Equivalent: Jurnal Ilmiah Sosial Teknik
Vol. 5, No. 1, January 2023
POLICY CAPACITY IN THE POLICY OF
STRUCTURING GENERAL FUNCTIONAL POSITIONS IN THE GOVERNMENT ENVIRONMENT
Restu Agung Firdaus1, Baiq Dessyazizah Destianikitha2,
Eko Supeno3
Universitas Airlangga, Surabaya, Jawa Tengah, Indonesia
Email: agung.xxv@gmail.com, destianikitha@gmail.com,
Abstract
This
study aims to analyze the policy capacity in the employee management policy in
the General Functional Class in the Government of Bangkalan Regency. The
problem is that the availability of position classes has not been accommodated
in the Regent Regulation Number 75 of 2020 for several job classes. This raises
problems such as placing employees in a lower position class than they should
be, several job classes are still not fulfilled, causing jealousy between
employees. This study uses the theory of policy capacity by Xun Wu, Ramesh, and
Howlett with 3 (three) indicators, namely analytical capacity, operational
capacity and political capacity at each level, both individual, organizational
and system. The research was conducted using a qualitative research method with
a descriptive type to dig deeper and detailed information. The location of the
research was carried out in the Organizational Section of the Regional
Secretariat of Bangkalan Regency. Sources of information or informants that are
relevant to the topic in this study are from the Organizational Section, the
Staffing and Human Resources Development Agency, the Education Office, the
Environment Service. The use of data in this study comes from primary and
secondary data collected through interviews, observation and the use of other
supporting documents.
Keywords: Policy Capacity;
Employee Arrangement; Job Class; General Functional Position.
Introduction
The
State Civil Apparatus (ASN) has an important role in the delivery of public
services because ASN performance will have a real impact on society as users of
services. It is mandated in Law Number 5 of 2014 concerning State Civil
Apparatus that ASN is expected to be able to provide public services and carry
out its role as an glue for national unity and unity with professionalism,
integrity, free from political intervention, and free from practices of
corruption, collusion and nepotism. The ASN profession has the obligation to
manage and develop itself, be accountable for performance and apply the
principle of merit in the implementation of ASN management (Riyan, 2020)
dan (Daniarsyah, 2020). Policy reform in the field of ASN
competency development needs to be carried out with the aim of being able to
have more effective and efficient services to the community. So then it becomes
an important thing to do, namely a thorough review of the structure and
capacity of government institutions. Apparatus human resources (ASN) are the
main and extraordinary assets that act as subjects/actors as well as objects in
bureaucratic reform. ASN resources with knowledge, reason, thoughts, abilities,
skills, and skills possessed as potentials that should always be developed and
improved so that they can be used for the advancement of public organizations,
in this case government agencies. Apparatus human resources are a valuable
asset for an organization or agency (Ariza, 2021).
Therefore, the factor of human existence as the most important element must be
managed properly through planning, organizing, directing, and monitoring and
evaluating so as to increase dedication, quality, expertise, abilities and
skills in carrying out tasks efficiently and effectively. in achieving
organizational goals (Meliana, Sulistiono, & Setiawan, 2013).
Looking
at government policies in the last 1 (one) decade which cut the need for the
number of government employees, both central and regional agencies, so that
nationally there has been a downward trend in terms of the quantity of
apparatus resources. It can be seen from the statistical picture of the number
of civil servants from 2012 to 2021 which is shown in the figure below.
Picture 1.
Statistical description of the number
of civil servants from 2012 to 2021
On December 31, 2021, based on the
statistical data from the National Civil Service Agency (BKN) above, the number
of Civil Servants with active status was 3,995,634, which means a decrease of
4.1% compared to the number of Civil Servants on December 31, 2020. This was
started in previously in 2016, 2017, 2018 and 2019. Even though in 2013 and
2014 there was an increase in the number of employees needed. With the number of
Civil Servants consistently decreasing, due to one of the objectives of
bureaucratic reform through the moratorium strategy for Candidates for Civil
Servants (CPNS), it will be a challenge for Civil Servants in carrying out
their duties and functions as well as demands for carrying out various
innovations. The statistics above do not show the allocation of employees based
on central agencies or regional agencies. The following table presents the
growth of Central and Regional Civil Servants in the last 10 (ten) years (Pardosi, 2018).
Table 1.
Statistics Book
of the 2021 State Civil Service Agency
Nationally
the number of civil servants has decreased, but the growth of civil servants in
the central government from 2012 to 2021 has increased. On the other hand, the
growth of civil servants in the regions has decreased. This can be interpreted
that the need for PNS at Central Agencies has increased on average from 2012 to
2021 and the need for PNS in the Regions has decreased.
In
addressing the policy of structuring human resources or apparatus, Prof. Dr.
Sedarmayanti explained that in measuring SDMA arrangements it is necessary to
pay attention to the following aspects 1) Implementing a merit system in
personnel management; 2) An effective training system; 3) Improve standards and
performance; 4) Career patterns that are clearly structured and planned; 5)
Position competency standards; 6) Classification of positions; 7) Duties,
functions and proportional workloads; 8) Recruitment according to procedures;
9) Placing employees according to expertise; 10) Adequate remuneration; and 11)
Improvement of the personnel management information system. All bureaucracies
have aspirations to have competent human resources. Benchmark to what extent
the competency of an individual is by looking at the capabilities possessed.
The elements of knowledge, skill, and attitude are taken into consideration for
analyzing a person's competence. These three things look simple but difficult
to identify.
As with
the staffing issues described above, starting from the problem of the need for
central ASN which continues to increase, while the allocation for regional ASN
needs is decreasing which causes a lack of human resources for regional
apparatus. The disproportionate distribution of employees has also colored the
arrangement of ASN in the regions, as has happened in Bangkalan Regency.
Planning for employee management in Bangkalan Regency has gone through a
planning process. Position evaluation has been carried out and received a
ministry recommendation for the reorganization of Civil Servants based on
Bangkalan Regent Regulation Number 75 of 2020.
The
mechanism for class arrangement of positions for General Functional Positions
or Executing Positions in the Bangkalan Regency Government is carried out by
the Organizational Section of the Regional Secretariat and the Personnel and
Personnel Resources Development Agency (BKPSDA). The results of the arrangement
of position classes are faced with several problems including the availability
of position classes in the Regent Regulation Number 75 of 2020 has not been
able to accommodate a number of position class needs in the Regional Apparatus
Organization (OPD). Other problems include the placement of employees who are
not in accordance with the competencies they have. In addition, job analysis
and workload analysis have not been carried out in real terms by looking at
aspects of the needs and capabilities of the regional budget. The following is
the position class recapitulation data from the position desk results presented
in the table below:
Table 2.
Recapitulation of Position Class
and Employee Inventory
in the Bangkalan Regency
Government Environment
|
No |
Job Title Class |
Employee Inventory |
Employee Availability |
|
1 |
2 |
3 |
4 |
|
1 |
15 |
1 |
1 |
|
2 |
14 |
35 |
35 |
|
3 |
13 |
8 |
8 |
|
4 |
12 |
62 |
62 |
|
5 |
11 |
2208 |
2208 |
|
6 |
10 |
0 |
0 |
|
7 |
9 |
1445 |
1445 |
|
8 |
8 |
1032 |
1032 |
|
9 |
7 |
725 |
490 |
|
10 |
6 |
1312 |
600 |
|
11 |
5 |
919 |
1289 |
|
12 |
4 |
11 |
2 |
|
13 |
3 |
86 |
73 |
|
14 |
2 |
0 |
0 |
|
15 |
1 |
169 |
168 |
|
Total |
8013 |
7413 |
|
Source:
processed by the author based on the attachment to the Regent's Regulations and
the results of the recapitulation after the job desk was carried out.
If seen from the table 2 above, what is
meant by employee supply is the number of employee needs based on position
class, it can also be said as the number of position class inventory that can
be filled. Then what is meant by the availability of employees is the real
number of employees occupying the position class. The arrangement of job
classes is influenced by several aspects, such as educational background and
suitability of educational level with the position occupied. From the table
above it is known that in certain position classes such as position class 7,
position class 6, position class 4, position class 3, and position class 1 the
number of employees occupying the position class has been accumulated in
accordance with the supply of positions. However, in position class 5 there are
excess employees of 370 employees who occupy that position class.
The problem of structuring job
classes for General Functional Positions in Bangkalan Regency has yet to find
the best solution. The non-optimal arrangement which is guided by Bangkalan
Regent Regulation Number 75 of 2020 still leaves the problem of not yet being
accommodated by employees to occupy positions that are in accordance with their
educational background and level of education.
Research methods
In this study, researchers used a
descriptive type with a qualitative approach. A qualitative approach was chosen
because researchers are trying to get an overview and understanding of a social
phenomenon. Inductive data analysis by building themes from specific themes to
general themes, collecting data, and asking questions is the scope of this
research process, (Creswell, 2009) the type of research used in this research
is descriptive type. According to (Neuman, 2017),
descriptive research can be in the form of new data that contradicts old data
that has been found, detailed and very accurate descriptions that have been
successfully provided, a series of categories or classifications of types that
have been successfully created, a series of stages or steps that have been
successfully explained, and process or causal mechanism reported.
In this study, the technique of
determining informants used a purposive sampling technique, also known as
judgmental sampling, which is a type of sample that is useful for special
situations. Exploratory research or field research usually uses this type. The
judgment of an expert in a case or how an expert chooses a case with a specific
purpose is used in this sampling technique (Neuman, 2017).
The data collection process is carried out by selecting participants/determining
objects intentionally (purposefully) and not randomly. According to (Creswell & Creswell, 2017), in qualitative research,
the researcher determines the object/participants to be studied (purposeful
sampling) by selecting the best person or place who really understands the
phenomenon being studied. Researchers used 5 techniques in data collection,
namely (1) interviews, (2) observation, (3) documentation studies, (4) physical
devices, and (5) archival records, (Neuman, 2017).
The data analysis technique in this study used the method developed by Miles, (Abdul & Masruri, 2021), namely data collection,
data condensation, data presentation, and drawing conclusions or verification.
Furthermore, to check the validity of the data, researchers used data
triangulation techniques (Kadioglu, Weiser, Paton, & Andrew, 2008). The triangulation
technique helps researchers in checking the sources, theories and methods used.
Results and Discussion
In the policy process is in dire need of analytical skills.
The individual analytical skills needed are in diagnosing policy problems and
their causes, formulating and seeking alternative solutions, formulating plans
for implementation, and evaluating. In addition, individual analytical capacity
can also affect the success of the organization in finding the source of
problems and determining the strategy to be used. This also influences the
implementation of the policy function. At the organizational level, analytical
capacity relates to the ability to obtain and process information and data
needed to carry out policy functions. The context in evidence-based policies
also really requires individual analytical skills. Its ability is used to
explore a problem, besides that the availability of data in a timely,
systematic manner is also important. At the system level, analytical capacity
is measured by the quality of data collection throughout the system. Components
such as availability, speed and ease of access for various stakeholders are the
main things in this concept. In determining analytical capacity at the system
level, accessibility of data or information by non-governmental organizations
and private organizations also plays a key role. Of course, this accessibility
must have the support of transparency from the government itself.
In the findings of research in the field of policy analytical
capacity in individual sectors, basically, human resources in the Bangkalan
district government have basically understood the process of proposing class
positions for general functional positions in their regional apparatus
organizations (OPD). In fact, after the desk (verification and validation) has
been carried out on the proposed positions, there are still proposals that are
not in accordance with what has been stipulated in the Bangkalan Regent Regulation
Number 75 of 2020. As a result of the incompatibility of the proposals, OPDs
that have not passed the verification and validation are given time to repaired
and adjusted according to regulations. This is when viewed in terms of
competence and authority in office, then the role of a leader can be recognized
as understanding the problem and an evaluation is required. The research
findings prove and provide direction that the Regional Secretariat
Organizational Section is a pilot project rather than job analysis and workload
analysis of an organization. Furthermore, regional apparatus organizations or
OPDs that carry out job class proposals have not been able to fully maximize
the potential of apparatus resources to occupy the position class as required
by the regent regulations.
Analytical capacity in the proposed class of positions on a
broad perspective to be able to improve the analysis of policy processes
involving the management of employees and sources of information. Although
utilizing existing resources to manage and collect information is still
difficult in implementing policies. limitations in human resources and supply
of job classes simultaneously limit the ability to conduct policy analysis. the
ability to perform analytical capacity functions still needs to be improved at
the organizational level due to the involvement of tasks in the policy process,
namely diagnosing policy problems and their root causes. The ability to design
and compare solutions to problems is still top-down (superior's instructions).
Individuals at the executive level should be able to help formulate policy
plans and evaluate policies (Setyowati, 2016).
Planning in question is how organizational goals can be
understood by individuals (one perception) and about how to describe the
conditions of future challenges to be achieved. This can be used as a source of
individual strength to be motivated to do work. Individuals who have high
capacity can be seen with the advantages they want to create in the future with
optimism that they will succeed. Seeing the conditions in the Bangkalan Regency
Government, the work scheme carried out is from superiors to subordinates that
are orders or instructions, so as to form individuals to comply with the common
goals to be achieved. Increasing the operational capacity that an individual
has cannot be achieved in a nutshell, it requires individual processes and
consistency in carrying out policies in accordance with superiors' directions.
In general, the researcher's analysis is that operational capabilities at the
individual level have made efforts to implement the proposed class position
policy through planning, direction, and coordination but indeed the resources
are still lacking.
The Bangkalan Regency Government has constraints on the
limited resources of the apparatus for the long term because in the mapping of
employees it is still uneven, planning for employee needs is not maximized, employee
competency development is limited in the budget, and the commitment of staff
supervisors is not consistent in staffing management. This shows the need for
an increase in staffing capabilities so that the apparatus resources can carry
out policies (Idris, 2014).
Capacity at the individual level involves political ability
to consider aspects of policy and political support. Understanding of the
political situation is considered important in the policy process. the ability
to interact, negotiate and build consensus in the stages of the policy process
is also necessary to provide smooth policy objectives. It should be remembered
that political capacity is not only for policy makers and senior officials, but
is also important for policy analysts and experts. without adequate political
capacity, policy analysts and experts may ignore political actors as the key to
the policy process (Sadeli, 2008).
Based on the analysis of the data in the research, it shows
that the political capacity of the individual level is more dominant in
officials than staff or other members. The ability possessed by officials
cannot be separated from the experience and power possessed (Marsono, 2008). The power possessed by a leader is used to
protect, foster, direct his staff in order to achieve goals in an optimal and
directed manner. Knowledge of the policy process, leaders must show attitude
when there are differences of opinion among individuals, helping individual
actors to respect each other (Setyaningrum & Syafitri, 2012). As a professional
apparatus, the involvement of leaders embracing stakeholders in providing
policy advice can also be identified as an individual's ability to engage in
politics.
Conclusion
Policy capacity in research refers to
the scope of implementation by using indicators of analytical capacity,
operational capacity, and political capacity at the individual, organizational
and system levels. In the implementation of policy capacity by stakeholders
related to the arrangement of employees in general functional positions, it was
found that there were problems in implementing the position class policy for
general functional positions in the Bangkalan Regency Government Environment.
Among them is that the availability of position classes has not been
accommodated in the Regent Regulation Number 75 of 2020 for several job
classes, and there are still some positions where there are discrepancies with
the requirements for occupying certain class positions. In addition, it was
found that there were several indicators that hindered the implementation of
the policy capacity of staff management in job classes for general functional
positions so that it had not gone well, namely analytical capacity at all
levels, operational capacity at all levels, and political capacity at the
individual level. However, there are indicators that are running well, namely
political capacity at the organizational and system level.
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Restu Agung Firdaus, Baiq Dessyazizah Destianikitha, Eko Supeno (2023) |
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Sosial Teknik |
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