Reinventing Birokrasi

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Berkuliah lagi setelah 8 tahun vakum dari dunia akademis adalah jalan ninja bagi saya pribadi untuk mencari inspirasi mengisi konten di blog ini. Anehnya, saya kadang kehilangan orientasi. Saking sibuknya kuliah dan bergelut dengan tugas-tugas, saya jadi lupa ada blog yang harus diasuh yang notabene menjadi alasan saya untuk tetap menulis dan mengisi konten di wakinamboro.com.

Saya ingin berbaka-baka tentang apa yang kami diskusikan di ruang kelas C, Administrasi Pembangunan. Mata kuliahnya adalah Manajemen Sektor Publik, di ampu oleh Dr. Rahman. Pokok bahasannya tentang birokrasi.

Ada yang namanya GDS. Governance Development Survey. Survey itu menemukan tiga patologi dalam penyelenggaraan layanan publik. Penyakit pertama adalah diskriminasi pelayanan, yaitu pola pelayanan publik yang dipengaruhi oleh kesamaan afiliasi, baik secara politik, etnis dll. Dalam istilah pasaran, kita mengenal dengan sebutan “orang dalam”.

Kedua, uncertain time and cost. Adanya ketidak pastian waktu dan biaya. Ini jadi biang kecemasan. Kita tidak tahu berapa duit yang akan dikeluarkan disetiap meja yang dilewati. Tidak ada ukuran yang jelas terkait post anggaran. Yang sering didengar adalah “sembarang mi,,untuk pembeli roko, pembeli bensin, uang cape dll”.

Begitu juga dengan waiting list. Entah harus melewati berapa purnama untuk baku urus dengan masalah administrasi. Faktor kedua ini bisa saya sebut sebagai “nene moyangnya” KKN (korupsi, kolusi, nepotisme). Ini terjadi karena sistem belum mampu memenuhi ekspektasi publik atas kepastian dan kualitas layanan. Akhirnya, orang dipaksa berdosa untuk melakukan suap dengan biaya tinggi.

Yang ketiga adalah, rendahnya tingkat kepuasan. Ini sudah pasti jadi konsekuensi logis dari dua patologi birokrasi sebelumnya. Contohnya, tidak perlu muluk, saya rasa kita semua berpengelaman antri di pelabuhan Ferry, urus berkas administratif di kantor-kantor pemerintahan.

Perkuliahan saat itu, Pak Rahman menguraikan tentang Mewirausahakan Birokrasi dari sudut pandang David Osborne dan Ted Gaebler. Saya menerka-nerka apa maksud “Mewirausahakan Birokrasi?”. Apakah ini seperti yang diuraikan dalam GDS. Kita harus memanfaatkan njlimetnya birokrasi untuk meraih profit “sekunci-kunci dunia“. Jika artinya demikian, maka tiga patologi birokrasi yang dijabarkan di awal tulisan ini sudah berada di jalur yang semestinya.

Baiklah, mari kita kupas isu ini, layer demi layer.

David Osborne dan Ted Gaebler adalah konsultan manajemen dan penulis buku. La Osborne menulis “The Price of Government” dan “The Reinventor’s Fieldbook“. Sedangkan temannya, La Gaebler menulis buku “Positive Outliers: Champions of Change in California”. Saya sengaja menggunakan “La” sebelum nama kedua pakar tersebut agar terkesan akrab saja.

Karya kolaboratif mereka yang menjadi kitab suci kaum akademis bidang kajian sosial ialah “Reinventing Government: How the Entrepreneurial Spirit is Transforming the Public Sector”. Terbit di tahun 1992. Saat itu usia saya baru 3 tahun. Tidak menger dengan istilah manajemen sektor publik, kecuali teknik “mimi cucu” yang efisien.

Yang memperkenalkan terminologi birokrasi adalah Max Weber dan Henry Fayol. Apa yang diinginkan kedua ahli itu pada dasarnya untuk memperbaiki organisasi, tak lain supaya kerja-kerja organisasi berjalan lebih efisien dan efektif. Agar birokrasi dapat memerankan fungsinya dengan baik. Sistem tersebut dianggap sebagai jalan keluar yang ditawarkan agar birokrasi tidak terlalu dipengaruhi oleh faktor-faktor yang tidak berkaitan dengan apa yang dapat meningkatkan performance birokrasi.

Namun tidak menutup kemungkinan, birokrasi juga menuai masalah. Tak dapat kita pungkiri, suka atau tidak, belum ada sistem yang dapat menggantikan birokrasi dalam menjalankan pemerintahan. Untuk mengatasi isu-isu yang terjadi dalam manajemen pemerintahan maupun organisasi maka dicetuskanlah reformasi birokrasi, sebagai upaya mentransformasikan birokrasi agar menjadi lebih bersih dan akuntabel, kapabel dan layanan publik yang prima.

Ketiga hal itu ditujukan pada beberapa hal yang meliputi mental aparatur, organisasi, tata laksana, peraturan UU, SDM aparatur, pengawasan, akuntabilitas dan pelayanan publik.

Birokrasi adalah instrumen yang digunakan pemerintah untuk menyelesaikan masalah kolektif di masyarakat. Jika instrumennya ketinggalan zaman/outdated bagaimana mungkin pemerintah dapat menjawab tantangan perubahan yang ada di tengah masyarakat. Oleh karena itu tema reinventing government yang menyerap spirit kewirausahaan kedalam sektor-sektor publik sangatlah tepat.
Dalam prinsip-prinsip mewirausahakan birokrasi (reinventing government) tentu bicara tentang penataan organisasi. David Osborn dan Ted Gaebler mengemukakan 10 prinsipnya, sebagai berikut:

Catalytic : leveraging private-sector action to solve problems. Community owned : empowering families and communities to solve their own problems. Competitive : moving away from traditional monopolistic models in education, policing, transportation, etc. Mission driven : developing budget systems and rules that free employee to pursue goals. Results oriented : providing incentives for people to succed and rewarding success. Customer driven. Entreprenurial. Anticipation. Decentralitation. Market oriented.

Menurut pandangan saya, prinsip tersebut di atas tepat sekali, mengingat situasi birokrasi kita saat ini yang berbelit. Bahkan hampir seluruhnya prinsip yang diutarakan saya bersepakat, jika perlu ada kritikan maka saya menyampaikannya hanya dalam konteks implementasi. Mengkritik bagaimana penerapan sistem tersebut dalam birokrasi kita dan kembali mempertajam dan memberi penegasan pada bagian-bagian tertentu.

Sebagai contoh kasus misalnya dalam sistem birokrasi kita yang sangat mengedepankan formalisasi. Formalisasi yang tinggi, dalam konteks ini bermakna untuk memastikan apa yang diingikan pimpinan harus sama, sampai ke level terbawah dalam struktur organisasi. Maka harus disusun standar-standar baku. Supaya kerja-kerja orang atau masing-masing personil sama dan merata.

Bahwa apa yang ada dipikiran pimpinan, sama dengan apa yang akan dikerjakan oleh anggota organisasi. Karena itu, ia memerlukan satu instrumen yang terstandarisasi. Kita mengenalnya dengan sebut SOP (standard operational procedure) atau Juklak (petunjuk pelaksanaan) dan Juknis (petunjuk teknis).

Jika karyawan bekerja tidak sesuai dengan standar/formalisasi itu, implikasinya adalah ketidak-efisienan dari sisi waktu maupun pengunaan resources, dan hal itu tentu saja sangat tidak efektif. Tetapi apa yang dilihat saat ini, ketika formalisasi dipandang sebagai ciri yang harus ditegakkan dalam birokrasi, maka berimplikasi kepada munculnya orang yang tidak lagi memandang penting untuk merespon tuntutan-tuntutan atau perubahan-perubahan yang ada di luar organisasi.

Potret aktual yang ada sehari-hari ialah bagaimana tiap anggota/personil/karyawan itu bekerja agar tidak melakukan penyimpangan dari standar yang telah ditentukan oleh organisasi.

Pada akhirnya, orang akan bekerja terkesan kaku, bekerja dalam situasi dan kondisi yang rigid. Pada tingkatan paling parah ialah membunuh kreativitas. Orang menjadi tidak kreatif lagi karena lebih takut pada pelanggaran/standar yang telah ditentukan itu dibanding merespon keluhan masyarakat yang membutuhkan upaya solutif sesegera mungkin.

Dengan kenyataan seperti itu, maka birokrasi sebenarnya harus bergeser dari pola-pola klasik. Dari yang semata-mata mengandalkan diri atau mengacu pada aturan (rule driven) menuju pada misi (mission driven), yang merupakan prinsip ke empat dari reinventing government yang dikemukakan oleh David Osborne dan Ted Gaebler.

Dampak negatif dari birokrasi akibat dari formalisasi yang tinggi pun bertentangan dengan situasi dimana, komposisi ASN sudah banyak yang berpendidikan tinggi. Keilmuan yang dimiliki aparatus itu kemudian tidak bermakna apa-apa ketika cara kerja mereka sangat terikat pada formalisasi yang tinggi.

Sehingga apa yang kita saksikan ialah, bahwa ASN memang terlihat bekerja tetapi perilakunya ditentukan oleh standar, dalam kajian birokrasi hal ini disebut sebagai “perilaku yang dieksternalkan”.

Setiap kali bekerja, perilaku aparatus ditentukan oleh standar tertentu. Padahal mereka berpendidikan tinggi, ini sangat bertentangan dengan kompetensi pendidikan tinggi aparatus yang bisa diandalkan, sehingga diharapkan perilakunya sehari-hari dituntun oleh keahlian yang dimiliki, akan tetapi ini tidak teroptimalkan karena adanya sistem yang melarang mereka bertindak di luar standar.

Demikianlah core of the core perkuliahan tersebut. I get the point. (*)

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