Resume of Indonesian Bureaucracy

1. Definition of Bureaucracy

The term "bureaucracy" is French in origin, and combines the

French word bureau – desk or office–with the Greek word kratos –

rule or political power. government characterized by

specialization of functions, adherence to fixed rules, and a

hierarchy of authority. In the english in general, called

“civil service” by bureaucracy. It is also often called public

sector.

The bureaucracy has been included in the dictionary early in

extremely consistent.A dictionary of the french academy

nominates that term in 1978, with the power influence. Chief

of staff and the government.A dictionary, 1813 edition of the

germanic languages defining bureaucracy as authority or

ascendency the various departments of government and its

branches for themselves to their own over fellow

citizens.Technical language dictionaries define italy rising

1823 bureaucracy as the officials within the administration.

The specialists concerning what is meant by bureaucracy:

Bintoro Tjokromidjojo

According to the Bintoro Tjokromidjojo (1984) In order to

organise bureaucracy is some work that needs to be a lot of

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people.In fact, the work of a bureaucracy is to be resolved

quickly so that it ' s organized.

Blau dan Page

Blau and Page (1956) Said, a kind of bureaucracy of this

organization which aimed to achieve large administrative

duties in a systematic way of coordinating with many people.So

blau and the page, bureaucracy instead to implement the

principles of the organisation aims to enhance the efficiency

of administrative although sometimes bureaucracy often made in

the implementation of inefficiency.

Riant Nugroho Dwijowijoto

Citing Blau and Meyer, Dwijowijoto (2004) explains that the

bureaucracy is a very strong institution with the ability to

increase the potential capacity of the good things and the bad

in existence as a neutral instrument of rational

administration on a large scale. Further argued that in modern

society, that there are so many whose affairs are constantly,

just a bureaucratic able to answer it.Bureaucracy in practice

described as civil servants.

Bureaucracy under the proposed by experts are a control system

within an organization designed in accordance with the rules

of the rational and systematic and to coordinate activities

are aimed at and directs the work of individuals within the

framework of the large-scale administrative duties

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There are seven in which is contained in the bureaucracy,

namely:

1. Rational Organization

2. Organizational inefficiency

3. Rule of officials

4. Public Administration

5. Administration by officials

6. Type of organization with specific characteristic and

quality as hierarchies and rules

7. An Essential quality of modern society

Any of various kinds of sense often arises, then

systematically be classified into 3 categories:

First, bureau-rationality as in a sense Hegelian

bureaucracy and weberian bureaucracy.

Second, Bureau pathology as in a sense oleh Karl Marx,

Laski, Robert Michels, Donald P. Warwick, Michael

Crocier. Fred Luthan, dsb.

Third, Value-free it mean every big organization is

bureaucracy.

2. Bureau-rationally

A. Hegel’s View of the Bureaucracy:

Hegel argue, if citizens of a state to regulate itself as then

there will be chaos because of their citizens will fight for

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promoting the interests of subjective against other people. Itis the thesis and antithesis are found in synthetic embodiment

of state institutions..Countries to hegel is a common interest

in the society.The interests of the public ' s interest in the

well not something strange in an individual and every

citizen.Following the public interest, they actually are

defending the interests of their own.So, if an citizen comply

with the country this guy actually personalnya against the

interests of the subjective. Because for Hegel the state is

"This incarnation of freedom and rational that states

recognize itself in the form of concrete and objective. Thus

the state is an institution that is overcome and a more

perfect society. Perfection and its strength lies in the unity

of the universal purpose with specific interests of each

resident, in the fact that the citizens have obligations to

the state with the rights they acquired as a citizen of that

country.

From the description above, it appears that Hegel assumed a

priori state as serving the public interest, because it is a

synthesis of the contradictions of individual subjective and

irrational. In fact, state policies often only benefit a small

group of people in society. Hence the need for a structure

that reflects the state bridges between the public interest

and civil-society consisting of a variety of special

interests. This is the essence of the Hegelian concept of

bureaucracy Bureaucracy is seen as a bridge between the state

institutions that manifest public interest and civil-society

which manifests special interest in society.4 | P a g e

B. Weber’s View of the Bureaucracy:

Weber discuss the bureaucracy within the framework of

authority and domination.Domination discuss the authority and

power over the ability of the power to impose its will on the

territory that like or dislike.Weber authority and domination

divide into three namely:

Tradititional, charismatic, legal-rational.

Each of these forms of domination stems on the legitimacy of

different sources, with different administrative apparatus.

Source of legitimacy for the traditional dominance is the

time. The dominance of this type rely on establish beliefin the sanctity of immemorial traditions and the

legitimacy of the status of those exercising authority

under them. Administration officials are working

relatives.

Sources charismatic legitimacy stems on other sources of

legitimacy that is extraordinary personalities who have

leaders. The dominance of this type rely on devotion tothe specific and exceptional sanctity, heroism or

exemplary character of an individual person, and the

normative patterns or order revealed ordained by him.

Sources of legal-rational legitimacy stems on the rules

that are made to achieve certain goals are upheld. The

dominance of this type rely on the legality of pattern ofnormative rules and the right of those elevated to

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authority under such rules to issue commands. The future

is that the bureaucratic apparatus.

Ideal type of bureaucracy according to Weber summarized by

Martin Albrow in four main characteristics, namely:

1. A hierarchial structure involving delegation of authority

from the top the bottom of an organization.

2. A series of officials positions offices, each having

prescribed duties and responsibillities.

3. Formal rules, regulations, and standards governing

operations of the organization and behavior of its members.

4. Technically qualified personel employed on a career basis,

with promotion based on qualifications and performance.

• Characteristics of Bureaucracy

According to Weber there are at least eight characteristics of

bureaucracy, namely:

1. Organizations are arranged hierarchically

2. Each having a special area of work

3. Civil Servants consists of people who are appointed, not

elected, whereby the appointment based on qualifications

abilities, level of education, or testing.

4. A public servant receives a base salary based on position.

5. Works well as a career path.

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6. The officials / workers do not have their own offices

7. Promotions based on an assessment of existing employer

superior’s judgments.

Reviewed in political, bureaucratic characteristics according

to Weber just call these things are ideal. That is, sometimes

the pattern of employment in the bureaucracy that is supposed

to be based on the level of education or the results of the

test did not take place. This is due to the ongoing

recruitment patterns based on the interests of the government

or elements of cronyism, nepotism and patron-client

relationships.

Philosophically the Weberian paradigm, bureaucracy is a

rational organization by promoting social mechanisms "maximize

efficiency". Neutral definition of efficiency used to refer to

those aspects of administration and organization. In this

view, bureaucracy is defined as a formal institution that

plays regulatory functions, services, development, and

community empowerment. Thus, the bureaucracy in the Weberian

sense is a function of the agency to respond rationally to a

series of goals set rule. In Weber's view, the bureaucratic

paradigm neutral and value-free. There is no element of

subjectivity that goes in the implementation due to its

bureaucratic impersonality.

3. Bureau pathology

In terms of bureau-pathology, bureaucratic indolence

always associated with labor and complex procedures. Often

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regarded as a bureaucratic organization that has a cruel and

oppressive regulations strange.

A. The views of Karl Marx

Karl Marx argued that the state is only a tool of the ruling

class in feudal aristocratic class and the capitalist class in

the capitalist countries. Marx's critique of Hegel declared

that are considered abstract, just playing with logic and then

want to impose abstract conclusions that logic into empirical

reality. According to Marx, Hegel conduct methodological

errors. Supposedly the idea is acquired and removed from

empirical reality rather than vice versa. Therefore, Hegel not

spawned an analysis of these institutions. For Marx,

bureaucracy is a tool of the ruling class, the bourgeoisie and

the capitalist to exploit the proletariat. Bureaucracy is a

parasite that attaches to the existence of the ruling class

and the proletariat used to suck before . Because of the

existence of the bureaucracy associated with the class , then

after a destructive social revolution social classes and the

creation of a society classes will be gone along with the

bureaucracy .

B. The views of Robert Michels

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Robert Michels saw bureaucracy as a structure which must take

the form of oligarchy. Therefore, this view is often referred

to as The iron law of oligarkhi.

C. The views of Crocier

The views of Crocier on bureaucracy in research in France:

A bureaucratic organization is an organization that cannot

correct its behavior by learning from its errors.

4. Value-Free

Value-free is in a limited sense and not related in terms of

good and bad.

A. Almond and Powel

Limited understanding of the term is in line with

Governmental Bureaucracy. Governmental Bureaucracy is a

group of formally organized offices and duties, linked in

a complex grading subordinates to the formal role-makers.

B. Lance Castles

Bureaucracy I mean the salaried people who are charged with

the function of government. The army officers, the military

bureaucracy, are of course included. The bureaucracy of which

i am speaking does not always conform to weber’s notion of

rational bureaucracy.

C. La Palombara

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The bureaucrats of major interest to us are generally those

who occupy managerial roles, who are in some, directives

capacity either in central agencies or in the field, who are

generally described in the language of public administration

as ‘middle’ or ‘top’ management.

Thus it can be said that the bureaucracy is intended by the

overall organization of state government duty dalanm various

organizational units under government departments and non-

departmental agencies both at the central and regional levels.

Based on the differences in the basic tasks or missions that

underlie a bureaucratic organization can be divided into 3

categories:

General Government Bureaucracy,

The series of governmental organization that runs the

public administration duties including maintaining order

and security, from central to local level are the

provinces, districts, sub-districts and villages. The

task is more regulatory-function.

Development Bureaucracy

Governmental organization that runs one of the areas of

particular sectors in order to achieve the goals of

development such as agriculture, health, education,

industry. Principal function is the development function.

Bureaucracy Services

Organizational unit of government which was in essence a

part of or associated with the community. Its main

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function is lanngsung service to the community.

According to Rashid Ryaas fundamental duty of government is

divided into three (3) essential functions namely:

1. service

2. empowerment

3. development

5. The role of bureaucracy1.      Implement public service

2.      Implementing professional development

3.     Planners, implementers, and policy watchdog.

4.      Tool of government to serve the public interest and

is not part of the political forces (neutral)

6. The purpose of Bureaucracy

1. In line with government objectives

2. Implement activities and programs for the achievement of

the vision and mission of the government and state

3. Serving the community and carry out development with a

neutral and professional

4. Running government management, from planning, monitoring,

evaluation, coordination, synchronization, repressive,

preventive, anticipatory, resolution, etc.

7. Principles of Bureaucracy

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Gerth and Mills stated that the authority of the idea of

rational / legal Weber set of six principles for modern

bureaucratic system (Santosa, 2008: 8), namely:

1. Principle areas of jurisdiction of the official and

permanent, generally arranged with the rules, by laws or

administrative regulations

2. he principles concerning the hierarchy of positions and

levels of authority means a system of multilevel super-

ordination and subordination are laid out in earnest,

that there is a supervisory positions by the lower

positions higher.

3. Modern office management based on written documents are

stored. Agency officials who are actively bound in the

office "administration", along with the equipment and

personnel files of each material, compose an office.

4. Management office, at least all that dispesialisasikan

office management, and management is thus clearly a

modern, usually requires expert training and a thorough.

5. When the office is fully developed, the activities office

requesting a full working capacity of the officials. At

first in all things, under normal circumstances; official

business derived as a secondary activity..

6. Management office following the general rules, which is

more or less stable, more or less tiring, and that can be

learned. Knowledge of these rules implies a special

technical learning which the officials have. The

learning, involves jurisprudence, or business management

or administrative.

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The principles (azas) of bureaucracy

Implementation of the task in the bureaucratic affairs based

on the two principles:

Principle of Legality - meaning there is no policy by

officials without legal basis or statutory provisions

applicable. 

Principle of Discretion - meaning authorities may not

refuse to take the decision on the grounds that there are

no set rules. Officers may make decisions based on the

opinions provided that does not violate existing

regulations (principle of legality).

8. Bureaucracy Approach

According to Ferrel Heady, vagueness in the theory of

bureaucracy to the differences in approach in describing the

characteristics of the bureaucracy and the failure to capture

the differences in how to approach it. Heady indicate the

presence of three kinds of approaches in formulating

bureaucracy, namely:

1. Structural approach

Formulate bureaucracy through a structural approach is the

most dominant tendency. In this context the most appropriate

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formulation has been given by Victor Thomson, who regarded

bureaucracy as an arrangement that consists of a hierarchy of

authority and division of labor are itemized in detail.

2. Behavioral approach

adding behavioral characteristics on the structural

characteristics of bureaucracy.

Carl Joachim Fredrich stressed "the importance of objectivity,

separation, accuracy and consistency of the functional size of

associated with administration officials."

Robert Merton emphasizes "dysfunctional tendencies that cause

frustration in realizing the objectives of the organization

include, among others, stiffness, reluctance to delegate

authority and shut down."

Robert Merton (1957) who developed the concept of “unintended

consequences” to describe the unplanned and paradoxical result

of social action. Merton’s concept has special relevance for

rational bureaucracy because there is supposed to be a clear

and direct connection between the actions of organizational

participants and the achievement of goals. Organizational

behavior is viewed ad the means to achieve the prescribed

ends. If organizational behavior produces unexpected and

unintended consequences, the rationality of enterprise can be

called into question.

Merton’s analysis of the “burecratic personality” stands as

the classic statement on the dysfunctional consequences of

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bureaucracy. The normative attachment to formal rules and

regulations, which bureaucratic organizations often encourage,

can give rise to a rigid bureaucratic personality type that

becomes obsessed with procedural compliance. Merton’s analysis

pointed to the way that bureaucratic structure influences (1)

The individual’s personality and (2) The ability of the

organization to achieve its ultimate objectives. Thus, Merton

releaved the key organizational paradox-strict and rigid

conformity to formal methods can have the unintended

consequence of displacing goals and undermining goal

attainment.

Michael Crozier gives the term "The Malady of Bereucrac" is

intended to show the adaptation vang imprecision associated

with the development of the humanitarian aspects of the

organization."

3. The approach of the Goal

Peter Blau, "define a bureaucracy in the achievement of

organizational goals, bureaucracy is seen as an orqanisasi

which maximizes efficiency in administration or one method of

institutionalizing social Behaviour organized within the

framework of achieving efficiencies". Peter Blau (1955) study

of federal and state bureaucratic agencies reported findings

consistent with the patterns observed by Gouldner. Blau

brought a “functional approach” to his analysis that focused

upon the consequences of bureaucratic actions and routines. He

was primaly concerned with determining whether bureaucratic

procedures accomplished agency objectives and produced the

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excepted organizational behavior. According to Blau, this

pattern of receptionist behavior could be attributed to the

design of the agency as a service organization for people in

need of assistance. Further, face-to-face interaction made it

difficult to apply impersonal scheduling rules. This is also a

clear example of how organizational behavior, in violation of

formal protocol, emerges out of the human interactions that

take place in a context where actions are highly symbolic.

The studies of Blau and Gouldner point to a much more

complicated picture that demonstrates the human capacities for

innovation, resistance and agency in bureaucratic

organizations. Workers employ alternative menas to achieve

goals, they force supervisory personnel to revise strategies

for compliance and their actions generate tensions that result

in the reformulationof bureaucratic procedures.

9. Bureaucratic Model

Classical Model of Bureaucracy

Bureaucracy is an effort in organizing the various jobs that

held regularly . This work not only involves many personnel

(bureaucrats), but also consists of a variety of tasks in the

implementation of government regulations . Bureaucracy of

government required that the implementation of the tasks

accomplished efficiently , effectively and economically .

In trying to understand more clearly the bureaucratic sense,

then presented the characteristics of Max Weber's ideal

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(Frederickson,1984) is known as one of the characters in the

classic bureaucratic flow (or traditional flow). These

characteristics, among others : a bureaucracy composed of a

variety of activities, implementation of activities based on

consistent rules, positions in the organization are arranged

in the form of a hierarchy, task execution with impersonality,

bureaucratic recruitment system based on system skills

(career) and adopts a specialization, and governance performed

centrally (centralization).

Although many criticized this classic bureaucracy, but until

now, remained there some characteristic of this model is to

survive in the government bureaucracy . Among other

weaknesses, such as too rigidity of rules that accompany this

model , causing many experts who do research for perfecting.

figure: Taylor, Wilson, Weber,Gullick Urwick

Neo Model of Bureaucracy

Model of neo-bureaucratic approach is one model in era

behavioral. Value is maximized efficiency, economy, and a high

level of rationalism governance. The unit of analysis more

focused on the function of "decision making" in government

organizations.

In this decision making process, his thought pattern is "

rational " ; decisions that are made wherever possible

rationally to achieve objectives of the government; decision

making model based on the principles of modern management;

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approach in making decisions based on the analysis of the

system, and in using research in practice.

The advantages of this model, has been widely demonstrated

through the " unit of analysis " which is based on management

science techniques that have been well established as the

completeness of problem solving in many large organizations,

including government and military organizations. Scientific

management techniques have been widely used in the budgeting,

project scheduling, inventory management, program planning

staff , as well as product development to achieve high

productivity. Behind its advantages, it also has many

weaknesses, among others, not all problems can be converted

into numbers of government in applying the principles of

scientific management as expected in the application of this

model.

figures: Simon, Cyert, March,Gore

Institutional Model

Institutional model is the embodiment of an era

behavioralisme. Characteristics, among other empirical. In

addition to pay attention to the internal aspect, also the

external aspects, such as cultural aspects also become a major

concern in the study of the organization of government (an

open system).

The adherents of this model are more interested in studying

the organization of government for what it is (neutral),

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compared filed recipe improvement (intervention) to be done in

improving the performance of government organizations.

Nevertheless, the work of the adherents of the flow figures

are very instrumental in the development of organizational

theory, because the results of previous work there tend to

analyze the organization of the "closed system" without taking

into account external aspects of the organization, which in

reality is crucial to the performance of government

organizations.

Figures: lindbloom, J. Thompson, Mosher, Blau, Riggs

Human Relations Model

Model of human relations criticized bureaucratic models.

Former component, namely the bureaucratic model of classical

and neo-bureaucratic models too formalize all activities

within government organizations. Model of human relationships

seen empirically, that turned out to be too rigid rules, can

lead to boredom people (bureaucrats) to work within the

organization.

The characteristics of this model, among others, saw the need

for attention; interpersonal relations, group dynamics,

communication, unnecessary penalties evenly, training,

motivation to work in the administration of government

bureaucracy. In line with these characteristics, then the

value is maximized job satisfaction, personal development,

self-esteem individuals in government organizations.This model

still advocate the need for supervision, but not strictly

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necessary and equitable to all members of the organization.

Only those who require supervision is that needs to be given.

The most important thing to do is to fix the system of work

organization in order to create an atmosphere that allows

members of the organization can relate well with co-workers in

order to create an atmosphere that can enhance innovation of

government officers.

Figures: Mcgregor , Argyris

Public Relations Model

Bureaucratic model of public option is the most advanced

approach in governance . This approach still many are

theoretical rather than empirical evidence on the ground. The

recipes contained in governance is most ideal, but evidence of

its application is still relatively rare. This is partly

because the approach is relatively young age.

Characteristics, among others, is more anti- bureaucratic,

based on the distribution of services, decentralization, and

bargain-oriented clients. There are various prerequisites that

should be met in the application of this model, among others:

(1) the political system must be able to guarantee the

participation in an opinion objectively and responsibly, (2)

the system of administration that is always dynamic, capable

of adjusting to the constantly changing functions, (3)

bureaucrats should be able to self-correct, and (4) there are

concrete steps that need to be done in the effectiveness of

community development, among others, are critical in terms of

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raising awareness of politics at various levels of society.

This step is carried out in the event of communication that

"dialogue" between policy-makers and public service users.

Figures: Ostrom, Buchanan, Olson, Oppenheimer

10. Weaknesses and Problems in Bureaucracy

1. Bureaucratic weaknesses lie in :

a. standard-setting efficiencies that can be implemented

functionally

b. over-emphasize aspects of rationality, impersonality

and hierarchy

c. bureaucratic tendency to distort organizational

objectives

d. enactment of red tape in organizational life

2. Weaknesses contained in the bureaucracy does not

actually mean that the bureaucracy is a form of

organization that is negative, but as stated by K. Merton

is more of a "bureaucratic dysfunction" with its main

characteristics "trained incapacity".

3. Efforts to improve the appearance of red tape

bureaucracy theory presented in the form of representative

system. Assumption used is that bureaucrats influenced by

the view of the values of the social group to which it

belongs. In turn, the administrative activities oriented

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towards the interests of social groups. Meanwhile, internal

controls can not be executed. So with bureaucratic

representation system is expected to be applied to those

under the internal mechanism. The theory of representative

bureaucracy system is conceptually very stimulating, but it

is impossible to apply. Because this theory is not

realistic, it is not clear representation criteria,

emotional and neglect the role of education.

4. Reluctance to acknowledge the existence of a conflict

between the authorities arranged hierarchically and

difficult to connect with the bureaucratization process of

modernization that took place in developing countries.

5. Cause of line to something affairs or processes.

According to Weber's bureaucratic structure given by

Etzioni in his book, recording system needs to be done to

record all actions, decisions and regulations. Regulation

is what actually causes the "red tape" you indulge trip he

led to the affairs of the documentation to be slow.

11. Bureaucracy Pathology

Prof. Dr.. Sondra P. Siagian MPA in his book "Pathology

Bureaucracy: Analysis, Identification and Treatment" (1994)

describe a series of examples of disease (pathology)

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bureaucracy prevalent. The disease can be categorized into

five types:

1. Pathologies arising from the perceptions and styles of

managerial officials within the bureaucracy. example:

Pobia to criticism

Corruption, collusion, nepotism

Maintaining the status quo

extravagant and luxurious lifestyles

Arrogant and overbearing

Feel free to make decisions

it is unfair and intimidation

2. Pathologies that arise due to lack of skill or lack of

knowledge of the executive officers of various

operational activities

3. Pathologies arising due to the actions of the members

of the bureaucracy violate legal norms and regulations

that apply

4. Pathology is manifested in the behavior of the

bureaucracy that is dysfunctional or negative

5. Pathology is due to the internal situation in the

various agencies within the government

Here are the solutions of pathology in the bureaucracy in

Indonesia in building public service that is efficient,

responsive, and accountable and transparent development policy

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should be established that guide the behavior of the

government bureaucracy as follows:

1. In connection with patterned patron-client does not

have a clear service standards/definite. Need to make

regulations policies in favor of public service to the

people

2. performance is complicated and intricate, necessary

restructuring of the public service brokrasi

3. To overcome Corruption, Collusion and Nepotism in

addition to the above legislation is expected in the

field of government set infomatika (IT) as part of the

development and utilization of e-Government that public

services are transparency and mutual control.

4. Each of the provinces and districts are required to

make regulations clear areas in a balanced set of rights

and obligations of providers and users of public

services.

5. Each area required Ombudsman institutions. These

institutions could serve the citizens want give the

excellent service. Ombusman must be given sufficient

authority to conduct investigations and seek a fair

settlement of disputes between service users and

providers of public services in the process.

6. The role of the quality of personnel resources greatly

affects the quality of service, to the cognitive ability

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and intelligence derived from the experience, skill or

skills, supported by attitude is a factor that can be

used to solve the problem of bureaucratic pathology or

disease-related public services in Indonesia . For this

training program is expected to be sustained in order to

own personnel resources inteltual intelligence, emotional

and spiritual as a cornerstone in the public service.

The issue of bureaucratic pathology or disease comes from the

recruitment and placement of bureaucrats that are not based on

merit system (based on a career path). Moreover bureaucratic

involvement in politics is regarded as things to look out for

the bureaucracy is not an institution or agency that can

represent

The interests of certain groups. At the macro or national

bureaucratic problems in Indonesia is dominated due to the

lack of a clear separation or segresi between political and

administrative interests. Still bureaucrats often found

actively involved in political activities and also the

presence of politicians who have dominated the process -

bureaucratic process so as bureaucratic measures taken in a

political policy of the - people who have a particular

interest. So it is necessary to influence the political

neutrality of the bureaucracy.

12. Bureaucratic Netrality

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Bureaucratic neutrality is government bureaucracy and the

political forces favoring the dominant group called apolitic

political terms, that eternal service and devotion to the

government and to the entire community or as civil servants

and public servant (Miftah Thoha, 1990). The relationship

between bureaucracy and politics has become a classic theme in

the study of public administration. Where emerging concept of

dichotomy between the Political Administration by Woodrow

Wilson. He explained that politics and administration are in

two different positions. Political concerns how to make public

policy while the administration (bureaucracy) relating to the

implementation of public policy. Traveling public

administration is inseparable with the development of

political science. Therefore, political science became an

integral part of the science of the State administration.

Study of bureaucracy and politics , recalling past

relationship between the science of the State administration

with political science. Both these disciplines have the

different realms, but in practice the two are difficult to

distinguish science. Sometimes the two are mutually supportive

even inhibit each other. Seeing the current state of the

dynamics between the bureaucracy and politics are very

complicated. However, a combination of both if placed in the

right position still has a chance to get good governance.

In Indonesia, Bureaucracy as a key development tool.

Bureaucracy has a position and a strategic role because it

controls many aspects of the lives of the people. Start of

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affairs of births, marriages, businesses, until the death of

affairs, people can not escape from the level of bureaucracy.

Bureaucratic control of access to natural resources, budget,

personnel, projects, and master the knowledge and access to

information that is not owned by other parties. The

bureaucracy also plays an important role in the formulation,

implementation, and monitoring of public policies, including

the evaluation of its performance. It is logical that in every

political development, there is always an interesting attempt

at bureaucratic political game area. Bureaucracy used to

attain, maintain, or strengthen power by a certain party or

parties of power. Bureaucracy should be essentially neutral

because of his position as a public servant. Function as a

public servant is not allowed to make an impartial bureaucracy

of any interest, unless the collective interests of the

Indonesian people. In Indonesia, efforts to remove the

bureaucracy from political influence is no longer a discourse.

As mentioned above, during the presidency of Habibie, has

issued PP 5 of 1999 which stressed that the civil servants

should be neutral from a political party. Although the effort

is a step forward, but it has not been able to realize a

neutral and independent bureaucracy given the bureaucracy in

Indonesia is not yet free from the influence of government

(executive) which is political power.

13. General description of Indonesian bureaucracy

27 | P a g e

The survey Political and Economic Risk Consultancy (PERC)

recently calling the performance of Indonesian bureaucracy is

the second worst in Asia after India, is one such example.

This bureaucracy Bad service is already a chronic disease in

Indonesia . Indications of poor Indonesian bureaucracy is also

found in the IFC (International Finance Corporation),

especially in the ease of doing business such as opening a

business, registering property, accessing loans, payment of

taxes, to the propriety of the employment contract.

According to PERC, ineffective bureaucracy in Indonesia,

complicated, and prone to corruption. Overall, the results of

the survey showed Singapore and Hong Kong as the country with

the most efficient bureaucratic system in Asia. Then the row

beneath, Thailand, South Korea, Japan, Taiwan, Malaysia,

China, Vietnam, Philippines, Indonesia, and India. In the era

of reform, democracy is a form of government that aspired

throughout the world began to grow in Indonesia. Along with

that, the bureaucracy which has a wide range of basic moral in

it, such as the belief in the value and dignity of human

beings, human freedom, the rule of law is certain, the basis

of consultation, and the principle of improvement also began

to grow. However, understanding the properties and negative in

the previous era, such as slow, rigid, closed, and corruptive

still remain. Indonesian bureaucracy current problems can not

be separated from the low quality of human resources

bureaucracy; morale and awareness of the duties and

responsibilities of a low, inadequate understanding of the

focus of the purpose of his duties; weak coordination

28 | P a g e

functions; very fat bureaucratic organization; still high

culture of corruption, and poor understanding of the above

duties as a public servant. Seeing the bureaucratic problems

now, then when the bureaucracy as a "government" that works

for the interests of the people to work, bureaucracy should be

in a neutral position. If the position can not be fully

achieved, at least should have independence bureaucracy as an

institution of standing to defend public interest to improve

themselves as a "public servant".

Correspondingly, Indonesia should build its bureaucracy before

economic and political development, because the bureaucracy is

a major force to carry out other development. With the PERC

survey recently, this nation was expected to be awaken that

chronic disease is still there in front of and need for

treatment.

Not easy to identify the appearance of the Indonesian

bureaucracy. However it should be noted again, that the

organization in principle cored rationality with common

criteria, such as effectiveness, efficiency, and the same

service to the community. There are several aspects to the

appearance of the bureaucracy in Indonesia, among others:

1. Centralized strong enough

Centralization is actually one of the common traits inherent

in rational bureaucracy. In Indonesia, a very strong tendency

of centralization is one aspect that stands out in the

government bureaucracy appearance. This is because the

government bureaucracy work and thrive in an environment that

is conducive to life and developing the centralized values.

29 | P a g e

2. Assessing high uniformity and bureaucratic structure

Just as centralization, uniformity in the structure is also

one of the common traits that are often inherent in any

bureaucratic organization. In Indonesia, the uniformity or

similarity of form composition, number of units, and each unit

name so prominently in the bureaucratic structure of

government bureaucracy.

3. Delegation of authority are blurred

In the Indonesian bureaucracy, delegation of authority seems

to still be a problem. Although the structure of government

bureaucracy in Indonesia is hierarchical, the breakdown of

authority in practice very difficult dilaksanankan level. In

fact, every decision is very dependent on the highest

leadership in the bureaucracy. While the relationship between

the levels of the bureaucracy characterized by a pattern of

personal relationships.

4 . Difficulty preparing job descriptions and job analysis

Although the formulation of job descriptions in the

bureaucracy is a very real need, rarely do we have a complete

bureaucracy. If adasering followed consistently . In addition

to barriers related to technical skills in drafting perceived

barriers is the reluctance defined it completely. Another

difficulty faced by the bureaucracy in Indonesia is the

difficulty in formulating functional position. Basically,

functional positions will thrive when supported by a clear

30 | P a g e

formulation of the task as well as specialization in tasks and

work that has been formulated jelaas anyway. In addition,

there are many other aspects that stand out in the bureaucracy

in Indonesia, including the balance in the distribution of

income, namely the difference between the huge income

employees in the highest and lowest levels.

Another thing that is quite interesting and can be found in

the appearance of the Indonesian government bureaucracy

presence ceremonies formalistic and personal relationships.

Personal relationships have a place in a highly bureaucratic

culture in Indonesia, due to the existence of a personal

relationship with the key person many difficult issues becomes

easy or otherwise. It can be said that the bureaucracy in our

country is not good and there are many that need to be

repaired.

There are three preconditions that must be considered in

developing an effective organization of government bureaucracy

in accordance with the demands of the times. Three things that

are:

1 . The spirit of decentralization and autonomy as the

embodiment of the system of democratic governance.

Decentralization and autonomy means giving the government more

confidence and empowerment to be able to govern and regional

autonomy in addressing the issues.

2 . Changes in the political system that is much different

from the state of the political system in the administration

of the new order.

31 | P a g e

Changing political system of the administration of the new

order makes us aware that the increasing number of political

parties, the more the desire of political parties rule the

government bureaucracy. Therefore, it is necessary to regulate

the working relationship between the system of political

office, public office, and the office of career government

bureaucracy.

3. The economic crisis which resulted in the budget deficit.

The size of the organization will impact the growing number of

government budget. Create a budget crisis the government must

downsize, one of which is to evaluate the organization, work

programs, and number of employees.

If these preconditions have been seen in our bureaucracy so

there needs to be a movement Bureaucratic Reform.

14. Reform of Bureaucracy

In the reform era, the bureaucracy required to change

attitudes and behaviors in order to serve the public well.

Social changes that occur both rapid (revolution) or occurs

very slowly (evolution) demands on bureaucratic organization

to be able to adjust to these changes, because change is

always an element of difference.

Osborne and Plastrik (1997) suggested that social realities,

politics and economics faced by States emerging social reality

is often different from that found in people in developed

countries. The empirical reality also applies to government

bureaucracy, where the condition of the bureaucracy in the

32 | P a g e

State - Developing countries today is a state bureaucracy

faced by reformers in the country - developed countries in the

past ten decades. Bureaucratic problems in developing

countries, such as rampant corruption, the influence of

partisan political interests, Patron - client systems are

becoming the norm bureaucracy so that more recruitment

patterns based on personal relationships rather than

capability factor, as well as the government bureaucracy that

is used by the public as a favorite place to look for a job

partly bureaucratic phenomenon found in many developing

countries, including in Indonesia. Starting from the problems

and the changes it needs to make a move changes the government

called Bureaucratic Reform. Bureaucratic Reform purpose is to

form a professional bureaucracy, with characteristics:

adaptive, integrated, high-performance, free and clear of

corruption, capable of serving the public, neutral, dedicated,

and uphold the basic values and code of ethics of the state

apparatus and the target is to build a bureaucracy

Bureaucratic Reform oriented on results (outcomes) through

changes in a planned, gradual, and integrated from a variety

of strategic aspects of bureaucracy.

A. Bureaucratic Reform Challenge

Minister of State for Administrative Reform and Bureaucratic

Reform ( PAN - RB ) , Anwar Abubakar revealed, The fifth issue

in reforming the bureaucracy ,

• the organization and functions of the authority are not

appropriate and targeted33 | P a g e

• public services not yet meet the needs and satisfaction of

community

• mindset and work culture does not yet support the

bureaucracy that is efficient, effective, productive, and

professional service

• legislation that overlap ,

• HR bureaucratic apparatus .

a) The organization and functions of the authority are not

appropriate and targeted

The amount of bureaucracy

Generally, in developing countries there is a paradoxical

situation , on the one hand and a shortage of qualified staff

to be honest , on the other hand there is a tendency to grow

out of balance , causing subtle unemployment ( disguised

unemployment ) due to an excess of employees who do not meet

the criteria and standards that have been set. From the

opinions of the experts below outlined several factors that

resulted in the number of civil servants or government

officials is very large :

In general, the implementation of development in

developing countries and its economic growth rate is

still low so as not to create a lot of jobs , especially

in the production sector , so that all the attention

devoted wants to be a civil servant , although with a low

salary . Moreover, if a developing country does not have

34 | P a g e

the resources that can be explored and can invite

investors , the development is also limited thus causing

less able to absorb labor .

Due to the lack of absorptive capacity in the receiving

country labor , the unemployment problem is still an

obstacle faced by the majority of developing countries.

To reduce unemployment and reduce crime possible by the

unemployed who mostly have low education levels and do

not have the skills, the government recruited them as

much as possible. This was done solely intended to be of

strategic importance, so it is less concerned with the

desired level of expertise in any new hiring.

There is a tendency for people who have become servants

to pull his brother to become civil servants as well.

This kind of solidarity is done because in general do to

help his brother and to be regarded as a god penyelemat

family or extended family because they may be less

capable of family. So for those who have occupied

positions in the civil service there is a sense of a

desire to help his brother. These conditions will be

prone to corruption because such methods can violate the

rules or procedures in the acceptance of candidates.

Moreover, when hiring new information he has so quietly

he told his brother if there is recruitment, and not

publicly announced in the media.

For some people, occupying positions in the civil service

has a higher degree , and proud if called as a civil

servant, despite the low salary. The important thing is

35 | P a g e

that the status can be owned and prides himself. It can

not be denied that notion and still exist today,

especially for elderly people who live in rural areas.

They generally do not send their children to school

directed at professional or vocational fields, but all

areas related to office work, especially government

offices. However, this view has been further reduced to

Indonesia because rational view that appears where the

status of civil servants are becoming obsolete and even

proud to be private sector employees with relatively high

salaries , despite having to work until the evening .

b ) needs of public service and community not satisfaction

Care Issues

The loss of public expectation that the bureaucracy will be

able to provide service to resolve the issue, cause people are

reluctant to deal with government bureaucracy proved by the

"backdoor ", "speed money ", "highway" and so they call the "bureaucratic

envelope" - the essentially cut procedures to obtain services on

a long procedure of the government bureaucracy.

Poor performance of the reign of bureaucracy in providing

public services, illustrates how the complex issues that are

so mechanistic, bureaucratic organizations are faced with

issues that are so heterogeneous society , such conditions

lead to bureaucratic organizations to form a pattern that is

used to divide the service to the society.

First, is the same pattern for all services, this pattern is

limited in this area, due to the limited ability of government

36 | P a g e

services that can not be used equally by all citizens. This

leads to the type of service in this pattern is initially for

all . Because of the limitations that exist precisely to

design patterns for meet the needs of a particular group of

people.

Second, the pattern of the same service are proporsion al for

all, in this pattern suggests a distribution service based on

a certain characteristic related needs. This condition appears

more pragmatic because it provides a basic service pattern and

a more concrete objective to be distributed to the public. On

the other hand it allows the service pattern can provision

services that are better suited to the needs of the community

c) mindset and work culture doesn’t support the bureaucracy

that is efficient, effective , productive , and professional

service

Culture paternalism

The mindset is a collection of thoughts that occur multiple

times in different places and times as well as the beliefs and

projections that can certainly be true in every place and the

same time (Ibrahim Elfiky). One's mindset can influence and

work orientation culture. In the bureaucracy, as well as other

organizations do not escape the influence of the cultural

environment, the activity is also involved intensively through

interaction patterns formed therein with the local culture and

value systems. Bureaucratic culture grown in a specified area

can not be separated from the cultural patterns surrounding

social environment. Accordingly, Agus Dwiyanto (2002 ) argues

that :37 | P a g e

"The culture of bureaucracy can be described as a system

or set of values that has a symbol, value orientations,

beliefs, knowledge and experience that is internalized

into the life of the mind. The set of values actualized

in attitudes, behavior and actions committed by any

member of an organization called bureaucracy. Every

aspect of the life of bureaucratic organizations are

always in contact with aspects of local culture " .

Character and bureaucratic models that have been developed in

Indonesia is essentially a form of interaction that exists in

the environment, both concerning the political, cultural,

social, and economic. In this context , the culture of

paternalism in the performance of government bureaucracy

refers to the relationship between the leadership as the most

dominant when compared with the public as users of services,

so that the pattern is seen as a hierarchical relationship.

Party officials or bureaucratic leadership placed more

dominant than subordinate officers, because they a leader must

be able to provide protection against subordinates.

In this context, paternalism has two dimensions:

First, the relationship between bureaucracy paternalism with

the community . Second, the relationship of paternalism that

occurs between leaders and subordinates in an organization

The first is more paternalism refers to external relations,

while the second is more emphasis on the relationships that

are internal. The nature of the bureaucratic culture dualism

38 | P a g e

is reflected in the delivery of public services, the

bureaucracy has a different value orientation and

contradictory. On the one hand, the bureaucracy required to be

loyal to the leadership and on the other hand are required to

actualize, the principle of public servants, as service

providers to the community and should be concerned with the

communities it serves.

Culture of paternalism that continues to exist in the

government bureaucracy less influenced by factors both

internal and external personnel or bureaucrats themselves are:

1. Employee Internal Factors

Employee mentality which can reduce the ability of authorities

to act optimally in the workplace, among others, can be seen

through some of the attitudes that are :

• Mental attitude oriented spending rather than produce. The

bureaucrats assume that the budget and the facilities they are

owned by the state so they do not bother to properly manage

let alone add value to these assets . They even tend to be

careless in the manage those assets.

• Attitudes asked to be served, not serving . A little more in

Indonesia, this is a legacy of the past to understand both the

kingdom that puts bureaucrats as gentry, as well as the

colonial era that puts bureaucrats as Ambtenaar who has the

rights and special status.

39 | P a g e

• Motivation bureaucrats are generally wrong (do not

understand and do not conform to the basic nature of the task

bureaucratic institutions). They signed up to be an employee

not to serve and serve, but rather seek status and salary, so

of course when they work , they do not correspond to the

orientation of the task and the main functions of the

bureaucracy.

All of the mental attitude of the negative impact a lack of

professionalism in the bureaucratic apparatus to work, so they

are not able (capable) in performing their duties properly.

2 . External Factors employee

Employees External factors can be seen from the mental

attitude of the people is character, pattern of thinking

people who always has a correlation with the external

environment, which is essentially an interwoven interaction

with the environment, both concerning the political,

cultural , social , and economic in carrying bureaucratic

tasks well. However, among the aforementioned attitude there

is still an attitude or mindset of the people who inhibit

development include:

Apathy (non-participatory and permissive), which does not

care and do not want to know of anything going on around

him, including what happens to the bureaucracy.

•Mentality bypass (hedonistic and pragmatic) do not want

40 | P a g e

to be bothered and tend to find only tasty, so it would

fertilize extortion and collusion (Koentjoroningrat,in

Setiono,2000)

• Sense of community excessive dependence on the

bureaucracy, so willing to accept a variety of treatments

that deviate. At the local level we are aware of the

demands of local autonomy became stronger, while in the

global context we know that various changes happening

rapidly throughout the world, both in terms of science

and technology, information systems, trade policy, and so

on. These changes led to the birth of the concept of

globalization, free trade, the increasing intensity of

the relationship between polarization and inter- state

economy.

d) Legislation overlapping

Some of the legislation in the field of state apparatus still

overlapping, inconsistent, vague, and open to multiple

interpretations. In addition, there is no conflict between the

laws and regulations with each other, both are equal and the

higher regulatory regulations or the rules underneath the

center with local regulations. In addition , many laws and

regulations that have not adapted to the changing dynamics of

governance and the demands of society.

e ) human resource bureaucrats

41 | P a g e

HR Indonesian state apparatus (PNS) currently amounts to

4,732,472 people

(BKN Data as of May 2010). The main problem is the allocation

of human resources of the country in terms of quantity,

quality , and distribution of civil servants according to the

territorial (regional) are not balanced, and the still low

level of productivity of civil servants. Management of human

resources have not been optimally implemented to improve the

professionalism, employee performance, and organization.

In addition, civil servants payroll system is not based on the

weight of the job / position obtained from the evaluation

office. The basic salary is determined by class / rank does

not fully reflect the burden of duties and responsibilities.

Performance benefits have not been fully associated with the

work performance and retirement benefits not guarantee well-

being.

B. Bureaucratic Reform Strategy

Implementation of bureaucratic reform the government must be

able to drive improvements and performance enhancements

government bureaucracy, both national and local. Performance

is increased when there is a strong motivation as a whole,

both at central and regional levels. Motivation will appear if

any programs / activities undertaken produce output, value

added, the results (outcomes), and benefits (benefits) better

from year to year, accompanied by a system of reward and

punishment are implemented consistent and sustainable. Key to

42 | P a g e

the successful implementation of bureaucratic reform lies in

the following :

a. National commitment

National commitment shown by the Law No. 17 Year 2007 on RPJPN

2005-2025 , Presidential Regulation No. 5 of 2010 on RPJMN

2010-2014 confirms the bureaucratic reform as a top priority,

and Presidential Decree No. 14 Year 2010 on the Establishment

of Administrative Reforms Steering Committee National and

National Bureaucracy Reform team, as amended by Presidential

Decree No. 23 of 2010.

b . Booster of Bureaucratic Reform

Bureaucratic reformers nationwide is the National Bureaucracy

Reform Steering Committee chaired by the Vice President of the

Republic of Indonesia, National Bureaucracy Reform Team led by

the Minister of State for Administrative Reform and

Bureaucratic Reform Management Unit, assisted by the National

Bureaucracy Reform, Independent Team and Quality Assurance

Team. Furthermore, it is a bureaucratic institutional

reformers leader and the local government . Bureaucratic

reformers must be resilient to challenges and obstacles and

have the power break and creativity to implement

groundbreaking programs, either horizontally or vertically.

c . Charge Bureaucratic Reform

43 | P a g e

Charge bureaucratic reform formulated in GDRB 2010-2025 ,

2010-2014 RMRB , RMRB 2015-2019, and 2020-2024 RMRB .

Implementation of bureaucratic reform done by setting

priorities and local governments based on strategic importance

for the country and for the benefit of society. Bureaucratic

reform process is done by :

Decentralization

Each Local government make bureaucratic reform measures

with reference to GDRB RMRB 2010-2025 and 2010-2014, and

so on, according to the characteristics of each

institution.

Simultaneously and gradually Dissemination understanding

of GDRB 2010-2025 and 2010-2014 and onwards RMRB,

conducted simultaneously to all and effectiveness of

local government in the framework of achieving the target

of bureaucratic reforms. Each the local government have

different characteristics so that bureaucratic reform

carried out with a starting point and different speeds.

The same format is applied to the local governments

gradually in accordance with the readiness of each local

government.

Coordination

Bureaucratic reform measures carried out by the

coordinated nationally by reference GDRB RMRB 2010-2025

and 2010-2014 , and so on . Bureaucratic reform is

coordinated nationally by the National Bureaucracy Reform

Steering Committee, the implementation of day-to-day

44 | P a g e

conducted by the National Bureaucracy Reform Team, and

implementation of the programs implemented by the local

governments, as well as monitored and evaluated

periodically, sustained, and institutionalized.

15. Summary

There are 3 categories of meanings according to some experts ,

namely :

First, bureau-rationality as in a sense Hegelian

bureaucracy and weberian bureaucracy.

Second, Bureau pathology as in a sense oleh Karl Marx,

Laski, Robert Michels, Donald P. Warwick, Michael

Crocier. Fred Luthan, dsb.

Third, Value-free it mean every big organization is

bureaucracy.

Weber's bureaucratic style also known as "Weberian

bureaucracy". Here are some of his thoughts:

Weber believed that bureaucracy should be operated in a

hierarchical system.

According to this principle, the organization must be

organized in a strict vertical hierarchy system and

communication between office workers are restricted in

accordance.

Weber designed a bureaucratic system that has a division

of labor.

Because the flow of the classic where humans are

45 | P a g e

considered as the engine , then the division of labor

occurs in the body as machine parts, where each part has

a different job specifications.

Bureaucracy has characteristics that centralized his

power groove.

In this view, the organization is considered to be the

most effective if the central management has control over

the decision-making process and the activities of workers

.

Weber emphasized that the bureaucratic system is a closed

system.

According to Weber, the organization should have been

shut down because of the environment can interfere with

the performance of the organization.

Weber also stressed that the rules are very important in

the bureaucratic system.

According to him, all things in the organization must

have rules and regulations that go with a regular job and

formal.

The functioning of the authority (power function) which is

divided into three sections:

a. Traditionally authority, the power that comes from

traditional beliefs , such as the establishment of Queen

Elizabeth as queen of England because of the old belief .

b . Charismatic authority, the authority that is based on a

person 's ability to interact or withdraw the hearts of

others. This type of power is very unstable .

c . Rational-legal authority, power is derived from the

46 | P a g e

ability of the individual . Weber's emphasis on this type of

power because he thinks this is the basis of the functioning

of the authority .

Effective Bureaucracy Achieve Good Governance

Government bureaucracy in order to get back to the

function of providing good service in a good governance

embodies the state bureaucracy by Mohamad Ismail as an

organization need to do the following things:

1. Determination Service Standards

2. Development of Standard Operating Procedures (SOP)

3. Development of Customer Satisfaction Survey

4.Complaint Management System Development

As for the government bureaucracy itself needs to do the

following things are expensive:

Recruitment according to ability

Transfer or promotion based on competence

Exemplary in attitude and behavior

Opportunity for self-development potential

Authorizing the work

Provide appropriate rewards appropriate achievement

Enforcing discipline objectively

47 | P a g e

Create sense of enterpreneurhsip (no self-reliance

on bureaucracy).

Thus we expect the government bureaucracy can provide the best

possible service to the public in accordance with what the

functions and duties , accompanied by the hope to avoid

mistakes or shortcomings in the delivery of services that will

manifest good governance .

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Supported by Google Translate, indotranslate.com, dictionary

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