SISTEM ADMINISTRASI KEPEGAWAIAN
Materi Administrasi Kepegawaian Negara disiapkan oleh Lina Miftahul Jannah 2013 1
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M ENGAPA S ISTEM K EPEGAWAIAN N EGARA P ENTING ? Bekke, et.all, 1996: • Negara didominasi oleh keterlibatan manusia yang memiliki karakteristik unik dan kepribadian unik: kebutuhan dasar, perlakuan yang wajar dan adil, pengembangan diri dan emosional, pengembangan karir
Prasojo, 2007 • Keberhasilan pembangunan beberapa negara terletak pada usaha sistematis dan sungguh-sungguh untuk memperbaiki SKN • KN merupakan faktor dinamis birokrasi yang memegang pernanan dalam penyelenggaraan pemerintahan
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A DA
TIGA SISTEM KEPEGAWAIAN :
The Integrated Personnel System
The Separated Personnel System
The Unified Personnel System
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T HE I NTEGRATED P ERSONNEL S YSTEM Personnel of the local bodies and those of the state government form a part of the same service. All or some categories of personnel of the local bodies may be drawn from this service. The local civil service is absorbed into the state civil service. The state government can transfer them from the urban body to other departments
In the `integrated’ system the personnel are transferred between national, state and municipal governments
An integrated service covering both national/state governments and municipal government is based on merit principles. Its distinctive feature is vertical as well as horizontal transferability of personnel
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ADVANTAGES OF INTEGRATED PERSONNEL SYSTEM [1]
Ensures the same salaries, conditions of service, and retirement benefits for civil servants regardless of the level of service
It permits the most extensive area basis for recruitment
It provides the widest possible career opportunities in public service.
Can estimate the national manpower is needed and the organization of educational and training programs to meet them
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ADVANTAGES OF INTEGRATED PERSONNEL SYSTEM [2]
Facilitates the optimal use of trained personnel and permits the use of centralized personnel service and uniformity in personnel rules and practices to the extent advisable Facilitates the decentralization of development functions and thereby increases the participation of the people in the administration of those functions. Gives the central government a greater stake in the improvement of living conditions in small towns and rural areas in order to make life there more attractive to qualified personnel and, incidentally, to other residents as well. More insulated than in other systems from local politics and personal pressures, although they may be less responsive to local elected bodies
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DISADVANTAGES OF INTEGRATED PERSONNEL SYSTEM [1]
The staff may not be as responsive as they should be to the local council The most capable staff are likely to be promoted to higher level of government just when they acquire the experience needed to deal effectively with complex local government problems The integrated personnel system is geared to meet the central government needs; as a consequence, the distinctive elements of local government personnel management, including. The danger of excessive centralization of authority with its resultant delays and lack of adaptation to local needs would be ever present There is a danger of paternalism, and even authoritarianism, in relationship between municipal government and the staff belonging to the integrated service.
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THE SEPARATED PERSONNEL SYSTEM Each local authority has the power to appoint its own personnel. Such personnel are administered and controlled by the local authority and are not transferable to any other unit In `separate’ personnel system municipalities are empowered and responsible for recruitment and maintenance of their own personnel
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ADVANTAGES OF SEPARATED PERSONNEL SYSTEM
Ensure the loyalty and effective performance of their employees Employees are likely to know the local conditions better and develop more interest in community affairs Since the local authority has control over its entire staff, the problem of different status for different categories of staff doesn’t exist The opportunities for continuous employment may induce some of the talented young persons to seek a career in the service of the local municipal government Relatively economical because the compensations for some municipal employees need to be competitive only with other opportunities for employment in the local economy `self-government' by allowing local authorities to exercise power in an important field, i.e., recruitment and management of its own manpower resources
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DISADVANTAGES OF SEPARATED PERSONNEL SYSTEM
Local authorities may not be able to fulfill all the requisites of a good personnel system. The catchment area for recruitment and the ability to pay are both restricted in respect of particular municipalities
Restricts opportunities for promotion, especially for higher-level officers.
Spend their entire working life in the locality, local vested interests are likely to influence their performance. The officers are likely to develop some kind of personal allegiance to particular local political leaders or group interests.
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THE UNIFIED PERSONNEL SYSTEM All or some local bodies form a single career service for the entire state, from which officers and other employees are posted in various units and also transferable within the state. The service is administered by the state government
Certain categories of personnel constitute a statewide municipal cadre raised and controlled by the state government
Involves an area basis for recruitment as wide as the area covered by the unified service. Under unified personnel system, objective criteria and methods are to be applied in recruitment, appointment and promotion. Transfers are made easy between municipalities . The staffs are protected against arbitrary disciplinary measures adopted by the local authority.
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ADVANTAGES OF UNIFIED PERSONNEL SYSTEM [1]
It may facilitate the creation of a statewide career service founded on the merit principle It may enable municipalities, especially the smaller ones; to obtain the services of more qualified persons than would be attracted to them under a separate system It may prevent, or greatly lessen, nepotism and favouritism in appointment, promotion and other personnel matters
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ADVANTAGES OF UNIFIED PERSONNEL SYSTEM [2]
It involves a certain degree of centralised control over municipal personnel matters but also provides for delegation of personnel functions to municipal authorities to the maximum extent practicable and may thus facilitate the devolution of development functions to local authorities Responsiveness of employees to local councils may be a problem at the initial stage, but those who make local government service a life-time career are more likely to develop skills and attitudes conducive to sound relationship with their council Despite the problems connected with it, a unified service nevertheless provides a more rational basis than may otherwise be possible for dealing with the municipal government staffing problems
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DISADVANTAGES OF UNIFIED PERSONNEL SYSTEM [1]
It does not solve all the personnel problems of local authorities. In fact, some new problems may arise because of the need for trained staff
New problems arise in relationship between employees who belong to the unified service and those who do not
Some of the old staffing problems may persist: (eg” shortage of staff, particularly at the middle and higher levels due to continued disparities in salary levels between the municipal service and the state service; and lack of promotion opportunities for higher-level officers)
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DISADVANTAGES OF UNIFIED PERSONNEL SYSTEM [2]
Problem of inadequate funds for training may be aggravated where municipal councils are expected to pay for the training of staff in the unified service
Political interference in personnel matters continues to exist, at least at the district or state levels
There are possibilities of conflict between the unified service agency and municipal councils.
A unified service may also raise special problems in training
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Total PNS 2012: 4.462.982 2002: 3,6 juta
2010: 4,7 juta
PEGAWAI NEGERI
DI
INDONESIA
Komposisi Jabatan:
Instansi
Pegawai Non Sipil
Struktural: 246.993
Pemda: 2.795.700
TNI: 361.823
Fungsional: 2.051.491
Kementerian: 737.023
Polri: 363.000
TU/teknikal: 1.763.370
Komisi/LPND: 74.709
BUMN: 726.128
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S TUDI K ASUS DI US: SEPARATED SYSTEM [1] Government by “Gentlement” (1789-1829)
adanya pengangkatan pegawai pemerintah dengan sistem patronage oleh para elit. Pada masa Washington: memilih para pejabat dengan karakter kompeten, dari keluarga terhormat, pendidikan formal tinggi, dan loyal pada presiden
Government by “Common Man” (1829-1883) spoil system. Pada masa Jackson, dikenal dengan suap dan sogok. Kekuasaan berpindah pada partai.
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S TUDI K ASUS DI US: SEPARATED SYSTEM [2] Government by the “Good” (1883-1906)
CS (Pandleton) Act 1883: mengatur tentang proses pengangkatan pegawai negeri melalui ujian terbuka, dibentuknya CS Commission untuk mengawasi penyelenggaraan sistem kepegawaian melalui peraturan yang dibentuknya, presiden boleh mengangkat 10% pegawai yang kemudian memunculkan korupsi.
Government by the “Efficient” (1906-1937) mengerjakan sesuatu dengan menggunakan sumber sesedikit mungkin dengan manajemen ilmiah, diberlakukannya merit sytem dan netralitas pegawai. CSC konsentrasi pada pengklasifikasian jabatan dan job desc pada jabatan
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S TUDI K ASUS DI US: SEPARATED SYSTEM [3]
Government by the “Administrators” (1937-1955) Dimulai dengan Laporan Roosevelt tentang Komite Manajemen Administrasi (Komite Brownlow): jabatan politik (untuk very senior positions) dan jabatan karir. Presiden diperkuat.
Government by the “Professional” (1955-sekarang) Dibentuk Federal Service Entrance Examination (FSEE) untuk menyelenggarakan ujian masuk dan penempatan pegawai. FSEE kerjasama dengan CSC untuk merekrut calon pegawai via sekolah dan universitas. Adanya pelatihan pegawai.
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S TUDI K ASUS : I NDONESIA [1] Orde Lama (1945-1974)
CSS Tidak terdokumentasi dengan baik, transisi dari pemerintahan Belanda dan Jepang. Belum ada lembaga khusus yang bertanggungjawab dalam CS.
Orde Baru (1974-1999) Ditandai dengan birokrasi yang sentralistis dan otoritarian, PNS monoloyalitas. UU 8/1974. Manajemen PNS diatur oleh pusat. Pemda hanya melaksanakan kebijakan pusat. Dibentuk BAKN dan Kantor Urusan Kepegawaian di Yogyakarta
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S TUDI K ASUS : I NDONESIA [2] Reformasi (1999-2011)
Peralihan dari sentralisasi ke desentralisasi. UU 43/1999: Manajemen PNS di daerah menjadi wewenang daerah. PNS berbasis kompetensi dasar dan prestasi kerja. Kebijakan unified system, manajemen bersifat desentralisasi, pengawasan dan pengendalian oleh pusat. BAKN berubah menjadi BKN. Di daerah ada BKD.
Pasca Reformasi 1 (2011-2012) Unified system, moratorium penerimaan CPNS untuk penataan PNS, pembahasan RUU ASN.
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S TUDI K ASUS : I NDONESIA [2] Pasca Reformasi 2 (2013) Kebijakan moratorium CPNS dihentikan, tetapi …
Kewajiban yang Dilaporkan Pengajuan Usulan Formasi Kelengkapan dokumen dari Instansi yang mengajukan formasi: - Proyeksi Kebutuhan PNS selama 5 Tahun - Uraian Jabatan - Peta Jabatan - Analisis Beban Kerja - Redistribusi Pegawai
KONDISI KEPEGAWAIAN DI INDONESIA SAAT INI
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Pegawai Negeri Pengawai Negeri Sipil Aparatur Eksekutif dan Aparatur Administrasi/Teknik
Hakim, Jaksa, Polri, Guru dan Dosen
TNI
UU 43/1999
Pasal 2 ayat 2 Pegawai Negeri Sipil terdiri atas PNS Pusat dan PNS Daerah
Pasal 13 ayat 1 & 2 Kebijaksanaan manajemen PNS mencakup penetapan norma, standar, prosedur, formasi, pengangkatan, pengembangan kualitas sumber daya PNS, pemindahan, gaji, tunjangan, kesejahteraan, pemberhentian, hak, kewajiban, dan kedudukan hukum berada pada Presiden selaku Kepala Pemerintahan
UU 43/1999
Pasal 25 ayat 1 & 2 Pengangkatan, pemindahan, dan pemberhentian PNS dilakukan oleh Presiden
Untuk memperlancar pelaksanaan pengangkatan, pemindahan, dan pemberhentian PNS Presiden dapat mendelegasikan sebagian wewenangnya kepada pejabat pembina kepegawaian pusat dan menyerahkan sebagian wewenangnya kepada pejabat pembina kepegawaian daerah
UU 43/1999
Pasal 34 ayat 2 BKN menyelenggarakan manajemen PNS yang mencakup perencanaan, pengembangan kualitas sumber daya PNS dan administrasi kepegawaian, pengawasan dan pengendalian, penyelenggaraan dan pemeliharaan informasi kepegawaian, mendukung perumusan kebijaksanaan kesejahteraan PNS, serta memberikan bimbingan teknis kepada unit organisasi yang menangani kepegawaian pada instansi pemerintah pusat dan pemerintah daerah
Pasal 34A ayat 1 Untuk kelancaran pelaksanaan manajemen PNSD dibentuk BKD
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LINGKUNGAN STRATEGIS +
Global dan regional • Globalisasi perdagangan dan ekonmi pasar terbuka perlu daya saing tinggi
• UUD NKRI 1945 hasil amandemen ciptakan DPD, MK, KY, dan menghapus DPA. Dengan UU telah dibentuk banyak lembaga negara • Pemerintahan koalisi timbulkan instabilitas pemerintahan dan mengganggu kinerja dan efektivitas pemerintahan negara • Desentralisasi ciptakan jaringan pemerintahan yang kompleks: 35 kementerian, 85 lembaga negara, 33 provinsi, dan 497 kab/kota • Indonesia kembali menjadi bangsa berpendapatan menengah yang memerlukan pelayanan publik lebih bermutu • Disparitas kesejahteraan umum dan disparitas kapasitas aparatur antardaerah semakin lebar • Low trust kepada aparatur negara • Ledakan pensiun: 4,9 juta akan pensiun 2015.
Nasional
Memantapkan penataan kembali NKRI, meningkatkan kualitas SDM, membangun kemampuan iptek, memperkuat daya saing perekonomian
Memantapkan pembangunan secara menyeluruh dengan , menekankan pembangunan keunggulan kompetitif perekonomian yang berbasis SDA yang tersedia, SDM yang berkualitas, serta kemampuan iptek.
RPJM 4 (2020 (2020-2024)
RPJM 2 (2010 (2010-2014)
RPJM 1 (2005 (2005-2009)
Menata kembali NKRI, membangun Indonesia yang aman dan damai, yang adil dan demokratis dengan tingkat kesejahteraan yang lebih baik
RPJM 3 (2015 (2015-2019)
+ PENTAHAPAN PEMBANGUNAN DALAM RPJPN 2005-2025
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Mewujudkan masyarakat Indonesia yang mandiri, maju, adil, dan makmur melalui percepatan pembangunan di segala bidang dengan struktur perekonomia yang kokoh berlandaskan keunggulan kompetitif
= TUJUAN AKHIR YANG INGIN DICAPAI
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2010 • Aparatur Negara yang Patrimonial
2025 • Aparatur Negara yang Profesional
