Pengantar Ilmu

Administrasi Publik
(G10A.201)
Prof Erlis K

Yogi Suprayogi Sugandi

Hilman Abdul Halim

 Satuan Acara Perkuliahan
Pengenalan terhadap administrasi publik; Ruang Lingkup dan Definisi
Kedudukan Administrasi Publik dalam Ilmu Sosial dan Politik
Administrasi publik di Indonesia
Politik dan Demokrasi
Pemerintahan yang Baik (Good Government Governance)
Organisasi Pemerintah dan Birokrasi
Pemerintah Pusat dan Daerah (otonomi daerah)
Kebijakan Publik
Manajemen sektor publik; Fungsi Manajemen Sektor Publik (POSDCORB)
Anggaran, Keuangan dan Audit sektor publik
Pelayanan Publik tradisional dan modern
Elektronik Government
Berbagai perspektif Administrasi Publik
Isu-isu dalam Administrasi Publik
 Kontrak Belajar (A/B)
Keterlambatan 20 Menit
Pakaian Rapih
Kehadiran bebas tergantung rekap fakultas
Penilaian: UTS ( ) UAS ( )
Tugas: - Resume (individual),
Referensi Buku:
ULBERT SILALAHI (Studi Ilmu Administrasi)
Stephen P Robin (Teori Organisasi, Manajemen)
James A F Stoner (Management)
Nicholas Henry (Administrasi Negara dan Masalah2 kenegaraan)
Dwight Waldo (The Study of Public Adminitration)
Nigro & Nigro (Public Administration)
George F Frederickson (The New Public Administration)
 Definisi Administrasi
Administrasi ada untuk organisasi dengan skala besar; staff
banyak (multi korporat organisasi dan pemerintahan)

Administrasi “negara” (state) Waldo’s/Publik (public) Lynn

Herbert Simon (1976; 3) ttg administrasi:

“Influencing rather than directing”

Apa beda administrasi dan Manajemen????

 Definisi Publik
 Konstituen
 Costumer
 Citizen

Pada intinya publik adalah masyarakat yang menjadi bagian

dari administrasi
 Outline Dosen
 Pengenalan
 Administrasi Publik pada awal
 Pendekatan awal dalam perpektif administrasi publik
 Pendekatan administrasi publik tradisional adalah:
Manajemen Birokrasi
Ilmu Manajemen
Manajemen administratif
 Kelemahan dalam administrasi publik

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Adm. Negara tidak hanya menyangkut pemerintah, tetapi

Legislatif Eksekutif Yudikatif

 Adm. Negara berhubungan dengan :

 Perumusan kebijakan negara (public policy formulation)
 Melaksanakan kebijakan negara (public policy implementation)
 Re-inventing Government
 Public service, karena fungsi utama Adm. Negara adalah melayani publik
 
 Introduction
Managerial •Traditional
view • NPM

Public
Public
Public sector Sector
Administration
management

Legal Political
view view

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 Introduction
 Administrasi Publik dimulai pada awal abad ke 19 dan
diformalisasikan pada abad ke 1930-an Dan berkembang terus
hingga tahun-tahun berikutnya (70,80 s/d sekarang
 Major contributors:
 Woodrow Wilson (administrasi dan politik)
 Taylor (ilmu manajemen)
 Max Weber (birokrasi)
 Gulick and Urwick
 Fayol (administrasi)
 Osborne
 Lynn
 Deinhart

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 Introduction
 Mentransformasi loyalitas individual kepada pengembangan
profesionalitas
 Orang-orang yang bekerja dengan hukum sebagai produk dari
politik
 Mengoperasikan organisasi dengan orang-orang yang dapat
menterjemahkan politik sebagai normatif kepada bentuk yang
legal berupa manajemen

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 Introduction
Administrasi publik pada awal perkembangan:
 Administrasi sebagai alat dari politik yang berkembang
 Berdasarkan atas struktur birokrasi yang rigid
 Staf yang tetap dan netral
 Termotivasikan untuk bekerja pada publik
 Melayani siapapun yang ada ditampuk kekuasaan

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 Awal Administrasi Publik
 Administrasi publik ada sebelum adanya adminitrasi publik
tradisional
 Gladden(1972): “Administration has existed ever since there
have been governments”
 Mesir
 Administrasi irigasi dari sungai Nil menuju Piramid
 Cina
 Han Dynasty (206 BC to 220 AD)
 Berdasarkan prinsip2 konfusian tentang pemerintahan:
 Yang mengharuskan pemerintahan dijalankan dengan orang-
orang terpilih bukan kelahiran tetapi dengan kemampuan dan
visi.
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 Awal Administrasi Publik
Eropa
 Yunani Kuno, Dynasti Abbasiyah, Romawi dll
 Dikontrol dari atas ke bawah

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 Awal Administrasi Publik
 US abad ke 18
 Sistem Spoils (the practice of a successful political party
giving public office to its supporters):
Patronase dalam pemerintahan:
Korupsi, inefisiensi dan politik kelas melahirkan “spoils
men”.
Mengembangkan konflik antara eksekutif Dan legislatif
dalam kebijakan.
Mengembangkan permintaan dalam pencarian pegawai
pemerintah yang mendukung politik tertentu

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 Awal administrasi publik
 Kunci masa depan dalam:
personal,
traditional,
particularistic (berdasarkan atas loyalitas dalam individu
terpisah dari raja atau mentri)
 Patron dan nepotisme
 Korupsi dan penyalahgunaan kekuasaan

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Perkembangan awal administrasi
Gagasan (Aristoteles):

“Politicia”

Gagasan Durkheim (bapak Sosiologi):

Struktur sosial: Keluarga, bangsa dan internasional

Status Sosial: kaum proletar dan borjuis (Marx)

 Administrasi Publik as Ilmu
Sosial
Terdapat 2 core dalam Ilmu Administrasi Publik:

Fokus = administrasi

Lokus = politik

Administrasi untuk menterjemahkan kebijakan2 politik

Politik untuk menterjemahkan keinginnan publik

 Pembeda Administrasi Publik
Dalam buku Public Administration; Understanding Management,
Politics and Law in The Public Sector. Rosenbloom dkk
menuliskan pembeda antara sektor publik dan sektor privat adalah
sangat blurred beberapa aspek dalam manajemen dan hukum ada
dalam kedua sektor ini, namun secara keseluruhan administrasi
publik jelas sangat berbeda dengan privat, pembeda itu antara lain:

 Konstitusi
 Kepentingan Publik
 Pasar
 Sovereignty (Kedaulatan)
 Administrasi as Ilmu sosial
Ilmu Administrasi pada awal perkembangannya tidak jauh dari
ilmu sosial yang selalu mempengaruhi perjalanannya
terutama dalam organisasi administrasi berkaitan dengan
psikologi sosial (Simon, 1976:2)

Kehidupan Individu bekerjasama Dan berinteraksi antara

superior Dan inferior (atasan Dan bawahan) antara (kolega)
kawan dsb.
 Ilmu Manajemen H Fayol
H Fayol :

Sebagai pengagas ilmu manajemen Henry Fayol menekankan

beberapa aspek manajerial dengan berbagai fungsinya
POSCL, POAC, POSDCORB dsb

Bagaimana “mengendalikan” bawahan????

 Ilmu Politik
Ilmu administrasi Publik dan politik

Perkembangan ilmu adm Publik berkembang secara signifikan

ketika Woodrow Wilson mengumandangkan perbedaan
antara administrasi korporat Dan politik

Ilmu Politik sendiri sebagai landasan ilmu Administrasi Publik

memiliki berbagai macam dasar ilmu
 Ilmu politik sebagai bagian dari ilmu sosial yang berkaitan
dengan kekuasaan
 Sistem, kepartaian, demokrasi, kewarganegaraan adalah
bagian dari ilmu politik
 Demokrasi sebagai cita2 awal konsep berbangsa Dan
bernegara di Indonesia merupakan salah satu konsep pri
kehidupan berbangsa Dan bernegara adalah salah satu bentuk
perwujudan cita2 bangsa Indonesia
 Politik sebagai bagian dari pemerintahan di negara
demokrasi memegang peran penting untuk mengintepretasi
keinginan publik melalui mekanisme pemilu
 Dan menghasilkan para wakil rakyat yang kemudian
merumuskan intepretasi tersebut dalam skema kebijakan
yang dibuat oleh pemerintah Dan wakil rakyat
 Peran Ombudsman
 Mahkamah Konsttitusi adalah sesuatu hal yang baru di
Indonesia, MK berusaha menjadi wasit terhadap produk-
produk kebijakan yang dibuat oleh eksekutif Dan legislatif
 Jika ada kesalahan dalam merumuskan maka suatu produk
kebijakan tersebut dapat dinilai ulang atau digagalkan
ataupun dilanjutkan
 Old Public Administration Model (OPA)
 Germany (Europe) Weberian Ideals of The
Bureachratization
 Teori Birokrasi:
 a distinct, professional public service,
 recruited and appointed by merit,
 politically neutral, which would remain in office throughout
changes in govt.

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 Emergence of the Traditional Public Administration
Model (TPA)

 Key contributors:
 F. W. Taylor (1911)
 Scientific Management (inside the administrative system)
 Standardizing work – one best way of working
 Controlling so extensively and intensively
 Incentive wage system
 Henri Fayol (1841-1925)
 Managerial functions(6),
 Principles of administration(14)
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 Emergence of the Traditional Public
Administration Model (TPA)
 Woodrow Wilson (1886)
 Professor at Princeton, key activist in reform movement
 Politics/administration dichotomy
 Max Weber (1864-1920)
 Bureaucracy

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 Traditional Approach theories
Three important theories

1. Bureaucratic Management
 the agency and rules

2. Scientific Management
 the men,
 methods and equipment,
 pay systems
 ONE BEST WAY

3. Administrative Management
 the structure and functions
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 Bureaucratic management (BM)
 Most influential theory in traditional PA
 Looks at the organization as a whole and is based upon:
 firm rules,
 policies and procedures
 a fixed hierarchy and
 a clear division of labor with appointments based on merit
 The bureaucracy is an important institution in facilitating
capitalism as it is based on rationality and efficiency
 Main contributors are: Max Weber and Woodrow Wilson

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 Bureaucratic management (BM)
Max Weber

Authority and its Legitimacy

 the prime basis of his theory
 emphasized the importance of the concept of authority and its
legitimacy
 it must be based on the perception of legitimacy
 The 3 modes of authority:
 Charismatic authority
 based on personality and hypnotic power of individual leader
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 Bureaucratic management (BM)
 Traditional Authority
 based on belief in the sanctity of tradition
 it inheres in a particular individual who may have either
inherited it or be invested with it by a higher authority

 Rational-legal Authority
 based on rational grounds and anchored in impersonal rules that
have been legally enacted or contractually established.
 The law is supreme.

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 Bureaucratic management (BM)
 Principles of Bureaucracy
 Weber sets out six principles for modern system of
bureaucracy, deriving from the idea of rational-legal
authority

1. The principle of fixed and official jurisdictional areas, which

are generally ordered by rules, that is by laws and
administrative regulations

2. The principles of office hierarchy and levels of graded

authority

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 Bureaucratic management (BM)

3. The management of the modern office is based upon written

documents, which are preserved
 Bureaucracy segregates official activity as something distinct
from the sphere of private life.
 Public monies and equipment are divorced from the private
property of official.

4. Office management, at least all specialized office

management should be distinctly modern and based on
expert training

5. When office is fully developed, official activity demands full

working capacity of the official – full time job
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 Bureaucratic management (BM)
6. The management of office follows general rules, which are
more or less stable, more or less exhaustive, and which can
be learned

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 Bureaucratic management (BM)
The Position of the Official
 Office holding is considered a vocation, following
examinations and rigorous course of training
 Entrance into office is considered:
 an acceptance of a specific obligation of faithful
management in return for a secure existence
 no rent-seeking attitude

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 Bureaucratic management (BM)
 Weber describes the position of the official as:
 the modern official always strives and enjoys a distinct
social esteem as compared with the governed
 he is appointed by a superior authority
 the position is held for life
 have the legal guarantees against arbitrary dismissal or
 transfer to ensure objective discharge of their duties

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 Bureaucratic management (BM)
 he receives regular compensation like a:
 fixed salary and
 the old age security provided by a pension.
 Salary is based on status/rank/grade and length of service
 he is set for a “career” within the hierarchical order and
moves from lower to higher position

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 Bureaucratic management (BM)
 Weber considers the bureaucracy as efficient because of its:
 precision,
 speed,
 consistency,
 availability of records,
 continuity,
 possibility of secrecy,
 unity,
 rigorous coordination and minimization of interpersonal
friction, and costs.

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 Bureaucratic management (BM)
Woodrow Wilson

Three main aspects of political control

1. Clear relationship of accountability and responsibility

 A department has two main roles:
 To provide advise and review and implement policies;
 To manage resources
 Public servants are technically accountable through the hierarchy
order

2. Strict separation of policy and administrative matters

3. Administration is anonymous and neutral
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 Bureaucratic management (BM)
 Politics and administration dichotomy
 A strict separation of politics from administration
 Administration is about the execution of law
 Enhances professionalism and merit
 Allows a specific study of public administration
 The best way to control corruption and arbitrary decisions

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 Bureaucratic management (BM)
 Parliamentary countries
 Wilson’s principle mainly applied to parliamentary countries
 Politicians make policy decisions for public servants to
administer
 Political matters are handled by politicians
 Administrative matters are handled by public servants

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 Bureaucratic management (BM)

Features Focus
 rules • whole
 impersonality organisation
 division of labour
 hierarchy
Benefits
 authority structure • consistency
 lifelong commitment
• efficiency
 rationality
Drawbacks
• rigidity
• slowness
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 Scientific management (SM)
 Developed, and became famous, through the work of Fredrick
Taylor (1911)
 A renowned theory in early years of the 19th century
 He criticized the methods of traditional management as:
 Subjective or intuitive evaluation.
 Decision were based on feelings, opinions and traditional past
experience
 Jobs were preformed by rules of thumb, rather than
standard times, methods, or motions

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 Scientific management (SM)
 The prevalent practices were assumed to be correct and no efforts
were made to introduce new techniques of management
 Training at least, was under an apprentice system and
no formal techniques of skill development existed

 Taylor was interested in replacing the TM with SM

by:
 developing the most scientific and rational principles for
handling people, machines, materials, and
 money to secure maximum benefits for the employers as well as
the employees

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 Scientific management (SM)
 Taylor’s objectives were to:
 point out the great loss through inefficiency in almost all of our
daily acts
 convince that the remedy for inefficiency lies in systematic
management, not an unusual or extraordinary man
 to prove that management is a science, resting upon:
clearly defined laws,
rules and principles,

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 Scientific management
 Principles of Scientific Management
 Taylor offered four (4) principles as the basis for SM:
1. Develop a science for each element of an individual’s work by
breaking every job into its elements
2. Scientifically select, train, and develop the worker
3. Cooperate with the workers to ensure that all work is done in
accordance with the scientific principles
4. Divide work and responsibility equally between managers and
workers. Management should:
 design the work,
 setup and supervise the work and
 the workers are free to perform the work
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 Scientific management
Important Contributions
 Time and Motion Studies
 to establish appropriate standards for task performance
 Wage - Incentive System
 More wages when task is performed according to
specifications within the allotted time
 Ordinary wages if the time allotment is exceeded

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 Scientific management
 Mental Revolution
 For Taylor, SM is more than ‘a series of expedients to
increase efficiency
 It requires a ‘mental revolution’ to science experimentation
for both management

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 Scientific management
 Impact on Public Sector Management
 Taylor believes that scientific management could be applied
to the public sector
 In his judgment, the average public employee did little more
than one-third to one-half of a good day’s work’
 It offers an effective and efficient way to operate government
organizations
 The ideas of ‘one best way’ and systematic control were a
perfect fit with the rigid hierarchy, process, and precedents

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 Scientific management
Scientific features Benefits
 training routines and rules • productivity
 ‘one best way’ • efficiency
 financial motivation

Focus Drawbacks
 worker • overlooks social
needs

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 Administrative management
 Administrative Management focuses on the managers and
the functions they perform
 Also known as functional or process approach
 Primarily based on the ideas of Henri Fayol (1841-1925)
 Some other notable contributors include:
 Mary Parker Follet (1868-1933)
 Luther Gullick and Lyndall Urwick

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 Administrative management
 Fayol proposes 6 separate interdependent areas of management
responsibilities:
1. Technical operations concerned with producing
2. Commercial operations: purchasing and selling
3. Financial operations: acquiring and allocating capital
4. Security operations: safety of goods and people
5. Accounting operations: recording of costs, profits,
liabilities, assets, preparing balance sheets
6. Managerial operations.
 defined in terms of five (5) functions
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 Administrative management
 Planning
 draw up plans of actions
 Organizing
 build up the structure of the undertaking

 Commanding
 maintain the activity among the personnel
 Coordination
 bind together, unify and harmonize activity and effort
 Control
 see that everything occurs in conformity with policy and practice

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 Administrative management
 Principles of Management
 Fayol also proposed 14 principles of work design and effective
administration

1. Specialization /Division of work

2. Authority
3. Discipline
4. Unity of command
5. Unity of direction
6. Subordination of individual interest to organizational interest
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 Administrative management
7. Remuneration of staff
8. Centralization
9. The scalar chain/line of authority
10. Order
11. Equity
12. Stability of staff
13. Initiative
14. Esprit de corps
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 Administrative management
Administrative features Benefits
• clear structure
 defining of management • rules
functions
 division of labour Drawbacks
 hierarchy • doesn’t consider
 authority environment
 equity • emphasis on managers’
behaviour
Focus
 manager

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 Key Principles of the Traditional Model
 Lane 1993:
 The tasks of public institutions are to be decided by
politicians but executed by administrators
 Administration is based on written documents
 Public tasks are organized on a continuous, rule-governed
basis
 The rules according to which work is conducted may be
either technical or legal. In both cases, trained individuals are
necessary

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 Key Principles of the Traditional Model
 The tasks or functions are divided into functionally distinct
sphere, each furnished with the requisite authority and
sanctions
 Offices as well as tasks, are arranged hierarchically; there is a
preference for centralization
 The resources of the organization are quite distinct from those
of the members, as private individuals and the office holder
cannot appropriate their office for private aims

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 Key Principles of the Traditional Model
 In the public sector there is one dominating interest, the
public interest, which sets limits on the influence of self-
interest in politics and administration
 Public employees are expected to have a vocation or a sense
of duty to fulfill the obligations of their roles

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 Challenges to the Traditional Model
 The clear distinction between politics and administration is
inappropriate and impractical
 Relationship between politicians and bureaucrats is complex and
fluid
 Administrators influenced political outputs
 Does not reflect managerial roles of bureaucrats
 The work of public servants are fundamentally political

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 Challenges to the Traditional Model
 One best way
 Following the procedures manual
 Limited initiative and creativity
 No responsibility for results
 In reality there is not ‘one best way’ only ‘many possible
answers’ (Behn 1998)

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 Challenges to the Traditional Model
 The emphasis on rules overrides results and ends
 Effectiveness and goal achievement are more important
 Bureaucracies only work when bending the rules
 Decentralization works better than centralization
 Public officials tend to motivate more by their self-interest
rather than the public interest
 Employment for life
 does this mean an employee cannot be fired regardless of
poor performance

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 Challenges to the Traditional Model
 Political neutrality
 Public officials do what they want instead of the wishes of the
elected government

 The bureaucracy as a distinct elite is now a myth

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 Summary
Administrative

Early Traditional Criticisms

Criticisms NPM
Administration Model

Bureaucracy Scientific

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