SISTEM

ADMINISTRASI
KEPEGAWAIAN

Materi Administrasi Kepegawaian Negara

disiapkan oleh Lina Miftahul Jannah
2013
1
2
M ENGAPA S ISTEM K EPEGAWAIAN
N EGARA P ENTING ?
Bekke, et.all, 1996:
Negara didominasi oleh keterlibatan manusia yang
memiliki karakteristik unik dan kepribadian unik:
kebutuhan dasar, perlakuan yang wajar dan adil,
pengembangan diri dan emosional, pengembangan
karir
Prasojo, 2007
Keberhasilan pembangunan beberapa negara terletak
pada usaha sistematis dan sungguh-sungguh untuk
memperbaiki SKN
KN merupakan faktor dinamis birokrasi yang
memegang pernanan dalam penyelenggaraan
pemerintahan
3 A DA TIGA SISTEM KEPEGAWAIAN :

The Integrated The Separated

Personnel Personnel
System System

The Unified
Personnel
System
4
T HE I NTEGRATED P ERSONNEL
S YSTEM
Personnel of the local bodies
and those of the state
government form a part of the
same service. All or some
categories of personnel of the In the `integrated system the
local bodies may be drawn from personnel are transferred
this service. The local civil between national, state and
service is absorbed into the municipal governments
state civil service. The state
government can transfer them
from the urban body to other
departments

An integrated service covering both national/state governments

and municipal government is based on merit principles. Its
distinctive feature is vertical as well as horizontal transferability of
personnel
 5
ADVANTAGES OF INTEGRATED
PERSONNEL SYSTEM [1]

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

It permits the most extensive area basis for recruitment

It provides the widest possible career opportunities in public service.

Can estimate the national manpower is needed and the organization of

educational and training programs to meet them
 6
ADVANTAGES OF INTEGRATED
PERSONNEL SYSTEM [2]

Facilitates the optimal use of trained personnel and permits the use of
centralized personnel service and uniformity in personnel rules and practices
to the extent advisable

Facilitates the decentralization of development functions and thereby

increases the participation of the people in the administration of those
functions.

Gives the central government a greater stake in the improvement of living

conditions in small towns and rural areas in order to make life there more
attractive to qualified personnel and, incidentally, to other residents as well.

More insulated than in other systems from local politics and personal
pressures, although they may be less responsive to local elected bodies
 7
DISADVANTAGES OF INTEGRATED
PERSONNEL SYSTEM [1]

The staff may not be as responsive as they should be to the local council

The most capable staff are likely to be promoted to higher level of government
just when they acquire the experience needed to deal effectively with complex
local government problems
The integrated personnel system is geared to meet the central government
needs; as a consequence, the distinctive elements of local government personnel
management, including.

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

There is a danger of paternalism, and even authoritarianism, in relationship

between municipal government and the staff belonging to the integrated service.
 THE SEPARATED PERSONNEL
8
SYSTEM

Each local authority has the power to

appoint its own personnel. Such personnel
are administered and controlled by the
local authority and are not transferable to
any other unit

In `separate personnel system

municipalities are empowered and
responsible for recruitment and
maintenance of their own personnel
 9
ADVANTAGES OF SEPARATED
PERSONNEL SYSTEM

Ensure the loyalty and effective performance of their employees

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

Since the local authority has control over its entire staff, the problem of different status
for different categories of staff doesnt exist

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

Relatively economical because the compensations for some municipal employees need
to be competitive only with other opportunities for employment in the local economy

`self-government' by allowing local authorities to exercise power in an important field,

i.e., recruitment and management of its own manpower resources
10
DISADVANTAGES OF SEPARATED
PERSONNEL SYSTEM

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

Restricts opportunities for promotion, especially for higher-level

officers.

Spend their entire working life in the locality, local vested interests are
likely to influence their performance. The officers are likely to develop
some kind of personal allegiance to particular local political leaders or
group interests.
 THE UNIFIED PERSONNEL
11
SYSTEM

All or some local bodies form a single career service for the entire
state, from which officers and other employees are posted in various
units and also transferable within the state. The service is
administered by the state government

Involves an area basis for

Certain categories of personnel
constitute a statewide municipal
cadre raised and controlled by
the state government
recruitment as wide as the area
covered by the unified service.
Under unified personnel system,
objective criteria and methods
are to be applied in recruitment,
appointment and promotion.
Transfers are made easy between
municipalities . The staffs are
protected against arbitrary
disciplinary measures adopted by
the local authority.
 12
ADVANTAGES OF UNIFIED
PERSONNEL SYSTEM [1]

It may facilitate the creation of a statewide career service

founded on the merit principle

It may enable municipalities, especially the smaller ones;

to obtain the services of more qualified persons than
would be attracted to them under a separate system

It may prevent, or greatly lessen, nepotism and

favouritism in appointment, promotion and other
personnel matters
 13
ADVANTAGES OF UNIFIED
PERSONNEL SYSTEM [2]

It involves a certain degree of centralised control over municipal personnel

matters but also provides for delegation of personnel functions to
municipal authorities to the maximum extent practicable and may thus
facilitate the devolution of development functions to local authorities

Responsiveness of employees to local councils may be a problem at the

initial stage, but those who make local government service a life-time
career are more likely to develop skills and attitudes conducive to sound
relationship with their council

Despite the problems connected with it, a unified service nevertheless

provides a more rational basis than may otherwise be possible for dealing
with the municipal government staffing problems
 14
DISADVANTAGES OF UNIFIED
PERSONNEL SYSTEM [1]

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

New problems arise in relationship between employees who belong to the

unified service and those who do not

Some of the old staffing problems may persist: (eg shortage of staff,
particularly at the middle and higher levels due to continued disparities in
salary levels between the municipal service and the state service; and lack of
promotion opportunities for higher-level officers)
 15
DISADVANTAGES OF UNIFIED
PERSONNEL SYSTEM [2]

Problem of inadequate funds for training may be aggravated where municipal

councils are expected to pay for the training of staff in the unified service

Political interference in personnel matters continues to exist, at least at the

district or state levels

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

A unified service may also raise special problems in training

16
PEGAWAI NEGERI DI INDONESIA

Total PNS
2012: Komposisi Pegawai
Instansi
Jabatan: Non Sipil
4.462.982
Struktural: Pemda:
TNI: 361.823
246.993 2.795.700
2002: 3,6 juta

Fungsional: Kementerian: Polri:

2.051.491 737.023 363.000

2010: 4,7 juta

TU/teknikal: Komisi/LPND: BUMN:
1.763.370 74.709 726.128
 17
S TUDI K ASUS DI US:
SEPARATED SYSTEM [1]

Government by Gentlement (1789-1829)

adanya pengangkatan pegawai pemerintah dengan sistem patronage oleh para elit. Pada
masa Washington: memilih para pejabat dengan karakter kompeten, dari keluarga terhormat,
pendidikan formal tinggi, dan loyal pada presiden

Government by Common Man (1829-1883)

spoil system. Pada masa Jackson, dikenal dengan suap dan sogok. Kekuasaan berpindah pada
partai.
 18
S TUDI K ASUS DI US:
SEPARATED SYSTEM [2]

Government by the Good (1883-1906)

CS (Pandleton) Act 1883: mengatur tentang proses pengangkatan pegawai negeri melalui
ujian terbuka, dibentuknya CS Commission untuk mengawasi penyelenggaraan sistem
kepegawaian melalui peraturan yang dibentuknya, presiden boleh mengangkat 10% pegawai
yang kemudian memunculkan korupsi.

Government by the Efficient (1906-1937)

mengerjakan sesuatu dengan menggunakan sumber sesedikit mungkin dengan manajemen
ilmiah, diberlakukannya merit sytem dan netralitas pegawai. CSC konsentrasi pada
pengklasifikasian jabatan dan job desc pada jabatan
 19
S TUDI K ASUS DI US:
SEPARATED SYSTEM [3]

Government by the Administrators (1937-1955)

Dimulai dengan Laporan Roosevelt tentang Komite Manajemen Administrasi (Komite

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

Government by the Professional (1955-sekarang)

Dibentuk Federal Service Entrance Examination (FSEE) untuk menyelenggarakan
ujian masuk dan penempatan pegawai. FSEE kerjasama dengan CSC untuk merekrut
calon pegawai via sekolah dan universitas. Adanya pelatihan pegawai.
 20
S TUDI K ASUS : I NDONESIA
[1]

Orde Lama (1945-1974)

CSS Tidak terdokumentasi dengan baik, transisi dari pemerintahan Belanda dan Jepang.
Belum ada lembaga khusus yang bertanggungjawab dalam CS.

Orde Baru (1974-1999)

Ditandai dengan birokrasi yang sentralistis dan otoritarian, PNS monoloyalitas. UU
8/1974. Manajemen PNS diatur oleh pusat. Pemda hanya melaksanakan kebijakan
pusat. Dibentuk BAKN dan Kantor Urusan Kepegawaian di Yogyakarta
 21
S TUDI K ASUS : I NDONESIA
[2]

Reformasi (1999-2011)
Peralihan dari sentralisasi ke desentralisasi. UU 43/1999: Manajemen PNS di daerah menjadi
wewenang daerah. PNS berbasis kompetensi dasar dan prestasi kerja. Kebijakan unified
system, manajemen bersifat desentralisasi, pengawasan dan pengendalian oleh pusat. BAKN
berubah menjadi BKN. Di daerah ada BKD.

Pasca Reformasi 1 (2011-2012)

Unified system, moratorium penerimaan CPNS untuk penataan PNS, pembahasan
RUU ASN.
22
S TUDI K ASUS : I NDONESIA
[2]
Pasca Reformasi 2 (2013)
Kebijakan moratorium CPNS dihentikan, tetapi

Kewajiban yang Dilaporkan

Pengajuan Usulan Formasi
Kelengkapan dokumen dari Instansi yang mengajukan
formasi:
- Proyeksi Kebutuhan PNS selama 5 Tahun
- Uraian Jabatan
- Peta Jabatan
- Analisis Beban Kerja
- Redistribusi Pegawai
 KONDISI KEPEGAWAIAN DI
23
INDONESIA SAAT INI

Pegawai Negeri
Pengawai Negeri
TNI
Sipil

Aparatur Eksekutif
Hakim, Jaksa, Polri,
dan Aparatur
Guru dan Dosen
Administrasi/Teknik
 UU 43/1999

Pasal 2 ayat 2 Pegawai Negeri Sipil

terdiri atas PNS Pusat dan PNS Daerah
Pasal 13 ayat 1 & 2 Kebijaksanaan
manajemen PNS mencakup penetapan
norma, standar, prosedur, formasi,
pengangkatan, pengembangan kualitas
sumber daya PNS, pemindahan, gaji,
tunjangan, kesejahteraan, pemberhentian,
hak, kewajiban, dan kedudukan hukum
berada pada Presiden selaku Kepala
Pemerintahan
 UU 43/1999

Pasal 25 ayat 1 & 2 Pengangkatan,

pemindahan, dan pemberhentian PNS
dilakukan oleh Presiden
Untuk memperlancar pelaksanaan
pengangkatan, pemindahan, dan
pemberhentian PNS Presiden dapat
mendelegasikan sebagian wewenangnya
kepada pejabat pembina kepegawaian
pusat dan menyerahkan sebagian
wewenangnya kepada pejabat pembina
kepegawaian daerah
 UU 43/1999
Pasal 34 ayat 2 BKN menyelenggarakan manajemen
PNS yang mencakup perencanaan, pengembangan
kualitas sumber daya PNS dan administrasi
kepegawaian, pengawasan dan pengendalian,
penyelenggaraan dan pemeliharaan informasi
kepegawaian, mendukung perumusan kebijaksanaan
kesejahteraan PNS, serta memberikan bimbingan
teknis kepada unit organisasi yang menangani
kepegawaian pada instansi pemerintah pusat dan
pemerintah daerah
Pasal 34A ayat 1 Untuk kelancaran pelaksanaan
manajemen PNSD dibentuk BKD
 27 LINGKUNGAN STRATEGIS +
Global dan regional
Globalisasi perdagangan dan ekonmi pasar terbuka perlu daya saing tinggi

UUD NKRI 1945 hasil amandemen ciptakan DPD, MK, KY, dan menghapus DPA. Dengan
UU telah dibentuk banyak lembaga negara
Pemerintahan koalisi timbulkan instabilitas pemerintahan dan mengganggu kinerja dan
efektivitas pemerintahan negara
Desentralisasi ciptakan jaringan pemerintahan yang kompleks: 35 kementerian, 85
lembaga negara, 33 provinsi, dan 497 kab/kota
Indonesia kembali menjadi bangsa berpendapatan menengah yang memerlukan
pelayanan publik lebih bermutu
Disparitas kesejahteraan umum dan disparitas kapasitas aparatur antardaerah semakin
lebar
Low trust kepada aparatur negara
Ledakan pensiun: 4,9 juta akan pensiun 2015.

Nasional
 + PENTAHAPAN PEMBANGUNAN
28
DALAM RPJPN 2005-2025

Menata kembali Memantapkan Memantapkan Mewujudkan

(2010-2014)

(2015-2019)

(2020-2024)
(2005-2009)

NKRI, penataan pembangunan masyarakat

membangun kembali NKRI, secara Indonesia yang
RPJM 2 (2010

RPJM 3 (2015

RPJM 4 (2020
RPJM 1 (2005

Indonesia yang meningkatkan menyeluruh mandiri, maju,

aman dan kualitas SDM, dengan , adil, dan
damai, yang adil membangun menekankan makmur melalui
dan demokratis kemampuan pembangunan percepatan
dengan tingkat iptek, keunggulan pembangunan di
kesejahteraan memperkuat kompetitif segala bidang
yang lebih baik daya saing perekonomian dengan struktur
perekonomian yang berbasis perekonomia
SDA yang yang kokoh
tersedia, SDM berlandaskan
yang berkualitas, keunggulan
serta kompetitif
kemampuan
iptek.
29
= TUJUAN AKHIR YANG
INGIN DICAPAI

2010
Aparatur
Negara yang
Patrimonial 2025
Aparatur
Negara yang
Profesional