pengembangan kapasitas & kelembagaan sektor publik
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Core of Public Administration
PUBLIC SERVICESThe 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
3 Kategori Institusi/Organisasi
“Organisasi” yang bukan “Institusi”
“Institusi” yang bukan “Organisasi”
“Organisasi” yang merupakan “Institusi” atau sebaliknya (vice versa)
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)
Organization
Organizations are structures of recognized and accepted roles
• the structural expression of rational action, • a mechanistic instrument designed to achieve
specified goals, and • an adaptive organic system
Norman Uphoff (1986)
Philip Selznick
Institution Scott (2001 : 48)
1. Institutions are social structures that have attained a high degree of resilience.2. Institutions are composed of cultured-cognitive, normative, and regulative
elements that, together with associated activities and resources, provide stability and meaning of social live.
3. Institutions are transmitted by various types of carriers, including symbolic systems, relational systems, routines, and artifacts.
4. Institutions operate at multiple levels of jurisdiction, from the world system to localized interpersonal relationships.
5. Institutions by definition connot stabiliy but are subject to change processes, both incremental and discontinuous.
Three Pillars of InstitutionsPillar
Regulative Normative Cultural-Cognitive
Basis of compliance Expedience Social obligation Taken-for-grantednessShared understanding
Basis of order Regulative rules Binding expectations Constitutive schema
Mechanism Coercive Normative Mimetic
Logic Instrumentality Appropriatness Orthodoxy
Indicators RulesLawsSanctions
CertificationAccreditation
Common beliefsShared logics of action
Basis of legitimacy Legally sanction Morally governed ComprehensibleRecognizableCulturally supported
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
Institution Building (IB) is a perspective on planned and guided social change
Institution Building (IB) Eaton (1972)
Dimension and focus of Capacity Building Initiatives
Dimension Focus Types of Activities
Human ResourceDevelopment
OrganizationalStrengthening
Institutional Reform
Supply of professionalAnd technical personel
Management systems to improve performance of spesific tasks and functions; microstructures
Institutions and systems;macrostructures
Training, salaries, conditions of work, recruitment
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
Dimension and focus of Capacity Building(Joseph E.Eaton)
Micro-system Changes
Macro-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
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)
Organization
GoalsStructure of workIncentive systemManagement/leadershipPhysical resourcesFormal &informal communicationBehavioral normsTechnical assistance
Task NetworkCommunications and interactions among Primary Organizations Secondary Organizations Support Organizations
ORG4
ORG5
ORG3
ORG2
ORG1Human Resources Training Recruitment Utilization Retention
Public SectorInstitutional Context
Concurrent policies Role of the statePublic service rules and regulation Management practicesBudgetary support Formal and Informal power relations
Performance Output• Effectiveness• Efficiency• Sustainability
Economic Factors Growth Labor market International
economic relationships & conditions
Private sector Development
Political Factors Leadership support Mobilization of civic
society Stability Legitimacy Political Institution
Social Factors Overall human
resource development
Social conflict Class stuctures Organization of civic
society
Action Environment
Organization
GoalsStructure of workIncentive systemManagement/leadershipPhysical resourcesFormal &informal communicationBehavioral normsTechnical assistance
Human Resources Training Recruitment Utilization Retention
Organization
GoalsStructure of workIncentive systemManagement/leadershipPhysical resourcesFormal &informal communicationBehavioral normsTechnical assistance
Task NetworkCommunications and interactions among Primary Organizations Secondary Organizations Support Organizations
ORG4
ORG5
ORG3
ORG2
ORG1Human Resources Training Recruitment Utilization Retention
Variables of Influence
Institution
Leadership Transaction
Enabling linkagesFunctional linkagesNormative linkagesDiffused linkages
Linkages
Institution variables;
Doctrine
Program
Resources
Internal Structure
Leadership
(Kelompok orang yang secara aktif berkecimpung dalam perumusan doktrin dan program dari lembaga yang bersangkutan dan yang mengarahkan operasi-operasi dan hubungan-hubungannnya dengan lingkungan.)
“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”
(Spesifikasi dari nilai-nilai, tujuan-tujuan, dan metode-metode operasional yang mendasari tindakan sosial)
“The specification of values, objectives, and operational methods underlying social action”
Doctrin
(Tindakan-tindakan tertentu yang berhubungan dengan pelaksanaan dari fungsi-fungsi dan jasa-jasa yang merupakan keluaran dari lembaga tersebut)
“Those actions which are related to the performance of functions and services constituting the output of the institution”
Program
(Masukan-masukan keuangan, fisik,manusia, teknologi dan informasi dari lembaga tersebut)
“The financial, physical, human, technological and informational inputs of the institution”
Resources
(Struktur dan proses-proses yang diadakan untuk bekerjanya lembaga tersebut dan bagi pemeliharaannya)
“The structure and processes established for the operation of the institution and for its maintenance”
Internal Structure
Enabling 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
With organizations and social groups which control the allocation of authority and resources needed by the institution to function
Functional Linkages
Normative Linkages
With elements in the society which cannot clearly byidentified by membership in formal organization
With institutions which incorporate norms and values (positive or negative) which are relevanttothe doctrine and program of the institution
Diffuse Linkages
Organization
GoalsStructure of workIncentive systemManagement/leadershipPhysical resourcesFormal &informal communicationBehavioral normsTechnical assistance
Task NetworkCommunications and interactions among Primary Organizations Secondary Organizations Support Organizations
ORG4
ORG5
ORG3
ORG2
ORG1Human Resources Training Recruitment Utilization Retention
Public SectorInstitutional Context
Concurrent policies Role of the statePublic service rules and regulation Management practicesBudgetary support Formal and Informal power relations
Performance Output• Effectiveness• Efficiency• Sustainability
Economic Factors Growth Labor market International
economic relationships & conditions
Private sector Development
Political Factors Leadership support Mobilization of civic
society Stability Legitimacy Political Institution
Social Factors Overall human
resource development
Social conflict Class stuctures Organization of civic
society
Action Environment
End State - Institutionality
Kemampuan Teknis
Komitmen-komitmen Normatif
Dorongan Inovatif
Citra Lingkungan
Efek sebaran
PENINGKATAN KAPASITAS
upaya untuk membantu orang, organisasi, dan sistem dalam menghadapi tantangan& memenuhi tuntutan
proses untuk mempengaruhi atau menggerakkan, perubahan di berbagai tingkatan (multi-level) pada individu, kelompok, organisasi dan sistem
berusaha memperkuat kemampuan beradaptasi orang dan organisasi sehingga mereka dapat merespon perubahan lingkungan
penciptaan sebuah organisasi “pembelajaran”.
TIGA LAPANGAN PENGEMBANGAN INSTITUSI KEPEMERINTAHAN (BICA, 2001)
• Peningkatan Kapasitas Administrasi-Manajerial
Manajemen sumber daya yang efisien dalam berbagai proses administrasi yang dibutuhkan untuk memberikan output pemerintah, seperti layanan publik, penegakan regulasi, dan sebagainya.
• Peningkatan Kapasitas Kebijakan
Kemampuan untuk mengumpulkan informasi dan wewenang pengambilan keputusan untuk membuat pilihan yang cerdas dan menetapkan strategi arah kebijakan.
• Peningkatan Kapasitas Organisasi Negara
Kemampuan untuk memobilisasi kekuatan sosial dan ekonomi melalui partisipasi dan pilihan bersama untuk mencapai berbagai tujuan sosial dan ekonomi.
Dimension and focus of Human Resource Development
Dimension Focus Types of Activities
Human ResourceDevelopment
Supply of professionalAnd technical personel
Training, salaries, conditions of work, recruitment
4 BASIC PHASES
Design Phase(resulting in, for example.a spesific 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)
Events Unrelated to Program
AI
L Donor ConstituencyH Officers of Donor Agency at CenterH Donor representatives at project siteM Ministry OfficeM Potential Implementators/ contractors
AII
H Officers of Donor Agency at CenterM Donor Representatives at Project SiteL Ministry OfficialsH Implementators/ ContractorsL Target Institution’s Administrators
AIII
L Officers of Donor Agency at CenterM Donor Representatives at PeripheryM Ministry OfficialsH Implementators/ ContractorsH Target Institution’s AdministratorsH Targeted Professional/technical StaffL Local Public
AIV
M Ministry OfficialsH Target Institution’s AdministratorsH Targeted Professional/technical StaffH Local Public
Program Design
ProjectImplementation
CapacityAcquisition
CapacityPerformance
AwardProject
SelectResources
ProvideFund andServices
ProduceOutputs
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.
Strategies for Capacity Building – Developing Human Resources(Grindle)
(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)
Targeted, narrowly focused education and training
The Pooled-resource, multi institution Approach (brings together individuals for similar degree training from many different, but related organizations )
The “hit-or-miss” Approach
The “key individuls” Approach
(is best exemplified by the strategy of sending a few key individuals from an organization to either a variety of universities)
The Saturation Training (is best exemplified by the strategy of sending a few key individuals from an organization to either a variety of universities)
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
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 spesific actions
Refer to manifestations of deliberations and decisions within different phases of project’s life
A I.1 AII.1 AIII.1
A I.2
A I.3
AII.2
AII.3
AIII.2
AIII.3
O 1
O 2
O 3
O 1
O 2
O 3
Program Design
ProjectImplementation
CapacityAcquisition
Decision Making During Design and Implementation of Capacity Strenghtening Programs
Key:AI-III : Sets of actors at different
program stagesO1-3 : Options : Options selected : Options rejeted
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.
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
Three Objectives:
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
Events Unrelated to Program
• 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
Program Design
ProjectImplementation
CapacityAcquisition
CapacityPerformance
AwardProject
SelectResources
ProvideFund andServices
ProduceOutputs
ADDR Project(Applied Diarrheal Disease Research)
Dimension and focus of Institutional Reform
Dimension Focus Types of Activities
Institutional Reform Institutions and systems;macrostructures
Rules of the game for economic and political regimes, policy and legal change, constitutional reform
Institutionalization Deinstitutonalization
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.
General Types toward deinstitutionalization3
“Imperfect Transmission”
Functional
Political
Social
Functional pressures are those that arise from perceived problems in performance level associated with institutionaled practices
Political pressures result from shifts in interests or underlying power distributions that provide support for existing institutional arrangements
Social pressures are associated with differentiation of groups and existence of heterogeneus divergent beliefs and practices.
1
2
3
VS
…..and let me tell you that
this report will not end on a
shelf
Let Estates General (France) guard the
institutional reform…..
Example Failed responses to reform
Blaming then training the farmers while ignoring the real problem.
“Asian food crises of the 1960s”
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.
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
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
Change is normativePositive 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.
Coalitions of aligning interests is a pre-condition for change
Embedding change messages in social and organizational culture
Communicate, communicate, communicate around change
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