BIROCRACY POLITIZATION
TYPOLOGY IN STRUCTURAL
OFFICIAL REPLACEMENT (CASE STUDY IN REGIONAL GOVERNMENT OF NORTH MALUKU PROVINCE)
Bustamil Muhidin*, Suswanta
Faculty of Social and
Political Sciences, Universitas Muhammadiyah Yogyakarta, Indonesia
Email:
[email protected]*
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Article
Information |
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ABSTRACT |
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Received:
January 19, 2023 Revised:
January 30, 2023 Approved: February 17, 2023 Online: February 23, 2023 |
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The phenomenon of structural structural
change in the regional government bureaucracy is still colored by the
practice of politicization. This politicization is carried out with various
types including functional types, formal types and administrative types.
These various types are used to select and place people who are considered
capable of securing and protecting the powers of regional heads. the
study aims to find out Birocracy Politization Typology in Structural Official
Replacement in terms of functional politicization types. This study uses a qualitative method
with a case study approach. This
study found out that the change of structural officials
carried out after the election of regional heads and the deciding variable of
bureaucratic politicization is the regulation that forms the legal basis for
replacing structural officials with politicization indicators, which are
practices, mechanisms and authority in the replacement of structural officials. |
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Keywords |
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Type
of Politicization; Change of Structural
Officials; Bureaucracy
Politicization |
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INTRODUCTION
Politicization of the
bureaucracy is political intervention carried out by the ruler (incumbent) into
the bureaucracy in order to involve state civil servants in regional election
affairs, with the aim of gaining political support and maintaining power (Rakhmawanto, 2020).
This fact shows that regional heads are able to control the politicization of
the bureaucracy because in this era of regional autonomy, regional heads have a
set of authorities that can appoint and non-employ civil servants as desired.According to Rakhmawanto (2017)that, the implementation of the government system in the regions
does not clearly distinguish between political positions and career positions.
The development of the local bureaucracy still shows the strong political
influence in the government bureaucracy in the regions (Jati, 2012). The problem of transfer and dismissal of positions without any
rational reasons.
The
political reality in the change of structural officials above is a phenomenon
that can explain the meaning of politicization (Abas, 2018).
First, it defines politicization as 'political control that the government acts
as an administrative machine and civil servants of their participation in the
process of policy making and implementation of policies (Administrative
Politicization). Second, politicization refers to the process of appointing,
dismissing, and promoting civil servants based on partisan criteria, not
professional criteria (functional politicization). Three, politicization is a process
of political involvement of civil servants both as voters and citizens (formal
politicization) (Rouban, 2007).
Rouban's opinion was used by researchers as an indicator to determine the type
of bureaucratic politicization in the North Maluku Provincial Government after
the 2014 local elections.Data is collected related to how the practice of replacing
structural officials is carried out, what regulations and authorities underlie
the replacement of structural officials, and how the mechanism for changing
officials is used.
The
replacement of structural officials in the Regional Government of North Maluku
Province occurred almost every year after the 2014 Regional Head Election.
According to data from the North Maluku Province Regional Civil Service Agency,
there were approximately six changes in structural officials carried out within
5 years, namely between 2014 - 2017, there have even been three internal
changesone year. High level of restructuring is an
indication of greater politicization of the bureaucracy (Zankina, 2017).
In Government Regulation
Number 5 of 2017 concerning the management of Civil Servants, the appointment
of Civil Servants in structural positions is intended, among other things, to
foster PNS careers in structural positions and ranks in accordance with the
requirements stipulated in the applicable laws and regulations (Atsar, 2017). The
appointment of civil servants in a position is carried out based on the
principle of professionalism in accordance with the competence, work
performance and rank level determined for that position as well as other objective
requirements without discriminating against gender, ethnicity, religion, race
or class (Rakhmawanto, 2007).
Structural positions can only
be occupied by those with Civil Servants status. Structural positions, namely
positions that are explicitly in the organizational structure. The position of
structural positions is stratified from the lowest level (echelon IV/b) to the
highest (echelon I/a). A list of structural positions that often experience
mutations, rotations and demotions can be seen in the table below:
Table 1. Echelon and Structural Position according to Government Regulation
Number 13 of 2002
|
NO. |
ESELON |
Structural Position and Rank |
|||
|
Lowest |
Highest |
||||
|
Rank |
GOL/RU |
Rank |
GOL/RU |
||
|
1. |
I a |
Middle Administrator |
IV/d |
Senior
Administrator |
IV/e |
|
2. |
I b |
Junior
Administratior |
IV/c |
Senior
Administrator |
IV/e |
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3. |
II a |
Junior
Administratior |
IV/c |
Middle Administrator |
IV/d |
|
4. |
II b |
First Class
Administrator |
IV/b |
Junior
Administratior |
IV/c |
|
5. |
III a |
Administrator |
IV/a |
First Class
Administrator |
IV/b |
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6. |
III b |
First Class
Superintendent |
III/d |
Administrator |
IV/a |
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7. |
IV a |
Superintendent |
III/c |
First Class
Superintendent |
III/d |
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8. |
IV b |
First Class Junior Superintendent |
III/b |
Superintendent |
III/c |
|
9. |
V a |
Junior Superintendent |
III/a |
First Class Junior Superintendent |
III/b |
Source:
BKD North Maluku Province
Bureaucracy is an important instrument in this country as
a bridge between society and government. However, the strength of the role and function
of the bureaucracy often makes the rulers abuse the bureaucracy for political
purposes, especially to restrain power (Yamin,
2017). The era of regional autonomy
with direct regional head elections made regional heads have the right to
determine bureaucratic officials in the regions (Assyayuti,
2022). Then, bureaucratic
officials are also likely to be used to provide tools in the context of the
general election that will follow for the next period. This was stated as the
politicization of the bureaucracy to win local elections.
The process of recruiting officials in the regions is still much colored
by the practical political aspirations of the political leaders who serve as
regional heads. Government career bureaucratic officials do not have discretion
in carrying out and realizing political policies that have been carried out by
regional heads (Dwiyanto,
2021). Promotion of positions and development of
civil servants in local government is still carried out by regional heads which
should be carried out by career officials who are superiors of civil servants.
It is not uncommon for council members to intervene in determining the
promotion and recruitment of civil servants in the regions (Thoha, 2012).
That is why regional heads
who are nominated by political parties or coalitions of political parties have
never had a rule stipulating that regional heads cannot have political
connections with the political parties that carry them. The relationship between
political parties through political officials in both central and regional
government has not been thoroughly regulated (Natalia, 2015).
Career positions held by civil servants can at any time be shifted, removed,
reassigned, non-jobs by political officials who don't like them. His political
reason for not supporting himself as a regional head candidate during the
campaign. Regional heads have the right to arrange the administration of their
government like that, because they are the regional authorities or leaders (Thoha, 2012).
The politicization of
the bureaucracy is one of the main causes of the decline in the performance of
civil servants (Najam, 2019). Lack of job security
due to politically motivated decisions in recruitment, transfer and promotion
affects the bureaucracy. Lack of career planning perspective for competent and
hardworking Civil Servants de-motivated staff.
Political interference is a major contributor to the decreased efficiency of
bureaucrats. The incentive to work hard, to be fair, to be eroding efficient in
that context. Thus, the study aims to find out Birocracy
Politization Typology in Structural Official Replacement in terms of functional
politicization types.
METHODS
This research was
conducted at the Provincial Government of North Maluku. The object of research
is the type of bureaucratic politicization in the process of changing
structural officials in the North Maluku Provincial Government. The research
subjects are related officials in the North Maluku Provincial government
bureaucracy. The method used is a qualitative method (Creswell & Creswell, 2017) with a case study
approach to the replacement of structural officials by the Governor of North
Maluku during 2014-2017.Data collection used
in-depth interviews and document observation. Then the interview data were
analyzed using the Nvivo technique, and conclusions were then drawn.
RESULTS
From
the results of document processing and literature studies conducted by
researchers, it was found that forms of bureaucratic politicization in the
replacement of echelon III and IV structural officials in the North Maluku
Provincial Government and the reactions caused to this change are grouped in
the table below:
Table 2. The form of bureaucratic politicization in the
case of changing post-election structural officials
|
No |
Forms
of Politicization |
Reaction |
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1. |
The
inauguration of structural officials is not with the gubernatorial
regulations |
The boycott of government activities
by a number of employees who protested because it was considered that the
change was not based on rules. |
|
2 |
Inauguration
and removal of officials, not through SKPD and BAPERJAKAT proposals |
|
|
3 |
There
are a number of officials appointed who are still active employees in the
district/city |
|
|
4. |
There
are employees who were appointed 5 times in a row with different positions. |
Cancellation of the governor's decree
by the governor himself |
|
5 |
Employees
with class IVb become Head of Section and those with class IIId and IIIc
become Head of Division. |
|
|
6 |
There
are indications of buying and selling positions before the appointment |
|
|
7 |
Some
of the officials appointed have died |
The
table above explains, in the case of replacement of echelon III and IV
structural officials by KH. Abdul Gani Kasuba as Governor of North Maluku at
the end of his term of office or ahead of the 2018 new regional head elections,
has made changes in officials without a Governor Regulation as the basis for
the inauguration. The appointment of the echelon III and IV officials was also
carried out without going through the proposal of the Regional Apparatus Work
Unit (SKPD) and the position and rank consideration board (Baperjakat) of North
Maluku Province. Substitutions were made for a number of officials who were
still active employees in the Regency and City, officials with class IVb were
appointed as section heads and those with class III were promoted as section
heads, there were indications of buying and selling positions, and the most
fatal is the appointment of people who have died as officials. The reason for
the change of structural officials was the result of an evaluation by the
Baperjakat Team) and adjustments from several Regional Apparatus Organizations
that had undergone nomenclature changes. In fact, before the Pilgub stage was
still underway, the governor was also known to replace echelon II officials
with a closed system and not with an open system, forming a selection committee
as stipulated in regulation number 11 of 2017 concerning management of Civil
Servants.
Based
on the results of research interviews that were analyzed using the Nvivo
application, the following results were obtained:
Figure 1. Interview Results
with Sources
Source: processed by the
author using Nvivo
From
the results of Nvivo's analysis in the figure above, it shows that each of the
interviewees' answers justified the politicization of the bureaucracy related
to the process of changing structural officials in North Maluku Province after
the 2014 regional elections. The results of the above analysis can be described
as follows:
The
type of functional politicization that was carried out and implemented in the
replacement of structural officials in the North Maluku Provincial Government
bureaucracy was 25%, while the formal politicization involving civil servants
in the Pilkada was 50% and the type of administrative politicization carried
out through regulations and the governor's authority was 10%.
From
the findings of document observations about forms of bureaucratic
politicization as well as research interviews with Nvivo, researchers divide
the politicization actions that occur into several types by referring to the
types of politicization divided by Rouban (2007) about three indicators that
can explain the phenomenon of politicization in the bureaucracy, namely as
follows:
Types
of Functional Politicization in Structural Officer Change Practices
From the forms of politicization carried out,
not all politicized actions fall into the category of functional
politicization. Functional politicization is a type of politicization that
refers to the appointment, dismissal and promotion of civil servants based on
participant criteria, not professional criteria. In the case of replacement of
663 structural officials in the North Maluku Provincial Government,the filling of structural positions was greatly influenced
and dominated by the success team, in this case the loyalists of the incumbent
governor. Filling in government structural positions is influenced by groups in
society and filling positions is no longer based on competence, skills, rank
and experience considerations but is determined more by old friends, blood
relations, ethnic similarities and remuneration.
The act of placing officials
in government is also based on the element of remuneration to loyalist civil
servants without paying attention to itthe principles of a merit system, namely personnel management in the
bureaucracy which focuses more on aspects of employee competence and
competition as a basis for recruiting and promoting employees in the
bureaucracy. The application of this merit system needs to be supported by
policies regarding job classification, competency standards, performance
standards, career patterns and remuneration that encourage performance
achievement is a type of functional politicization.
The practice of replacing
structural officials in the North Maluku Provincial Government after the
2014-2017 Pilkada did not work according to Government Regulation Number 100 of
2000 concerning the Appointment of Civil Servants in structural positions (Destiana, 2012). In
Article 9 paragraph 2 it is stated that normally a transfer of duties and/or a
transfer of work areas can be carried out between 2 (two) to 5 (five) years
after a person is appointed to a structural position. However, the North Maluku
Provincial Government does this once a year, even 3 (three) times a year. The
practice of changing structural officials in the Provincial Government of North
Maluku also shows the recruitment of 'political loyalists'.
Types
of Politicization of Bureaucratic Administration in Regulations, Authorities
and Mechanisms for Changing Structural Officials Authority
The governor's authority to
replace structural officials is regulated in Law Number 23 of 2014 concerning
regional autonomy (Andrea, 2020).
Where the governor is given the authority to regulate his own area as long as
it does not conflict with applicable regulations.
The mechanism for appointing
regional government officials is fully handed over to the governor, mayor or
regent as regional heads who have full authority in appointing and appointing
officials or assistants. The full authority of regional heads in appointing
structural officials can be seen from the formation of the Position and Rank
Judgment Board Team which is tasked with inventorying employees. who have the
qualifications to occupy certain positions and propose to the regional head.
His position as regional head
has the right to approve or reject proposals from the Baperjakat Team. The
replacement of structural officials is a very important policy in the
implementation of governance by regional heads. However, the authority to
change structural officials is an absolute policy for regional heads as Civil
Service Development Officers in the regions. In fact, this authority is often
assumed to be like a "prerogative right" which is not limited to
Regional Heads to appoint, transfer or dismiss (non-job) officials. Regional
heads have the right to arrange the administration of their government like
that, because they are the regional authorities or leaders (Thoha, 2012).
Regulation
The
regulation on the replacement of structural officials in the North Maluku
Provincial Government bureaucracy refers to a number of regulations including
Law number 5 of 2014 concerning State Civil Apparatuses, Government Regulation
number 11 of 2017 concerning Management of Civil Servants, Law Number 23 of
2014 concerning Regional Government, and Government Regulation Number 100 of
2000 concerning the appointment of civil servants in structural positions (Negara, 2014).
Referring
to government regulation number 100 of 2000 concerning the Appointment of
Structural Officers it is stated that a structural position is a position that
shows the duties, responsibilities, authorities and rights of a Civil Servant
in order to lead a state organizational unit.
In
the same regulation, it is stated that the requirements for Civil Servants to
be appointed to structural positions include having the status of a Civil
Servant, having at least one rank below the specified rank, having the
specified qualifications and level of education, all elements of work
performance appraisal are of value. both in the last two years, Has the
required position competencies, Physically and mentally healthy. In addition to
these requirements, Personnel Development Officials need to pay attention to
the following factors: Seniority in rank, Age, Education and Training Position,
and Experience.
Specifically,
for the appointment of the Regency/ City Regional Secretary, it is stipulated
by the Regency/ City Regional Personnel Development Officer after obtaining
approval from the leadership of the Regency/ Municipal DPRD, after prior
consultation in writing with the Governor. In every decision regarding
appointment to a structural position, the number and date of consideration of
Baperjakat, echelon and the amount of structural position allowance must be
included.
Dismissal
of civil servants from structural positions is determined by a decision of an
authorized official after going through the considerations of the State
Personnel Commission/Baperjakat accompanied by clear reasons for the dismissal.
Civil servants who died were considered to have been dismissed from their
structural positions. To optimize the performance, discipline and
accountability of structural officials and to be aware of the limitations of
human capabilities, civil servants who occupy structural positions cannot hold
multiple positions, either with other structural positions or functional
positions. Concurrent positions are only permitted if the provision for
concurrent positions is regulated by law or government regulation.
In Government Regulation Number
11 of 2017 concerning Management of Civil Servants, article 5 states that each
government agency is required to compile the number and type of civil servant
positions based on job analysis and workload analysis (Rasjid et al., 2020).
Compilation of the requirements for the number and type of civil servant
positions is carried out for at least a period of 5 years, broken down by year
based on priority needs. Fundamentally, the preparation of the needs of civil
servants must support the achievement of the goals of government agencies by taking into account the dynamics or development of existing
organizations.
The regulations governing the
granting of authority to governors to determine structural officials in the
regions, both Law number 23 of 2014 and Law Number 5 of 2014 concerning State
Civil Apparatus, show that the government (governor) and civil servants are
administrative machines where governors make policies and civil servants
participate in implementation of the policy. In this process, the bureaucratic
politicization that is formed is a type of administrative politicization.
Mechanism
The
mechanism stipulated in the replacement of structural officials in the North
Maluku provincial government based on law number 5 of 2014 and government
regulation number 11 of 2017 is that the determination of structural officials
in this case high officials (echelon II) is carried out by an open selection
held by the selection committee (Pasiak,
2020). A different mechanism can be applied if
you refer to the Minister of Home Affairs Decree No. 16 of 2003, where regional
heads can select, appoint and place high-ranking civil servants through closed
selection. In echelon II positions and below, the placement of officials can be
done by the governor. The appointment of echelon III and IV structural
officials was preceded by a proposal for a Regional Work Unit to the Position
and Rank Consideration Agency (Baperjakat) which has now changed its name to
the Performance Assessment Team. Based on the SKPD's proposal, the TPK Team will
carry out considerations based on the results of the performance evaluation of
the proposed officials, the results of the considerations in the form of
recommendations will be submitted to the Governor as Personnel Development
Officer.
Reflecting
on the phenomenon of the mechanism for replacing structural officials in the
North Maluku Provincial government, especially the case of replacing 663
structural officials which resulted in the governor annulling or canceling the
decree after being inaugurated and forming an investigation team, it is
understandable that the mechanism for changing structural officials was carried
out by the Regional Personnel Agency as the Performance Assessment Team
actually vulnerable to violations of the principles of merit or not in
accordance with the objectives of bureaucratic reform itself.
The
mechanism for replacing structural officials by the elected governor is in fact
often a way for regional heads to place people who are deemed to be in line
with their political interests. This method, even though at the proposing stage
it was not intended to do so, is often used by regional heads to replace
structural officials according to likes and dislikes. This method also
maintains the politics of patronage and nepotism within the existing
bureaucracy and government. If the mechanism for appointing and placing
structural officials is a procedural activity based on law, then this mechanism
should also work according to the mechanism by maintaining the objectivity
values of the mechanism itself. Based on the mechanism for replacing
structural officials with reference to the case of changing structural
officials for 663 officials, the politicization of administration is used in
the mechanism for changing structural officials in the North Maluku Provincial
Government. Where government policy, in this case the governor, still plays an
important role in determining structural officials and ASN can only follow and
carry out this policy.
Types of Formal
Politicization in the Change of Structural Officials
The
typology of formal politicization can be found in the case of the replacement
of 663 structural officials in the North Maluku Provincial Government. Formal
politicization is a type of politicization in which the political involvement
of civil servants as voters and citizens is evidenced by the involvement of
civil servants in regional elections. Based on the analysis of interviews with
informants, formal politicization reached 50%. This means that formal
politicization is often carried out by incumbent governors.
The
voice of civil servants is one of the promising assets. The use of civil
servant votes is clearly very easy for the incumbent candidate. With the lure
of promises to be given positions or orders to support their superiors, the mobilization
of civil servants during general elections and local elections occurs at the
provincial level, is nothing new. The involvement of civil servants has a
bargaining value in the form of strategic positions for loyalist civil
servants.
Political intervention by the
ruler (incumbent) into the bureaucracy in order to involve civil servants in
election matters, is with the aim of gaining political support and maintaining
power that is paid for by a position. politicization is seen as an alternative
to pave the way to the position. So even though professional education and
training have been organized, once they start carrying out their work, the
bureaucrats return to taking politicized steps to secure their positions.
According
to Ahmad Yamin in the JournalInternational Journal of
Innovation and Economic Development aboutPoliticization Bureaucracy in the Implementation of
Regional Chief Election. SayBureaucracy is an important instrument in
this country as a bridge between society and government. However, the strength
of the role and function of the bureaucracy often makes the rulers abuse the
bureaucracy for political purposes, especially to restrain power. The era of
regional autonomy with direct regional head elections made regional heads have
the right to determine bureaucratic officials in the regions. Then,
bureaucratic officials are also likely to be used to provide tools in the
context of the general election that will follow for the next period. This was
stated as the politicization of the bureaucracy to win local elections. The
election of regional heads in North Maluku city is an example of the phenomenon
of bureaucratic politicization. Gani Kasuba's victory in the 2014 North Maluku
Pilkada formed the politicization of the bureaucracy which allowed power to be
continued in the next period. This happened because the existing bureaucratic
position had intervened previously to follow the will of the political
authorities in North Maluku. Bureaucratic officials themselves follow the
wishes of the Governor of North Maluku and maintain positions or positions in
government institutions.
CONCLUSION
Type
of Functional Politicization in the Practice of Structural Officer Changes
which refers to the appointment, dismissal and promotion of civil servants based
on participant criteria, not professional criteria. The form of politicization
is placing officials not based on Baprjakat evaluation results, replacement of
officials not based on SKPD proposals,
The
type of formal politicization in the practice of changing structural officials
is a type of politicization in which the political involvement of civil
servants as both voters and citizens is evidenced by the involvement of state
civil servants in regional elections. The form of this politicization action is
that there are officials who are appointed 5 times in a row, buying and selling
positions, and there are officials who are appointed in two positions at once,
The
type of administration in the Regulation on the Change of Structural Officials
and the Governor's Authority in the Change of Structural Officers in the
regions, namely the government (governor) and civil servants, is an
administrative machine where the governor makes policies and civil servants
participate in the implementation of these policies. The form of politicization
is that a number of officials who are sworn in are still active employees in
the district/city, the inauguration is carried out without a governor's
regulation.
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