Bureaucratic Turbulence After the Transfer of Structural to Functional Positions at the Coordinating Ministry for Economic Affairs

This research described the phenomenon of bureaucratic turbulence in the Coordinating Ministry for Economic Affairs after the transfer of structural to functional positions. Furthermore, changes in the organization and individual civil servants were characterized by organizational, position


Introduction
The government has improved the bureaucracy through reform and public service optimization to support a clean and accountable governance system. In 2019, the echelonization system in the structural career of civil servants was replaced with a functional position, prioritizing competency and expertise. This policy was confirmed by the formation of several legal products Positions as a manifestation of the commitment to building a better bureaucracy.
Several strategic steps have been implemented by the government, such as bureaucratic simplification, organizational restructuring, transfer of structural to functional positions, and optimization of a performance-based system for fast, efficient, clean, and bureaucratic service processes. Meanwhile, civil servant career development is conducted through a merit system, indicating employee performance management can be carried out in an open, fair, and equal competency (Tarsidi, 2007). Through the Equalization of Administrative Positions, the process is ideally carried out through the stages of competency tests. The process of bureaucratic simplification and organizational restructuring is conducted by designing an ideal structure, preparing organizational and individual work process plans, and proceeding with the process of balancing positions and workloads. However, setting up a new structure is a long process and takes much preparation time. This indicates these two processes are carried out in parallel with the equalization of positions. The lack of preparation and demands for transformation causes turbulence within the organization of the Coordinating Ministry for Economic Affairs. This research is intriguing to be conducted in light of the existing occurrences and issues.

Method
A qualitative approach that begins with assumptions, perspectives, problem studies, and theoretical analysis was conducted by investigating information from individuals and groups on social problems and natural objects (Creswell, 2018). This approach was selected because the data sources collected are in the form of words or behavior, sentences, and natural images in describing or explaining social phenomena. Data were collected using the triangulation technique in the form of documentation, observation, and literature studies. Moreover, the analysis was performed using an inductive technique to obtain meanings (Sugiyono, 2018).
The object was a phenomenon of bureaucratic turbulence after the transfer of structural to functional positions at the Coordinating Ministry for Economic Affairs. This research used primary data in the form of interviews with several structural officials. The secondary data used were literature studies from various statutory documents, archives, technical instructions, books, journals, and photographs as references or sources of relevant information. Direct observation was also made of the actual conditions in the organization with a passive technique through intensive observation.

Results and Discussion
One of the most important factors in government affairs is the issue of coordination, which is the first principle of the organization (Syafrudin, 2016). Difficulties in conducting government coordination do not only occur in a wider scope such as between ministries or agencies but in a smaller scope such as a section. This occurs because members of the organization prioritize their personal or sectoral ego instead of broader goals. The lack of integration between activities can be seen from the strong nature and perspective of sectoral ego between organizations (Sinurat, 2017). However, when every person or group in the organization is willing to put aside personal ego and see a bigger goal of the national interest, then coordination can be easily performed.
Coordination in the context of government is an attempt to adjust the parts of the system according to their place and relationship. Furthermore, it is an effort to perfect organization, programming, scheduling, control, and cooperation to overcome human imperfections (Effendy, 2010 The four elements of good coordination (Terry, 1964) include: 1. Setting or coordination arrangements, leadership policies, and cooperation arrangements with other agencies. 2. Synchronization or integration of activity plans between units, activity priority and implementation time, common understanding between units on goals, uniformity of SOPs between units, monitoring, evaluation, and feedback. 3. Common interests or programs, budgets, integrated technology applications, and provisions of norms. 4. Common goals or achievement targets, optimization of central taxes, and coordination incentives.
Considering the importance of the tasks and functions of the Coordinating Ministry for Economic Affairs to coordinate several ministries and other agencies, it is necessary to analyze the implementation of the transfer of functional positions under the generalist vs specialist concept.
Many assumptions believed that specialization through functional positions is a favorable status for the career development of civil servants when they are engaged in an area of expertise.
Meanwhile, this perspective is not entirely correct when the organization can accommodate the competency of civil servants who have been working as generalists. This is because the wider scope possessed can connect the dots between one science to another which allows finding problem-solving and innovation through a more comprehensive and broad helicopter view within the organization (David, 2021).
Based on the grand design set by the Ministry of State Apparatus Empowerment and Bureaucratic Reform, simplification is expected to change three areas, such as organizational, position, and performance transformations (Ministry of State Apparatus Empowerment and Bureaucratic Reform, 2021). Organizations need to make the right decisions by making changes to the model structure since few concepts can be applied to uniformity. The ideal form of an organization depends on the activity field, size, resources, capabilities, needs, and environment (Susanto, 2017). The transformation in the form of structural to functional positions has caused changes to the map, the mechanism for developing competency based on expertise and skills, The performance management transformation of civil servants aims to shape the character of the professional apparatus in responsive, dynamic, efficient, and effective governance in providing public services (Zainuddin et al., 2014). Circle-shaped organizations prioritize the role and performance of each employee in supporting the achievement used as the basis for the followup assessment of rewarding or punishing a civil servant. The new functional position-based performance appraisal system has included one element of the initiative as an assessment that shows the seriousness of the organization toward individual employee input (Adnan, 2014).
Therefore, civil servants are required to be responsive, adaptive, and innovative in solving problems and needs of the organizational environment as well as to fulfill the expectations of public services for the community.

Organizational Transformation
Organizational restructuring after the transfer of structural to functional positions is a challenge for the Coordinating Ministry for Economic Affairs to develop the individual capabilities of civil servants to be more adaptive to the needs and demands of the external environment. Integrating resources is the first step that aims to increase capacity according to the needs and developments of the environment (Farihah, 2014).
Organizational transformation after the structural to functional positions is homework for civil servants in the business environment which is an open ecosystem and consists of different related units (Poerwanto, 2006). Changes in the organizational environment will affect the role of human resource management (Dessler, 2000). Therefore, the implementation of organizational restructuring has an impact on the increasing need for human resources who can perform harder, better, faster, and more competitively. Government organizations are challenged to adapt to changing trends in technology, global products, regulations, demographics, and various community needs driving high-speed global competition.
There are three competencies needed by organizations to adapt to the changing times, namely creativity, knowledge, and innovation in the process of producing goods and services (Endarwita & Herlina, 2019). This condition requires the Coordinating Ministry for Economic Affairs to make changes to organizational characteristics at different levels and functions. These include making changes to modern organizational life, having a short span of control, and adapting quickly to the environment. Consequently, organizations should empower their human resources to keep pace with the demands of policies, organizational needs, and global competition in the external environment.

Table 1. Transformation of Modern Organization Characteristics
Source: (Sisbintari, 2013) Modern organizations tend to prioritize processes over ultimate goals. These organizations are characterized by work processes in groups and coordinated in structure, as well as a greater emphasis on authority than command and control. Therefore, the granting of authority is a form of staff empowerment for the benefit of the organizations (Adnan, 2014). Efforts to transform the organization with modern characteristics have been conducted by the Coordinating Ministry for Economic Affairs by removing 264 work units after the transfer of structural to functional positions. The organization has prioritized performance in the form of a team characterized by a concerted attempt to integrate and include each unit in diverse policies. This is meant to enable businesses with lean structures to function dynamically and flexibly with a broader span of control and to foster continuous change.
The organizational change includes structures and processes to improve performance. It promotes the development of the environment accompanied by business transformation within the organization as the main architecture to achieve the same goal at a different pace. Business transformation is related to the four 4R dimensions, including reframing, restructuring, revitalization, and renewal (Gouillart & Kelly, 1995).

Figure 2. Organizational Work Procedure Transformation
Organizational restructuring is the process of changing the concept of the goals to be achieved (Ariza, 2021). Through this process, the desire of the organization will arise to obtain a competitive level of performance through the renewal of human resources in the transition period.
It is characterized by delayering and collaborative work mechanisms, work system transformation The implementation requires the organization to carry out a credit score-based functional transformation, and the rank provisions are as follows: The credit score is obtained based on the type of calculation in the functional position. The determination is divided into two approaches, namely the conventional and the conversion system of Employee Work Target. The conventional system is an accumulation of educational value, previous rank, and the percentage of position equalization credit score determined by the formula: "(percentage of credit score multiplied by cumulative credit score for promotion to the rank of the occupied position) + (sum of cumulative credit score for the previous rank at the occupied level and the previous level)". 3. More than 2 -3 years 50%;

Source: Minister of State Apparatus Empowerment and Bureaucratic Reform Regulation Number 28 of 2019
For example, an Echelon IV official of rank IIIc for 2 years will be equated to a functional position of Junior Expert with a total credit score of 250. This score is based on an equalization calculation of 50% from Junior Expert with KP cumulative credit score (50%x 100) = 50, the element of education = 100, the value of Group IIIa = 50, the value of Group IIIb = 50, hence, the total credit score is 250.
Since administrators and supervisors occupy functional positions, they can be given coordination and management activities according to their field of work. However, this task is additional and no longer mandatory when occupying structural positions. A functional official given additional tasks as a coordinator or sub-coordinator can be changed according to a performance evaluation of at least 1 year or until a change of a new coordinator or sub-coordinator.
The implementation of coordination responsibility and the management of this activity obtain an additional credit score from the cumulative for promotion to the top level. The implementation of coordination tasks and functions of this activity is given an addition of 25% from the cumulative credit score for promotion to a higher level recognized as the main task. The assessment of the additional tasks is carried out after the person concerned has conducted the position tasks in at least one period of functional performance appraisal. Former administrators and supervisors who experience equalization cannot shift the perspective that their duty is just 25% of the cumulative credit score. Furthermore, when the coordination tasks, functions, and management of this activity are only additional tasks, some organizational functions and performance will experience a decline. This is because employees with functional positions are more interested or busy collecting credit scores for the benefit of individual careers and promotions than taking care of coordination functions that are no longer a mandatory tasks.

Source: Legal Bureau and Organization of the Coordinating Ministry for Economic Affairs in 2021
Minimizing turbulence demands a change in the thinking of functional officials due to equalization that work outputs will be assessed based on credit scores according to their functional positions (Lia, 2020). Organizational governance after restructuring and position equalization has turned into a form of networking that is no longer hierarchical. The organization is turned on by working groups, supporting each other according to their level of position and competency. Even though the performance targets of functional officials after organizational restructuring will follow the same rules as their respective positions, civil servants can be recommended to receive a disciplinary warning when there is an indication of not performing under the main tasks.

Equalization of structural to functional positions can be conducted by the agency's
Personnel Guidance Officer without having to wait or obtain a recommendation from the Specific Functional Position (SFP) guidance agency. This is certainly different from the recommendations of the SFP guidance agency. However, there will still be intervention or attention in the process of developing the career of functional officials. Problems occur when a civil servant has occupied a functional position for 2 years and has fulfilled the cumulative credit score, hence, the agency can propose a promotion. Meanwhile, many agencies have not prepared a credit score calculation team after the equalization of structural to functional positions. This is due to the lack of knowledge and organizational priorities to understand the composition, scheme, and requirements for promotion.   Several tasks of the coordinator and sub-coordinator are vacant during the transfer of functional positions because they were previously occupied by the task executors. Assignments of daily and task executors for functional officers can be carried out with the following requirements: The assignment of daily or task executors can be given to civil servants higher than the position to be assigned when there is no one with these requirements. employees based on job performance rather than a political party system. It is the opposite of the spoil system in which government positions are filled by friends, family members, or supporters of the ruling party. Several aspects that form the basis of any performance system implementation are competency, work performance, and an administratively sound structure.

Performance Transformation
According to the discipline concept, the performance system focuses on the basic consideration for the competency of civil servants from the applicable law. The management system based on Government Regulation 30 of 2019 regarding the appraisal of civil servants can be used by organizations, communities, and the state. Meanwhile, performance evaluation factors account for 60% to 70% of employee work goals and 30% to 40% of behavior assessments, including service orientation, commitment, collaboration, initiative, and leadership. It is presented in a role outcome matrix where a performance appraisal is followed by the merit of award or punishment. The new performance appraisal system adds an element of initiative to one of the ratings, which demonstrates the need for officers to adapt and respond more quickly to the challenges of the strategic environment. Superiors give orders, while civil servants are expected to solve problems and meet community needs and expectations.
Changes in professional performance management should be accompanied by training in a dynamic governance framework as well as agile, efficient, and effective administration in the delivery of public services. Dynamic management requires personnel who can think predictively, reflectively, and horizontally or interdisciplinary. This requires the active participation of all employees in the organization and rethinking. The mentality assumes that achievement is a service to the state and the community, including worship, fulfillment of obligations, and material activities. Organizations can promote their employees to work better in serving the community and achieving the vision and mission with this mindset.
The transformation has been oriented towards a flexible and collaborative work mechanism that requires a working system and public services as well as the transformation of human resources prioritizing rewards. This is based on a merit system regardless of political origin, race, gender, age, religion, ethnicity, culture, and disability. Therefore, all civil servants who have  Performance transformation is related to the merit system which aims to minimize the practice of politicization in the bureaucracy, such as the appointment of civil servants who are not elected and promoted based on the merit system principle. Restructuring the appointment of civil servants outside capabilities and qualifications will make the effectiveness and efficiency of performance low. The implementation of the law is expected to bring a new atmosphere for the management of civil servants based on a merit system, recruitment, placement, and promotion for employees.

Bureaucratic Turbulence
Organizational downsizing is conducted by the government to carry out the process of improving human resource governance and improve public services. The existence is made with the aim that government organizations facilitate the realization of the vision and mission with a lean organization by facilitating the division of main tasks and functions in carrying out their duties. Maximizing the potential and quality of employees will indirectly have a major impact on the organization to achieve its goals and objectives. Furthermore, organizational downsizing can assess qualified and competent civil servants to obtain the promotion process (Rakhman, 2020).
The transition from structural to functional positions has left some officers unprepared to perform the essential duties of their jobs. There is still a skill and expertise gap between the initial and the current functional positions. Consequently, civil servants should quickly adjust in setting employees' performance targets according to functional positions. Adaptation efforts are carried out during the transition period, the process of changing work patterns and mindsets in the work environment with a flat and circular model organizational structure. This process is performed quickly and simultaneously with the process of bureaucratic reform. Therefore, it is very vulnerable to turbulence from the organization, individual apparatus, and the environment.
A new work culture and style have emerged due to shorter leadership structures that have eliminated numerous responsibilities (Marthalina, 2022). completely changed from the command and managerial system. This means during the transition to the change of office, a "functional sense of structure" joke emerged.
In the transition, not all civil servants are interested in occupying functional positions due to equity. This is due to a mismatch between the types of functional position clumps carried out with the individual interests of civil servants, scientific competence, expertise, and organizational needs. This condition raises concerns that will indirectly affect individual and organizational performance as well as future career development. Based on observations, some civil servants occupying certain functional positions are still busy with additional tasks that have a heavier workload such as being a financial manager but are still constrained by a limited number of civil servants with experience.
After going through a transitional period of functional positions, organizations need to map the interests and competencies of civil servants. The organization also needs to prepare a credit score collection system for promotions and positions submitted after 2 years according to the level of rank through the formation of an internal organizational assessment team. Therefore, the Coordinating Ministry for Economic Affairs has made efforts to develop human resources by improving management capabilities, increasing budgets, developing functional position competencies, and improving adaptive and dynamic work culture in response to the impact of transferring structural to functional positions.

Conclusion
The process of transferring structural to functional positions is very different from the The main tasks and functions of the Coordinating Ministry for Economic Affairs are to coordinate, synchronize, and control economic affairs in several Ministries and institutions deemed necessary. Therefore, the implementation of transferring structural to functional positions for all administrative and supervisory officers needs to be reviewed. This is because the coordination, synchronization, and control of economic affairs require many apparatus with generalist competencies. Furthermore, they are considered to have greater insight, competency, and opportunities to occupy several positions with a wider scope. Generalist competency is still needed to link economic affairs across ministries and agencies. Therefore, innovation and problem-solving can be carried out comprehensively through a broader helicopter view.