DiA: Jurnal Administrasi Publik, 2022 December Vol. 20 No. 2, e-ISSN: 2615-7268

POLICY IMPLEMENTATION ANALYSIS OF PERFORMANCE
MANAGEMENT SYSTEM CIVIL SERVANTS TANGERANG CITY
Winda Budiarti,
Pemerintah Kota Tangerang,
qilalaiqa@gmail.com;
Asropi,
Politeknik STIA LAN Jakarta,
asropi@stialan.ac.id;
Ridwan Rajab,
Politeknik STIA LAN Jakarta,
rajabridwan@gmail.com;
ABSTRACT
One of the bureaucratic reform agendas is to improve the performance of the
apparatus as public servants, through the application of the principle of merit as a
benchmark for the implementation of the management of the State Civil
Apparatus, which includes aspects of performance management. Therefore,
apparatus performance management is an important thing as a benchmark for
achieving organizational goals. The purpose of this study is to analyze the causes
of the non-optimal implementation of the performance management system policy
for the Tangerang City Civil Servant and provide a description of the more
professional model of implementing the PNS performance management system in
the City of Tangerang. The research method used is qualitative research, primary
data collect through in-depth interviews with Tangerang City Civil Servants
purposively. Based on the results of the research, it is known that the cause of the
performance management system is not optimal because it is not in accordance
with the standards and objectives of the applicable policy, all of the resources as
policy implementers have implemented the policy but have not been maximized at
every stage, the support of technological resources with the construction of eperformance applications and Information Systems Management of the State Civil
Apparatus has not been effective in presenting employee performance profile data,
the importance of setting clear standards and objectives for each stage of the
performance management system implementation , maximizing the role of the
apparatus resource assessor to provide guidance and counseling training for
performance appraisal officials, building a performance management information
system that integrates all stages of performance management, and strengthens the
commitment and support of all management to implement the performance
management system consistently.
Keywords: Policy implementation, the Performance management system of Civil
Servants

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A. INTRODUCTION
The existence of bureaucratic reform has implications for changes in the
government structure, both central and local governments are required to improve
the quality of public services by improving all elements. The changes that occur
are related to increasing the capacity of government organizations which are
closely related to the resources of the apparatus as organizational planners and
implementers. To achieve this success requires the ability of each apparatus to be
able to complete its work, therefore the performance of the apparatus is important
in realizing bureaucratic reform. However, the problem of the performance of the
apparatus in each agency has not yet been resolved.
Performance management of Civil Servants (PNS) is very dependent on the
management and implementation of employee performance which is determined
by the quality of human resources from the leadership to the implementers.
Employees must understand and be able to implement performance management
policies as a benchmark for achieving organizational goals based on individual
performance and organizational performance. Performance is a determining aspect
of organizational success so Civil Servants as implementing elements are required
to have loyalty and dedication in providing good service. A civil servant is said to
be contributing to the institution and society if the civil servant is performing.
Civil servants who perform well have a positive impact on agencies, namely being
able to provide public services to the community in line with the goals of
bureaucratic reform, on the contrary, the low performance of civil servants has an
impact on the low performance of agencies so that the ability of agencies to solve
problems is very limited.
Performance management information system support is provided to
improve the effectiveness of performance management implementation from the
preparation of performance plans to performance evaluations, however, the
existing information system has not been maximized in employee performance
appraisals. Currently, the performance information system is used more as a tool
for calculating daily workloads as a basis for providing additional income
allowances, not for performance appraisals in the true sense. Employees prepare
performance plans for one-year targets these targets are translated into monthly
targets, and daily targets. There is a weakness in the performance information
system, namely in compiling a work plan, employees are given the freedom to fill
in their job descriptions because the system does not provide standard job
descriptions following job information for all positions in Tangerang City.
Control from superiors is very important as approving subordinates' performance
plans, but not a few superiors fully entrust the work plans to their subordinates
without paying attention to the suitability of the job analysis.
To measure success in implementing employee performance management in
a government agency, an assessment is needed that contains indicators of
achievement of the implementation of each stage. The government answered that
by issuing a policy related to the assessment of the implementation of the
management of the State Civil Apparatus (ASN), including aspects of
performance management. This assessment correlates with the implementation of
a merit system for government agencies. The Tangerang City Government is one

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of the regional agencies that received the category of very good merit system
application assessment, with this success it can be said that the ASN Management
in Tangerang city is very good, but in its implementation, especially aspects of
performance management, there are still obstacles. In the report of the State Civil
Apparatus Commission, it is stated that the setting of performance targets is the
initial process in implementing performance management, the evaluation process
of employee performance is carried out regularly using objective methods,
analyzing performance gaps, and formulating a settlement strategy (KASN, 2018).
The Tangerang City Government has succeeded in achieving the very good
category, which means that most of the requirements of the 8 (eight) criteria have
been met and can carry out a limited selection through the talent pool, but on the
performance management criteria, there are still achievements that have not been
maximized, namely the performance problem analysis criteria and the settlement
strategy (Merit System Assessment Report, BKPSDM, 2020). The following are
the achievements of the merit system self-assessment criteria for the performance
management aspect of the City of Tangerang:
Table 1. Assessment of the merit system for the performance management
aspect of the Tangerang City Government
Criteria
Current achievement/condition (score 1-4)
1. Determination of measurable All employees have compiled a performance
performance contracts (score contract as a derivative of the organization's
5)
strategic plan as evidenced by the employee
work target document (SKP) based on the
decision of the civil service officer (PPK)
regarding the performance contract. (sum of
score 20 = maximum)
2 Objective and measurable Has used an objective and measurable
performance appraisal method assessment method for all employees as
(score 2.5)
evidenced by daily performance appraisals
through e-performance (total score 10 =
maximum)
3 Performance appraisal is The performance appraisal process has been
carried out periodically to carried out regularly every 1 month as
achieve
a
performance evidenced
by
monthly/quarterly/semester
contract (score 2.5)
performance appraisal documents, annual
performance appraisal report documents, and
performance dialogue documents (total score
10 = maximum)
4 Availability of information Have analyzed performance problems in a
about
performance
gap structured (total score 10 = not maximized)
analysis and its resolution
strategy (score 5)
5 The
results
of
the The results of the performance appraisal have
performance appraisal as a been used as the main consideration in
material for consideration and employee career development (total score 10 =
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Criteria
career
development
employees (score 2.5)

Current achievement/condition (score 1-4)
of maximum)

Based on table 1.2, the 5 (five) merit system assessment criteria describe the
implementation of PNS performance management in Tangerang City, namely
from performance planning to performance evaluation. The implementation of the
performance planning of the Tangerang City Civil Servants for the criteria for
determining the performance contract is achieved by the maximum number of
scores with achievement indicators having drawn up a performance following the
organization's strategic plan as evidenced by the employee work target document
(SKP) stipulated in the decision of the civil service officer (PPK).
The performance of civil servants has long been in the government's
spotlight. Based on the results of the evaluation of the implementation of PNS
performance management in 2018-2019 conducted by the Directorate of ASN
Performance of the State Civil Service Agency, data on the implementation of
PNS performance management was 3.3% of institutions/agencies in the very good
category, 35% in the good category, 50% in the adequate category and 11.7% bad
category. Evaluation is carried out using assessment indicators, namely:
performance planning based on the preparation of SKP, performance
implementation based on the application of performance appraisal methods,
evaluation of performance achievements and employee behavior, utilization of
performance appraisal results, and the existence of supporting applications in the
preparation of performance and reporting of performance appraisals or
performance of civil servants (BKN, 2020). This condition illustrates the lowperformance achievement of government agencies, to realize bureaucratic reform,
all government agencies must work hard to develop a strategy for implementing
performance management that is in line with the government's strategic plan.
Based on the Performance Report of Regional Government Agencies (LKIP) of
Tangerang City in 2019, the performance indicators of the Bureaucratic Reform
index improve good governance, and the City of Tangerang managed to achieve
the realization of 61.43 of the target of 60, this realization is included in the good
category (B), an increase of 3.94 points from the realization in 2018 of 57.49.
From the achievement of performance indicators, there are 6 (indicators) in the
management of HR management including preparation of employee formations;
transparent recruitment selection; employee competency development; filling
positions nationally and transparently; determination of employee performance,
and enforcement of employee discipline and code of ethics according to
regulations, but in implementing the indicators above, there are obstacles
encountered including the determination of performance does not have conformity
with the level above, the results of performance appraisals have not been fully
taken into consideration for individual career development (LKIP, 2019).
Based on the data and information above that the implementation of Civil
Servant Performance management in Tangerang City is not optimal, there are
obstacles to implementing the policy. Seeing this phenomenon, researchers are
interested in conducting a policy analysis of the implementation of the Tangerang

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City PNS performance management system so that researchers can find a more
prospective model for the implementation of PNS performance management in
Tangerang City.
B. LITERATURE REVIEW
To enrich the theory used and as a reference for researchers in conducting
research in analyzing research problems, the researchers took several previous
studies related to performance management, including:
The first research by Zulystiawati (2014) with the title Performance
Management System: The Practices in the Public Organization in the Developing
Countries. This research is qualitative research that aims to describe an effective
performance management system in the public sector in developing countries.
Several theories used in this study state that performance management systems in
developing countries adhere to privatization and downsizing, the three success
factors of performance management systems include alignment with
organizational goals, credibility, and integration. The concept of a performance
management system strategy model is influenced by a dynamic environment and
the main elements of a strategic plan with SWOT analysis and components of a
balanced scorecard, important strategies in implementing performance
management include organizational goals and criteria, performance reviews with
360-degree
feedback,
performance
appraisals,
wages
/payment,
dialogue/discussion.
The second study by Ravi Chandar G and Dr. AB Saraswathi (2018) with
the title Impact of performance management system on employee performance –
A conceptual framework for its organizations. With the model developed, the
researcher provides 5 (five) implications for further research on the performance
management system, namely 1. The need to set goals or targets within a certain
period for effectiveness and efficiency and to increase employee initiative and
commitment, 2. The existence of a performance review as feedback that can
provide solutions for employees facing problems in the organization, 3. An
important factor in the performance management system is training as an effort to
improve employee performance and communication between superiors and
subordinates to find deficiencies and solutions to improve the quality of employee
performance, 4. Employee development focuses on empowerment, development,
and qualification through knowledge and skills, 5. Performance appraisal is a tool
to reward employees for good performance and motivate them to further improve
their performance.
The third study by Kevin Baird, Herbert Schoch, and Qi (James) Chen, 2012
entitled Performance management system effectiveness in Australian local
government aims to test the effectiveness of the performance management system
through performance measurement, rewards, and training as well as influencing
dimensions. With quantitative research through the collection of questionnaires at
random to 450 respondents in the Australian Local Government, the results
showed that with the performance management system, it is known that the
performance of superiors is generally considered quite effective, while the
performance of staff is still lacking. There is a significant relationship between

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performance measurement, rewards and training, and organizational culture
factors with performance management systems. So it is recommended that it is
necessary to increase the effectiveness of the performance management system by
superiors in managing employees.
The use of the term management in performance management as a
management process generally starts with planning in the form of setting goals
and objectives and ends with evaluation (Ruky, 2001). The term performance
management is often interpreted the same as performance measurement (Radnor
& McGuire, 2004 in Asropi, 2020). Performance management is a natural process
of management (Armstrong, 2006: 3), as a performance management system is
broader than performance measurement, performance measurement is an
important part of the performance management system (Lebas, 1995).
Performance measurement is a basis for consideration in providing feedback,
identifying achievements as expected, building the basis for success, and
identifying things that are not good for performance management in the
prevention or corrective actions (Haryono, 2018). The main activities of
performance management include planning (plan), action (act), monitoring
(monitoring), and assessment (review) (Edward Deming in Haryono, 2018).
In the implementation of performance management policies, there are
organizational challenges in its implementation, including low responsibility
given by superiors, lack of training, no appreciation for performance, and low
ability to plan and implement complex performance management systems.
Therefore, for effective policy implementation, it is necessary to provide
resources in the form of human resources and budgets, in addition to providing
budgets and assigning people, it is necessary to direct and take actions (de Waal,
et al, 2007). It is known that the factors that influence the implementation of
performance management are standards and objectives; resources; processes and
procedures; internal factors as well as organizational culture (Guthrie, et al in
Ahenkan et al, 2005). All public policies have standards and objectives that
outline the overall objectives, which means that policies without clear standards
and objectives will inevitably fail (Van Meter and Van Horn in Ahenkan et al,
2005).

Figure 1. Policy implementation model Van Meter and Van Horn (1975)

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Further explanation of the policy implementation model according to the
chart above:
(1) Standards and policy objectives are clear and measurable so that they can be
realized and avoid multiple interpretations that cause conflict.
(2) Resources as implementers of a policy consist of human resources and nonhuman resources
(3) Communication between organizations and implementing agencies in the
form of coordination and cooperation between agencies for the success of a
program.
(4) Characteristics of the organization or implementing agency in the form of
relationship patterns or norms in the bureaucracy are very influential in
program implementation.
(5) Social, political, and economic conditions in the form of support from interest
groups in policy implementation.
(6) The attitude of the implementers consists of three things, namely: (a) the
response of the implementers regarding the policy; (b) cognition, namely the
implementer's understanding of the policy; and (c) the intensity of the
executor's disposition, namely the specific value of the executor.
C. METHOD
The process of collecting data with use The qualitative approach taken by
the researcher is to explore problems related to the implementation of the
performance management system policy and the factors that influence it, with the
intention that researchers can find facts in the field more deeply and concretely
that comes from employees in regional apparatus organizations that serve as Key
Informants so that it will provide an overview of how the implementation of the
PNS performance management system policy in Tangerang City is based on the
factors that influence it. Qualitative research is carried out intensely and or
continuously with participants to explore the activities of individuals, groups,
communities, and organizations. The role of the researcher is to get a systemic,
comprehensive, and integrated picture of the research focus (Miles, et.al, 2014). In
this study, researchers collected primary data through direct interviews using an
interview guide to 9 (nine) Key Informants, namely civil servants in Tangerang
City by purposive sampling to collect comprehensive information on research
questions related to the implementation of current performance management
policies. To deepen information related to research questions, the researchers
conducted observations by observing and taking notes on a symptom that
appeared on the object of research. Secondary data is collected through field
documentation in the form of photos, recordings, field notes, and literature studies
through laws and regulations, regional regulations, books, journals, and
supporting documents such as employee performance appraisal documents to see
best practices in performance management carried out by Tangerang City Civil
Servants and other related information from the internet.

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D. EXPLANATION
Performance Planning
Performance Planning, not all employees understand and correctly
formulate performance plans, due to the implementation of incomplete
socialization to employees and the attitude of employees who consider that the
preparation of SKP is only a formality as a fulfillment of personnel administration
apart from that in the division of tasks or performance plans to subordinates, they
have not considered aspects competence as a consideration in the division of roles
for each employee, as evidenced by the performance planning document that has
not fully accommodated the organizational goals and strategic plans of the
regional government. Another reason is that there is no shared commitment in
determining the standard of a consistent performance plan so that each employee
partially prepares a performance plan that is only based on the activity program in
the budget use document and main tasks and functions as well as the lack of
communication and coordination between employees in the preparation of the
budget. performance plan;
Performance implementation stage
Performance implementation stage, documentation of performance has been
carried out periodically, namely daily, monthly, and yearly but the daily
performance documentation is less informative, namely the unavailability of
information on job descriptions that have been carried out and targets achieved, as
well as performance monitoring has been carried out periodically but not optimal,
due to official communication assessors with staff have not been continuously so
that there is no performance feedback, and a performance gap analysis has not
been carried out. Guidance and performance have not been carried out by an
appraiser official and submitted to BKPSDM to conduct coaching, but due to
limited resources at BKPSDM guidance and counseling are not optimal. In
addition, the support for electronic information systems has not been effective
because the existing applications have not been integrated.
Performance appraisal
Performance appraisal, the performance appraisal process has been carried
out by policy standards, but what is very important in this performance appraisal
is ensuring the objectivity of the performance appraisal process. In Tangerang
City there is still subjectivity in performance appraisal, there is a tendency for
appraisers to give SKP scores and work behavior with good values because of the
"ewuh pakewuh" attitude to subordinates and the lack of competence of appraisers
in providing accurate values, besides that the assessment is only carried out by
direct superiors. . The existence of an electronic information system is still not
effective for performance appraisal because monthly performance appraisals and
annual performance appraisals are carried out partially.
Performance evaluation
Performance evaluation, currently the performance evaluation focuses on
evaluating employee discipline/attendance. Performance reports from each OPD
submitted to BKPSDM have not presented data accurately, performance appraisal
data only contains performance scores and employee attendance data.
Performance evaluation is also carried out using the assessment center method,

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the results of the assessment center assessment are combined with the results of
the performance appraisal, but not yet systematically due to the unavailability of
an electronic information system for presenting data on the results of the
performance evaluation so that the staffing officer and the performance appraisal
team are constrained in making decisions for appointments. transfers, or
dismissals, however, the results of this performance evaluation have been utilized
for employee competency development.
By adopting the Van Meter and Van Horn (1975) policy model, a more
prospective model for the implementation of the Tangerang City civil servant
performance management system policy is described as follows:

Figure.2 The research implementation model of the performance management
system policy
Based on the results of the analysis of policy implementation seen from the
influencing factors and the statement of Key Informants, the more prospective
model for implementing the PNS performance management system in Tangerang
City is:
1. At the performance planning stage: there is an agreement that the preparation
of individual performance plans based on organizational goals refers to
strategic plans, work plans, and job analysis, a performance dialogue is held
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2.

3.

4.

to share each role according to competence, and all employees are committed
to implementing the performance plan.
At the performance implementation stage: daily, monthly, and annual
performance documentation in an integrated SIMASN application,
monitoring by appraisers by observing the implementation of subordinates'
performance regularly, and being given guidance and counseling through
open and regular communication to motivate subordinates, strengthen their
behavioral attitudes, provide feedback on the performance of their work. In
monitoring can consider input from other parties such as colleagues and/or
subordinates and is committed to implementing it consistently
At the performance appraisal stage: the appraiser compares the realization
with the target performance plan and evaluates the work behavior of
subordinates objectively by considering the assessments of several of his
closest people (colleagues, subordinates, supervisors of the appraisal officer)
and conducting appraisal interviews with subordinates. The performance
appraisal application is integrated between monthly and annual performance
appraisals, by automatically assessing the monthly performance of the annual
performance appraisal. The appraiser's commitment to conducting
professional and objective assessments.
At the performance evaluation stage: reporting the results of the performance
appraisal in the electronic information system in the form of individual
performance profiles containing performance scores, performance gaps,
recommendations/providing feedback on employee performance, and the
results of the assessment center assessment, then a performance rating of all
employees is carried out for consideration by the performance appraisal team
and staffing officers in giving awards or imposition of sanctions.

E. CONCLUSION
Based on the analysis of the four stages of implementing the Tangerang City
PNS performance management system, it can be concluded that the
implementation of the Tangerang City PNS performance management system
policy is not optimal because it is not following the applicable standards and
policy objectives and some standards have not been regulated. implementing
policies but not maximal at every stage, technological resource support with the
construction of e-performance applications and a management information system
for state civil servants has not been effective for presenting employee performance
profile data and has not been integrated into one information system, as well as
communication between appraisers and subordinates has not well established,
there is no dialogue on performance and providing feedback on the
implementation of employee performance. The attitude of the implementers and
the response of employees in the implementation of management is quite good,
although not all understand this policy, while social and political conditions do
not influence the implementation of the policy because of the commitment and
support of the leadership in implementing the performance management system
objectively.

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Based on the results of the study, the researchers recommend several things
to improve the implementation of the Tangerang City Civil Servant's performance
management system, as follows:
1. The importance of setting clear standards and objectives in each stage of the
performance management system implementation following the conditions and
needs of the Tangerang City Government in a Tangerang Mayor Regulation.
2. Increase the capacity of appraisers through performance guidance and
counseling training by maximizing the role of assessor of apparatus resources
or consultants as well as providing specialized training in objective and
accurate performance appraisal techniques to avoid subjectivity and errors in
halo error assessments.
3. Develop a performance management information system that integrates all
stages of performance management from performance planning to a
performance evaluation system that manages data on the results of employee
performance ratings as consideration for staffing officers in providing rewards
and imposition of sanctions.
4. The importance of performance appraisal interviews in providing feedback to
encourage fairness and accuracy in the assessment.
5. Strengthening the commitment and support of all levels of management to
implement the performance management system consistently by building
coordination, collaboration, and synchronization of inter-organizational
relationships in the implementation of performance management system
policies.
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