SISTEMADMINISTRASIKEPEGAWAIAN

Materi Administrasi Kepegawaian Negaradisiapkan oleh Lina Miftahul Jannah

2013

1

MENGAPA SISTEM KEPEGAWAIAN

NEGARA PENTING?

Bekke, et.all, 1996:

• Negara didominasi oleh keterlibatan manusia yangmemiliki karakteristik unik dan kepribadian unik:kebutuhan dasar, perlakuan yang wajar dan adil,pengembangan diri dan emosional, pengembangan

2

pengembangan diri dan emosional, pengembangankarir

Prasojo, 2007

• Keberhasilan pembangunan beberapa negara terletakpada usaha sistematis dan sungguh-sungguh untukmemperbaiki SKN

• KN merupakan faktor dinamis birokrasi yangmemegang pernanan dalam penyelenggaraanpemerintahan

ADA TIGA SISTEM KEPEGAWAIAN:

The IntegratedPersonnel

System

The SeparatedPersonnel

System

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System System

The UnifiedPersonnel

System

THE INTEGRATED PERSONNEL

SYSTEM

Personnel of the local bodiesand those of the state

government form a part of thesame service. All or some

categories of personnel of thelocal bodies may be drawn from

In the `integrated’ system thepersonnel are transferred

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local bodies may be drawn fromthis service. The local civil

service is absorbed into thestate civil service. The state

government can transfer themfrom the urban body to other

departments

personnel are transferredbetween national, state and

municipal governments

An integrated service covering both national/state governmentsand municipal government is based on merit principles. Its

distinctive feature is vertical as well as horizontal transferability ofpersonnel

ADVANTAGES OF INTEGRATEDPERSONNEL SYSTEM [1]

Ensures the same salaries, conditions of service, and retirement benefits forcivil servants regardless of the level of service

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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 ofeducational and training programs to meet them

ADVANTAGES OF INTEGRATEDPERSONNEL SYSTEM [2]

Facilitates the optimal use of trained personnel and permits the use ofcentralized personnel service and uniformity in personnel rules and practicesto the extent advisable

Facilitates the decentralization of development functions and thereby

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Facilitates the decentralization of development functions and therebyincreases the participation of the people in the administration of thosefunctions.

Gives the central government a greater stake in the improvement of livingconditions in small towns and rural areas in order to make life there moreattractive to qualified personnel and, incidentally, to other residents as well.

More insulated than in other systems from local politics and personalpressures, although they may be less responsive to local elected bodies

DISADVANTAGES OF INTEGRATEDPERSONNEL 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 governmentjust when they acquire the experience needed to deal effectively with complexlocal government problems

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local government problems

The integrated personnel system is geared to meet the central governmentneeds; as a consequence, the distinctive elements of local government personnelmanagement, including.

The danger of excessive centralization of authority with its resultant delays andlack of adaptation to local needs would be ever present

There is a danger of paternalism, and even authoritarianism, in relationshipbetween municipal government and the staff belonging to the integrated service.

THE SEPARATED PERSONNELSYSTEM

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Each local authority has the power toappoint its own personnel. Such personnelare administered and controlled by the

local authority and are not transferable toany other unit

local authority and are not transferable toany other unit

In `separate’ personnel systemmunicipalities are empowered and

responsible for recruitment andmaintenance of their own personnel

ADVANTAGES OF SEPARATEDPERSONNEL SYSTEM

Ensure the loyalty and effective performance of their employees

Employees are likely to know the local conditions better and develop more interest incommunity affairs

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Since the local authority has control over its entire staff, the problem of different statusfor different categories of staff doesn’t exist

The opportunities for continuous employment may induce some of the talented youngpersons to seek a career in the service of the local municipal government

Relatively economical because the compensations for some municipal employees needto 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

DISADVANTAGES OF SEPARATEDPERSONNEL SYSTEM

Local authorities may not be able to fulfill all the requisites of a goodpersonnel system. The catchment area for recruitment and the abilityto pay are both restricted in respect of particular municipalities

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Restricts opportunities for promotion, especially for higher-levelofficers.

Spend their entire working life in the locality, local vested interests arelikely to influence their performance. The officers are likely to developsome kind of personal allegiance to particular local political leaders orgroup interests.

THE UNIFIED PERSONNELSYSTEM

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All or some local bodies form a single career service for the entirestate, from which officers and other employees are posted in various

units and also transferable within the state. The service isadministered by the state government

Certain categories of personnelconstitute a statewide municipal

cadre raised and controlled bythe state government

Involves an area basis forrecruitment as wide as the areacovered 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 betweenmunicipalities . The staffs are

protected against arbitrarydisciplinary measures adopted by

the local authority.

ADVANTAGES OF UNIFIEDPERSONNEL SYSTEM [1]

It may facilitate the creation of a statewide career servicefounded on the merit principle

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It may enable municipalities, especially the smaller ones;to obtain the services of more qualified persons thanwould be attracted to them under a separate system

It may prevent, or greatly lessen, nepotism andfavouritism in appointment, promotion and otherpersonnel matters

ADVANTAGES OF UNIFIEDPERSONNEL SYSTEM [2]

It involves a certain degree of centralised control over municipal personnelmatters but also provides for delegation of personnel functions tomunicipal authorities to the maximum extent practicable and may thusfacilitate the devolution of development functions to local authorities

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Responsiveness of employees to local councils may be a problem at theinitial stage, but those who make local government service a life-timecareer are more likely to develop skills and attitudes conducive to soundrelationship with their council

Despite the problems connected with it, a unified service neverthelessprovides a more rational basis than may otherwise be possible for dealingwith the municipal government staffing problems

DISADVANTAGES OF UNIFIEDPERSONNEL SYSTEM [1]

It does not solve all the personnel problems of local authorities. In fact, somenew problems may arise because of the need for trained staff

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New problems arise in relationship between employees who belong to theunified 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 insalary levels between the municipal service and the state service; and lack ofpromotion opportunities for higher-level officers)

DISADVANTAGES OF UNIFIEDPERSONNEL SYSTEM [2]

Problem of inadequate funds for training may be aggravated where municipalcouncils 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

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Political interference in personnel matters continues to exist, at least at thedistrict or state levels

There are possibilities of conflict between the unified service agency andmunicipal councils.

A unified service may also raise special problems in training

PEGAWAI NEGERI DI INDONESIA

Total PNS2012:

4.462.982

KomposisiJabatan:

InstansiPegawaiNon Sipil

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2002: 3,6 juta

2010: 4,7 juta

Struktural:246.993

Fungsional:2.051.491

TU/teknikal:1.763.370

Pemda:2.795.700

Kementerian:737.023

Komisi/LPND:74.709

TNI: 361.823

Polri:363.000

BUMN:726.128

STUDI KASUS DI US:SEPARATED SYSTEM [1]

Government by “Gentlement” (1789-1829)

adanya pengangkatan pegawai pemerintah dengan sistem patronage oleh para elit. Padamasa Washington: memilih para pejabat dengan karakter kompeten, dari keluarga terhormat,

pendidikan formal tinggi, dan loyal pada presiden

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Government by “Common Man” (1829-1883)

spoil system. Pada masa Jackson, dikenal dengan suap dan sogok. Kekuasaan berpindah padapartai.

pendidikan formal tinggi, dan loyal pada presiden

STUDI KASUS DI US:SEPARATED SYSTEM [2]

Government by the “Good” (1883-1906)

CS (Pandleton) Act 1883: mengatur tentang proses pengangkatan pegawai negeri melaluiujian terbuka, dibentuknya CS Commission untuk mengawasi penyelenggaraan sistem

kepegawaian melalui peraturan yang dibentuknya, presiden boleh mengangkat 10% pegawai

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Government by the “Efficient” (1906-1937)

mengerjakan sesuatu dengan menggunakan sumber sesedikit mungkin dengan manajemenilmiah, diberlakukannya merit sytem dan netralitas pegawai. CSC konsentrasi pada

pengklasifikasian jabatan dan job desc pada jabatan

kepegawaian melalui peraturan yang dibentuknya, presiden boleh mengangkat 10% pegawaiyang kemudian memunculkan korupsi.

STUDI KASUS DI US:SEPARATED SYSTEM [3]

Government by the “Administrators” (1937-1955)

Dimulai dengan Laporan Roosevelt tentang Komite Manajemen Administrasi (KomiteBrownlow): jabatan politik (untuk very senior positions) dan jabatan karir. Presiden diperkuat.

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Government by the “Professional” (1955-sekarang)

Dibentuk Federal Service Entrance Examination (FSEE) untuk menyelenggarakanujian masuk dan penempatan pegawai. FSEE kerjasama dengan CSC untuk merekrut

calon pegawai via sekolah dan universitas. Adanya pelatihan pegawai.

Brownlow): jabatan politik (untuk very senior positions) dan jabatan karir. Presiden diperkuat.

STUDI KASUS: INDONESIA

[1]20

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. UU8/1974. Manajemen PNS diatur oleh pusat. Pemda hanya melaksanakan kebijakan

pusat. Dibentuk BAKN dan Kantor Urusan Kepegawaian di Yogyakarta

Belum ada lembaga khusus yang bertanggungjawab dalam CS.

STUDI KASUS: INDONESIA

[2]21

Reformasi (1999-2011)

Peralihan dari sentralisasi ke desentralisasi. UU 43/1999: Manajemen PNS di daerah menjadiwewenang daerah. PNS berbasis kompetensi dasar dan prestasi kerja. Kebijakan unified

system, manajemen bersifat desentralisasi, pengawasan dan pengendalian oleh pusat. BAKN

Pasca Reformasi 1 (2011-2012)

Unified system, moratorium penerimaan CPNS untuk penataan PNS, pembahasanRUU ASN.

system, manajemen bersifat desentralisasi, pengawasan dan pengendalian oleh pusat. BAKNberubah menjadi BKN. Di daerah ada BKD.

STUDI KASUS: INDONESIA

[2]22

Pasca Reformasi 2 (2013)

Kebijakan moratorium CPNS dihentikan, tetapi …

Kewajiban yang DilaporkanKewajiban yang DilaporkanPengajuan Usulan FormasiKelengkapan dokumen dari Instansi yang mengajukanformasi:- Proyeksi Kebutuhan PNS selama 5 Tahun- Uraian Jabatan- Peta Jabatan- Analisis Beban Kerja- Redistribusi Pegawai

KONDISI KEPEGAWAIAN DI

INDONESIA SAAT INI

Pegawai Negeri

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Pengawai NegeriSipil

Aparatur Eksekutifdan Aparatur

Administrasi/Teknik

Hakim, Jaksa, Polri,Guru dan Dosen

TNI

Pasal 2 ayat 2 Pegawai Negeri Sipilterdiri atas PNS Pusat dan PNS Daerah

Pasal 13 ayat 1 & 2 Kebijaksanaanmanajemen PNS mencakup penetapan

UU 43/1999

manajemen PNS mencakup penetapannorma, standar, prosedur, formasi,pengangkatan, pengembangan kualitassumber daya PNS, pemindahan, gaji,tunjangan, kesejahteraan, pemberhentian,hak, kewajiban, dan kedudukan hukumberada pada Presiden selaku KepalaPemerintahan

Pasal 25 ayat 1 & 2 Pengangkatan,pemindahan, dan pemberhentian PNSdilakukan oleh Presiden

Untuk memperlancar pelaksanaan

UU 43/1999

Untuk memperlancar pelaksanaanpengangkatan, pemindahan, danpemberhentian PNS Presiden dapatmendelegasikan sebagian wewenangnyakepada pejabat pembina kepegawaianpusat dan menyerahkan sebagianwewenangnya kepada pejabat pembinakepegawaian daerah

Pasal 34 ayat 2 BKN menyelenggarakan manajemenPNS yang mencakup perencanaan, pengembangankualitas sumber daya PNS dan administrasikepegawaian, pengawasan dan pengendalian,penyelenggaraan dan pemeliharaan informasi

UU 43/1999

penyelenggaraan dan pemeliharaan informasikepegawaian, mendukung perumusan kebijaksanaankesejahteraan PNS, serta memberikan bimbinganteknis kepada unit organisasi yang menanganikepegawaian pada instansi pemerintah pusat danpemerintah daerah

Pasal 34A ayat 1 Untuk kelancaran pelaksanaanmanajemen PNSD dibentuk BKD

• Globalisasi perdagangan dan ekonmi pasar terbuka perlu daya saing tinggi

Global dan regional

27 LINGKUNGAN STRATEGIS +

• UUD NKRI 1945 hasil amandemen ciptakan DPD, MK, KY, dan menghapus DPA. DenganUU telah dibentuk banyak lembaga negara

• Pemerintahan koalisi timbulkan instabilitas pemerintahan dan mengganggu kinerja dan• Pemerintahan koalisi timbulkan instabilitas pemerintahan dan mengganggu kinerja danefektivitas pemerintahan negara

• Desentralisasi ciptakan jaringan pemerintahan yang kompleks: 35 kementerian, 85lembaga negara, 33 provinsi, dan 497 kab/kota

• Indonesia kembali menjadi bangsa berpendapatan menengah yang memerlukanpelayanan publik lebih bermutu

• Disparitas kesejahteraan umum dan disparitas kapasitas aparatur antardaerah semakinlebar

• Low trust kepada aparatur negara

• Ledakan pensiun: 4,9 juta akan pensiun 2015.

Nasional

+ PENTAHAPAN PEMBANGUNANDALAM RPJPN 2005-2025

28R

PJM

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5-2

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NKRI,membangunIndonesia yangaman dandamai, yang adil

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RPJ

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(20

15

-20

19

) Memantapkanpembangunansecaramenyeluruhdengan ,menekankan

RPJ

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(20

20

-20

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) MewujudkanmasyarakatIndonesia yangmandiri, maju,adil, danmakmur melalui

RPJ

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(20

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damai, yang adildan demokratisdengan tingkatkesejahteraanyang lebih baik

RPJ

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(20

10

membangunkemampuaniptek,memperkuatdaya saingperekonomian

RPJ

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(20

15

menekankanpembangunankeunggulankompetitifperekonomianyang berbasisSDA yangtersedia, SDMyang berkualitas,sertakemampuaniptek.

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makmur melaluipercepatanpembangunan disegala bidangdengan strukturperekonomiayang kokohberlandaskankeunggulankompetitif

= TUJUAN AKHIR YANG

INGIN DICAPAI29

2010

• AparaturNegara yangPatrimonial 2025

• AparaturNegara yangProfesional