Bureaucratic Reform and The Implementation Of Good Governance

By . Dr. Muhadam Labolo

Preface

Reform of the bureaucracy is the fundamental structuring efforts are expected to have an impact on changing systems and bureaucratic structures. The system deals with the relationship between the elements that influence each other and are associated to form a totality. The changing of one element can presumably affect to other elements in the system itself. Structure associated with the order regularly and systematically arranged. Structural changes include mechanisms and procedures, human resources, facilities and infrastructure, the organization and its environment in terms of the achievement of efficiency of government bureaucracy. These changes include allowing all aspects of the bureaucracy has sufficient capacity to carry out the duties and functions of the principal. Bureaucratic failure in serving the community during this represent poor governance both at central and local government level.

The urgency of bureaucratic reform in Indonesia at least driven by a number of important note. First, due to the increase in personnel expenditure increased recruitment of employees without a clear control , in addition to the growing structure of government bureaucracy . Increased spending apparatus can be seen from the evaluation of the Indonesian Forum for Budget Transparency ( 2011), in which 124 local government budgets tend to show symptoms of morbidity. Lumajang Regency (one of the areas in East Java ) a real example in which spending apparatus swells up to 83 % of total Revenue and Expenditure (budget) . It means, approximately 2% of employees likely enjoy shopping civil servant , the remaining 17 % allocated to 98 % of the people in the form of capital expenditure/development . Increased employee recruitment results without adequate competencies and habits develop organizational structures to make regional and central government budget deficit prone. Secondly, swelling cost of democracy mechanisms (local elections) result in cash burden local governments in particular have increased significantly. Unfortunately, local elections did not give birth relative quality of government leadership. Local elections as well as the size of the budget impact on local government bureaucracy resulted in difficult to control the budget deficit. On the other hand experienced bureaucratic dilemma due to fragmentation of concentration when dealing with local elections scheduled. Third, the high arousal fattening planning organizations and government bureaucracy without a clear analysis of the trigger financing and recruitment of employees in large numbers. Consequently bureaucracy in areas experiencing overload or even vice versa, especially in areas outside Java. The condition is amplified by the low revenue thus creating a dependency on the central government, while local government spending away from efficiency, even less controlled due to the high cost of the organization. Fourth, encourage bureaucratic corruption widespread loss of confidence in the area as a public servant. Fifth, the lack of oversight resulted in local governments tend to act consumptive, wasteful, inefficient and lacks transparency. The whole negative note supported also by the bad behavior of the bureaucracy in public services such as sluggish and reactive attitude, arrogance, nepotism, convoluted, working instinctively (instinct), it is difficult to change, and less oriented to the interests of society. The problem is how to bureaucratic reform should be done, whether the challenges faced, and how the design of bureaucratic reforms that must be made ​​in minimizing the spread of the reality faced? This brief article will describe the meaning of bureaucracy and good governance, good governance characteristics, issues and challenges faced in the effort to reform the bureaucracy, as well as strategic efforts to reform the bureaucracy and the implementation of good governance. The changes are expected to not only be incremental but fundamental alone. It was recognized that efforts to reform the bureaucracy is part of the grand design of creation of good governance (good governance). This strategy is expected to bridge a condition of poor governance (bad government) toward the establishment of good governance (good governance). Of course the government bureaucracy as an instrument implementing the main focus is to be improved through bureaucratic reform policies. Scope of this paper will also touch on bureaucratic reform both central and local government, even if it means more portrait problems at the level of local government bureaucracy. However we understand that the bureaucratic reform at the level of local government is part of the national policy of bureaucratic reform.

 

Challenges For Bureaucratic Reform and Good Governance

 

Bureaucratic reform challenges include three main problems: first, the internal factors include the inability bureaucracy transformed itself for the better. Second, external factors relating to the high political intervention which makes the bureaucracy lost concentration in the service function. Third, public doubts on the effectiveness factor policies planned and implemented by the bureaucracy. The first factor is caused by the weakness of the bureaucracy in the development of environmental performance in accordance renew. The high dynamics of the community in demanding better services does not necessarily offset by the ability of the bureaucracy to develop intelligence, aptitude and skills in governance. Patterns and service to the community approach clearly shows indications traditional behavior. Service bureaucracy was based on emotional kinship, far from the ideal character of the bureaucracy, which is an impersonal relationship. It should be recognized that cultural differences in western and eastern world is a reality that must be recognized in the provision of public services. Leaned service by putting the principles referred impersonalitas rigidly Weber is not sufficient to create a sense of justice. Each community consists of people served who are able and not able to be physically and non- physically. Those who are physically unable to of course need to be serviced by shuttle approach - ball . While they were not able to be non-physical, such as financial problems, should be given incentives so that services remain balanced evenly administered. Instead, lean service by putting the relationship overall personality as well as creating discrimination for community groups who do not have direct access to the government, because only those who are known personally who will be served. Understand the limitations of bureaucracy plurality in society often creates inequities in service. In this context it is necessary bureaucracy that is able to adapt to the development of society, and able to answer every question not only structurally but functionally. Structural approach in service often dealing with rules and norms, making it difficult to resolve the problem completely. Pattern completion problem by leaning all the regulatory aspects are not always bring maximum results. Communities often feel frustrated because they care only stalled due to the inability of bureaucracy when translating rules.                         Instead, groups of bureaucrats seem like robots that lost sense of humanity when all the cases resolved by the rules. The problem is what if the people's demands go beyond the rules themselves are sometimes arrive late, or even be a vacuum regulation. Is the same reason the government should refuse service to the community? Therefore it is necessary to resolve the functional approach to the root of the problem. In this context, the bureaucracy often store and treat problems of particular interest, not trying to solve the problem completely. Functional approach in the service of a pattern approach to compensate for the structural approach which sometimes hinder, convoluted, time-consuming and the cost is not small. Keep in mind that all the bases are functionally services are not always right because basically all services require formal institutionalization that can be monitored and controlled. Nowadays functional approach to pattern a lot of progress, especially at the central government level. Birth of bodies, agencies and commissions that are mezzo - structure in addition to the existing formal institutions, a reflection of the pattern of problem solving by combining the structural and functional approach. Yet not without some notes, because these institutions are not only burden the budget of the government bureaucracy, but the cause overlap and less productive.
The second factor is the high bureaucratic reform challenges of political intervention in the bureaucracy. Politicization of the bureaucracy to get a room when a group of elite political party election to use the momentum to move the bureaucracy as a political machine as well as a political activist. Impact can be said bureaucratic experience solving concentration and at the same time fail to serve the public according to the mission and carried. Outbreak due to circulating concentration of red tape regional head once every five years. Those who rely on the dominant incumbent candidates often disoriented when they lost the election competition. Politicization of bureaucracy creates a relationship between the executive and legislative experience serious dynamic tension that is not sustainable. The next result has been accustomed bureaucracy took a compromise in the end contribute to leakage through collective conspiracy. The indication can be known through leaks hectic state budget by the Budget Committee, as well as the breakdown of the budget at the time of planning and determination. Bureaucracy explicitly distanced the group experienced a tension politicians as vulnerable to losing positions. The remaining group of bureaucrats who take the apathy of the dynamics that occur in each rotation rule. Political intervention to stimulate appetite bureaucratic apparatus has a commitment to build a secret with the power elite in the circulation period. The commitment to a political deal that led to the issue of who can be what, how much and when. In this context woke effective coalition between the executive and the legislature in the budget burglary. Greater power to make bureaucracy adrift and difficult to determine its neutrality as a public servant. All of that is supported by the ability of the regional heads in mobilizing resources through the most successful team members who come from the ranks of the bureaucracy. Resource mobilization is done even in brightly lit through recruitment based on primordial ties and patronage , not merit much less competence. This situation is clearly developing in a bureaucratic corrupt behavior as a consequence of relationships that are transactional . In view of this kind does not belong to the public bureaucracy impressed but the ruling elite. It can be seen from the attitude and orientation that tend to be oriented upwards rather than downwards. The third factor is the challenge of bureaucratic reform public doubts against any policies implemented by the bureaucracy. Lack of education and lack of analysis of any policy that makes diproduk bureaucracy was unable to make the policy effective in solving the problem. The high resistance is characterized by increased public demonstrations and private parties who feel aggrieved by any policy set shows the two reasons above. Public and private doubts on the effectiveness of policy bureaucracy caused by two factors in addition to the above is also a problem of credibility bureaucracy. The low credibility of the bureaucracy in designing a policy can be seen from the low involvement of experts in the form of assistance, the absence of an academic paper on the draft regulations (particularly local regulations), as well as low public consultation on the draft regulations are made. The overall indications lead to the poor quality of the design of policies that lead to resistance from the stakeholders. Weakness of policy design at the planning stage to the implementation stage does not necessarily make the bureaucracy ongoing evaluation, but tried to cover up the shortcomings of the policy. Exclusivism of attitude and know all the problems pushing bureaucracy at every arrogant behavior when responding to the demands of society. Besides public doubts on the effectiveness of policies to grow the bureaucracy caused by the abundant program promised but lose focus on implementation. This condition results in more programs that are mailing service than expected reality. Society sometimes abhor bureaucratic indolence and gluttony, as pointed out by Barzelay (1982 ) in ' Breaking Through Bureaucracy '. In the end the public doubts the growing bureaucratic reform in general is caused by a lack of trust in the system and human resources. Bad service system in the bureaucracy makes people not feel clear in the resolution of the problem. Similarly poor bureaucratic behavior in terms of service to make people not believe what had been done by the government.

 

Bureaucratic Reform and The Implementation of Good Governance

 

As mentioned in the preface, bureaucratic reform is an effort that involves structuring institutional capacity systems and bureaucratic structures in the main function as a public servant. If the bureaucracy is an instrument of political power in realizing the vision and mission of the people's mandate appropriate authorities as outlined in the form of a formal policy of bureaucratic reform should be directed towards the creation of conducive conditions in order to influence the power of a neutral bureaucracy is excessive. If sociologically bureaucracy is seen as the most rational organization that has a number of characteristics as the executor of the interaction between the government on one side and the other side of the bureaucratic reform should be directed at strengthening the characteristics mentioned, though necessarily with the exception of a number of records at the implementation stage. If the administrative bureaucracy is seen as a medium that facilitates services, emphasizing aspects of efficiency and effectiveness as well as having a clear mechanism and standardization in the interaction, then the bureaucratic reform should be directed at a number of alternative policy options such as structural reforms, capacitation and instrumentation. Now let us examine how bureaucratic reform policy design should be done in realizing the function of bureaucracy and encourage the creation of good governance.

First, organizational reforms (structural). Organization can be interpreted in two kinds, the first in a static sense, the organization as a place where collaborative activities are run. Both dynamic in the sense that the organization as a system process of interaction between the people who work both formal and informal. Further details will be more focused on understanding both the organization in a dynamic sense. It is caused by external and internal factors. Internal organization is driven by the high pressure power, while externally driven by changes in the wider environment. Both factors are dominant enough to make the government look dynamic organization. Design of structural reforms can be done by putting a strong foundation that the organization is a means to an end, not an end in itself. Understanding the differences in the management of government bureaucracy often makes no duties and functions effectively. It may be a regional leader in the perspective of the bureaucracy is the ideal tool to realize the idea in the form of a vision and mission for five years, but in the perspective of the bureaucratic apparatus is the ultimate goal with regard to how the highest position as a reflection of power can be achieved. Problems then increased when most heads actually thinking the same area with its apparatus, namely how to make the bureaucracy as a means to gain access to the overall resources available. Reform is not just a slogan oganisasi rich but poor function of the structure over the organization in the design based on need rather than political interests or a particular group. At the hierarchical level needed trimming which allows shorter structural level. Within a certain distance is required assignments that allow more efficient and effective services. At the horizontal level required a more flexible functional organ in answering completely root problems. Structural aspects of dominance had been created rigidity, in addition to a waste of time and no small expense. Hierarchical path length makes any problems seem stale when back in the community, and even harder in direct contact with the decision makers. Organizations should be prepared based on the results of job analysis and workload instead of a political compromise. It should be recognized that the preparation of organizational culture in the region have tended to practice ways in the organization of the central level. Election system has trapped the head area to reconstruct the local government organization in ways resuhffle cabinet volumes one, two and so on. Career hierarchy patterns less attention, even just an element of formality Baperjakat results in the placement of personnel in the organizational structure of local government. Removal cases secretary -level officials in the area a short time and large - scale mutations are examples that can be observed in government. As a result, government organizations show symptoms of obesity -ridden political interests of local elites making it difficult to move to reach the goal. It appears that the organization was formed to address the interests of the ruling regime not answer the problems facing society. This condition applies not only in the region but also practiced at the central level through the expansion of government organizations. Images can be seen not only in the expansion of the ministry department looked at dozens of organizations but the level of institutions , agencies and commissions. Ironically, tightening their organizations leaner and richer functionality preferably in local government policy through the central, but paradoxically in the efficiency of the organization at the level of the central government . Widening of the size of the organization without hierarchy and needs analysis workload making performance government organizations particularly impressed chubby and static. This can be seen in relation to the increase in employee recruitment every year without control based on competence. Recruitment of employees without competency in the end will only absorb the amount of the budget is not a little to increase the proficiency and skills of employees, in addition tersisihnya recruitment opportunities for employees who have an ideal competency as teachers, policy analysts, physicians, pharmacists and nurses. Posture government organizations who are overweight can certainly suck shopping apparatus greater than development spending. This reality can be found in a number of districts like Lumajang, Tasikmalaya, Sragen, Palu, Ambon and Bitung for example, where more than 70% of the budget for shopping dominant civil servant (FITRA:2011).

Second, adequate capacitation needed reforms to improve the ability of officials to serve the public. Capacitation reform is an attempt to improve the ability of the bureaucracy in the ministry of resources to be able to keep pace with the dynamics of the community. Capacitation reform relates to the ability of the bureaucracy either individually or in groups shown in the ability to translate the vision and mission, programs and activities. Capacity building for the focus on aspects of education and experience that will determine the value of professionalism in front of the public bureaucracy. Professionalism demonstrated by at least education certification from the basic level to a higher level. Aspects are offset by plenty of experience in a variety of organizations that have values ​​and core competencies. The second aspect was at least able to form individual abilities while at the same time pushing the capabilities of bureaucratic collectivism. Lack of education officials resulted in a gap between those who served and those who serve. This gap often creates tension as well as suspicion toward bureaucratic performance. Closing of educational policy development and birth of discrimination in resource development in the area a short cut through the case spawned an indication of fake diplomas and degrees in education without clear origins. To anticipate that the design needed policy reforms capacitation long-term and short-term. In the long run the necessary education based on the needs and characteristics of local government organizations. For comparison, the areas of competency-based marine, fisheries, agriculture and services, would require officials who controlled key sectors mentioned. It is important to encourage the development of more rapid and competitive area. Require local construction excellence based bureaucracy that address the challenges that arise. In the long run it takes personnel who have adequate knowledge to the preparation of action plans to implement the skills of an effective program. In the end, the higher the capacity of local governments also lower the risk to be faced in the future. Conversely the lower the capacity of local government the higher the risk to be faced. Risks and the government bureaucracy as a whole could lose public confidence.

In the short term practical policy design is needed, first, increased work incentives encouraging spirit and performance of the bureaucracy. Spirit is directed to deliver competitive value so as to create justice for bureaucratic achievement. Justice can be implemented through incentive payments based on performance appraisal bureaucracy. Equitable had only to prove that they are working and not, equally get special treatment. This fact is clearly less encouraging competition and creating inequities, including lowering rewards for those who really have professionalism. Payroll and incentive patterns that varied as ever applied to a number of local government as Jembrana regency of Bali, showing a positive impact in boosting the performance of the bureaucracy. Second, bureaucratic reform in the short term should be able to create an internal system that can drive slowly growing awareness of the bureaucracy as a public servant. Increasing awareness to produce innovation, creativity and self-reliance should be awarded proportionate to encourage the same spirit on the other apparatus. Similarly, the pattern of sanctions are needed as much as possible with the intention of fostering proportionally. Imposition of sanctions is not an end, much more important than that is the birth of a positive impact for the bureaucracy to get back on the duties and functions of each. Omission of the growth of creativity without appreciation can reduce morale to work and serve the organization. On the other hand let the same meaning with bureaucratic negligence approve arbitrariness in community service. Therefore it should be understood that the implementation of reward and punishment has strategic significance for the organization is to encourage the development of bureaucracy to be more disciplined and responsible and able to respond to the development of society, including protecting the bureaucratic apparatus of the bad behavior that interact in it. Third, it is necessary that the system externally arrangement can effectively reduce the politicization of the bureaucracy can solve the concentration apparatus in the service of society. Through the existing bureaucratic system very vulnerable intervention by local elites in order to meet the interests of certain groups in the circulation of power. In order to reduce the political interests of the bureaucracy should take distances to be neutral. This statement certainly does not easily obtained in the field of empirical, in fact on the contrary, difficult bureaucratic elites refuse stimulation for a particular candidate winning coalition. All of these consequences was of course based on the minimum transaction through strategic positions and seductive. Politicization of the bureaucracy to make the apparatus became the butt of local elites. Taking too much risk of losing distance position, too close together means that delved into more uncertainty at risk because it required an external system that can shield the bureaucracy from excessive political interests. Fourth, reform in the short term efforts directed at prevention (preventive ) behavior of corruption within the bureaucracy. So far, Indonesia's corruption perception index has not changed according to Transparency International notes, by 2.8. This suggests that the bad behavior of bureaucracy need to be repaired. Corruption is a crime that requires extraordinary efforts are extraordinary. Establishment of the Corruption Eradication Commission is intended to assist the government in minimizing the symptoms of corruption. Reflecting on China who dare to implement affirmative action for perpetrators of corruption, bureaucratic reform needed to prevent the occurrence of corruption within the government bureaucracy. Corruption is not a positive culture is growing in the community because all social norms, including religion does not tolerate that kind of bad behavior. It should be understood that the incentive system as noted earlier is not the only way in reducing corruption. Behavior of a corrupt bureaucracy tends to be motivated by environmental influences as well as domestic demand. Associated with bureaucratic reform needed a system that tightly bind heavy sanctions in addition to any action alleged. Of course in the long-term reform of the bureaucracy, including short-term difficult to do without starting from a positive cultural change towards work. Changes in work culture that begins instilling habits of the overall characteristics of good governance is expected to produce a bureaucracy that can function as a servant of the state and public servant . As a servant of the state, the bureaucracy needed to run a legitimate de jure government all political decisions. Meanwhile, as a public servant, bureaucracy requires de facto legitimacy as a connector to the interests of the ruling government. Expected positive work culture is not only transmitted to the government as well as elements of the community and the self-employed .

The third part of the reform ideas regarding reform bureaucracy instrumentation which includes preparation of regulatory legislation both at the central level to the level of local government regulations. Instrumentation serves as a cornerstone of reform policies - formal legalistic nature to avoid the public demands of bureaucratic performance. Policy foundations in general are expected to protect the government and all stakeholders in the sphere of good governance. In many cases the bureaucracy is often considered a failure to prepare the instrument for the foundation of community service. The symptoms can be seen in a number of the findings of the CPC where the local government budget expenditures in particular loses juridical basis. Reform instrumentation on a technical level at least to clarify the mechanisms and procedures by government bureaucracy. Without a standard operational procedure bureaucracy treading use instinct which in certain circumstances may be in conflict with the norms and regulations. Instead tight mechanisms and procedures to establish a culture of bureaucracy which in turn drives behavior " soar " (by pass) to speed up service. Such a situation often fertilize bribery, collusion and mafia network grows in the bureaucracy. Although the grounds of efficiency, ultimately lead to a more complex problem, namely high cost economy. Bank Century case, Athlete Dormitory up a fake letter in the Constitutional Court are clear examples in the context of the formation of mafia networks between government bureaucracy, equity holders and ordinary people. Instrumentation reforms are expected not only related to the legal basis, mechanisms and procedures are also associated with a good set of tools that allows the infrastructure bureaucracy capable of developing itself in providing quality services. Proactive service strategy through the use of available facilities and infrastructure such as information technology and transportation is an overall reform package instrumentation within the framework of the reform of the bureaucracy and the implementation of good governance. Relating to the implementation of good governance, the government has basically been much made ​​a breakthrough through the various regulations that provide opportunities implementation characteristics of good governance. One example can be seen in the policy of the Law No.32/2004 on Local Government, the principles of governance become an important cornerstone in the regional administration, although not yet fully realized can be carried out either. Another concrete example can be seen in the evaluation of the regional administration of the instrument which contains a number of variables and indicators of achievement as a reflection of the characteristics of good governance such as the juridical basis for the policy and the level of community participation. Other indicators that can be observed is the requirement of Standard Operation Procedure as a guide for any local government in carrying out the functions and duties of the field anyway. On characteristics such as transparency, openness birth to the regulation of public information by the Ministry of Communications and Information show the government's commitment in providing the widest access to the community. Characteristics consensus through planning documentation efforts and regional budgets as a form of mutual agreement between the executive and the legislature are in fact selected and represent the community itself. Equality as part of the development of the characteristics of good governance can be seen in the selection of political leaders mechanism gender friendly and open for every citizen according to the constitution and limit laws. Characteristics of efficiency and effectiveness is a principle that is always accommodated in local government legislation including regulations into derivatives, notwithstanding the fact that the principle is often violated by the local government. Strategic vision characteristics becomes absolutely necessary for any candidate when government leaders to run for public office. This strategy is done through a fit and proper requirements of tests conducted on a number of candidates for head -level officials and local leaders of institutions, agencies and commissions. The principle of accountability can be seen in a number of instruments such as PP No.3/2007 about accountability Accountability Regional Head covering LPPD, and LIPD accountability report. This principle has developed since the inception of the institution responsible for performing the evaluation and supervision of both internal, external, functional, political and public scrutiny. Submission of progress report assets held by any public official accountability and reflect the application of the principle of transparency. In fact, the declaration of character education from an early age by the Ministry of National Education is a long-term breakthrough in efforts to instill the values ​​of honesty, discipline, responsibility, transparency, equity, and accountability. All of it is within the framework of the authorized capital growth, development, and implementation characteristics of good governance. Of course all that needs further development in the face of the dynamics of democracy, politics and government in Indonesia .

 

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