results as shown in Table.6 above, obtained a significant value for the CAR variable of 0.019. Provisions for making a hypothesis decision are accepted or rejected based on the significance value. If the significance is smaller or equal to 0.05 (≤ 0.05) 322 Jurnal Ilmiah Ilmu Administrasi Publik: Jurnal Pemikiran dan Penelitian Administrasi Publik Volume 9 Number 2,July – December 2019. Page 315-326
then the working hypothesis is accepted and vice versa. The results of the study obtained a significance value of 0.019 (<0.05), it was concluded that the hypothesis stating there was a positive influence between the Capital Adequacy Ratio (CAR) on changes in the stock prices of BUMN banking companies was acceptable. Capital Adequacy Ratio (CAR) is the ratio of the bank's own capital to the capital requirements available after calculating the margin risk (risk growth) from the risky consequences (RWA). According to (Kasmir, 2008) CAR is a financial ratio that measures the ability of banks to bear risks that may arise on assets. CAR is intended to determine the ability of existing capital to cover possible losses in credit and securities trading activities. According to BI Decree No. 30/11/KEP/DIR/Tgl. 30 April 1997, the CAR value of banking companies must not be less than. The results of this study indicate that Capital Adequacy Ratio (CAR) significantly influence changes in stock prices. This result is in accordance with the theory, which states that with a high CAR means the bank is increasingly solvable, the bank has sufficient capital to run its business so that it will increase profits so that there will be an increase in its share price. The Net Interest Margin (NIM) variable has a significance value of 0.616 at a significance level of 0.05. Because 0.616> 0.05, the hypothesis that "There is a positive influence of Net Interest Margi (NIM) on changes in the stock prices of state-owned banking companies rejected" Non-Performing Loans (NPLs) have a significance value of 0.444 at a significance level of 0.05. Because 0.444> 0.05, the hypothesis which states that there is an influence of Non- Performing Loans (NPLs) on SOE banking stock prices is rejected. Hypothesis Test Results show that the Non-Profit Loan (NPL) variable does not have a significant effect on stock prices. The more problem loans, the opportunity for banks to get profits will be less so that with high NPLs in banking investors will not be interested in buying shares because the profits will be small, but in 4 state-owned banks with the largest assets, investors look at the terms of existing assets so even though the NPL value is high investors still feel safe in investing so that the NPL does not become a benchmark for investors in making decisions. Loan to Deposit Ratio (LDR) has a significance value of 0.605 at a significance level of 0.05. Because 0.605> 0.05, the hypothesis which states that there is an influence of the Loan to Deposit Ratio (LDR) on SOE banking stock prices is rejected. Return on Assets (ROA) has a significance value of 0.537 at a significance level of 0.05. Because 0.537> 0.05, the hypothesis that states there is influence. The Loan to Deposit Ratio (LDR) to the BUMN banking stock price was rejected. Operating Costs to Operating income (BOPO) has a significance value of 0.537 at a significance level of 0.05. Because 0.537> 0.05, the hypothesis that states there is influence. BOPO of BUMN banking stock prices was rejected.d. Uji koefisien determinasi
Table 7 Determination Coefficient Test (R2) Adjusted R Std. Error of the Model R R Square Square Estimate Durbin-Watson 1 .806a .649 .525 2574.131 1.973 a. Predictors: (Constant), BOPO, CAR, NPL, NIM, LDR, ROA b. Dependent Variable: Price Stock Nureny; Financial Performance and Share Prices of Banks of State-Owned Enterprises … | 323
Based on table 7, it can be seen from the correlation coefficient (R) that is equal to 0.806 or 80.6% which means that the correlation or relationship between financial performance variables consisting of CAR, NIM, NPL, LDR, ROA, BOPO and together- the same with the dependent variable is the price of shares in a BUMN bank which has a close relationship. While the value of the coefficient of determination (R2) of 0.649 or 65%, which means that the contribution or contribution of financial performance variables together to the dependent variable that is the share price at the BUMN Bank is quite large. While the rest (100% - 65% = 35%) is contributed by other factors.
Discussion
1. Descrptive Analysis
Bank financial performance is a picture of the financial condition of a bank in a given period both regarding aspects of raising funds and channeling funds which are usually measured by indicators of capital adequacy, liquidity, and bank profitability. CAR (Capital Adequacy Ratio) is a ratio that shows how much the total assets of banks that contain risks (loans, investments, securities, bills at other banks) are also financed from their own capital in addition to obtaining funds from sources outside the bank. The CAR ratio set by Bank Indonesia is a minimum of 8%, if the CAR ratio of a bank is below 8%, it means that the bank is unable to absorb losses that may arise from the bank's business activities, then if the CAR ratio is above 8%, it indicates that the bank is increasingly solvable. Net Interest Margin (NIM) shows the ability of banks to generate income from interest by looking at the bank's performance in disbursing loans, bearing in mind the bank's operating income is highly dependent on the difference in interest (spread) of loans channeled reduced by the cost of interest from sources of funds collected. NIM of a healthy bank if it has a NIM above 2%. Liquidity ratios (liquidity) can be measured using ratios, one of which is the Loan to Deposit Ratio (LDR). The maximum LDR according to government regulations is 110% (Kasmir, 2008). The standard value of the soundness of Bank Indonesia on a Loan to Deposit Ratio (LDR) of 80%. However, the tolerance range ranges from 85% to -110%. ROA is the ratio of profit before tax to total assets during a certain period. This ratio can be used to measure the health of banks. This ratio is very important, given that the profits generated by an asset may reflect the level of business efficiency of a bank. In the bank health assessment framework, the central bank will give a maximum value of 100 (healthy), if the bank has a ROA greater than 1.5%, the greater the ROA of a bank, the higher the level of profit generated by the bank and the better the bank's position in use asset (Hasibuan, 2009). BOPO is the comparison of operational costs with operational income, this ratio is used to measure the level of efficiency and ability of banks in carrying out operational activities. Bank Indonesia sets a 93.75% BOPO standard. BOPO level measurement standards are as follows; below 93.52 is good, 93.52% -94.72% is good, above 95.92% is not good. 324 Jurnal Ilmiah Ilmu Administrasi Publik: Jurnal Pemikiran dan Penelitian Administrasi Publik Volume 9 Number 2,July – December 2019. Page 315-326
2. Hypotesis Testing The results showed the Capital Adequacy Ratio (CAR), Net Interest Margin (NIM), Non Performing Loans (NPL), Loan to Deposit Ratio (LDR), Return on Assets (ROA) and Operating Costs to Operating Income (BOPO) together- the same (simultaneous) effect on SOE Bank stock prices in Indonesia This means, any changes that occur in financial performance variables consisting of CAR, NIM, NPL, LDR, ROA, and BOPO simultaneously or together will affect the stock price at the Bank Public-Owned Government that went public on the Indonesia Stock Exchange. Partially the NIM, NPL, LDR, ROA, BOPO variables have no significant effect on stock prices on Government-Owned Commercial Banks that go public on the Indonesia Stock Exchange. Whereas CAR has a significant influence on share prices on Government-Owned Commercial Banks that go public on the Indonesia Stock Exchange. This gives an indication that the price of shares of state banks is not only determined by public trust in the state-owned bank but is still dominantly determined by financial performance owned. Stock prices are prices that occur in the stock market at a certain time determined by market participants, namely market demand and supply. Stock prices always change every day. Therefore, investors must be able to pay attention to the factors that affect stock prices. Factors that affect stock price fluctuations can come from internal and external. Internal factors include company profits, annual asset growth, liquidity, total wealth and sales. Meanwhile, external factors are: government policies and their impact, interest rate movements, fluctuations in currency exchange rates, rumors and market sentiment and business combinations
CONCLUSION
The results found that the Capital Adequacy Ratio (CAR), Net Interest Margin (NIM), Non-Performing Loans (NPL), Loan to Deposit Ratio (LDR), Return on Assets (ROA) and Operational Costs on Operating Income (BOPO) in a manner simultaneously affect the price of shares of state-owned banks in Indonesia. Partially, the variable NIM, NPL, LDR, ROA, BOPO has no significant effect on the price of shares of state-owned banks that have gone public on the Indonesia Stock Exchange. While CAR has a significant influence on the price of shares of state-owned banks that have gone public on the Indonesia Stock Exchange. Thus, this gives an indication that the price of shares of state-owned banks in Indonesia is not predominantly determined by its financial performance, but by public trust in the state-owned banks concerned.
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Jurnal Ilmiah Ilmu Administrasi Publik: Jurnal Pemikiran dan Penelitian Administrasi Publik Volume 9 Number 2, July– December 2019. Page 327-334 p-ISSN: 2086-6364, e-ISSN: 2549-7499 Homepage: http://ojs.unm.ac.id/iap
Position Promotion and Employee Performance in The Regional Secretariat of Makassar City
Muhammad Nur Yamin1, Herlina Sakawati 2, Nur Qamaria Putri3 Public Administration Science , Fakultas Ilmu Sosial, Universitas Negeri Makassar Email: [email protected]
(Received: September 6-2019; revised: November 15-2019; published: December 31-2019)
ABSTRACT
The research aims to find out how the influence of job promotions on employee performance in the Makassar City Regional Secretariat by using quantitative methods. Determination of the sample in the study using the slovin formula as many as 73 employees with a simple random sampling technique. Data collection techniques using observation, questionnaires and documentation. The data analysis technique used is simple linear regression and t test. The results showed that: (1) The level of promotion in the Makassar City Regional Secretariat was in the good category following the operational standard procedures in accordance with Law No. 5 of 2014 and its derivative rules, (2) the level of performance of employees in the Makassar City Regional Secretariat is in the very high category, and (3) the t-test shows that H0 is rejected and H1 is accepted, which means that promotion is a positive and significant effect on employee performance in the Makassar City Regional Secretariat shown by the equation Ý = 11.614 + 0.711X. Basically employees have the desire to experience promotions will tend to have good performance, if achieved or not the performance targets are used as a basis for assessment in the promotion of positions in addition to loyalty, education level and work experience. Leaders must pay more attention to the promotion of positions to employees who are able to maintain high performance, the promotion of the right position as needed will have a positive influence on improving employee performance.
Keywords: Job promotion; employee; performance
INTRODUCTION
Human resources (HR) is the most important part in an organization (Jerónimo et al., 2019). Human resources are needed as a driving factor for other components contained in an organization, without the role of human resources organizational activities can not be carried out properly and regularly (Saggaf et al., 2014; Salam, 2015; Shah et al., 2017). So the organization must always foster and develop the potential of its human resources as a very valuable asset. One effort that can be done is to do a promotion program (Chitescu & Lixandru, 2016). Hasibuan (2018) argues that promotion is a move that enlarges the authority and responsibility of employees to higher positions in an organization so that obligations, rights, status, and producers the greater the. The importance of developing human resources is done to create better employee performance than before so that the objectives of the organization can be achieved. Efforts to improve employee performance are not easy, and therefore there is a need for employee motivation by career development, one of which is by promoting positions. This is evidenced by the previous research conducted by (Vianti & Netra, 2013) entitled "The Effect of Leadership Style, Job Promotion and Financial Compensation on Employee Performance at PT. 328 Jurnal Ilmiah Ilmu Administrasi Publik: Jurnal Pemikiran dan Penelitian Administrasi Publik Volume 9 Number 2, July– December 2019. Page 326-334
Grand Mega Bali Resort & Spa Kuta Bali "where the results of his research indicate that the promotion variable has a significant effect on employee performance. The potential of its human resources as a very valuable asset. One effort that can be done is to do a promotion program. Hasibuan (2018: 108) argues that promotion is a move that enlarges the authority and responsibility of employees to higher positions in an organization so that obligations, rights, status, and producers the greater the. The importance of developing human resources is done to create better employee performance than before so that the objectives of the organization can be achieved (Akib & Salam, 2016; Pratiwi et al., 2019). Employee development through job promotion programs is intended to provide experience in carrying out management functions at a higher structural level than before, where the new position has broader and heavier responsibilities, so employees are required to work harder to improve their abilities so that their duties and responsibilities can be carried out successfully. Job promotion programs can be implemented if there are positions that have not been filled or there are vacancies as well as the re-evaluation of old positions. The opportunity to fill a position is first given to those who have fulfilled all the requirements regarding the implementation of the promotion. Ardana in Vianti & Netra (2013) regarding several criteria that need to be considered before conducting promotions, namely seniority, quality of education, work performance and level of loyalty. Placement of employees is done by making adjustments to the needs of the organization associated with planning to get the right people in the right position as well or commonly known as "right man on the right place". To get a good and professional, responsible, honest and fair state civil apparatus, a recruitment system based on open capability based on capability is needed (Nilwana et al., 2015; Simon et al., 2016). In theory, the application of a merit system is still not optimal and optimal to be implemented. According to Law Number 5 of 2014, the implementation of a merit system is a necessity that needs to be done by the government. The enactment of Law No. 5 of 2014 concerning ASN is expected to have a significant impact on institutional changes, career systems and remuneration because this law overhauled a system of recruitment, fostering and career development which included a career gaps system and filling high positions through open promotion. To guarantee the selection of professional and competent people, according to job competency standards (Salam et al., 2014). The state apparatus has the same rights and opportunities to be able to fill structural positions in government (Niswaty et al., 2016). Open promotion of this position through a number of lengthy processes, ranging from Administrative requirements such as Rank and Group, making papers, presentations, interviews to assessment. From this process, it is expected to produce the best people to occupy the positions in question. Makassar City Regional Secretariat in the management of civil servants refers to Government Regulation No. 11 of 2017 which is a derivative of Law No. 5 of 2014. There is still an imbalance in the promotion of positions in the organization, because sometimes promotional activities are still influenced by subjectivity and kinship elements so that it ignores the conditions that have been set as the basis for conducting promotions. In addition, the phenomenon that occurs in government organizations that is sometimes the implementation of promotion is not based on the principles of professionalism and objective Muhammad Nur Yamin, et.all,.; Position Promotion and Employee Performance | 329
conditions set, sometimes the position given is not in accordance with the expertise and educational background. Job promotion provides an important role for every employee, even a dream that is always waiting for. If there is an opportunity for employees to be promoted based on the principles of fairness and objectivity, employees will be motivated to work harder, be more enthusiastic, discipline, and achieve work so that organizational goals can be optimally achieved. Organizations need high-performing employees, at the same time employees need feedback on their performance as a guide for their actions in the future. The existence of promotional targets, makes employees feel valued, cared for, needed and recognized by their organization's work ability so that they will produce high outputs and will enhance the morale of the organization. This is also evidenced by research conducted by (Eka et al., 2016) with the title "The Effect of Job Promotion and Work Discipline on Employee Performance", where the results of his research indicate that there is a positive and significant influence of the promotion variable on employee performance in the District Transportation Office Buleleng. Organizations can help employees develop the ability or potential and achieve desired careers by organizing employee training programs that can improve employee performance so that the organization can provide a "reward" in the form of promotion. Thus it is hoped that employees and organizations can benefit each other and achieve the goals set. Based on the description above, the author is interested in conducting research under the title "Job Promotion and Employee Performance at the Makassar City Regional Secretariat"
METHOD
This research uses quantitative methods with associative research types and forms of causal relationships (Creswell & Creswell, 2017). Associative research is research that aims to determine the relationship between two or more variables. While a causal relationship is a causal relationship. The population in this study is the entire State Civil Apparatus at the Makassar City Regional Secretariat of 267 employees. Then the sample is drawn using the Slovin formula and produces a total sample of 73 employees. Data collection techniques using observation, questionnaires and documentation. Data analysis techniques using simple linear regression analysis with the help of SPSS version 24, t test and to see the percentage level of each variable, this study uses the Likert scale categorization.
RESULT AND DISCUSSION
Job Promotion
Promotion is an increase in the position of an employee from a previous position to a higher position, promotion can be in the form of a promotion from low to a higher position. To measure the promotion of positions in the Makassar City Regional Secretariat, 4 indicators used by (Thoha, 2003) were used, namely Work Professionalism, Loyalty, Education Level, and 330 Jurnal Ilmiah Ilmu Administrasi Publik: Jurnal Pemikiran dan Penelitian Administrasi Publik Volume 9 Number 2, July– December 2019. Page 326-334
Work Experience. The percentage rate of Job Promotion for each indicator can be seen in the following table:
Table 1 Achievement Rate of Job Promotion Score
Job promotion Number Score Ideal Achievement Category indicators of Items achieved Score (%) Work Professionalism 2 610 730 83,56 Very high Loyalty 2 614 730 84,10 Very high Level of education 3 889 1.095 81,18 Very high Work experience 3 897 1.095 81,91 Very high Amount 10 3.010 3.650 82,46 Very high Source: Processed Data Results, Indicators 1-10
Based on table 1, it can be seen that the percentage level of achievement of the promotion variable is in the very high category with the calculation result of 82.46%, the results of measuring the promotion of the position through the four indicators above shows that all indicators support to be a requirement in conducting promotion.
Employee Performance
Employee performance is the work of individuals in an organization. To measure the performance of employees in the Makassar City Regional Secretariat using 5 indicators proposed by (Mangkunegara, 2000), namely Work Quality, Work Quantity, Responsibility, Cooperation, and Initiatives. The percentage level of Employee Performance for each indicator can be seen in the following table: Table 2
Level of Achievement of employee Performance scores Job promotion Number Score Ideal Achievement Category indicators of Items achieved Score (%) Work quality 2 575 730 78,76 High work quantity 2 582 730 79,72 High responsible 2 619 730 84,79 Very high cooperation 2 622 730 85,20 Very high initiative 2 589 730 80,68 High amount 10 2.987 3.650 81,83 Very high Source: Processed Data Results, Indicators 11-20
Based on table 2, it can be seen that the percentage level of achievement of employee performance variables is in the very high category with the calculation results of 81.83%, the results of measuring employee performance through the five indicators above indicate that all indicators support to improve employee performance. Muhammad Nur Yamin, et.all,.; Position Promotion and Employee Performance | 331
Effect of Job Promotion on Employee Performance
The results of data analysis using SPSS version 24 show that position promotion has a positive and significant effect on employee performance at the Makassar City Regional Secretariat. The results of a simple linear regression analysis assisted by SPSS version 24, can be seen as follows:
Table 3. Simple Linear Regression Analysis Unstandardized Standardized Coefficients Coefficients Model t Sig. B Std. Beta Error 1. (Constant) 11,614 3,385 3,431 0.001 Promotion of position 0,711 0,082 0,718 8,687 0.001 a. Devendent Variable: employee performance
Based on table 3, the linear regression results can be obtained as follows: Constant numbers (a) of 11,614 and coefficient of variables (b) Job Promotion of 0.711, a simple linear regression equation model for this study can be made as follows: Y = a + b X Y = 11,614 + 0.711 X a = constant value in research
This is 11,614, meaning that if the Job Promotion is assumed to be zero (0) then the Employee Performance is worth 11,614. b = number of regression coefficients in this research amounted to 0.711, means every improvement Job Promotion of 1 unit, it will be improve employee performance amounted to 0.711.
T test T-test or partial test is used to test the effect of independent variables on the dependent variable partially or individually. Technically the test is done by comparing the value of tcount with the value of tt able at a significance level a = 0.05. The t-value of the promotion variable (X) is greater than the t-table value (8.697> 1.666) and the significance value (sig.) Is smaller than required (0,000 <0.05). These results indicate that H0 is rejected and H1 is accepted, which means promotion of a positive and significant effect on employee performance at the Makassar City Regional Secretariat. Based on the results of these calculations it can be seen that employee performance has a positive and significant effect on the promotion of position. The results of this study are supported by the opinion of Nitisemito (2008) job promotion is the process of moving employees from one position to another position that is higher than the position previously occupied. Promotion of the right position according to needs will have a positive influence on improving employee performance.
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CONCLUSION
Based on the results of research on the effect of job promotion on employee performance in the Makassar City Regional Secretariat, then in this chapter several conclusions will be drawn as follows: a. Position promotion in the Makassar City Regional Secretariat in general has been in a very high category, in the sense that Position Promotion is in accordance with the merit system contained in Law No. 11 of 2017 and is the basis for implementing promotion in the Makassar City Regional Secretariat. b. The performance of employees in the Makassar City Regional Secretariat in general is already in the very high category, in the sense that employee performance is in line with organizational expectations. However, indicators of work quality and quantity of work are still at a lower percentage compared to other indicators. c. Position promotion has a positive and significant effect on employee performance at the Makassar City Regional Secretariat. This can be seen from the analysis of the data obtained, namely t count 8.697> t table 1.666 and Sig 0.000 <0.05. The analysis of the data shows a hypothesis which states that there is a positive and significant influence on the promotion of the employee's performance so that the hypothesis can be accepted.
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Jurnal Ilmiah Ilmu Administrasi Publik: Jurnal Pemikiran dan Penelitian Administrasi Publik Volume 9 Number 2, July– December 2019. Page 335-344 p-ISSN: 2086-6364, e-ISSN: 2549-7499 Homepage: http://ojs.unm.ac.id/iap
The Urgency of Management Functions in Improving the Quality of Education Services in Public Senior High Schools 1 Biak
Hermanu Iriawan, Wilda Sasmita, Muhammad Rusdi Institut Ilmu Sosial dan Ilmu Politik (IISIP) YAPIS Biak Numfor, Biak Papua Barat, Indonesia Email: [email protected]
(Received: September10-2019; revised: Oktober 18-2019; published: December 31-2019)
ABSTRACT The quality of education services is a "fixed price" in realizing the quality of education by the objectives of the Republic of Indonesia. This study aims to determine the importance of management functions in improving the quality of education in the Public Senior High School (SMAN) 1 Biak. A qualitative research approach carried out at Biak 1 High School located in Biak Numfor Regency, West Papua. Data collection techniques are done through observation, interviews, literature study, and documentation. The data analysis technique is done descriptively in compiling information systematically, from existing data so that it is easily understood and interpreted. The results showed that the management functions applied in the Biak Kota 1 High School were: planning, organizing, directing, coordinating, and controlling. In the process seen based on the condition of the school in implementing management functions. These results provide good results from every aspect of the implementation of management functions. Keywords: Management Functions, Service Quality, Education.
INTRODUCTION Improving the quality of educational services is a process that is integrated with the process of improving the quality of quality human resources through, among others, quality education services, curriculum development, and evaluation systems, improvement of educational facilities, development and procurement of teaching materials, as well as training for teachers and other education personnel. But in reality, these efforts have not been significant enough in improving the quality of Education (Akib, Guntur, & Salam, 2016; MS Saggaf, Akib, Salam, Baharuddin, & Kasmita, 2018; MS Saggaf, Aras, et al., 2018; MS Saggaf & Greetings, 2017). The quality of education services will be affected by the extent to which the institution can manage all potentials ranging from education staff optimally, students, learning processes, educational facilities, finance and including its relationship with the community (MS Saggaf, Nasriyah, Salam, & Wirawan, 2018; MS Saggaf, Greetings, & Rifka, 2017). On this occasion, educational institutions must be able to change the new paradigm of education to be more oriented to the quality of all activities in it. The form of the activity itself is an effort developed in improving the quality of Education (Amanda, Salam, & Saggaf, 2017). In realizing a quality education service, of course, good management is needed. Good management certainly refers to the management functions themselves, where the intended 336 Jurnal Ilmiah Ilmu Administrasi Publik: Jurnal Pemikiran dan Penelitian Administrasi Publik Volume 9 Number 2, July– December 2019. Page 335-344
functions are none other than POCCC. Management must be applied to organize teaching and learning activities because by applying management aspects such as planning, organizing, commanding, coordinating, controlling (S. Saggaf, Salam, Kahar, & Akib, 2014; Terry & Franklin, 1968). Planning function, namely as a rationale for the objectives and the preparation of steps that will be used to achieve the objectives. Planning means preparing all needs, taking into account carefully what are the obstacles, and formulating the implementation of activities aimed at achieving goals. Organizing function is a way to gather people and place them according to their abilities and expertise in the work that has been planned. Commanding can be carried out to provide direction to all workers so that they want to cooperate and can work effectively in achieving a company's goals. Coordinating function is the integration, integration, synchronization of the efforts of group members to provide unity of action in pursuit of common goals. Controlling (Control function) is to oversee whether the movement of this organization is by the plan or not as well as overseeing the use of resources in the organization so that it can be used effectively and efficiently without anyone deviating from the plan. The Public Senior High School (SMAN) 1 Biak is one of the favorite high schools in the city of Biak. Every year the number of students registering increases, therefore a management function is needed to improve the quality of education services at SMAN 1 Biak. In this case, neat management can support the achievement of educational goals. Good management determines the pros and cons of learning, how a teacher uses appropriate methods, the provision of adequate learning tools, and a conducive classroom atmosphere when teaching and learning. But from the observations of researchers on the object under study, the management functions that have been carried out at SMAN 1 Biak still need to be addressed, where the application of existing regulations and services at school is good, but there are still some students who do not comply and understand about these regulations, as well as discipline and supervision of students who are still not optimal so that the things that are not desired by the school are often repeated, addressing these issues certainly cannot be allowed to continue. Under these conditions, the school should consider the importance of the management function in improving the quality of education services at SMAN 1 Biak.
METHOD By the title of the study, this research is located in the Public Senior High School (SMAN) 1 Biak. SMAN 1 Biak is a superior high school located in Biak Numfor Regency, which is located on Jalan Sorido Yafdas No. 01 Biak. This research is qualitative. Called qualitative research, because the main data source of this research is in the form of words and actions of the people observed or interviewed. Researchers use qualitative research proposed by Creswell & Poth (2018) that, qualitative research is research that intends to understand phenomena about what is experienced by research subjects, for example, behavior, perception, motivation, action, etc. holistically, and in a way described in the form of words and language, in a natural context and by utilizing various scientific methods. In this study, the types and sources of data used are Primary Data that is data obtained directly from the object under study. According to Creswell & Creswell (2017) that "Primary sources are data sources that directly provide data to data collectors." Primary data obtained Hermanu Iriawan, et.all.; The Urgency of Management Functions in Improving the Quality... | 337
from informant sources, namely individuals or individuals such as the results of interviews conducted by researchers. While secondary data according to Creswell & Clark (2017) are "Data sources that do not directly provide data to data collectors, for example through other people or documents". This data is used to support the primary information that has been obtained, namely from library materials, literature, previous research, books, and so forth. The data source is the most urgent thing in the research process, because the data source is a major component that makes it a source of information so that it can describe the results of a study. Data sources in this study include: a) Principal of SMAN 1 Biak, b) Teaching Staff, namely Teachers, are the main information as sources of data in this study with the consideration that the teacher is the central figure as the executor in the learning process at school. The teacher referred to by the author as a source of data in this study is a teacher in SMAN 1 Biak, c) Administrative staff is an organization in carrying out its activities can not be separated from the administrative field, so it is needed in the field of administration. The field of administration has the task of collecting, processing, and storing data, filing or documenting data needed by an organization. Administrative tasks are not only in writing but also in terms of finance, staffing, and even equipment. School administration activities are tasks that involve the management of letters and compilation of school data/statistics, d) students are people who want to gain knowledge, skills, experience and good personality as a provision of life. The main target of improving the quality of education is students so that it is expected that learning methods can increase interest in learning. Data collection is an important activity for research activities because data collection can determine the success or failure of a study. So in the selection of data collection techniques must be careful. Data collection techniques used in this study are: a) observation, b) interviews, c) literature study, d) documentation. Data analysis, according to Bogdan in Sugiyono (2009: 244) is the process of systematically searching and compiling data obtained from interviews, field notes and other materials so that they can be easily understood, and their findings can be shared with others. Based on the qualitative data obtained, the data analysis technique used is descriptive, which is a technique that describes data with words or sentences separated by category to obtain conclusions. In practice, data analysis is open. Said to be open because it is open to changes, improvements, and improvements based on new data entered.
RESULT AND DISCUSSION In general, the notion of management is the science and art of planning, organizing, mobilizing and controlling the efforts of the members of the organization and the use of organizational resources to achieve the goals set previously. Management has the activities of leading, managing, managing, controlling, and developing (S. Saggaf et al., 2014; Salam, 2015; Salam, Rosdiana, Suarlin, & Akib, 2014). Management can be said as an art. Management is the art of completing work through collaboration with others. The art of management consists of the ability to see totality in separate parts of a unified picture of the vision. The art of management includes the vision's communication skills. The aspects of leadership planning, communication and decision making regarding the human element on how to use an art management approach. Quality is something that is considered one of the important parts because quality shows the superiority of a product when compared to other products. Quality improvement is the business of every institution producing goods but also service products. Efforts in improving the 338 Jurnal Ilmiah Ilmu Administrasi Publik: Jurnal Pemikiran dan Penelitian Administrasi Publik Volume 9 Number 2, July– December 2019. Page 335-344
quality of education are issues that will continue to be a topic of discussion in education management. Quality is essential as part of the education process. The learning process is the goal of educational organizations. The quality of education is the quality of graduates and services that satisfy parties related to education. Quality of graduates related to graduates with good grades (cognitive, affective, and psychomotor) are accepted to continue to a higher level of quality and have a good personality. While the quality of services related to activities serving the needs of students, teachers, and employees as well as the community appropriately and precisely so that all were satisfied with the services provided by the school. Improving the quality of education is an effort that must be pursued continuously so that expectations for quality and relevant education can be achieved. Quality education is the hope and demand of all education stakeholders. Everyone will naturally prefer knowledge of institutions that have good quality. On this basis, schools / educational institutions must be able to provide good service and quality so as not to be left behind and be able to compete with other educational institutions. The importance of management in organizing an organization is necessary, as well as in management education is important. Institutions/companies engaged in the management of goods need good management. Educational institutions are institutions that manage people and aim to create quality human beings, of course this requires more extra thought than institutions managing goods. To improve the quality of education needs to be seen from many sides. Many education experts have expressed their opinions on the causes and solutions to overcome the deterioration in the quality of education in Indonesia. Macro perspective many factors that influence the quality of education, including curriculum factors, educational policies, educational facilities, application of information and communication technology in the world of education, especially in teaching and learning activities, application of methods, strategies and approaches to education that are current and modern, educational evaluation methods education, adequate education costs, professionally managed education management, human resources of education practitioners who are trained, knowledgeable, experienced and professional (MS Saggaf, Nasriyah, et al., 2018; MS Saggaf et al., 2017; Salam, Akib, & Daraba, 2018). To find out the Management Function in Improving the Quality of Education Services in Biak Kota 1 High School, the researchers used Fayol's theory (1916) to divide four basic functions of management, namely Planning (Organizing), Organizing, Commanding (Coordination), Coordinating (Coordination), controlling. These five management functions are abbreviated as POCCC, which are broadly presented as follows. Planning. Planning is planning the selection of facts and linking the facts and making and using estimates or assumptions for the future by describing and formulating the activities needed to achieve the desired results. And the ability to visualize and look forward is needed to formulate a set of actions for the future. Planning also includes the manager's function related to choosing goals, policies, procedures, programs and alternatives. Based on the planning function above to find out that an interview has been conducted with the deputy headmaster in charge of facilities and infrastructure (Interview on July 15, 2019 at 10:30 Eastern Indonesia Time), he stated that: Hermanu Iriawan, et.all.; The Urgency of Management Functions in Improving the Quality... | 339
"The planning function in improving the quality of education here is usually in improving the quality of lessons, we have a meeting which is usually called a workshop. The workshop involved all stakeholders of SMAN 1 Biak, both the school principal, deputy headmaster teachers and the cleaning and security guards. Where in the workshop we discussed the evaluation of the last school year if there was a shortage of the past school year it would be completed in the new school year and preparing a new school year. Then do the distribution of tasks and responsibilities to other teachers ". To find out the planning function, an interview with the Vice-Principal of the Student Affairs (Interview on July 17, 2019 at 11.42 Central Indonesian Time), he stated that: "For our planning function, before starting the new school year, it usually starts with a workshop first, so the workshop contains activities where we plan school activities for one school year. Starting with the division of tasks by the principal of the school for us ladies and gentlemen by our respective functions and the division of teaching assignments for us ladies and gentlemen and other workloads outside of our duties as subject teachers. Everything is planned in the form of a workshop. Then we also the teachers have to make our work programs. For example the deputy headmaster for facilities and infrastructure made procurement such as chairs and benches for this new school year and whether some chairs and tables had to be replaced or repaired. The deputy headmaster of the student section determines what kind of contests students must participate in and prepares these students to take part in the competition ". To find out the planning function, an interview with the Vice-Principal of the Curriculum Section, Abdul Rahman, S.Pd. (Interview on 19 July 2019 at 10.42 Central Indonesia Time), he stated that: "For the planning function, it is usually discussed at the time of the workshop, the workshop was a meeting held before the start of the new school year. The workshop usually discusses the planned activities that will be carried out in the new school year, and evaluates how the previous school year had any shortcomings and obstacles encountered, so that the new school year can be completed and maximized again. Then do the distribution of tasks and responsibilities to stakeholders such as the division of homeroom teachers and subject teachers. Also there will be a division of tasks outside the duties and responsibilities that have been given all that to improve the quality of service to our students ". Planning is the initial stage in the activity and most importantly where activities are defining organizational goals, making strategies, and developing organizational work plans. From the results of interviews at the SMAN 1 Biak school the authors concluded that the Planning Function in Improving the Quality of Education Services at SMAN 1 Biak, in the planning process was carried out well, which carried out an evaluation of the performance that had been carried out in the last school year and involved all stakeholders who were in SMAN 1 Biak so that it can overcome the deficiencies and obstacles that exist so that the planning process can be by the initial plan.
Organizing. Organizing is the determination, grouping and compilation of various types of activities needed to achieve activities, placement of people (employees) on the activities of physical provision suitable for work needs and extension of authority relationships delegated to each person about the implementation of activities which is expected. Based on the opinion 340 Jurnal Ilmiah Ilmu Administrasi Publik: Jurnal Pemikiran dan Penelitian Administrasi Publik Volume 9 Number 2, July– December 2019. Page 335-344
above, this organizing function covers all management activities that are manifested in the structure of duties and authority. Organizing regulates activities that must be carried out by organizational units such as the delegation of authority to carry out work. Based on the organizing function above to find out that an interview with the Deputy Principal facilities and infrastructure (Interview on 15 July 2019 at 10.30 Eastern Indonesia Time), he stated that: "For organizing the implementation of this task, there must be a part of each stakeholder. There are three deputy principals, each of whom has their task of the curriculum principal to make a lesson schedule, the vice-principal of students for the preparation of students who will participate in competitions. Deputy Principal facilities and infrastructure maximizing the existing facilities and infrastructure. As well as the distribution of homeroom teachers, those who become homeroom teachers are prioritized who are already Civil Servants (PNS), because it involves signatures, ladder sign must have an Employee Registration Number, but if the number of teachers who are PNS is less then it will only be filled with honours. To find out the planning function, an interview was conducted with the Vice-Principal of Student Affairs, Vanda Fransisca Putuhena, S.Pd. (Interview on July 17, 2019 at 11.42 Eastern Indonesia Time), he stated that: "For our coordination, all the doors are coordinated through the principal, so every plan and agenda of activities we make is returned to the principal to ask for his opinion and approval, if agreed, we will implement it, otherwise we will look for other plans". To find out the planning function, an interview with the Vice-Principal of the Curriculum (Interview on July 19, 2019 At 10.42 Eastern Indonesia Time), he stated that: "For the organizing function itself, each stakeholder has been given their respective duties and responsibilities, but it does not rule out the possibility to coordinate with other teacher friends in carrying out these tasks and responsibilities. For example, some stakeholders do not understand the tasks assigned to them, these stakeholders can coordinate with other teachers who better understand the task ". Organizing is the division of tasks given to each employee, who after getting the results of the plan that has been determined previously. From the results of interviews at the Biak 1 Senior High School, the researchers concluded that the organizing function had gone well, as evidenced by the time of field observations of coordination between teachers.
Commanding. Commanding can be done to provide direction to all workers so that they want to cooperate and can work effectively in achieving a company's goals. In this management function, guidance is given to workers in the form of motivation, leadership and also communication to carry out their duties properly and by established goals. The principle of direction also has the goal of being able to adjust one's goals to the goals of an organization that will be formed into a common goal. Therefore, the direction of the management function according to Henry Fayol is intended to provide direction on an organization to Human Resources (HR), which incidentally is the executor of the organization or company to be able to complete their tasks properly. Hermanu Iriawan, et.all.; The Urgency of Management Functions in Improving the Quality... | 341
Based on the briefing function above to find out that an interview with the Deputy Principal facilities and infrastructure (Interview on 15 July 2019 at 10.30 Eastern Indonesia Time), he stated that: "For the actual briefing function, we follow an order which will then be coordinated with the school principal, the school principal will provide direction. We ask for opinions and direction from the principal to carry out their respective duties". To find out the briefing function, an interview was conducted with the Deputy Head of Central Indonesia Time), he stated that: "The briefing function is all one direction door which is sourced from the principal, the principal who gives general direction to us then we each translate according to our respective functions and responsibilities". To find out the briefing function, an interview was conducted with the Vice Principal of the Curriculum (Interview on 19 July 2019 at 10.42 Eastern Indonesia Time), he stated that: "For the briefing function, all directions sourced from our school principal only carry out according to the instructions and directions that the principal gives us about plans and work agendas". Directing is a management function that is related to the effort of giving guidance, suggestions, instructions, so that the task can be carried out properly and is truly aimed at what was originally set. From the results of interviews at the SMAN 1 Biak school, the researchers concluded that the commanding function had gone well but at the time of observation the Principals were often on duty out of town, so the commanding given was not optimal.
Coordinating. Coordinating is the integration, integration, synchronization of the efforts of group members to provide unity of action in pursuit of common goals. This is a hidden power that binds all other functions of management. Coordination can keep the activities of an organization continue to synergize and can also work well together. Not only that, but communication is also very needed in the process of coordination between lines in the organization, both in formal and informal communication. Coordination cannot be separated from management because achieving alignment between individual efforts towards achieving group goals is the key to management's success. Coordination is the essence of management and is implicit and inherent in all management functions. Based on the organizing function above to find out that an interview had been conducted with the Vice-Principal facilities and infrastructure (Interview on 15 July 2019 at 10.30 Eastern Indonesia Time), he stated that: "For clear coordination between one another, coordinate with each other so that they can complement each other. For example, we lack understanding of a part, we share with other teachers who understand it so we can go according to plan. Still each carries out the tasks and responsibilities given but coordination is important ". To find out the briefing function, an interview with the Vice-Principal of the Student Affairs (Interview on July 17, 2019 at 11.42 Eastern Indonesia Time), he stated that: "For coordination, it is related to the arrangement of structures for determining activities to achieve the agreed goals. Classification of activities, assignments, a delegation of authority or duties to carry out work among stakeholders ". To find out the organizing function of an interview with the Vice-Principal of the Curriculum section (Interview on 19 July 2019 at 10.42 Eastern Indonesia Time), he stated that: 342 Jurnal Ilmiah Ilmu Administrasi Publik: Jurnal Pemikiran dan Penelitian Administrasi Publik Volume 9 Number 2, July– December 2019. Page 335-344
"Our organizing functions carry out the tasks and responsibilities that have been given but not all can do or understand the tasks so there is usually coordination between stakeholders". Coordinating is one of the management functions to carry out various activities to avoid chaos, disagreement, voiding of activities, by connecting, integrating and aligning the work of subordinates so that there is directed cooperation in efforts to achieve common goals or organizational goals. From the results of interviews at the SMAN 1 Biak school, the researchers concluded that the organizing function had been going well and the results of the organizational observations being carried out were good enough that the stakeholders quite understood their duties and responsibilities.
Controlling. Controlling is the process of determining what will be achieved (standard), what is being done (implementation), assessing implementation, and if necessary taking corrective action so that implementation can proceed according to plan, i.e., by standards. Or in other words, supervision is an activity related to controlling or supervising every work and taking corrective actions. Based on the control function above to find out that an interview has been conducted with the Deputy Principal facilities and infrastructure (Interview on 15 July 2019 at 10.30 Eastern Indonesia Time), he stated that: "The control function is usually that each work program and the tasks assigned are monitored for performance, a work report is prepared and the report must be clear so that it can be accounted for. So the control through checking the results of the work report by what is not done can be justified or not ". To find out the control function has been conducted an interview with the Deputy Principal Student Affairs (Interview on July 17, 2019 At 11.42 Eastern Indonesia Time), he stated that: "For the control function, we all work together to be able to practice school policies whose function is to improve the quality of education in SMAN 1 Biak".
To find out the control function, an interview was conducted with the Deputy Principal of the Curriculum Section Abdul Rahman, S.Pd. (Interview on 19 July 2019 at 10.42 Eastern Indonesia Time), he stated that: "The control function is usually in the form of a report of the tasks and responsibilities that have been given, all activities must end with a report of accountability so that it can be a form of oversight to stakeholders outside the rules or policies that need to be followed". Control is a way or a tool to ensure that the planning and organizing and mobilization that has been carried out goes to what has been previously determined. From the results of interviews at SMAN 1 Biak researchers the researchers concluded that the implementation of the control function at SMAN 1 Biak could not be said to be good due to lack of control over teachers and the level of discipline that was still low. From the management function above, the Quality of Education Service at SMAN 1 Biak is outlined, the following questions are asked, how is the quality of education services and how is the strategy to improve the quality of education services at SMAN 1 Biak? Hermanu Iriawan, et.all.; The Urgency of Management Functions in Improving the Quality... | 343
Based on questions in improving the quality of education services and to find out interviews with the Vice-Principal facilities and infrastructure (Interview on 15 July 2019 at 10.30 Eastern Indonesia Time), he stated that: "To improve the quality of our education services from SMAN 1 Biak, we have tried our best to serve students, but judging from the results of our services that the value of others, for example the community, parents, but we have tried our best and for strategies in improving the quality of our education services. Mentioning evaluation, we evaluate every obstacle faced and tried as much as possible to fix it and ask for advice and input from the community to overcome the obstacles that we face ". Based on questions in improving the quality of education services and to find out interviews with the Deputy Principal of the Student Affairs (Interview on July 17, 2019 at 11.42 Eastern Indonesia Time), he stated that: "For the quality of education services there must be indicators that are seen, I take the example of indicators of student graduation rates for the graduation level of SMAN 1 is always 100%. Since I teach here the graduation rate is always 100% and for the strategy that we do is the vision and mission of our school, from the vision and mission we try our best to make it happen. Because the vision and mission are what we want to realize in this school, therefore the strategy used is trying to realize the vision and mission." Based on questions in improving the quality of education services and to find out interviews with the Vice-Principal of the Curriculum Section Abdul Rahman, S.Pd. (Interview on 19 July 2019 at 10.42 Eastern Indonesia Time), he stated that: "For the quality of education services that we provide can be said to be maximum. It can be seen from the number of new students always increasing and we are also trying to improve services further. For our strategy, it is in the form of maximizing existing facilities and infrastructure, and we always review the constraints faced and find a solution as soon as possible". From the interview results above, the authors conclude that efforts to improve the quality of education services and strategies to improve the quality of education services in SMAN 1 Biak namely the quality of educational services are maximum and the strategy implemented is to evaluate the performance of teachers and further improve performance as much as possible and try to vision and mission can be realized and implemented.
CONCLUSION Management functions are applied based on the stages in the management process including planning, organizing, directing, coordinating, controlling. This is by what happened at SMAN 1 Biak school. At these stages the SMAN 1 Biak school in the process divides the stages based on school conditions. As explained by the interviewees at SMAN 1 Biak regarding management functions, the implementation of management functions must be by the management process itself, namely Planning, organizing, commanding, coordinating and controlling. It can be concluded that the implementation of the management functions of SMAN 1 Biak is classified as good, as evidenced by the fulfillment of all activities in the process of implementing management functions.
344 Jurnal Ilmiah Ilmu Administrasi Publik: Jurnal Pemikiran dan Penelitian Administrasi Publik Volume 9 Number 2, July– December 2019. Page 335-344
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Jurnal Ilmiah Ilmu Administrasi Publik: Jurnal Pemikiran dan Penelitian Administrasi Publik Volume 8 Nomor 1 Januari-Juni 2018 p-ISSN: 2086-6364, e-ISSN: 2549-7499 Homepage: http://ojs.unm.ac.id/index.php/iap/index
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ABSTRAK
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ABSTRACT
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Keywords: Keywords satu; Keywords dua; Keywords tiga; dst.
PENDAHULUAN
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