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Section 8. Education Management
M. E. Tyas Wulan Wahyu Dhati,
Y. Warella, Sri Suwitri, Endang Larasati, Public administration doctoral program Faculty of social and political sciences Diponegoro university, semarang, Indonesia E-mail: [email protected]
POLICY IMPLEMENTATION OF LEADERSHIP EDUCATIONAL TRAINING PROGRAM ON LEVEL III AND LEVEL IV IN CENTRE EDUCATIONAL TRAINING AT MINSTRY OF STATE SECRETARIAT
Abstract. One of the types of Education and Training program known as Diklat mandatory for Civil Servant or State Apparatus is the Leadership Education abbreviated as (Diklatpim). Diklatpim who became the focus of the study is Diklatpim on Level III with Echelon III Official participants and Diklapim on Level IV with the participants of the Echelon IV officials. Diklatpim as one of the competencies in leadership implemented basing on regulations of the Penitentiary Administration of the State abbreviated as (Perkam LAN). This Diklatpim known for its Diklatpim new patterns, because of the learning method, curriculum and schedule its execution in contrast to the previous Diklatpim. PerkaLAN as a guide in the conduct of the Diklatpim often have changes or patchwork. It can prove by the cancellation or revision of PerkaLAN. In addition, by issuing a circular letter (SE) head of LAN. The rules changed this, underlying the researchers to do research on the policy implementation of Diklatpim at Center for the Education and Training of Ministry of State Secretary abbreviated as Pusdiklat Kemensetneg. This research aims to describe, analyze and interpret Policy implementation of Diklatpim on Level III and IV. The results showed that the implementation of a policy of Diklatpim bases to the two regulations, namely the rules of Ministry of State Secretary and Perka LAN.
Keywords: Implementation, Policy, Education and Training Program (Diklat), Leadership Education (Diklatpim), Civil Servant.
I. Introduction of the Government's efforts in providing excellent
Bureaucratic reform on Section II in 2010, the service to the community. The bureaucracy reform,
Government stressed the importance of the applica- which is meant as a major change in governance of
tion principles of clean government and good gover- Indonesia Government Pemerintah R. I. [23], car-
nance. The applications of those principles are as one ries consequences on Government preparedness
with the range to face the 21st century. The readiness manifested by setting of the Grand Design of the bureaucracy reform as the parent containing the draft of the policy directions of implementation reform of National Bureaucracy 2010-2025 and Bureaucratic Reform Folder 2015-2019 Rood Map.
One of the programs implemented in Rood Map is the Management of Civil State Apparatus (MASN) that is transparent, competitive and merit-based, as well as career management system of policy formulation of Civil Servant. MASN were necessary given the number of civil servants all over of Indonesia is 4.375 million, of which a number of people occupying the Office of48.847 structural, and about 12.000 occupied the Office of the high leadership (JPT) Echelon I and Echelon II both in Ministry and Local Government Institutions.
Regulation of Penitentiary Administration known as Perkalan set about implementing a Leadership and Training Program includes curriculum, requirements, and terms of this power, facilities, planning, organizing, evaluation and the process of publishing a letter sign of graduated training. Competence of the ASN ACT poured in, according to Ekowanti [7, 91], translated as the regulatory process are the substance, where implementing agencies can provide analysis by means of applying the general rule in situations more concrete.
Regulation of Penitentiary Administration known as Perka LAN of the guidelines Implementation of Leadership and Training Program set implementation for officials in Echelon IV, Echelon III, Echelon II and Echelon I. Perka LAN mandatory adhered to by all institution of Training Institute which has a Government's accredit. Diklatpim implemented using this new pattern, i.e. learning system on-off campus. System on campus is a model of classical learning by doing learning in the classroom, while off campus is a learning approach to leadership practices directly in the workplace with the skills of participants in the implementing Project changes are compiled. The goal of the learning of Diklatpim
this is thought appropriate Adaptive leadership of Heifetz, Grashow, & Linsky [12]. "Adaptive leadership is the practice of mobilizing people to tackle tough challenges and thrive.
The implementation of Perka LAN implemented through the administrative units and the resources that support it. Therefore, a link connects between the formulations of policies with the policy outcomes expected. The chain closely related to the implementation of the previous policy, for tandem achieve the results expected. This chain is as a process of simple policy to achieve the goal Indiahono, Purwanto, & Pramusinto [13]. However, in practice the process is not easy. This process often experience obstacles in its implementation, such as rules that often have the turn or not in accordance with the implementation in the field.
Perka LAN change indicates that in the procedure of analysis of policy, there are things that have not dug deeper; so on its implementation problems arise. According to Dunn [5] at a time stated that when the formulation process of the problem will found a hidden assumption, mapping, and strategies to address them. So, when all assumptions, goal mapping found it will not appear the dynamics of changes in its implementation. Dynamics of Perka LAN indicates that there is no hierarchical alignment between the implementing agencies in the policy implementation, as a supporting factor in the implementation Sabatier & Mazmanian [26], the lack of coordination between vertical and horizontal agencies, sometimes causing failures in implementation Kawer, Baiquni, Keban, & Subarsono [14]. From the above two opinions, Elmore, Palumbo, & Harder [8] in Kawer et al. [14] added the need for communication role in the policy implementation.
In addition to these obstacles, the implementation of policies according to Elmore et al. [8] influenced successful by the resources. Resources include four components namely sufficient staff (number and quality), the needed information to decision making, authority to carry out enough and respon-
sibility as well as the facilities needed in the policy implementation. However, these resources have not been optimal. Problems occurred is Education and Training Program resources include a lecturer, speaker, mentor and coach has yet to mention the competence requirements mandatory possession as Widyaiswara (Lecturer) mandatory graduation and Certified Training of Trainers (TOT).
Supply to mentor, coach, and organizers have yet implemented at the beginning of the implementation of Diklatpim. A supply that is not yet implemented this Division creating a mentor and coach to become unclear. The existence of the perspective that "what's happening" based on the factors that affect the policy implementation according to (Ripley & Franklin, 1984) has yet to be anticipated by organizers especially for identify and make the specifications against the factors that affected it. Form factor means the availability of learning modules for Diklatpim yet. Whereas according to the Grindle [11] is the availability of Resources committed (resources provided), where the policies implementation must supported by good resources will support the implementation successful.
According to the aspects of disposition, Freeman, Harrison, Wicks, Parmar, & de Colle [10] in Winarno [34] if the executor has to support the implementation of the most likely policy implementation will be carried out according to plan. However, when implementing declined, due to a conflict of interest then the implementation will have constraints. Project Changes because of Diklatpim Participants, according to the circular letterhead of LAN, mandatory inclusion in the Employee's Performance Targets (SKP), as a benchmark performance. However, the participants have yet to stick with it. The commitment of the superiors to carry out the project of change because of Diklatpim in this period of the medium-long term has yet observed. This is due, among others, the unavailability of budget, changes in organizational structure, not in accordance with the policies of the organization.
II. Research method
Research conducted is descriptive qualitative, with a reveal phenomenon that occur in the field coupled with the depth of information in every phenomenon happens. This research conducted by involving researchers and informants. Data mining is done through observation and interview well-structured or unstructured, documentation, visual material Creswell [4]. While the techniques of data collection done by the method of triangulation.
III. Literature review
According to Muhlis Madani [19], public policy is a discipline in the area of State administration analysis, so the study of public policy in principle known as multidisciplinary-based studies. Public policy as a part ofscience has linkages with other sciences such as political science, legal science, Linguistics and sociology. This is emphasized by Setiadi, Rubhasy, & Hasibuan, [30], that any resulting policy, though it may seem quite narrow, generally associated with many aspects and involving many parties in the community.
The statement pointed out that public policy is complex because it related to the various aspects and the parties (actor) of policy makers. Where in the process of public policy not only emphasize on the proposed Government but also includes directions and actions taken by the Government, as expressed in the Sahya Anggara [27]. This process is a series of intellectual activity that implemented in the process activities are political. The political process is contained in the preparation of policy agenda, formulation, adoption and implementation as well as assessment Kawer et al. [14].
According to Solahuddin, Basyiroh, & Aderi [32] put forward policy implementation is part of the administrative process, which had consequences on the implementation, the content and the impact of a policy. It is corroborated by Van Meter & Van Horn [33] in Sahya Anggara [27], that implementation is the actions carried out by individuals or groups of government officials/or private directed at achievement intended purpose outlined in policy decisions.
Implementation as well as activities to distribute the output policy (to deliver policy output) conducted by the implementer to the target group (target group) as an attempt to realize the policy objectives.
It stated that implementation as stages in the policy process are among the stages of policy formulation and results of the policy. Implementation of activity consists of planning, organizing, financing, the appointment and dismissal of employees, negotiation and others at the end result of the policy implementation stages according to Randy R. Wri-hatnolo [24]. In principle is a way so that a policy can achieve its purpose. Goal achievement is emphasized by Ade Clara, Sumaryadi, & Irwan Tahir [1], required a certain means and a certain span of time.
Lawler III & Worley [16] noted that the major issues of public policy is less attention to the implementation of public policy, without effective implementation of policy makers, the decision will not be successful. To see the effectiveness implementation of the necessary is existence of the approach. According to Ferguson, Clark, III, & Sharkansky [9] implementation approaches stated that from how the conditions for the success of public policies and the second are what the main obstacles of the public policies successful. More clearly, Lawler III & Worley [16] delivered a "four critical factors or variables in implementing public policy: communication, resources, disposition or the attitudes and bureaucratic structure".
Communication, Submission policies communicated in a clear, precise and consistent. The success of the policy implementation requires that implementer knows what to do what the policy goals and objectives should transmitted to the target group so that will reduce the distortion implementation. Communication with regard to how the policy communicated to the Organization and attitude as well as the public and responses from the parties involved Nugroho [21], the policy communicated to be precise, accurate and consistent, so that policy makers and decisions implementers can be done well. This success influenced by three indicators, namely
transmission, clarity and consistency In Lepgold & Nincic [17]. Winarno [34] as transmission channel whereby policy decision makers should be aware that a decision has been made and has been issued Winarno [34]. Instructions not only accepted by the implementing policy but the policy should be clear communication Situmorang [31].
Resources, according to Lawler III & Worley [16] stated that "implementation orders may transmitted accurately, clear and consistent, but if there is lack of resources, implementation is likely to be ineffective." The intangible resources consist of as follows a) The competency implementer and the number of adequate resources, the executor must have the necessary skills to perform the j ob, especially management skills Situmorang [31]; b) information how implementer implement policies and data personnel rules adherence, c) building facilities, equipment and supplies Mutiarin [20]; d) budgetary resources, including funds and necessary equipment for operational policies and information resources and authority include relevant information and enough of policy. Authorities, vary greatly depending on the policy that implemented Kawer et al. [14].
Resources according to Lawler III & Worley [16] stated that "implementation orders may be transmitted accurately, clear and consistent, but if there is lack of resources, implementation is likely to be ineffective," the intangible resources consists of as follows Situmorang [31]. Information how implementer implement policy and personnel rules adherence data, building facilities, equipment and supplies Mutiarin [20], budgetary resources, including funds and necessary equipment for operational and policy information and resources the authority includes the relevant information and enough of policy. Authorities, vary greatly depending on the policy that implemented Kawer et al. [14].
Disposition, character, and characteristic refer to owned by the implementer of such commitment, honesty, and democratic nature Lawler III & Worley [16]. Disposition is with regard to the willingness of
the implementer to carry out public policy Nugroho, [21]. Insufficient skills are without the willingness and commitment to implement the policy Kawer et al. [14]. Willingness and seriousness in implementing the policy is influenced by the knowledge, understanding and the deepening intensity of policy and policy against Van Meter & Van Horn [33]. Bureaucratic structure has a great influence towards the implementation of the policy, namely the Standard Operating Procedure (SOP) manual for the imple-menter in the Act.
Education and Training Program is as part of its policies and practices to determine human resources in management positions. Where There is a process of persecuting, training, awards and judgments Sedarmayanti [29], training according to Latham, Wexley, & Rand [15]. "Training and development are long-term referring to planned efforts designed facilitate the acquisition of relevant skills, knowledge and attitudes by organizational members. Training as well as a planned effort of the Organization to enhance the knowledge, skills, and abilities of employees Ef-fendi Marihot Tua [6] as well as the process of teaching the specific knowledge and expertise so that the more skilled and able to carry out the responsibility to the better compliance with standards Bawono, Mangkuprawira, Daryanto, & Sarma [2]. Training is as well as one of the officers of the competence in career development Yuniarsih & Sugiharto [35].
IV. Result and discussion
Pusdiklat Kemensetneg is one of the work units at Ministry of State Secretariat, which has the task of carrying out the Organization of human resources development based on the regulation of the Minister of State Secretary Number 2 in 2011 about the Organization and Working Organization of Kemensetneg. Some regulations are intertwined and in the implementation of Diklatpim on Level III and and Level IV guidelines contained in PerkaLAN became the basis of the implementation mechanism in Diklatpim. However, the implementation dynamics with the Perka LAN experience as a guide in the imple-
mentation of Diklatpim is experiencing the dynamics within 2014 up to 2017. The dynamics of this form of annulment Perka LAN replaced with Perka LAN new Perka LAN with patchy or circular letter.
Inconsistent regulations led to the organizers or participants of the Diklatpim experience of confusion due to the complexity of the policy are quite high. These complexities often lead to the communication being inconsistent, so that the information received by the participants of Diklatpim as well as organizers become confusing or not clear. Among other rules changes in indicators of learning evaluation, the number of participants in a single class, the status of Diklatpim participants, is making use of the materials, the inclusion of the project changes in Employee performance systems (SKP).
The regulations or policies should implemented fulfill these four criterion; It wants to achieve, rational, clear and orientation forward Said, Abdullah, Uli, & Mohamed [28]. It as well as predefined Policies by parties related to implementing public policy implemented carefully and thoroughly, as well as the deviations can detected immediately, so the success of the policy objectives can be realized. One unit in the implementation of the policy according to Said et al. [28] when applied would result in the policy implementation intact and achieve goal of Diklatpim. Regulations that have yet to synergize with each other, according to an analysis presented by Bromley, [3] as hierarchy theory analysis of the formulation of public policies, that in case of discrepancies between the policies set at the policy level with the implementation in the operational level so that policy integration is needed to unite and synergize to the purpose.
Unification and integration done when the parties involved in policy formulation, namely Ministry of Administrative and Bureaucratic Reform, State Administrative Apparatus, State Apparatus Institution, and organizers coordinating agencies and sit together to formulate the regulation. So that the policy will implemented in accordance with the intended purpose and may be received clearly by target group
i.e. agencies that organizes the Diklatpim. This is in accordance with the theory of Lawler III & Worley [16] that to achieve good implementation of the need for fragmentation. Where the parties related to the policy implementation could coordinate the policy of the latter. The socializing necessity and the joint forum are involving these institutions so that utilization of apparatus could achieve.
However, ideally the regulation revision performed or cancelled in the past three years to five years after a revision of the policy. According to Nu-groho [22] "ideally in the process of policy there is assessing the findings of the control policy (review policy). It is recommended to do a minimum of 3 years and a maximum of 5 years to keep policy keep up to date for changes and contexts s up-to-date, that policy will be continued or discontinued, followed by revisions include correction". Therefore, what does being changed following the rules that already given by Sate Administrative Institution. However, the organizers sought to carry out well as set forth in the regulations. It is in accordance with the opinion from Lawler III & Worley [16], which the success of the implementation measured from the clarity and consistency of the policy.
A long bureaucratic participation in the notification of participants proved that there are obstacles that arise in implementation because the command transmits information passed through multiple layers of bureaucratic hierarchy. The bureaucracies have a tight structure and tend to be very hierarchical. Thus affecting the effectiveness of communication policy that is executed Situmorang [31]. In addition to this, participants have yet to list the project changes that he arranges into a target Employee Performance known as (SKP).
Transmission as one of the policy requirements presented by Lawler III & Worley [16] should also be communicated to the target group policy as head of the Bureau of Human Resources, and other parties concerned (Deputy, Minister, Tim Assessors), not only to participants and his superior only. Clar-
ity in communicating, interpreted that the policies that have accepted by the executor, target or other parties concerned understood clearly. In order, the implementer will know clearly the intent of the goals and objectives clearly. Perka LAN as the basis of the implementation of this Diklatpim set the fine points of their execution only.
Resources, according to the theory from Lawler III & Worley [16] was the staff, information, authority, and facilities; The number of staff who deal with Diklatpim at Education and Training Centre amount six people. The amount of course is less. The involvement of the entire officers and officials are in the implementation ofDiklatpim, very helpful in organizing. As delivered by Winarno [34] the number of staff does not always have a positive effect for the policy implementation. This proves that the number of staff that many do not automatically encourage successful implementation.
Training and coordinating as well as the socialization for the mentor and the coach have not made. Therefore, there is a difference of understanding when conducting supervision, which results in participants confused. According to Lawler III & Worley [16] implementer is expected to also have the ability to perform tasks and functions. Skills to perform tasks not only learn self-taught but also supply the form of socializing before Diklatpim started may also need done. This involves socializing between mentors, coach Organizer, Widyaiswara so that the content or the task carried out became clear, and supervision implemented effectively and efficiently.
Information Resources and Authority
However, in practice, Diklatpim energy of Widyaiswara, tutor, mentor, coach or examiner yet prevails. Tasks and authorities have notified to power Diklatpim through Warrant Deputy AA, and Warrant Pusdiklat Head. The letter contains the corresponding assignment of Tasks and the schedule of implementation, a task that will worked on. The assignment simply explained information explicitly in the letter of Assignment, the assignment but not followed by
those concerned, on the grounds there were other assignment should urgently implemented. Therefore, the organizers do a replacement person by the time of Diklatpim took place as replacement teachers.
Education and Training Centre at Ministry of State Secretariat also have an authority in the conduct of organizing that poured in Diklatpim guidebook. The code of conduct contains a prohibition, the rights and obligations of the participants. If the participant does not comply then there do the organizers award sanctions that would, either in the form of a reprimand, a warning or revocation for the following Diklatpim. This code of conduct is not listed in Perka LAN, but has the authority to drop the Pus-diklat sanctions stated by Lawler III & Worley, [16] that the human resources as the perpetrator of the policy should also have authority needed in carrying out the policy. The enforcement implement by involving all of employees in Pusdiklat. All employees observe and look, and then record and last reported on the Coordinator of the organizers in this respect is the head of the Organization of the structural Training and Educational Scholarships.
Equipment resources in terms of availability of facilities are in Diklatpim not yet available fully, consists of as follows;
1) There is no availability module in the implementation of Diklatpim on Level III and Level IV, as required in Perka LAN. Therefore, learning provided to participants is a matter of learning leadership training of TRAINERS intended for Widyaiswara. There is no availability module as learning materials as mandated in Perka LAN.
2) Internet connection that supports the Smart Web program is walking slowly. Slowness caused simultaneously participants and employees use for browsing, do on-line timesheet, evaluation download learning materials and carrying out Office work this makes internet speed be dropped, so that the process of learning to become distracted.
3) The limitation provision of tables and chairs that do not meet the requirements as expressed by
LAN namely round table and chairs Swivel, also become its own obstacle in this implementation.
4) Technological advances as supporters in the implementation of Diklatpim as part of e learning has not provided in PerkaLAN. However, Educational and Training Centre at Ministry of State Secretariat has implemented a Learning Management System (LMS).
5) Availability of microphone and audio often-experienced disturbance, so need replaced because this voice was not clear and often disrupted.
- Disposition
Disposition by Lawler III & Worley [16] defined the existence of abilities, desires and tendencies on the perpetrator's policy to implement policies in earnest. Implementer's are not only willingness to carry out the policy of not just a commitment but also a willingness to implement the existing policy. However, in the implementation of Diklatpim, the commitment not yet implemented by the executing properly, it could see on to according this explanation below:
1) The commitment of the leadership of Diklatpim participants in the run off campus have not everything can be implemented. This can prove by not all bosses giving full support at a time when the participants off campus by giving leeway time to complete their work.
2) Commitment of examiner, mentor and coach not yet optimal. It should be a commitment to carry out the duties as examiners, mentor and coach can implement from beginning to end. However, this assignment could not be executed until the end, due to other assignments from its superiors, so the assignment replaced by another.
3) The commitment of the participants and superiors to escort the project changes in the medium term and the long term has yet implemented. The commitments listed in the approval sheet signed by both sides on the actualization of project changes. The cause of the project changes cannot made on the medium and long term is a program that does not
run in accordance with the program of work units or organizations.
4) The commitment and willingness of the participants left the project to include Diklatpim change in the SKP not yet implemented entirely by alumni. Circular letter of the head of LAN Number 108/K.1./HKM 02.3 on August 7, 2017 about Commitment Statement Implementing Project Changes of post Training. Circular letter appealed to the participants and alumni to implement lists in the SKP, as benchmark performance. However, participants did not obey.
5) At the time of the execution ofDiklatpim, Ministry of State Secretariat experiences the dynamics of organizational structure. Changes in the organizational structure are as part of the organizational dynamics that occur in five years. The dynamics of the organization bring swept up in the rotation and promotion.
Bureaucracy
Lawler III & Worley [16] included bureaucratic structure, the Division of authority, the relationship between organizational units concerned and the relationships of the organization outside its organization. Bureaucratic structure includes the dimensions of Standard Operating Procedures (SOP) and fragmentation. Dimensions of fragmentation, according to Lawler III & Worley [16] was a division of central coordination and accountability, because many agencies are involved in it. A growing number of agencies are involved then the implementation of policies will tend to lack focus.
Ordinances and procedures applied by the institution to follow mandatory LAN of Diklatpim accredited. Education and Training Centre of Ministry of State Secretariat set of rules implemented by LAN without exception. However, there are some exceptions to the rules are tailored to the needs of the LAN of the Organization, such as the procedures for the selection of participants. The guidelines that set in Perka LAN and enforced throughout Indonesia are not all implemented by Education and Training Centre of Ministry of State Secretariat. The policy stated
in this SOP cannot implement at Pusdiklat due to the dynamics of an organization that is very fast rotation and promotion namely, also due to lack of Human Resources that deal with, among other things.
The intention of the inclusion of the project in the SKP due to SKP is an idea of the achievement level implementation of an activity/program/policy in realizing the goal, purpose, and mission of the Organization Mahsun, Darlis, & Aulia [18]. This performance assessment should also be part of Human Resources development policy at Ministry of State Secretariat environment. SKP judged at the end of the year, as part of the performance evaluation will provide an overview of the performance of the product against individuals and organizations. Close this performance information will feed back for fixes to organizational performance, the giving of reward, punishment, and accountability. In addition, the need for a meeting once a month to monitor the implementation of post Diklatpim with alumni, then the existence of the FGD (Focus group discussion) making your meetings and discussions with the alumni of Diklatpim participants, organizers, and (mentors). The implementation meeting will provide valid information will against project implementation changes in the medium and long term.
V. Conclusions and suggestions
Policies implementation of Diklatpim on Level III and Level IV, based on Perka LAN, not optimal at Ministry of State Secretariat. This is because the dynamics of Perka LAN which is often the case, not to its optimal communication, resources, disposition and bureaucracy. In addition, organizational changes that occurred at Ministry of State Secretariat result in a rotation and promotion so that results in Diklatpim not implemented effectively. Supporting factors in the implementation of this Diklatpim is the existence of a clear legal basis in the implementation of Diklatpim, in addition to support from the leadership that is Ministry of State Secretariat to form the LMS at Pusdiklat greatly assist in the implementation of the policy. Restricting factors in this implementation is Perka LAN
changes that often occur, and organizational dynamics that occur at Ministry of State Secretariat that caused Diklatpim not yet optimally implemented. In addition, the requirements ofbeing a mentor, coach, examiners have not provided in Perka LAN.
The dynamics of rules that often occurs in Perka LAN, should be a consideration in the making of the regulation henceforth. The involvement of other agencies such as the Ministry for Administrative and Bureaucratic Reform of the State apparatus, the Ministry of Education, Ministry of Communication and Information, State Budgetary Institution, Ministry of Interior, agency or institution of Diklat accredit to
the Central Government or local governments, colleges and other institutions such as NGOs, and communities. Regulations that support the implementation of Diklatpim on Level III and Level IV especially implementation of actualizing Project Changes associated with Individual Performance (SKP) targets, which imposes the presence of an award for successfully implementing it. The existence of sanctions for those who are not able to carry it out; The need for the establishment of the forum, officials, organizers and attendees of Diklatpim alumni are as containers to monitor, evaluate and spawn innovative ideas needed as an agent of change.
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