INFLUENCE OF INSTITUTION CAPACITY AND GOVERNMENT MANAGEMENT TOWARD KECAMATAN PERFORMANCE IN BEKASI REGENCY WEST JAVA PROVINCE

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1 INFLUENCE OF INSTITUTION CAPACITY AND GOVERNMENT MANAGEMENT TOWARD KECAMATAN PERFORMANCE IN BEKASI REGENCY WEST JAVA PROVINCE CARWINDA Team Promoter : Prof. Dr. Drs. Ermaya Suradinata, SH, MH, MS Prof. Dr.Tjahja Supriatna, SU Dr. Ismail Nurdin, MSi The phenomenon used as the object of research is the performance of districts in Bekasi Regency. The objectives of the research are (1) to discuss the influence of Institutional Capacity toward District Performance; (2) Discusses the influence of Government Management toward District Performance; (3) Discussing the influence of Institutional Capacity and Government Management together toward District Performance; (4) Obtain a new concept of discussion of the influence of Institutional Capacity and Governance Management toward District Performance. The conclusions gained from the discussion of research results are the following: The amount of Institutional Capacity Influence toward District Performance in Bekasi Regency reaches 0.63, is strong, positive and significant. The magnitude of Institutional Capacity Influence toward District Performance is determined by aspirations, strategy, organizational skills, systems and infrastructure, human resources, organizational structure, culture. The amount of influence of Government Management toward District Performance reaches 0.57, is quite strong, positive and significant. The magnitude of the influence of Government Management toward district Performance is determined by the division of labor, authority and responsibilities, work mechanism, rewards, work ethic, adjustment, combat culture, and anticipatory. There is influence of Institutional Capacity and Government Management together toward District Performance. From the multiple regression measurement, the contribution of Institutional Capacity is greater than the contribution of Government Management toward District Performance. New Concept derived from the discussion of the influence of Institutional Capacity and Government Management toward District Performance in Bekasi Regency is the New Concept I about Developing Working Culture Bureaucracy and New Concept II about Adjustment of Government Management. Keywords: Institutional Capacity, Government Management, District Performance. 44

2 PRELIMINARY Bekasi Regency, which has an area of 127,388 Ha, is divided into 23 districts, 5 kelurahan, and 182 villages. Twenty-three districts are divided into 3 district categories, namely the first typology: Growth Center District; second typology: Buffer District; and third typology: Rural District. Based on the 2014 District Typology Preparation Report, it was found that 8 Districts included in the growth center typology were (1) West Cikarang District, (2) North Cikarang District, (3) South Cikarang District, (4) Serang Baru District, (5) District of South Tambun, (6) District of Cibitung, (7) District of East Cikarang, and (8) District of Cikarang Pusat; Districts included in the buffer type typology are (1) Babelan District, (2) North Tambun District, (3) Taruma Jaya District, (4) Setu District, (5) Cibarusah District, (6) Karang Bahagia District, and (7 ) Kedungwaringin District; Districts that are categorized as rural typologies are (1) Pebayuran District, (2) Sukawangi District, (3) Sukakarya District, (4) Cabangbungin District, (5) Tembelang District, (6) Sukatani District, (7) Muaragembong District, and (8) Bojongmangu District. With different area and population density, each district in Bekasi Regency is also faced with different developments, needs and social problems. For example, social problems in the District of South Tambun which in 2012 reached a population density of people/km2 certainly different from the social problems in the Muaragembong District region where the population density reached only 255 people/km2. Although faced with demands and challenges that are somewhat different between one district area and the other district, all districts in Bekasi Regency have the same tasks and functions. Article 225 of Law Number 23 of 2014 states that the Head of District (Camat) has the task of: (a) organizing general government affairs; (b) coordinating community empowerment activities; (c) coordinate efforts to implement public order and peace; (d) coordinate the implementation and enforcement of Regional Regulations and Regulations; (e). coordinate the maintenance of public service infrastructure and facilities; (f) coordinate the implementation of government activities carried out by the Regional Apparatus in the District; (g) fostering and supervising the implementation of kelurahan and or village activities; (h) carry out Government Affairs which are the authority of the regency/city Region which are not carried out by the work units of the District/ municipality Regional Apparatus in the District; and (i) carry out other duties in accordance with the provisions of the legislation. Article 226 states that in addition to carrying out the tasks referred to in Article 225 paragraph (1), the subdistrict head obtains a delegation of part of the authority of the regent / mayor to carry out some of the Government Affairs that are the authority of the regency / city Region. The delegation of the authority of the regent / mayor as referred to is carried out based on the mapping of public services in accordance with the characteristics of the District and / or the needs of the community in the District concerned. 45

3 To carry out the affairs of the general government, coordinating various activities and carrying out the delegation of authority from the Regent effectively and efficiently, of course, it is necessary to support the optimal performance of the sub-district apparatus. With the support of optimal apparatus performance, it is expected that sub-district performance will also be optimal. But the reality shows that the performance of sub-districts in Bekasi Regency is still constrained by several weaknesses and shortcomings. Weaknesses and deficiencies inherent in the implementation of district duties and functions are indicated, among others, from strategic issues related to changes in the position and role of the Head of District and district functions. At first the position and role of the Head of District was known by the community as the Head of Region; and together with the Military Commanding (Koramil) and the Head of Police Sector (Kapolsek) the position of the Head of District is known as one of the elements of District Leadership Consultation (Muspika). However, since the issuance of Law Number 32 of 2004 and then changed to Law Number 23 of 2014 concerning Regional Government, the Head of District is no longer the head of the region; but the head of the Regional Work Unit is the same as the position of the heads of the Dinas and the Agency at the district level. In this context, the problem is that the Head of District does not have clear matters such as the Head of Service or the Head of the Agency. Meanwhile, the district performance in Bekasi Regency is not yet optimal, it appears to be a phenomenon of bureaucratic performance that cannot be separated from the influence of various variables. Against this phenomenon the author assumes that the institutional capacity of the District Office and the management of the government organized by the Head of District and the Districts are two variables that significantly influence the performance of the sub-district. Assumptions are based on the following premise major: First, the institutional capacity of the district which is formed from the management of apparatus resources, budget resources, facilities and infrastructure resources, and policy resources is the support of government administration for the implementation of the authority, duties and functions of the district. Therefore, conditionally and functionally the institutional capacity certainly has a positive effect on the performance of the district. Second, government management which includes the planning function, implementation function, coordination function, supervisory function, and the reporting function that takes place in the implementation of various policies, programs and district activities is the support of work patterns in the exercise of authority, tasks and functions of the district. Therefore, conditionally and functionally the management of the government certainly affects the performance of the district. With the premise major presented, in order to actualize assumptions, the authors consider it necessary to conduct a research approach. For this reason, based on the assumption selected the following research titles: "The Influence of Institutional Capacity and Government Management on the Performance of 46

4 Districts in Bekasi Regency, West Java Province". The title of the research was chosen on the grounds that the performance of the district and its correlation with the problems of institutional capacity and management of the government can be used as objects of application of the Government Science function, because these objects have represented material objects and also formal objects of Government Science. THEORETICAL FRAMEWORK Theoretical Framework consists of grand theory: Government Science; middle range theory: Decentralization and Regional Autonomy Theory; and applied theory which includes Institutional Capacity Theory, Government Management Theory, and Performance Theory. The exploration of theory is carried out to derive the driven theory of the preparation of operational concepts of research variables. The results of the exploration are as follows: Institutional Capacity Variable: The framework of regional government institutional capacity can also be interpreted to include the potential of all administrative elements in the government bureaucracy. How is the institutional capacity framework identified, McKinsey (2001: 33) explains: The Capacity Framework, defines nonprofit capacity in a pyramid of seven essential elements: three higher-level elements - aspirations, strategy, and organizational skills - three foundational elements - systems and infrastructure, human resources, and organizational structure - and a cultural element which serves to connect all the others. The team defined these elements as follows: Aspirations: An organization s mission, vision, and overarching goals, which collectively articulate its common sense of purpose and direction; Strategy: The coherent set of actions and programs aimed at fulfilling the organization s overarching goals; Organizational Skills : The sum of the organization s capabilities, including such things (among others) as performance measurement, planning, resource management, and external relationship building; Human Resource: The collective capabilities, experiences, potential and commitment of the organization s board, management team, staff, and volunteers; Systems and Infrastructure : The organization s planning decision making, knowledge management, and administrative systems, as well as the physical and technological assets that support the organization; Organizational Structure: The combination of governance, organizational design, inter functional coordination, and individual job descriptions that shapes the organization s legal and management Structure; Culture: The connective tissue that binds 47

5 together the organization, including shared values and practices, behavior norms, and most important, the organization s orientation towards performance. With the foundation of the theory of capacity framework from McKinsey a conceptual definition of a variable is established that Institutional Capacity is the condition and organizational ability of the District Office in Bekasi Regency which is revealed from aspirations, strategy, organizational skills, systems and infrastructure, human resources, organizational structure, culture. From the conceptual definition seven dimensions of analysis were derived, namely (1) Dimensions of aspirations, (2) Dimensions of strategy, (3) Dimensions of organizational skills, (4) Dimensions of systems and infrastructure, (5) Dimensions of human resources, (6) Dimensions of organizational structure, and (7) Cultural dimension. These seven dimensions are operationalized into 21 manifest variables. Government Management Variables: According to the Institute of State Administration (1978: 90), that the general principles of government management include several activities, including: 1). Division of work, management of the government adheres to the principle of division of labor, both with the status of a high institution and the highest state institution, up to the level of the work unit that is under it; 2). Authority and responsibility, officially someone who occupies a position in a particular work unit must be given authority and responsibility in order to carry out their duties in accordance with the objectives; 3). A clear working mechanism, with a clear working mechanism, is expected to create a unity of government, and unity of direction, where personal interests and official interests must be clearly distinguished, so that they are not mixed up or overlapped; 4). Appreciation for each member, this award is carried out in the form of status status and money for member welfare; 5). High work ethic, including discipline, order and hard work which is based on high morality, honesty and piety to God Almighty; 6). Adjustment, which means adjustments to the social environment and physical environment; 7). The culture of struggle, the meaning is a work culture based on high financial value; 8). Anticipative, the intention is to take into account the future with short, medium and long term program strategies to be better than the present. Based on the eight principles of government management, the conceptual definition that Government Management is the process of managing administrative resources in the implementation of tasks and functions of the sub-district office revealed from the division of labor, authority and responsibility, work mechanism, awards, work ethic, adjustment, culture competitive, and anticipatory. From the conceptual definition eight dimensions of analysis are derived, namely (1) Dimensions of division of labor, (2) Dimensions of Authority and responsibility, (3) Dimensions of work mechanisms, (4) Dimensions of Awards, (5) Dimensions of work ethics, (6) Dimensions of Adjustment, (7) the dimensions of the struggle culture, and (8) the anticipatory 48

6 dimension. These eight dimensions are operationalized into 24 manifest variables. District Performance Variable : According to Mathis and Jackson (2002: 91), performance measures include the quantity of work (the volume of work that meets the requirements under normal conditions), the quality of work (perfection, regularity, and accuracy of work), knowledge of work (clear understanding of appearance, sociability, leadership and integrity), cooperation (ability and willingness to cooperate with colleagues, supervisors and subordinates to a common goal), dependency (thorough, complete, accurate), initiative (sincerity in trying to gain increased responsibilities), courage to acting alone or initiating work. Based on the performance theory Mathis and Jackson compiled a variable conceptual definition that the District Performance is the process and results of work which are revealed from the quantity of work, the quality of work, knowledge of work, cooperation, dependency, initiative, courage to start work. From the conceptual definition seven dimensions of analysis are derived, namely (1) Dimensions of the quantity of work, (2) Dimensions of the quality of work, (3) Dimensions of knowledge of work, (4) Dimensions of cooperation, (5) Dimensions of dependence, (6) Dimensions of initiative, and (7) The dimension of courage to start work. These seven dimensions are operationalized into 21 manifest variables. With the construct of each variable then a thought framework is drawn up to illustrate the concept of the idea of studying the causality relationship between Institutional Capacity and Government Management which is seen as entecedent variables and District Performance as consequencies variable. RESEARCH METHODS The research approach used is quantitative research methods. The operationalization of the research variables consisted of 66 Manifest variables which were made into 66 research questionnaire items. Preparation of a research questionnaire using a Likert Scale. The research sample of 214 people was taken from a population of 469 people using the Krejcie Table. Data collection techniques: Literature Study is used to collect secondary data from various books and documents; Questionnaire technique to collect primary data from respondents who are in the research sample; and Observations carried out by visiting Districts in Bekasi Regency. Data Analysis Techniques used tructural Equation Model Analysis and Multiple Regresssion Analysis. RESEARCH RESULTS AND DISCUSSION : Discussion of the results of the research was carried out to describe the results of SEM analysis in depth. The structure of the discussion is the following: Analysis of the Results of Measurement of the Influence of Institutional Capacity toward District Performance The results of statistical measurements show the magnitude of 49

7 the influence influence of Institutional Capacity toward the District Performances reaching The influence of Institutional Capacity toward District Performance is fairly positive and significant. The magnitude of the influence of Institutional Capacity on District Performance is determined by aspirations, strategy, organizational skills, systems and infrastructure, human resources, organizational structure, and culture. The existence of these influences shows that among the Institutional Capacity of District Office which is positioned as an antecedent variable (which precedes, because) with the District Performance which is positioned as a consequence variable (phenomenon, due to) a causality is interwoven. The existence of this causality relationship means that if the Institutional Capacity of District Office is increase or increased, this increase is stimulatively followed by an increase in District Performance. With this meaning, it can be stated that the Institutional Capacity of District Office in Bekasi Regency is one of the factors causing the rise and fall of District Performance. Therefore, improving the performance of districts in Bekasi Regency can be done by increasing the institutional capacity of the district office. Practical Implications: Practically, the performance improvement of districts in Bekasi Regency to the desired level can be done by increasing, strengthening, improving, optimizing 21 manifest variables of Institutional Capacity of District Office. The twenty-one manifestations of institutional capacity variables in question consist of: (1) Organizational Vision Statement, (2) Organizational Mission Statement, (3) Organizational Goal, (4) Performance Optimization Strategy, (5) Budget Use Strategy, (6) Strategy Cooperation, (7) Developing Strategic Plans, (8) Budget Management, (9) Performance Management, (10) Information Systems, (11) Work Facilities, (12) Activities Infrastructure, (13) Number of Apparatus, (14) Apparatus Competency, (15) Apparatus Performance, (16) Organizational Structure, (17) Procedures, (18) Coordination, (19) Confidence, (20) Work Norms, and (21) Work Ethics. Twenty-one manifest variables can be conceptualized as follows: Organizational Vision Statement is the ideal picture of the future of the Camat Office organization that is to be achieved or realized gradually and continuously by describing the organization's mission into a series of policy implementation and implementation activities of subdistrict tasks and functions. In the practical dimension of the Institutional Capacity of the Head District Office, this organization's vision statement should be adjusted to the Head District Office's authority and duties in managing internal resources and mobilizing district external resources to improve development performance, empowerment and service. Organizational Mission Statement is a Camat Office organizational performance design in realizing the organization's vision to achieve certain goals and objectives through the implementation of various programs and activities planned in advance by clearly defining budget performance indicators that must be realized in achieving the goals and the target. In the practical dimension of the 50

8 Institutional Capacity of the Head District Office, the organization's mission statement should be adjusted to the Head District Office's authority and duties in managing internal resources and mobilizing district external resources to improve development performance, empowerment and service. The Organizational Goal is the design of the Camat Office's program and activity performance in realizing the organization's vision and mission into organizational behavior and a pattern of patterned, integrated and directed resource management in an effective, efficient and accountable manner. In the practical dimension of the Institutional Capacity of the Head District Office, the achievement of organizational goals should be adjusted to the authority and organizational duties of the Head District Office in managing internal resources and mobilizing district external resources to improve development performance, empowerment and service. Performance Optimization Strategies are the reasons, tips, tactics and specific ways that are applied to motivate and improve individual performance, group performance and organizational performance in coordinating and implementing various policies, programs and government activities as well as development, empowerment and service activities at the district level. In the practical dimension of the Institutional Capacity of the Head District Office, this performance optimization strategy should be based on the authority and organizational duties of the Head District Office in managing internal resources and mobilizing district external resources to streamline the implementation of government functions at the district level. Budget Use Strategies are reasons, tips, tactics and certain ways that are applied to increase transparency, accuracy, efficiency and accountability of budget management performance (financial management) in accordance with the applicable rules for the implementation of policies, activities, governance, development and empowerment effective. In the practical dimension of the Institutional Capacity of the Head District Office, this budget use strategy is implemented by increasing supervision, preventing Corruption, Collusion and Nepotism (KKN) motives and practices, as well as critically and carefully recording every expenditure with evidence that can be accounted for. Cooperation Strategy is the reasons, tips, tactics and certain ways that are applied to establish and develop the collaboration of the Head District Office with various parties, especially with stakeholders at the district and village/kelurahan levels that are carried out in order to implement various government policies, programs and activities. development, empowerment and service. In the practical dimension of the Institutional Capacity of the Head District Office, this cooperative strategy is implemented by improving and expanding coordination, integration and participation of various government administrative resources and social resources. Government administration resources in question include human resources, financing resources, infrastructure resources and policy resources. Developing a Strategic Plan is the organization's strategic planning to 51

9 address and anticipate the dynamics of the internal environment and the external environment of the organization within a period of five years in order to describe the implementation of the Bekasi District Medium Term Development Plan (RPJMD) according to the authority, duties and functions of the District Office. In the practical dimension of the Institutional Capacity of the Head District Office, formulating a strategic plan is carried out by analyzing the dynamics of the internal and external environment of the organization to form strategic issues; formulate vision and mission; goals and objectives; program; approach pattern; and performance indicators for each activity. Budget Management is public financial management that is controlled by the government bureaucracy work unit, organized in the framework of implementing government affairs at the sub-district level and meeting the needs and expectations of the public related to the implementation of authority, duties and functions of the Head District Office. This public financial management includes managerial functions which include: (1) Planning Budget Allocation Points and Budget Performance Indicators; (2) Organizing Users of Budget Allocation; (3) Implementation of the Budget Allocation Function; (4) Supervision of the Use of Budget Allocation; and (5) Reporting and Evaluation of the Use of Budget Allocation until the Budget Performance Accountability Report is formulated. In the practical dimension of the Institutional Capacity of the Head District Office, budget management is tied to regional financial regulations and regional budget allocation policies for districts. Therefore, the choice of priority scale of budget allocation and budget performance is needed to ensure coordination of the implementation of government affairs and optimal public service activities at the district level. Performance Management is the management of work behavior and activities of the government bureaucratic work unit in managing administrative resources to carry out governmental affairs at the district level and meeting the needs and expectations of the public related to the exercise of authority, duties and functions of the Head District Office. Management of work behavior and these activities includes the following managerial functions: (1) Planning input on performance resources; (2) Organizing and implementing process performance; (3) Achievement of performance output; (4) Assessment of performance outcomes; and (5) Monitoring the impact of performance until the Government Accountability Performance Report is prepared. In the practical dimension of the Institutional Capacity of the Head District Office, performance management is carried out by actualizing the principles of transparent, professional, effective and accountable. In this context, of course there is a need for an effective consultative, coordinative and leadership style. The Information System is a series of multi-directional communication activities that are intertwined in the management process of government administration resources at the district level which are carried out by applying e-government systems. This information system includes elements of communication consisting of: (1) Communicator (communicator, 52

10 source, sender); (2) Message; (3) Media; (4) Communicant; and effects arising from the communication process. In the practical dimension of the Institutional Capacity of the Head District Office, this information system is organized to promote and or socialize various government policies, programs and activities related to the interests of the community and at the same time capture various information from the public which is also related to government policies, programs and activities. Work Facilities are all office fittings needed to carry out technical administration and administrative work in the execution of tasks and functions of the Camat Office which are carried out with or not by applying information technology. In the practical dimension of the Institutional Capacity of the Head District Office, the provision and function of each type of work facility is to clarify, simplify and or facilitate the technical work or activities in each field or section. Activity Infrastructure are all physical infrastructure and non-physical infrastructure in the Head District Office and in all districts used and/or needed to facilitate the implementation of various government, development, empowerment and public service activities. The infrastructure of this activity is not only the Head District Office and social and public facilities in the district area but also includes the activity infrastructure in each village / kelurahan. In the practical dimension of the Institutional Capacity of the Head District Office, the provision and function of each type of infrastructure, this activity is to clarify, facilitate and or facilitate the implementation of Mandatory Government Affairs relating to Basic Services for the gradual realization of community welfare. The number of apparatuses is the number of employees who work in accordance with the structure of the position, function of the office and division of labor at the District Office. In the practical dimension of the Institutional Capacity of the Head District Office, because not all employees working in the Head District Office are Civil Servants (PNS), there are those who are status as Daily Officers (PLH), Honorary Workers or Contract Workers. discriminatory or lack of respect for Non Civil Servenats. Apparatus Competency is an intellectual capacity, the quality of mental attitude of a professional ability possessed by an employee and relevant to the function of the position and workload. In the practical dimension of the Institutional Capacity of the Head District Office, because not all employees working in the Head District Office have competencies that are in accordance with the distribution of workloads, the placement of employees in certain jobs that demand certain competencies must be done carefully and precisely. In addition, because it is only based on employment status, the placement of civil servants in structural positions that are not based on relevant competencies, need to be accompanied by the placement of staff who have competencies that are in accordance with the structural position competencies. Apparatus Performance is the process and results of work performed by an employee; the process and results of work are relevant to the function of the office and / or workload. In the practical dimension of the Institutional Capacity of the Head District Office, 53

11 because not all employees who work in the Head District Office show professional performance or optimal performance in accordance with the function of the job or field of work, then naturally the performance of the apparatus is an obstacle in efforts to improve the performance of the district. In addition, because it is only based on employment status, placement of civil servants in structural positions that are not based on relevant competencies tend to cause the performance of civil servants not in accordance with the structural position competencies. The organizational structure is a position chart, distribution of authority and division of work of the Camat Office as one of the Regional Work Units which has certain tasks and functions. Basically the District Office organizational structure is the same; but there are regions that divide the subdistrict typology into 3 categories, namely the first typology: District Growth Center; second typology: Bbuffer District; and third typology: Rural District. Each typology has its own characteristics and criteria. Regardless of the sub-district typology in question, what is important is how to effectively implement the function of the district office structure. This means that not only is the District Office position chart clear; distribution of authority, division of labor, and placement of personnel must also be appropriate and effective. The procedure is a set of rules, certain stages and times that are applied to realize administrative order and regularity of the District Office's activities in carrying out various affairs related to the implementation of the duties and functions of the District Office. This procedure is not only applied in the internal environment of the organization but also applies to the external environment of the District Office. In the practical dimension of the Institutional Capacity of the Head District Office, procedures that are overused or convoluted can actually hinder the smooth completion of functions; can cause waste of resources; and takes a long time, and is used as an opportunity to obtain certain rewards. Coordination is the process of aligning various resources and technical implementation of tasks and functions of the District Office in implementing various policies, programs and activities of government, development, empowerment and public services. Alignment of the resources in question includes human resources, financing resources, prarsarana facility resources, and policy resources and externality resources of the Camat Office. In the practical dimension of the Institutional Capacity of the Head District Office, functionally coordination is a series of administrative approaches and technical approaches that are carried out for the purpose of coordinating and integrating various District Office organizational resources to be more integrated, directed and optimized. This coordination is very important for the realization of the organizational behavior of the District Office in carrying out the tasks and institutional functions which are divided into a number of functions. Confidence is the focus of the employee's view of the values in the District Office organizational environment that is considered good and true and binds together all employees. Although the beliefs of each employee differ somewhat from one another; but collectively this belief 54

12 forms a certain work norms and ethics. In the practical dimension of the Institutional Capacity of the Head District Office, there are a number of employees who ignore belief; and there are a number of employees who actually cling to that belief. With the view that this belief is an internal potential of employees and at the same time a social potential for employment, these employees' beliefs should be strengthened as one of the internal potential of employees to support the formation of values of trustworthy, professional and accountable organizational behavior and the realization of a free work environment of corruption, collution and nepotism. Work Norms are a set of rules, regulations and work procedures that are binding and must be adhered to by employees of the District Office in carrying out office functions, jobs and government affairs related to basic services. This work norm applies in the management process of the District Office administrative resources which includes human resources, financing resources, prarsarana facility resources, and policy resources and resources of the sub-district externalities. In the practical dimension of the Institutional Capacity of the Head District Office, this work norm is a series of individual work behaviors, group or work unit work behavior, and organizational behavior at the District Office in implementing various policies, programs and activities of government, development, empowerment and public services. Work ethics is the attitude and work behavior of the District Office employee which must be demonstrated and carried out as a logical consequence of the rights obtained from his position and role as an employee or the State Civil Apparatus. Actualization of work ethics is bound by a set of rules, regulations and work procedures that apply and must be applied in every work unit of the government bureaucracy, including the Camat Office. In the practical dimension of the Institutional Capacity of the Head District Office, this work ethic is related to the importance of morality, integrity and professionalism of employees in positioning and actualizing themselves as servants of the state and as well as public servants in their work environment. New Concept: The results of the Confirmatory Factor Analysis (CFA) on the measurement of the influence of Institutional Capacity toward District Performance shows that the Culture Dimension is the most dominant factor in the process of forming the magnitude of the influence of the District Office Institutional Capacity toward District Performance in Bekasi District. Based on the CFA, a New Concept on the Development of the Work Culture of the Bureaucracy follows: Theoritical Foundation: McKinsey (2001:33) said: The Capacity Framework, defines nonprofit capacity in a pyramid of seven essential elements: three higher-level elements - aspirations, strategy, and organizational skills - three foundational elements - systems and infrastructure, human resources, and organizational structure - and a cultural element which serves to connect all the others. Empirical Platform : The results of the Confirmatory Factor Analysis show that the Dimension of Culture is the most dominant factor in the process of forming the magnitude of the influence of the Institutional 55

13 Capacity of the District Head Office on the Performance of Districts in Bekasi Regency. The dominant contribution of the Dimension of Culture to the exogenous latent variables Institutional Capacity is seen as research findings formed from the respondents who were the research sample. Definition: Development of a Work Culture Bureaucracy is a redefinition and reactualization of a bureaucratic value system that includes the values of beliefs, work norms and work ethics of the apparatus in implementing government policies and activities to be in line with the rapid changes in the environment that are not independent of global, regional, national and local influences. In this definition three dimensions of development are included: (1) The dimensions of confidence of the apparatus in implementing government policies and activities; (2) The dimensions of the work norms of the apparatus in carrying out government policies and activities; and (3) the Dimensions of Work Ethics in implementing government policies and activities. Analysis of Measurement Results of the influence of Government Management toward District Performance The results of statistical measurements show the magnitude of the influence of Government Management toward District Performance reaching 0.57, fairly strong, positive and significant. The magnitude of the influnce of Government Management toward District Performance is determined by the division of labor, authority and responsibility, mechanism of work, awards, work ethic, adjustment, culture of struggle, and anticipatory. The existence of these influences shows that between Government Management is positioned as an antecedent variable (which precedes, because) with District Performance which is positioned as a consequence variable (phenomenon, due to) a causality relationship. This causality relationship means that if Government Management increase or increased, this increase is stimulatively followed by an increase in District Performance. Thus, it can be stated that Government Management in District Office is one of the factors causing the increase or not the increase in District Performance in Bekasi Regency done by improving government management held by the District Office. Practical Implications: In the practical dimension, the performance improvement of sub-districts in Bekasi Regency to the level of performance that is expected to be pursued by improving, strengthening, improving, or optimizing 24 Government Management manifest variables that take place in the exercise of authority, duties and functions of the District Office. The twenty four Government Management manifest variables in question consist of (1) division of labor according to individuals, (2) division of labor according to work units, (3) division of labor according to affairs, (4) distribution of authority, (5) distribution of responsibilities, (6 ) Implementation of authority, (7) Arrangement and direction, (8) Implementation and control, (9) Supervision and reporting, (10) Financial awards, (11) structural awards, (12) social awards, (13) Work motivation, ( 14) Work spirit, (15) Work productivity, (16) Adjustment to 56

14 changes in rules, (17) Adjustment to changes in leadership, (18) Adjustment to changes in the environment, (19) Breakthrough, (20) Service, (21) Sacrifice, (22) Anticipation of performance demands, (23) Anticipation of limited resources, and (24) Anticipation of environmental demands. Twenty-four Government Management manifest variables are actualized into the District Office organizational perspective with the concept of understanding each variable as follows: The division of labor according to individuals is the submission of work to employees in certain assignments related to certain duties and functions at the District Office. In the practical dimension of the District employees have the relevant competencies to receive the submission of the work. The fact of this problem occurs because of the background of the problem which ignores the importance of the relevance of one's competence with the field of work or the function of the position given to him. The division of labor according to the work unit is the submission of work or activities to a group of employees according to the duties and functions of certain work units listed in the organizational structure of the District Office. In the practical dimension of the District Government Management Office, the problem facts identified are that not all groups of employees have optimal collective competence and solidity to receive the submission of the work or activity. The fact of this problem occurs because of the background of the problem which ignores the importance of collective competence and solidity in certain work units. Division of work according to affairs is the delivery of work or certain matters to certain work units listed in the organizational structure of the District Office. In the practical dimension of the District Government Management Office, the problem facts identified are that not all sub-district office units have optimal authority to carry out these affairs. Distribution of authority is the submission of a portion of the authority of the Regional Head to the District Head or the submission of the District Head Office structural authority to officials or work units that are structured in the organizational structure of the District Office to implement certain policies or activities. In the practical dimension of the District officials or work units of the District Office have optimal managerial readiness and preparation to carry out these powers. The authority in question is the authority submitted by the Regional Head to the District Head to carry out certain functions related to the implementation of decentralization and regional autonomy policies. The distribution of responsibility is the submission of performance accountability to the personal in positions structured in the organizational structure of the District Office. Performance accountability is related to the implementation of policies and or activities that are attached to the functions of these positions. In the practical dimension of the District personnel in District Office positions 57

15 have the capacity, integrity and professionalism to demonstrate optimal performance accountability. The exercise of authority is the implementation of structural position authority by officials of the District Office in carrying out the duties and functions of the District Office. In the practical dimension of the District District Office structural officials master effective leadership styles to carry out these powers. Arrangement and direction are leadership behaviors that involve superiors and subordinates into a single collective behavior in carrying out certain tasks or activities. In the practical dimension of the District District Office structural officials master effective leadership styles to carry out these powers. Control implementation are managerial behaviors that involve superiors and subordinates into a single collective behavior in carrying out and controlling certain work or activities. In the practical dimension of the District structural officials of the Camat Office master the managerial ability to effectively control the implementation of work or activities. Supervision and reporting are managerial behaviors that involve superiors and subordinates into a single collective behavior in carrying out the supervisory function and reporting function. In the practical dimension of the District Government Management Office, the problem facts identified are that not all structural officials of the District Office master managerial ability to supervise and report on the effective implementation of work or activities. Financial awards are performance benefits, official rewards or rewards for optimal performance or achievement of work performance of a person or group of officers in carrying out work or activities in accordance with their position and field of work. In the practical dimension of the District apparatuses are able to show optimal performance or achievement of work performance in accordance with their position and field of work. Structural awards are a show of respect from superiors to subordinates which are revealed in various ways because subordinates show performance and or work behavior that is worthy of appreciation so that subordinates feel valued by their superiors. In the practical dimension of the District superiors want and sincerely show respect to their subordinates who show performance and or work behavior that deserves appreciation; there are even bosses who tend to be arrogant with their positions. Social award is a show of respect from superiors to subordinates which is revealed in various ways because subordinates show performance and or work behavior that deserves appreciation so that subordinates feel valued by their superiors. In the practical dimension of the District superiors want and sincerely show respect to their subordinates who show performance and or work behavior that 58

16 deserves appreciation; there are even bosses who tend to be arrogant with their positions. Work motivation is the encouragement of the needs or expectations of the apparatus towards his position or work that affects his views, attitudes and behavior in work. In the practical dimension of the District Government Management Office, the problem facts identified are that not all officials have optimal work motivation in accordance with the mandate of the job or the demands of their work; and even if there is a work motivation in question, the work motivation actually causes certain irregularities. Working spirit is the passion and physical power of a person in carrying out his work. In the practical dimension of the District Government Management Office, the problem facts identified are that not all officials have a stable and consistent work spirit within a relatively long period of time; in fact, the reality shows that at a certain age the workforce's morale is declining. Work productivity is the result of work or work performance achieved by someone in carrying out their work, which can be assessed according to the quantity or quality of the work itself. In the practical dimension of the District officials are able to achieve certain work results or work performance according to the function of the job or the demands of their work. Adjustment to changes in rules is the adjustment of work behavior and implementation of work carried out by the apparatus according to changes in the applicable legal rules to regulate work behavior and execution of work. Changes to the rule of law in question include changes in legislation related to the regulation of apparatus management governance (ASN management), regulation of budget resource management (financial management), regulation of infrastructure and infrastructure resources (goods management), and regulation governance of government policy resources (policy implementation). In the practical dimension of the District officials are able or may be reluctant to adjust their work behavior and implementation of their work according to changes in the rule of law that regulates work behavior and the execution of their work. Adjustment to changes in leadership is the adjustment of work behavior and implementation of work according to changes in government leadership and bureaucratic leadership that occur as a result of the implementation of a democratic system of government. Substitution of government leadership in question is the change of Regional Head which lasts every five years, and the change of Head of Regional Working Unit which occurs according to the policy of the Regional Head. In the practical dimension of the District Government Management Office, the problem facts identified are that not all apparatus are able or reluctant to adjust work behavior and implementation of their work according to leadership changes. Adjustment to environmental changes is the adjustment of work behavior and the implementation of the work of the apparatus that has orientation to the public interest, 59

17 community development, and environmental changes. The process of adjusting work behavior and the implementation of the work is very important because the public interest that must be served is increasingly complex along with the development of society that is increasingly critical of the work behavior of the apparatus. Meanwhile, environmental changes that further reduce the balance of environmental resources also increasingly demand the work behavior of responsive apparatus. In the practical dimension of the District Government Management Office, the problem facts identified are that not all apparatuses are able or reluctant to adjust work behavior and implementation of their work according to environmental changes. Breakthrough is a series of actions of officials who dare to take certain risks that can still be tolerated in removing obstacles to the implementation of work or activities that arise from the complexity of bureaucratic work procedures to achieve the common goals and goodness. In the practical dimension of the District officials dare to make a breakthrough to the obstacles or obstacles that actually can and need to be removed for the common purpose and goodness. Devotion is a manifestation of the attitude and work behavior of the apparatus that is driven by the spirit of work without self-interest because he is very aware that he has obtained his rights from the obligations under his care. In the practical dimension of the District Government Management Office, the problem facts identified are that not all officials have the spirit of dedication in carrying out their work. Sacrifice is a manifestation of the attitude and work behavior of the apparatus who are driven by the spirit of serving without any reward because he is well aware that he has obtained all the rights and facilities of the State or the implementation of his duties and responsibilities as a State Civil Apparatus (ASN). In the practical dimension of the District Government Management Office, the problem facts identified are that not all officials have the spirit of sacrifice in carrying out their duties and responsibilities as ASN. Anticipation of performance demands is a series of changes in the views, attitudes and work behavior of the apparatus that are based on the demands of the community for the performance of the bureaucracy, especially the demands of the community for the performance of the apparatus. In the practical dimension of the District Government Management Office, the problem facts identified are that not all apparatus are aware of the importance of changing views, attitudes and work behaviors that are oriented towards the demands of citizens. Anticipation of limited resources is a series of adjustments in attitudes and work behavior of the apparatus in overcoming resource constraints. The resources in question include human resources, policy resources, financing resources, and infrastructure facilities. In the practical dimension of the District Government Management Office, the problem facts identified are that not all officials are aware of the importance of adjusting the attitudes and work behavior of the apparatus in overcoming the limitations of resources. 60