p–ISSN: 2723 - 6609 e-ISSN: 2745-5254

Vol. 5, No. 7 July 2024 http://jist.publikasiindonesia.id/

Jurnal Indonesia Sosial Teknologi, Vol. 5, No. 7, July 2024 3059

Challenges in Fostering Functional Positions After the

Issuance of the Regulation of the Minister of State Apparatus

Empowerment and Bureaucratic Reform Number 1 of 2023

Rizki Indra Kurniawan

, Fibria Indriati Dwi Liestiawati

Universitas Indonesia Depok, Indonesia

Email:

[email protected]

, [email protected]

*Correspondence

ABSTRACT

Keywords: Human

Resource Management;

Bureaucratic Reform;

Equalization of Positions;

Functional Positions;

Supervisory Agency.

Human resource development (HR) is one of the

development priorities in Indonesia, including human

resources in the public sector. Bureaucratic simplification is

one of the efforts to reform the bureaucracy to improve the

quality of performance, which has an impact on the

equalization of echelon 3, echelon 4, and echelon 5 positions

into functional positions. Strengthening functional positions

in government agencies is also one of the steps to improve

the professionalism of Civil Servants (PNS). This research

is a descriptive qualitative research, which collects data

through literature studies, observations, and interviews. The

result of this study is that there are several challenges faced

after the issuance of PANRB Ministerial Regulation Number

1 of 2023. The first is that by determining credit scores and

drafting performance contracts only involving functional

officials with their direct superiors, it is necessary to pay

attention to how these two parties can ensure that functional

officials have performance targets by their scope. Second,

from the side of the functional position coaching agency, it

has the task of monitoring and evaluating the agency that

uses its functional position. The challenge is that there is no

clear mechanism for following up on the results of the

monitoring and evaluation. Then the third is how training

can be used by coaching agencies to overcome the

competency or knowledge gap that occurs.

Introduction

Human resources (HR) is one of the components of organizations, both in the

private and public sectors. In the public sector, human resources are one of the areas that

are considered in development. In his inauguration as President of the Republic of

Indonesia for the 2019-2024 period, Joko Widodo said that human resource development

is one of the development priorities that will be carried out in his leadership period

(Presiden Republik Indonesia, 2019). The inclusion of human resource development in

this development priority shows that attention to the quality of human resources in the

public sector has become greater. Then, the development of human resources is also in

Rizki Indra Kurniawan

Jurnal Indonesia Sosial Teknologi, Vol. 5, No. 7, July 2024 3060

line with the Grand Design of Bureaucratic Reform for 2010 – 2025 which has 8 (eight)

areas of change, one of which is Apparatus Human Resources.

The development of human resources in the public sector is also still related to

another development priority of President Joko Widodo, namely the simplification of the

bureaucracy. This simplification is considered necessary because the bureaucracy is

considered inefficient. One of the indicators is the Indonesian Bureaucratic Efficiency

Index with a score of 56.3 (with the best score being 10 and the worst being 100) from

the Global Governance Index assessment (Prasojo, 2023). The index indicates that

bureaucracy in Indonesia is still inefficient, so bureaucratic reform is needed. In addition,

public organizations today in practice have many problems and dysfunction, so they

cannot produce efficient public services (Sedarmayanti, 2019).

This bureaucratic simplification includes at least two activities, namely simplifying

the bureaucracy into two-echelon levels and transferring structural positions to functional

positions (Pratama, Wibowo, & Purnomo, 2023). The two activities are interrelated,

where the number of echelons that are only two makes the other levels be eliminated,

namely echelon 3, echelon 4, and echelon 5. The loss of the position makes the officials

who are currently occupying the position have to be placed in new positions. To answer

this, the official was placed in a functional position, which is known as equalization of

positions into functional positions. This equalization of positions is not only due to the

factor of bureaucratic simplification but also because of several other problems behind it.

The problem is, first, a multi-tiered and very long decision-making process; second, the

orientation of Civil Servants (PNS) to pursue structural positions has weakened the

professionalism of duties and functions; third, building the responsibility of a position

holder not to delegate to a lower position.

In the implementation of this equalization of positions, the government through the

Ministry of State Apparatus Empowerment and Bureaucratic Reform (Kemenpanrb)

issued a regulation, namely the Regulation of the Minister of State Apparatus

Empowerment and Bureaucratic Reform Number 28 of 2019 concerning the Equalization

of Administrative Positions into Functional Positions, which was then updated through

PANRB Ministerial Regulation Number 17 of 2021 concerning the Equalization of

Administrative Positions into Functional Positions. The regulation is the legal basis and

guidelines regarding the implementation of equality of positions. After several years of

the idea of equalizing this position, statistically, the majority of civil servants in Indonesia

occupy functional positions. The statistical data is presented more clearly in the following

figure 1.

Challenges in Fostering Functional Positions After the Issuance of the Regulation of the

Minister of State Apparatus Empowerment and Bureaucratic Reform Number 1 of 2023

Jurnal Indonesia Sosial Teknologi, Vol. 5, No. 7, July 2024 3061

Figure 1 Graph of the Number of Civil Servants by Type of Position

Source: State Civil Service Agency (BKN) (2023)

Based on the statistics of civil servants published by the State Civil Service Agency

(BKN), it is known that the number of civil servants occupying functional positions is the

highest, namely 2,114,411 people or around 56% of the total number of civil servants in

Indonesia. The dominance of the number of civil servants who occupy functional

positions is a form of strengthening functional positions in the government. As a different

type of position coupled with the largest number of officials occupying it, the

management of this functional position must be clear. The goal is to avoid this functional

position remaining in its characteristics that prioritize certain expertise and skills and are

differentiated from executive positions and administrative (structural) positions.

To provide clearer regulations and guidelines related to functional positions, the

government issued regulations through the Ministry of PANRB, namely PANRB

Ministerial Regulation Number 13 of 2019 concerning the Proposal, Determination, and

Development of Functional Positions for Civil Servants. This rule is a guideline in the

management of functional positions, starting from appointment in office, career

development, to dismissal from position. While this regulation was still relatively not in

implementation, there was a change in the regulation. In 2023, PANRB Ministerial

Regulation Number 1 of 2023 was issued concerning functional positions which is a new

reference in the management of functional positions. The change in regulations certainly

brings several changes in the management of functional positions. In terms of the scope

of staffing, PANRB Ministerial Regulation Number 1 of 2023 already covers functional

positions occupied by Government Employees with Employment Agreements (PPPK).

In the previous regulation, it was only regulated about functional officials from civil

servants. Then in terms of coaching, which is quite interesting, the difference is that if in

the previous regulation, the calculation of credit scores for functional positions was based

on the Proposed List of Credit Numbers (DUPAK), then in the new regulation it is no

Fungsional;

2.114.411…

Jabatan Pimpinan

Tinggi (JPT);

22.011; 1%

Administrator;

97.425; 3%

Pelaksana;

1.343.873; …

Pengawas;

209.140; 5%

Eselon 5; 8.442;

Jumlah PNS Berdasarkan Jenis Jabatan

Fungsional

Jabatan Pimpinan Tinggi

(JPT)

Administrator

Pelaksana

Pengawas

Eselon 5

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Jurnal Indonesia Sosial Teknologi, Vol. 5, No. 7, July 2024 3062

longer based on DUPAK. The credit score for functional officials is based on the

conversion of performance predicates obtained by a functional official.

Talking about the management of functional positions is an interesting topic

because it has become one of the focuses in the management of civil servants in Indonesia

in recent years. This change in regulations is also a challenge that needs to be studied, in

addition to paying attention to problems that have occurred before. A year after the

implementation of the equalization of positions into functional positions, the study said

that there has been no direct impact on career development at the Ministry of PANRB

(Marthalina, 2021). This condition can be understood when viewed in terms of time,

application and impact is natural if it cannot be felt. This can be due to the need to adjust

to the new work environment, which means that it also requires adjustments to work

mechanisms. Other studies say that this equalization has an impact on the previous work

system, so it requires adjustments to the organization and work patterns (Permatasari &

Ariani, 2021). In line with this, Eko Prasojo also said that agencies still have difficulty

adapting to the new organizational structure, because there has been no adjustment to the

work mechanism with a functional-based organizational profile.

The change in the work mechanism is a challenge for functional positions after the

equalization, while for those who have held functional positions before, the change in

regulations in 2023 is a challenge that needs to be faced. A study was conducted on

functional officials of Goods/Services Procurement Management at the Construction

Services Selection Center (BP2JK) of the Gorontalo Region at the Ministry of Public

Works and Public Housing (Ministry of Public Works and Public Housing). This study

focuses on how this change in regulations affects the promotion of functional positions.

The results of the study said that out of a total of 8 functional officials, 5 functional

officials have the potential to experience promotions that are longer than regular time

(Nugroho, 2023). From the study, it is known that this change in regulations needs to be

considered because it can have an impact on the human resource management process of

the functional officials concerned.

Several studies that have been carried out related to these functional positions show

that this functional position still needs re-attention and becomes interesting to discuss.

Starting from the equalization of positions into functional positions that require

adjustments to work mechanisms, as well as career development after equalization that

also needs to be considered. Then it is interesting to discuss further related to the changes

in the regulations of functional positions that occur. This research aims to explore the

challenges faced after the issuance of PANRB Ministerial Regulation Number 1 of 2023.

It is hoped that with the identification of these challenges, functional officials can be

better prepared to face them and can be evaluated in the development of civil servant

management regulations, especially related to functional positions in the future.

Research Methods

This research is descriptive qualitative research, where qualitative research tries to

understand the meaning of individual or group behaviour through exploration, which then

Challenges in Fostering Functional Positions After the Issuance of the Regulation of the

Minister of State Apparatus Empowerment and Bureaucratic Reform Number 1 of 2023

Jurnal Indonesia Sosial Teknologi, Vol. 5, No. 7, July 2024 3063

describes social or humanitarian problems (Salam, 2023). Then according to John W.

Creswell and J. David Creswell (2018) this qualitative research is a "The process of

research involves emerging questions and procedures, data typically collected in the

participant's setting, data analysis inductively building from particulars to general themes,

and the researcher making interpretations of the meaning of the data". In other words, this

qualitative research tries to understand the events in the object of research, and then

interpret the data and findings obtained. In collecting data, this study uses literature study

techniques, observations, and interviews. The data that has been collected is then analyzed

through data coding, and analysis by data triangulation so that the analysis formed can

describe the events that occur in the field.

Results and Discussion

The discussion about functional positions has become interesting since human

resource development has become a priority of the President of the Republic of Indonesia

for the 2019-2024 period. The equalization of positions into functional positions is carried

out in the context of simplifying the bureaucracy. The existence of this equalization policy

has had the impact of changing the organizational structure in government agencies,

which then also demands the adjustment of the work mechanism. This working

mechanism is needed because, after equalization, government agencies are expected to

work on a function-based basis.

In addition to the issue of equalization of positions, changes in regulations are also

one of the issues that make the topic of functional positions interesting to discuss. PANRB

Ministerial Regulation Number 1 of 2023 was issued only about 4 years after the previous

regulation. This change in regulations is a challenge for functional officials and

government agencies, including functional position coaching agencies. Functional

position coaching agencies can be said to be government agencies that have additional

duties to manage functional positions. As managers, the coaching agency needs to

understand this new rule to then adjust to the conditions of the functional position that is

the responsibility of coaching.

One of the agencies that fosters functional positions is the Secretariat General of

the House of Representatives of the Republic of Indonesia (DPR RI). There are 5 (five)

functional positions whose responsibility for coaching is in the Secretariat General of the

House of Representatives of the Republic of Indonesia, namely State Budget Analyst,

Legislative Assistant, Assistant Legislative Assistant, Analyst for Monitoring the

Implementation of Laws and Regulations, and Legislative Analyst. Among the five

functional positions, the Legislative Secretary is the functional position with the largest

number of office holders and is spread more widely than other positions, as Table 1

shows.

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Jurnal Indonesia Sosial Teknologi, Vol. 5, No. 7, July 2024 3064

Table 1

Number and Distribution of Functional Officials of the Legislative Assembly

I'm

looking

forward

to the

DPR RI

Setjen

DPD RI

The

MPR RI

Secretariat of the

Provincial/Regency/City

DPRD

Total

372

412

From Table 1, it is known that out of a total of 412 functional officials of the

Legislative Secretariat, as many as 372 of them are in the Secretariat of the DPRD both

at the Provincial and Regency/City levels. In terms of proportion, of course, this is a very

large number, compared to those located in the Secretariat General of the House of

Representatives of the Republic of Indonesia itself. This considerable number is partly

due to the equalization of positions. This is known from the results of an interview with

Dewi Pusporini the Head of the Functional Position Development Section at the

Secretariat General of the House of Representatives of the Republic of Indonesia. The

functional officials of the Legislative Council in the DPRD Secretariat are mostly due to

the results of equalization into functional positions, which is the implementation of

bureaucratic simplification (Saefuloh, 2024). This condition requires good

communication and dissemination of information so that functional officials in regional

agencies also have access to qualified information.

The change in the regulation of functional positions through PANRB Ministerial

Regulation Number 1 of 2023 also makes the Secretariat General of the House of

Representatives of the Republic of Indonesia as a supervisory agency need to make

adjustments. The follow-up is to issue Regulation of the Secretary General of the House

of Representatives of the Republic of Indonesia Number 13 of 2023 which is a derivative

regulation in the form of Guidelines for the Implementation of Functional Positions.

Socialization and dissemination of information to all functional officials are also carried

out, both about the Regulation of the Minister of PANRB and the Regulation of the

Secretary General of the House of Representatives of the Republic of Indonesia related

to functional positions. From observations, it is known that the Secretariat General of the

House of Representatives of the Republic of Indonesia has carried out socialization

activities several times, for example on March 15, 2023, August 30, 2023, October 12,

2023, and November 7, 2023. According to Asep Ahmad Saefuloh, the Head of the

Human Resources Bureau of the Secretariat General of the House of Representatives of

the Republic of Indonesia for the 2022-June 2024 period, said that in addition to

conducting socialization in the form of hybrid meetings, other methods are also used,

namely through working visits to agencies that have functional officials of the Legislative

Secretariat, as well as opening doors for regional agencies that consult the Secretariat

General of the House of Representatives of the Republic of Indonesia (Saefuloh, 2024).

The goal is of course that every functional official and the agency where they are located

have enough information to carry out their daily duties and functions.

Challenges in Fostering Functional Positions After the Issuance of the Regulation of the

Minister of State Apparatus Empowerment and Bureaucratic Reform Number 1 of 2023

Jurnal Indonesia Sosial Teknologi, Vol. 5, No. 7, July 2024 3065

The socialization carried out in various ways is a response as well as an effort to

counter the feedback received by the Secretariat General of the House of Representatives

of the Republic of Indonesia. It is a response as well as a countermeasure because the

findings during interaction with functional officials and user agencies are that there is a

knowledge gap. In user agencies, the findings that are often found are not understanding

the meaning of minutes, which has been understood as minutes, turn out to be more about

brief reports or meeting notes (Pusporini, 2024). This difference in knowledge is

homework for the supervisory agency, to maintain and improve the performance

standards of functional officials of the Legislative Peri. It is hoped that by continuing to

socialize or interact in other forms, it can make functional officials aware that there are

still differences in knowledge, and know the path to explore the information needed.

There is still a lack of knowledge about the functional positions that are being

occupied, which is one of the points that needs to be improved. This condition was then

added to the existence of new regulations for functional positions. One of the updates

contained in this new regulation is that the determination of credit scores is no longer

based on DUPAK but through the conversion of performance predicate values. This rule

has the potential to pose challenges that are not simple, both for the functional officials

concerned, user agencies, and functional position coaching agencies.

Discuss the challenges of this credit score determination system, will discuss first

the old credit determination system, namely by using DUPAK. In this era of using

DUPAK, the performance contract carried out by functional officials to the organization

is based on the items of functional position activities. Each functional officer makes a

performance contract by choosing what activity items he will carry out in that year, and

where these activity items have their credit scores. With the availability of a choice of

activities that can be contracted, the work of this functional official will be by the duties

and functions of the functional position he occupies. This is because the item of activity

is set specifically for a functional position, which means that it has been adjusted to the

duties and functions of the functional position. As a result, it is hoped that the quality of

the work of this functional position can be maintained because the possibility of doing

work outside of their duties will be small.

Different conditions were then faced with the issuance of PANRB Ministerial

Regulation Number 1 of 2023, which made the determination of credit scores no longer

based on DUPAK. In this new regulation, the determination of credit scores will be based

on the predicate of the results of the performance assessment of a functional official. This

condition is said to be a challenge in the management of functional positions.

On the other hand, the performance standards that are targeted are a challenge to

this system. The reason is that the preparation of targets in this performance contract only

involves functional officials concerned with their direct superiors. It needs to be ensured

that these two parties have knowledge of the scope of work that should be the work of the

functional position. If knowledge about this is inadequate, there is a potential that

functional officials will have performance targets that are not the responsibility of their

duties and functions. In the concept of human resource management, in principle, this

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Jurnal Indonesia Sosial Teknologi, Vol. 5, No. 7, July 2024 3066

performance assessment is a way to measure the contribution of individuals to their

organization (Sulistiyani & Rosidah, 2018). However, it is still necessary to pay attention

to the portion of each individual, because there are positions that have been carried out so

that the workload or duties and functions must be adjusted. This is also corroborated by

the opinion that the results of work achieved in the context of fulfilling organizational

goals must be by the authority and responsibility of each individual (Sedarmayanti, 2019).

Such conditions prepare performance contracts need to pay attention to the scope of the

employee's position in question, in this case, it also includes functional positions.

About the performance management of these functional officials, the new

regulation puts the coaching agency in a less strategic position in the context of

monitoring the work results of its functional officials. This is due to the condition that has

been conveyed previously, namely the performance of this functional official is prepared

until the assessment is carried out between the functional official concerned and his direct

superior. When the targeted performance is an activity outside the scope of their

functional position, but on the other hand, their direct supervisor does not know if it is

not appropriate, and is still satisfied with the performance of their functional officials,

then the performance assessment will be fine. In this situation, the supervisory agency is

positioned only as a regulator and monitors the performance of functional officials.

First, the position of the supervisory agency as a regulator of functional officials is

reflected in the duties of the supervisory agency in PANRB Ministerial Regulation

Number 1 of 2023. In the regulation, it is stated that one of the tasks of the supervisory

agency is to prepare quality standards for work results and guidelines for assessing the

quality of work results of functional officials. This means that this coaching agency has

the responsibility to determine the standard of work results that are expected to be

produced by the functional officials who are responsible for coaching. This is a good start

because with this work result standard, there are clear provisions regarding how the

expected work results are. This standard can be used by functional officials and their

direct supervisors in compiling performance targets, of course by adjusting to

organizational performance goals. Similar conditions are also related to the guidelines for

the assessment of work results, which can be useful for the direct supervisor of functional

officials to provide an assessment of the work done by functional officials.

The existence of work performance standards and assessment guidelines for the

work results of functional officials is certainly a good point because it can maintain the

quality of work of the relevant functional officials and the organization where they serve.

On the other hand, a mechanism is needed to ensure that the standards for work results

and guidelines for assessing work results have been implemented properly. For the

supervisory agencies, there are tasks related to it, namely monitoring and evaluating the

implementation of functional positions in all government agencies that use these

functional positions. This monitoring and evaluation task looks promising as a controlling

mechanism, especially to control the quality of the work of functional officials. In

practice, the strength of this monitoring and evaluation is still a question mark, whether

it can affect functional position user agencies to comply with the results of the monitoring

Challenges in Fostering Functional Positions After the Issuance of the Regulation of the

Minister of State Apparatus Empowerment and Bureaucratic Reform Number 1 of 2023

Jurnal Indonesia Sosial Teknologi, Vol. 5, No. 7, July 2024 3067

and evaluation carried out. The imposition of sanctions if there is a discrepancy in the

results of monitoring and evaluation is also still unclear, so this monitoring and evaluation

is carried out only for mapping. For example, the Secretariat General of the House of

Representatives of the Republic of Indonesia, which is the agency that fosters the

functional position of the Legislative Executive, is tasked with monitoring and evaluating

government agencies that use these positions. When something is found that is not

suitable for monitoring, then it is not clear how to ensure that there will be improvements

in the future.

"Perhaps the problem is that we (the Secretariat General of the House of

Representatives of the Republic of Indonesia) cannot intervene in the (Secretariat) of the

DPRD (as an agency that uses functional positions) because the DPR is not the parent of

the DPRD".

This condition is a challenge in itself and from the perspective of state

organizations, it seems that this needs to be a concern for the central government. With

the task of monitoring and evaluation for this supervisory agency, of course, it needs to

be determined regarding the follow-up of the monitoring and evaluation that has been

carried out. A clear mechanism is needed to ensure that improvements are made to the

results of the monitoring and evaluation.

Before there is clarity regarding the follow-up of the monitoring and evaluation

results, at least there are steps that can be taken by the coaching agency related to the

issue of knowledge gaps or work quality, namely by organizing functional training. The

implementation of this functional training is also one of the duties of the functional

position coaching agency regulated in PANRB Ministerial Regulation Number 1 of 2023.

Training can be said to be a systematic process of changing worker behaviour in a

direction that will achieve organizational goals (WIbowo, 2022). Edwin B. Flippo also

stated that training is a process to help employees gain effectiveness in their current and

future work through the development of habits, thoughts, actions, skills, knowledge, and

attitudes (Sedarmayanti, 2019). From this opinion, it is known that this training is carried

out to develop the ability of employees or individuals to be able to carry out their duties

and functions effectively.

In carrying out this training, the functional position coaching agency is the

organizer of the training, starting from planning to evaluation. With this training, it is

hoped that functional officials have competencies that are by what has become the

standard. The existence of this training is certainly expected to reduce the competency

gap that still occurs, even to eliminate the gap. With the preparation of the curriculum

that is also in the coaching agency, the coaching agency can make a comprehensive

training plan regarding the substance that will be given to the participants of this training.

Of course, the preparation of this training curriculum needs to be carried out carefully, so

that the material provided is to the needs or problems that are being faced by functional

officials or user agencies. In the end, this can make this functional training one of the

means of maintaining and improving the competence of functional officials.

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Jurnal Indonesia Sosial Teknologi, Vol. 5, No. 7, July 2024 3068

Conclusion

From the discussions that have been carried out, the result is that in the development

of this functional position, there are challenges faced, especially related to the existence

of new regulations that regulate functional positions nationally. The first is related to the

determination of credit scores that no longer use DUPAK, but the conversion of

performance assessment predicates. The challenge is that these performance appraisals

only involve functional officials related to their direct supervisors. On the one hand, this

becomes a simpler process, but what needs to be ensured is that these two parties involved

have sufficient knowledge about the scope of work of functional positions. If not

equipped with sufficient knowledge, the potential for functional officials to do work

outside their scope becomes open and can reduce the quality of the work of individual

functional officials. The second is the challenge in the form of monitoring and evaluation

which is the task of the coaching agency. This monitoring and evaluation is carried out to

other government agencies that use functional positions. In its implementation, this

monitoring and evaluation is useful for mapping problems that occur in user agencies. On

the other hand, there is no clear mechanism for how the supervisory agency can play a

role in improving the findings or problems that occur in the user agency because the

position of government agencies has their basis. This condition makes the coaching

agency also not have a clear position and requires further regulation in handling this. Then

the last one is about functional training which is the task of the coaching agency.

Functional training can be one of the steps taken by the coaching agency in following up

on the monitoring and evaluation that has been carried out. This is because training can

be a means of improving the competence of functional officials. With note, this training

is accompanied by a curriculum that is by the needs of functional officials, so that the

training can be a concrete solution in overcoming the problem of competency gaps.

Challenges in Fostering Functional Positions After the Issuance of the Regulation of the

Minister of State Apparatus Empowerment and Bureaucratic Reform Number 1 of 2023

Jurnal Indonesia Sosial Teknologi, Vol. 5, No. 7, July 2024 3069

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