PENGEMBANGAN KAPASITAS & KELEMBAGAAN SEKTOR PUBLIK

1. PENGEMBANGAN KAPASITAS & KELEMBAGAAN SEKTOR PUBLIK SATUAN ACARA PERKULIAHAN

2. Core of Public Administration PUBLIC SERVICES The spirit of public administration has to do with immediate and pressing questions of how to do things effectively,efficiently, and equitably – this is MANAGEMENT How to define the public How to conduct effective public administration in a democatic political contecxt How to balance efficiency, economy and equity How to be an ethical public administrator Why it is essential for public administrators to also representative citizens

4. The three categories can be illustrated with examples from the legas realm. A new firm of lawyers would represent the first category, an organization that is not (yet?) an institution. “The law” is an institution that is not an organizations and exemplifies the second. Courts, which are both organizations and institutions, fall in the last category. (Uphoff,1989)

5. Organization Organizations are structures of recognized and accepted roles Norman Uphoff (1986) • the structural expression of rational action, • a mechanistic instrument designed to achieve specified goals, and • an adaptive organic system Philip Selznick

6. InstitutionScott (2001 : 48) Institutions are social structures that have attained a high degree of resilience. Institutions are composed of cultured-cognitive, normative, and regulative elements that, together with associated activities and resources, provide stability and meaning of social live. Institutions are transmitted by various types of carriers, including symbolic systems, relational systems, routines, and artifacts. Institutions operate at multiple levels of jurisdiction, from the world system to localized interpersonal relationships. Institutions by definition connotstabiliy but are subject to change processes, both incremental and discontinuous.

7. Three Pillars of Institutions

8. Institution Building (IB)Eaton (1972) Institution Building (IB) is a perspective on planned and guided social change Institution Building may be defined as the planning, structuring, and guidance of new or reconstituted organizations which (a) embody changes values, functions, physical, and/or social technologies, (b) establish, foster, and protect new normative relationships and actions patterns, and (c) obtain support and complementarity in the environment

9. Dimension and focus of Capacity Building Initiatives Types of Activities Dimension Focus Human Resource Development Supply of professional And technical personel Training, salaries, conditions of work, recruitment Organizational Strengthening Management systems to improve performance of spesific tasks and functions; microstructures Incentive systems, utilization of personnel, leadership, organizational culture, communications, managerial structures Rules of the game for economic and political regimes, policy and legal change, constitutional reform Institutions and systems; macrostructures Institutional Reform

10. Dimension and focus of Capacity Building(Joseph E.Eaton) Micro-system Changes The planning, stucturing and guidance of new or reconstituted organization which advocate and embody changes in values, function, physical and/or social technologies Macro-system Changes The establishment, protection and fostering normative relationship and action patterns with linked organizations in the larger social system and the attainment of normative acceptance in the environment (complementarity)

11. Action Environment Public SectorInstitutional Context Concurrent policies Role of the state Public service rules and regulation Management practices Budgetary support Formal and Informal power relations • Economic Factors • Growth • Labor market • International economic relationships & conditions • Private sector • Development • Task Network • Communications and interactions among • Primary Organizations • Secondary Organizations • Support Organizations ORG3 ORG4 Organization Goals Structure of work Incentive system Management/leadership Physical resources Formal &informal communication Behavioral norms Technical assistance ORG2 • Political Factors • Leadership support • Mobilization of civic society • Stability • Legitimacy • Political Institution • Performance Output • Effectiveness • Efficiency • Sustainability ORG5 • Social Factors • Overall human resource development • Social conflict • Class stuctures • Organization of civic society • Human Resources • Training • Recruitment • Utilization • Retention ORG1

12. Organization Goals Structure of work Incentive system Management/leadership Physical resources Formal &informal communication Behavioral norms Technical assistance • Human Resources • Training • Recruitment • Utilization • Retention

13. Task Network • Communications and interactions among • Primary Organizations • Secondary Organizations • Support Organizations ORG3 ORG4 Organization Goals Structure of work Incentive system Management/leadership Physical resources Formal &informal communication Behavioral norms Technical assistance ORG2 ORG5 • Human Resources • Training • Recruitment • Utilization • Retention ORG1

14. Variables of Influence Institution Linkages Institution variables; Enabling linkages Functional linkages Normative linkages Diffused linkages Leadership Transaction Doctrine Program Resources Internal Structure

15. Leadership “The group of persons who are actively enganged in the formulation of the doctrine and program of the institution and who direct its operations andrelationships with the environment” (Kelompokorang yang secaraaktifberkecimpungdalamperumusandoktrindan program darilembaga yang bersangkutandan yang mengarahkanoperasi-operasidanhubungan-hubungannnyadenganlingkungan.) Doctrin “The specification of values, objectives, and operational methods underlying social action” (Spesifikasidarinilai-nilai, tujuan-tujuan, danmetode-metodeoperasional yang mendasaritindakansosial)

16. Program “Those actions which are related to the performance of functions and services constituting the output of the institution” (Tindakan-tindakantertentu yang berhubungandenganpelaksanaandarifungsi-fungsidanjasa-jasa yang merupakankeluarandarilembagatersebut) Resources “The financial, physical, human, technological and informational inputs of the institution” (Masukan-masukankeuangan, fisik,manusia, teknologidaninformasidarilembagatersebut)

17. Internal Structure “The structure and processes established for the operation of the institution and for its maintenance” (Strukturdanproses-proses yang diadakanuntukbekerjanyalembagatersebutdanbagipemeliharaannya)

18. Enabling Linkages With organizations and social groups which control the allocation of authority and resources needed by the institution to function Functional Linkages With those organizations performing functions and services which are complementary in a production sense, which supply the inputs and which use the outputs of the institution

19. Normative Linkages With institutions which incorporate norms and values (positive or negative) which are relevanttothe doctrine and program of the institution Diffuse Linkages With elements in the society which cannot clearly byidentified by membership in formal organization

20. Action Environment Public SectorInstitutional Context Concurrent policies Role of the state Public service rules and regulation Management practices Budgetary support Formal and Informal power relations • Economic Factors • Growth • Labor market • International economic relationships & conditions • Private sector • Development • Task Network • Communications and interactions among • Primary Organizations • Secondary Organizations • Support Organizations ORG3 ORG4 Organization Goals Structure of work Incentive system Management/leadership Physical resources Formal &informal communication Behavioral norms Technical assistance ORG2 • Political Factors • Leadership support • Mobilization of civic society • Stability • Legitimacy • Political Institution • Performance Output • Effectiveness • Efficiency • Sustainability ORG5 • Social Factors • Overall human resource development • Social conflict • Class stuctures • Organization of civic society • Human Resources • Training • Recruitment • Utilization • Retention ORG1

21. End State - Institutionality KemampuanTeknis Komitmen-komitmenNormatif DoronganInovatif Citra Lingkungan Efeksebaran

22. PENINGKATAN KAPASITAS upayauntukmembantuorang, organisasi, dansistemdalammenghadapitantangan& memenuhituntutan prosesuntukmempengaruhiataumenggerakkan, perubahandiberbagaitingkatan (multi-level) padaindividu, kelompok, organisasidansistem berusahamemperkuatkemampuanberadaptasiorangdanorganisasisehinggamerekadapatmeresponperubahanlingkungan penciptaansebuahorganisasi “pembelajaran”.

23. TingkatanPeningkatanKapasitas Sistem Organisasi Individu

24. TIGA LAPANGAN PENGEMBANGAN INSTITUSI KEPEMERINTAHAN (BICA, 2001) • PeningkatanKapasitasAdministrasi-Manajerial Manajemensumberdaya yang efisiendalamberbagaiprosesadministrasi yang dibutuhkanuntukmemberikan output pemerintah, sepertilayananpublik, penegakanregulasi, dansebagainya. • PeningkatanKapasitasKebijakan Kemampuanuntukmengumpulkaninformasidanwewenangpengambilankeputusanuntukmembuatpilihan yang cerdasdanmenetapkanstrategiarahkebijakan. • PeningkatanKapasitasOrganisasi Negara Kemampuanuntukmemobilisasikekuatansosialdanekonomimelaluipartisipasidanpilihanbersamauntukmencapaiberbagaitujuansosialdanekonomi.

25. HUMAN RESOURCE CAPACITY STRENGHTHENING

26. Dimension and focus of Human Resource Development Types of Activities Dimension Focus Human Resource Development Supply of professional And technical personel Training, salaries, conditions of work, recruitment

27. 4 BASIC PHASES Design Phase (resulting in, for example.aspesific donor or government initiative) Project Implementation Phase (a contractor or administrative unit is selected to implement a program, and begin to do so) Capacity Acquisition Phase (various training and other actions take place and informal experiences build new skills) Performance Phase (Capacity is manifested in task performance and is evaluated)

28. Actors, Actions and Events in Programs Aimed at StrenghteningHuman Resource Capacity

29. Events Unrelated to Program Program Design Project Implementation Capacity Acquisition Capacity Performance AI L Donor Constituency H Officers of Donor Agency at Center H Donor representatives at project site M Ministry Office M Potential Implementators/ contractors AII H Officers of Donor Agency at Center M Donor Representatives at Project Site L Ministry Officials HImplementators/ Contractors L Target Institution’s Administrators AIII L Officers of Donor Agency at Center M Donor Representatives at Periphery M Ministry Officials HImplementators/ Contractors H Target Institution’s Administrators H Targeted Professional/technical Staff L Local Public AIV M Ministry Officials H Target Institution’s Administrators H Targeted Professional/technical Staff H Local Public Produce Outputs Award Project Select Resources Provide Fund and Services

30. Training and development encompasses three main activities: training, education, and development. These ideas are often considered to be synonymous. However, to practitioners, they encompass three separate, although interrelated, activities. TrainingThis activity is both focused upon, and evaluated against, the job that an individual currently holds. EducationThis activity focuses upon the jobs that an individual may potentially hold in the future, and is evaluated against those jobs.DevelopmentThis activity focuses upon the activities that the organization employing the individual, or that the individual is part of, may partake in the future, and is almost impossible to evaluate.

31. Strategies for Capacity Building – Developing Human Resources(Grindle) Targeted, narrowly focused education and training (is a a strategy in which an institution or ministry decides that it can determine precisely what its needs will be three to five years in the future) The Pooled-resource, multi institution Approach (brings together individuals for similar degree training from many different, but related organizations ) The “hit-or-miss” Approach (is best exemplified by the strategy of sending a few key individuals from an organization to either a variety of universities) The “key individuls” Approach The Saturation Training (is best exemplified by the strategy of sending a few key individuals from an organization to either a variety of universities)

32. Organizational Strenghtening How Organizational Capacities can be strengthened?

33. Dimension and focus of Organizational Strenghtening Focus Types of Activities Management systems to improve performance of spesific tasks and functions; microstructures Incentive systems, utilization of personnel, leadership, organizational culture, communications, managerial structures

35. The various actors involved in each phase of the capacity strenghtening process negotiate and make decisions based on their individual and institutional power, perspectives and incentives, resulting in spesificactions Refer to manifestations of deliberations and decisions within different phases of project’s life Decision Making During Design and Implementation of Capacity Strenghtening Programs Program Design Project Implementation Capacity Acquisition A I.1 O 1 AII.1 O 1 AIII.1 O 2 O 2 O 3 O 3 A I.2 AII.2 AIII.2 Key: AI-III : Sets of actors at different program stages O1-3 : Options : Options selected : Options rejeted A I.3 AII.3 AIII.3

36. Research Capacity Strenghtening As a subset of human resource capacity particularly concerned with the sustained ability of individuals, organizations, and nations to identify important basic and applied problems and to collect, process, analyze, and disseminate information that addresses them. Three Objectives: Providing useful information in a timely fashion Transmitting the skills required to create and use such information Increasing the depth and complexity of human knowledge More than just the ability to answer question but also create new questions so that a research community can respond to new challenges and question its own assumption

37. ADDR Project(Applied Diarrheal Disease Research) Events Unrelated to Program Program Design Project Implementation Capacity Acquisition Capacity Performance • Select Countries • Select Organizations and Investigators • Select Research Themes • Emphasize Local Design and Application • Combine In-Country Training with External Technical Assistance • Use the Peer Review Process and Emphasize Quality • Provide Varied Forms of Technical Assistance • Adapt Project Methods to Local Culture and Constraints • Strengthen Organization as well as individuals • Creer Constraints • Physical Resources • Cross-Disciplinary Collaboration • Financial Management • Ethical Review • Build Linkages • Provide Dissemination Grants to Researchers • Form and Sustain Indigenous Linkages • Publish in Multiple Venues • Evaluate Project Efforts Produce Outputs Award Project Select Resources Provide Fund and Services

38. Institutional Reform The Art of the Possible

39. Dimension and focus of Institutional Reform Types of Activities Dimension Focus Rules of the game for economic and political regimes, policy and legal change, constitutional reform Institutions and systems; macrostructures Institutional Reform

40. Institutionalization Deinstitutonalization VS social arrangements that shape and regulate human behavior and have some degree of permanency and purpose transcending individual human lives and intentions. Refers to the processes by which institutions weaken and disappear. 3 General Types toward deinstitutionalization “Imperfect Transmission” 1 Functional Functional pressures are those that arise from perceived problems in performance level associated with institutionaled practices 2 Political Political pressures result from shifts in interests or underlying power distributions that provide support for existing institutional arrangements 3 Social Social pressures are associated with differentiation of groups and existence of heterogeneus divergent beliefs and practices.

41. A critical review of these experiences is organized around three themes: “Had policy and institutional reforms been more effective, investments would have yielded far higher benefits at much lower financial, social, and environmental Costs” The bias toward imposing blueprint solutions rather than critical evaluation of political and historical realities. The need for changes in the larger institutional context, not simply in individual organizations or institutions. The need to create an effective framework for relationships among actors and stakeholders.

42. Let Estates General (France) guard the institutional reform….. …..and let me tell you that this report will not end on a shelf

43. Example Failed responses to reform “Asian food crises of the 1960s” Blaming then training the farmers while ignoring the real problem. Organizing the farmers through irrigation management transfer, but ignoring the preconditions. Information, knowledge, and the capacity to use it are critical to successful integrated water Management and appropriate reforms—but their availability is often limited Roads not traveled: empowering users and restructuring bureaucracies.

44. Key Findings of Institutional Change(Ha Joon Chang) Functional multiplicity of institutions ‘Appearances can be deceptive’ – formal and informal institutions Politics of institution building Structure and human agency in institutional change Unintended consequences and intended ‘perversions’ The ‘technology’ of institution building

45. Principle of Institutional Change • Key questions to ask for each situation include: • What will be the benefits of institutional and policy reform, and how will these benefits distributed? What will be the costs, and who will bear them? • What coalition of interest groups will push forward and implement the change? • Around which issues can such efforts be organized most productively? • How can these coalitions be supported? • What can realistically be done to adapt the enabling and constraining conditions for this institutional transformation? • How can knowledge producers and processors—academics, consultants, and reflective practitioners—play a more active role? Change is political Positive change is driven by coalitions of aligning interests, soft systems like motivation, ethics and pride and fundamental transformational issues starting with individual transformation in attitudes, values and behaviour. Change is normative Coalitions of aligning interests is a pre-condition for change Embedding change messages in social and organizational culture Communicate, communicate, communicate around change

46. A Framework for Change Management in Public Sector Organisations (UNDP)

47. “The state is the main driver of reform—but cannot succeed alone”