Along with the National Bureaucratic Reform, the Indonesian Armed Forces Tentara Nasional Indonesia (TNI) Bureaucratic Reform was also implemented conceptually, gradually and constitutionally by adhering to the Regulation of the State Minister for Administrative Reform and Bureaucratic Reform number PER/15/M.PAN/7/2008 concerning General Guidelines for Bureaucratic Reform since February 19 2009 [1]. The TNI bureaucratic reform is essentially the TNI's commitment to position itself properly and optimize its role in the order of the Indonesian nation's national life. The reform of the TNI bureaucracy is an important decision, not only for the TNI but also for the nation and state and the national interest in general.

The implementation of the TNI's Bureaucratic Reform is evaluated and assessed on an ongoing basis, both by the TNI itself and by the National Bureaucratic Reform Team. The achievement of progress in the implementation of bureaucratic reform has brought several administrative consequences, including the provision of performance allowances for government institutions. Some of the main obstacles encountered by the TNI in implementing this commitment to bureaucratic reform include.

Philosophically, the principal task of TNI boils down to ensuring the territorial integrity and upholding the sovereignty of the Republic of Indonesia which in turn also guarantees the perpetuation of the whole order of life of society, nation and state that is free and secure from all forms of threats from the outside. This philosophy implies “public service” on a very broad scale, which in the context of national bureaucratic reform is only one of nine established programs (8th program). This fundamental difference in understanding makes it difficult to measure the achievement of the 8th bureaucratic reform program within the TNI, both qualitatively and quantitatively.

The distinctive characteristics of the TNI organization that have an impact on the mechanisms and procedures for carrying out tasks that are different from other government institutions. The existence of a hierarchy of rank and seniority which is an institutional nature in any military organization has an impact on differences in the duties, authorities and responsibilities of TNI officers. This is of course different from other government/civil institutions, which purely place individual qualifications and competencies as the main basis for determining positions. This characteristic does not mean that the TNI cannot implement a pure meritocratic pattern, but its application is not as flexible as in other institutions given the existence of a seniority culture which ethically will still be upheld by any TNI officer as part of the honor and esprite de corps.

The application of Factor Evaluation System (FES) cannot be fully applied in the TNI. For example, fingerprint attendance mechanism that in some government agencies are already applied. TNI ranks cannot fully implement this, given the different pattern of tasks. The mechanism highly dynamic assignment did not permit the application of FES (paced quantitative) and requires a Commander/Chief of Unit (And/Project Implementing Unit Heads) made its own assessment that although made as objectively as possible, but will still contain the subjectivity in a certain scale.

The material managed by the TNI, in this case the defense equipment, is a sensitive material which, when associated with the principle of transparency, will cause many obstacles. Alutista procurement auction announcement as mandated by Presidential Decree Number 54 Year 2010 on Procurement of Goods and Services, for example, can have consequences on the "discovery" of national defense policy in terms of the development of military power. Especially if this is done using the e-procurement method, which allows any public to access the plan to develop the Indonesian defense force. Although the military strongly supports the principles of transparency and accountability, but the possibilities that could weaken the level of confidentiality of these countries will remain a concern for the military.

To explore the analysis of priority policy in the bureaucracy reform process of TNI, a qualitative research methodology was determined. This is due to the fact that the time line of the case study has taken place in the period of some bureaucracy reform era in certain government. For this reason, it is necessary to have an analytical effort that starts from the beginning of the history of the particular regimes so that in order to optimally capture the data as well as the chronology of existing events, a case study approach is needed. Through this approach, it is hoped that data will be collected systematically and relevant to the object of research so that it is able to analyze some of the impacts and trends that will develop in describing current problems as an anticipatory effort in the future [2]. In addition, the analysis will also relate some interesting phenomena that have occurred since the old style of government bureaucracy would transform into reformation periode style that caused by democracy process.

The adoption of the Case Study approach in qualitative research is an attempt to extract as much data and information as possible. With the formation of several theoretical foundations, definitions and variables, the analysis will further explore the relationship between variables so that the combination of these approaches will deepen the understanding of "why" and "how", the bureaucracy reform style has correlation with development of reformation movement is able to grow rapidly in all its limitations. To build a comprehensive understanding apart from the construction of research with an approach that focuses on case study, further surveys are needed which are useful in shaping research designs to be more detailed, analytical and relevant to the perspective of several leadership models. To obtain such qualitative research, the research will be designed based on a combination of the research approach with surveys based on the development of the subject of the study. As in other case, with the approach of several contemporary leadership styles, the focus of this case study will be to answer how reformation movement was successful in their various forms including to influence bureaucracy reform of TNI.

In this research, the unit of analysis included some levels of military organizations and the manager policy character as well as the influence of reformation movement in transforming of bureaucracy reform in TNI. In order to obtain reliability and accurate content validity on the results of this study, several main questions were compiled in the main question guide line. With the formulation of the question guide, it is hoped that the process of extracting information with a study case approach can be designed systematically and focus on the targets of the research object. Through this, it is hoped that questions related to case study can be covered because in principle, the question guide is a list of questions as a guide for making a research report (Figure 1).

Figure 1: Outline Diagram of Research Design Process

To prepare research that is rich in accurate information, a pilot study is needed as the beginning of research related to the parties selected as informants. Regarding the priority policy in the bureaucracy reform process of TNI, parties that can be used as sources include lecturers of defense management, lecturers of defense economics as well as and observers of military officer concepts in some activities and output of several bureaucracy policies. Pilot interviews can be carried out by determining several people who can assist the researcher in connecting them to selected sources according to the criteria in the research topic so that they are able to provide accurate information during the course of the research.

The research will be carried out based on a triangulation process in order to achieve comprehensive qualitative research results. Four data collection methods will be used in this study including in-depth interviews, literature studies, expert advice and in-direct observation. To carry out in-depth interviews, the format will be determined in a semi-structured form based on a list of questions that have been compiled through the interview guide. In order for the research results to be in accordance with the construct validity principle, a literature study is needed. In this study, researchers will confirm the results of interviews with informants with some secondary data and statistical data from legitimate institutions and published through several media sources.

In order to obtain a more precise theoretical sense, data collection from various respondents must also be confirmed with several theories or definitions that have been previously collected by means of expert advice. If these steps have been implemented, the sampling of the unit of analysis will accurately represent the effectiveness leadership styles in certain organizations (Figure 2).

Figure 2: Operational Strategy Framework for Bureaucracy Reform

During the report preparation and verification stages, several important things that have been developed based on the case study protocol can be used as initial references. By always maintaining consistency and focusing on the question outline, reports and verification will follow the results of the research that has been carried out. Through these preliminary conclusions, at least it has provided an initial description of the phenomena that the researcher has observed and interviewed to some informants whom indicate at Table 1. Based on the background of the military leadership used as a reference, an outline of the relevant explanations has been presented regarding the democracy in applying to the work mechanism of military organizations.

Table 1: Informants and Case Study Protocol

The preparation of research proposals must be carried out in careful stages, especially to meet the four criteria in The Four Design Tests namely Construct Validity, Internal Validity, External Validity and Reliability [3]. In construct validity, it will prove that a qualitative research is not a subjective research. Qualitative research must have a degree of conformity with existing theories or definitions like scientific research. This will make a qualitative study have a strong objectivity based on existing theories (theoretical sense). In the validity interval, the triangulation process is the most important factor based on the diversity of data sources, investigators, locations and so on [4].

Internal validity will ensure that the data collected comes from several sources and is processed by various methods and the respondent is also guaranteed as a person who deserves to be accounted for on the basis of their legitimacy. 

Meanwhile, external validity will make the results of research that can be generalized as a general perspective of the object of research and can even be attributed to other institutions or organizations. With high reliability, qualitative research is expected to be able to adopt ways of processing data for different times and objects but can be accounted for having the same results.

Rationale

As a reference implementation of the reform of the bureaucracy, used some of the principal or rationale. Starting with the principles of Bureaucratic Reform (BR), the policy points of the TNI Commander in the framework of BR TNI and BR State Defense. Principles of Bureaucratic Reform. Bureaucratic Reform principles to achieve its objectives include.

Outcomes Oriented

All programs and activities carried out in relation to bureaucratic reform must be able to achieve results (outcomes) that lead to improving the quality of institutions, management, laws and regulations, apparatus HR management, supervision, accountability, quality of public services, changes in mindset and work culture apparatus. This condition is expected to increase public trust and bring the Indonesian government to a world-class government.

Measured

The implementation of bureaucratic reform that is designed with outcomes oriented must be carried out in a measurable and clear manner with targets and timing of achievement.

Efficient

The implementation of bureaucratic reform designed with outcomes oriented must pay attention to the efficient and professional use of existing resources.

The Principal Policies of the TNI Commander in the Context of Reforming the TNI's Bureaucracy. The Bureaucratic Reform 2020-2024 strategy from the Ministry of PAN and Bureaucratic Reform forms the basis of the 

TNI Commander's policy points in the framework of Bureaucratic Reform TNI. Figure 3 below shows how the goals and objectives of Bureaucratic Reform are related to the policy points of the TNI Commander. As a guideline in implementing bureaucratic reform within the TNI, the TNI Commander has issued the following policies:

• The implementation of bureaucratic reform within the TNI is carried out conceptually, gradually, constitutionally and sustainably which includes aspects of doctrine, structure, culture and mindset

• TNI prioritize solidity, loyalty and esprit de corps (spirit of solidarity animates all members of the same professional group) in the implementation of bureaucratic reform within the TNI

• Quick wins: An initiative step that is easy and quick to achieve within one year that initiates the implementation of a program in bureaucratic reform. The TNI's quick wins that are a priority in implementing the TNI bureaucratic reform are the PPRC (Quick Reaction Squad), the TNI PRCPB (Fast Response Batter for Disaster Management), security for border areas and outer islands and the Minimum Essential Force (MEF)

• TNI does not lead to pure performance allowances or remuneration but special performance allowances.

• TNI performance allowances are not a goal but a continuing process to create a TNI posture that is able to carry out its main tasks professionally, effectively and efficiently

Figure 3: Relationship of Goals, Targets and Strategy for Bureaucratic Reform Implementation for 2020-2024

Source: Regulation of the Minister of Empowering of National Apparatus and Bureaucratic Reform Number 25 of 2020 concerning the Road Map of Bureaucratic Reform for 2020-2024

TNI Bureaucratic Reform Program

Bureaucratic reform programs and activities within the TNI are in accordance with the National Bureaucratic Reform programs and activities, which can be described in the following Table 2.

Table 2: TNI Bureaucratic Reform Program

Source: Ginting (2016)

In September 2009 the Indonesian Army, Navy and Air Force in an integrated manner through the TNI Headquarters sent a report on the implementation of Bureaucratic Reform to the Head of the National Bureaucratic Reform Team, accompanied by the necessary documents.

The National Bureaucratic Reform Team followed up on the report and coordinated with the TNI Bureaucratic Reform Team to carry out the process of maturation of the implementation of bureaucratic reform within the TNI in national defense. There are also several assessment components that are given as the composition in Figure 4 above. There are also related problems in the Bureaucratic Reform process within the TNI, some of the explanations are as follows:

Figure 4: Composition of the 2015-2019 Bureaucratic Reform Implementation Assessment

Source: Regulation of the Minister of Empowering of National Apparatus and Bureaucratic Reform Number 25 of 2020 concerning the Bureaucratic Reform Road Map for 2020-2024

Philosophy of the TNI's Main Duties as Public Servants

The difference in understanding regarding the philosophy of the TNI's main duties as a public servant is fundamental. This situation makes it difficult to measure the achievement of the 8th bureaucratic reform program in the TNI environment, both qualitatively and quantitatively. This happened because the socialization of the TNI's Bureaucratic Reform program was not optimal to the TNI ranks. TNI units that are spread throughout the archipelago require gradual socialization by a technical team for TNI Bureaucratic Reform at the TNI Headquarters, Army Headquarters and Main Command levels. 

Socialization activities are carried out intensively and programmed with a comprehensive evaluation of the material presented. The program for accelerating the implementation of the TNI's Bureaucratic Reform resulted in a very high dynamic in order to obtain a conformity of the concept between the TNI and the Ministry of Administrative Reform and Bureaucratic Reform as well as the State Civil Service Agency. Therefore, it is necessary to disseminate information to the TNI ranks more intensively so that existing developments can be known and understood to the lowest units.

Typical Characteristics of the TNI Organization

Furthermore, it is related to the problems of the distinctive characteristics of the TNI organization which have an impact on the mechanisms and procedures for carrying out tasks that are different from other government institutions. This characteristic does not mean that the TNI cannot implement a pure meritocratic pattern. This condition indicates that there is a problem in terms of Job Grading. The absence of a systematic position weighting or grading system requires the TNI's efforts to always pay attention to directions and corrections from the Kempan and Bureaucratic Reform and the Personnel Agency based on several reports on the implementation of Bureaucratic Reform within the TNI and supporting documents.

Implementation of Factor Evaluation System (FES) The following problem is the application of Factor Evaluation System (FES) which cannot be fully implemented within the TNI. This highly dynamic assignment mechanism does not allow the application of FES (which is all quantitative). This problem is very likely to occur when the assessment of a Commander is not based on the objectivity established by the FES system. The problem that often arises then is the high level of subjectivity of commanders or leaders so that it can interfere with the performance-based meritocracy system that will be built by the TNI in its personnel development culture. The analysis then develops if it turns out that intensive coordination and consultation efforts are still low in order to obtain an understanding on the use of FES used by Ministry of State Apparatus Empowerment and Bureaucratic Reform as well as State Civil Service Agency and the TNI Bureaucratic Reform Technical Team. This needs to be followed by continuous data updating steps by the TNI Bureaucratic Reform Team.

TNI Material Management

In terms of the management of defense equipment as a sensitive material which, when associated with the principle of transparency, will cause many obstacles. The implementation of the TNI's defense equipment procurement is basically twofold, namely: (1) the military is given a budget for further control and supervision and (2) the military is not given a budget but immediately submits a need. In the first application, the military was given a budget for further control and supervision by many developing countries. The military application is not given a budget but directly proposes the needs generally adopted by developed countries. Even so, there are some developing countries that have set the second application, for example, Malaysia which has switched from the first application and switched to the second application, so that it is more advanced than Indonesia in terms of defense equipment systems. The implementation of 2 is superior in the quality of the defense equipment system because the military can propose the best quality and be selected so that if it does not meet the specifications requested, the military can refuse. In contrast to implementation 1, where to meet the best quality and be elected by the military, the budget is limited, besides that there is an open gap for consideration to suppress the needs that should be because they are faced with budget constraints. However, if the Unitary State of the Republic of Indonesia still applies 1, it is due to the fact that the state's ability in the military budget is very limited. For example, in the 2010-2014 strategic plan, the submission of the TNI budget to achieve the MEF was only 2.1% of GDP, but it could only be fulfilled by 0.86% of GDP. As for transparency, everything does not have to be known to the public because it involves credibility in the capacity to bring down the morale of opposing soldiers. Besides that, weapons that are considered reliable can be a surprise in battle to gain victory in war. Therefore it is justified that not everything can be disclosed to the public, in addition to various factors and other aspects in the relationship of confidentiality.

From the results of the analysis of the main problems in the reform of the National Defense bureaucracy: The role, functions and duties of the TNI as a state tool in the defense sector, it is necessary to develop a proportional system and strategy among them.

TNI Professionalism 

All elements of the TNI must be professional in acting in their fields in accordance with state policies and political decisions. Meanwhile, in carrying out the functions of TNI personnel, they must be able to act as a deterrent against every form of military threat and armed threat from outside and within the country against sovereignty, territorial integrity and national safety and take action against every form of threat that may arise. With an increase in the budget in the defense sector, the TNI must be able to maximize the roles, functions and duties of the TNI in the face of Law no. 34 of 2004 in accordance with the development of technology, information and communication.

Uphold the Objective Civilian Control

Apart from being technical, substantively, military professionalism cannot be separated from the role and views of civilians, namely, the division of political power between the military and civilians towards professional behavior. Objective civil control is different from subjective civil control. Subjective civilian control achieves its goal by civilizing the military and making the military a mere instrument of power. Whereas objective civilian control achieves its goal by militarizing the military and making them an instrument of the state. Objective civilian control recognizes professional military autonomy, whereas subjective civilian control denies military independence. Therefore, objective control does not only minimize military intervention into politics, but also requires the superiority of elected civilian authorities (elected politicians) in all political fields, including in determining military budgets, concepts and national defense strategies.

Integrity in FES Implementation

In order to achieve the success of the implementation of the main tasks given to achieve success in the predetermined goals, it is necessary to have high integrity from all TNI soldiers. The implementation of FES is often found to be very difficult to implement because of the complexity and density of the TNI's assignments, especially the demand for having to serve outside base. This situation can be overcome if the implementation of FES is followed by technology updates related to tasks inside and outside the home base. This effort is important to be carried out in line with the professionalism of the TNI which is continuously updated.

Figure 5: Framework for Thinking and Linkages between Sections of the Road Map for Bureaucratic Reform 2020-2024

The implementation of Bureaucratic Reform in the TNI has not yet fully achieved the expected target. The measure of Bureaucratic Reform success as shown in Figure 5 above, does have a relationship with the overall performance of Bureaucratic Reform implementation management. However, positively, the program has brought great results, especially regarding the transparency and accountability of the TNI in the eyes of the public. Several surveys from independent survey institutions below open a new perspective that the level of public trust will be in line with the indications of the TNI's performance, especially in terms of organizational transparency and accountability. This positive condition certainly cannot be separated from the efforts of the TNI which intensively and continuously implement all Bureaucratic Reform programs optimally. Some of these surveys include.

According to Adi Prayitno, Executive Director of Indonesian Political Parameters, 2021, based on a survey of the Institutions with the Highest Satisfaction Levels for 2020-2021, the TNI is still the institution with the highest satisfaction rate of 86%. Corruption Eradication Commission (Komisi Pemberantasan Korupsi/KPK) 64%, Constitutional Court in third place, 62.5%, in fourth place, Supreme Audit Agency (Badan Pemeriksa Keuangan/BPK) 59.7%, Supreme Court (Mahkamah Agung/MA) 60.5%, Police 62.1%, the House Representative (Majelis Pemusyawaratan Rakyat/MPR) 51.6%, the People's Representative Council (Dewan Perwakilan Rakyat/DPR) 52% and Political Parties 49.3%. Although the Police have a satisfaction level of 62.1%, the dissatisfied rate is 31.8% so that the institution's rank is below the Supreme Audit Agency and Supreme Court [5,6].

Indications that the Indonesian people are optimistic about improving the performance of the TNI in the future are 7.9%, followed by the Presidential Institution 7.1%, KPK 6.8%, MK 6.2%, BPK 6.1%, MA 6%, Police 5 .9%, MPR 5.4%, DPR 5.3% and Political Parties 5.1%. Furthermore, according to Rio Prayogo, the Executive Director of Politica Research Consulting, 2020 said that the level of community satisfaction with the performance of the TNI and National Police is the highest compared to other institutions. TNI as a state institution and the highest level of satisfaction is 77.5%, National Police 67.8%, KPK 57.4%, Attorney General's Office 51.1%, BPK 48.9%, Regional Representative Council 51.4%, DPR 50.6%, MA 53.2%, MK 50.9% and MPR 51.7% [7-9].

Based on the explanation above, namely.

The difference in understanding regarding the philosophy of the TNI's main duties as a public servant is fundamental due to the non-optimal socialization of the TNI Bureaucratic Reform program to the Indonesian Armed Forces. In addition to optimizing the socialization program, the TNI professionalism improvement program is also an effective priority so that measures of Bureaucratic Reform success can be realized within the TNI so that the managerial performance that is carried out will continue to improve.

Problems with the typical characteristics of the TNI organization which have different procedures for carrying out tasks from other government institutions indicate that there are problems in terms of Job Grading. The rank and career leveling program in the TNI where there are still elements of leadership subjectivity indicates that the Merit System that is being promoted is still not optimal.

The implementation of FES, which has already begun, is an aspect of objective civilian control in order to support the professionalism of the TNI to become more independent from various civilian political interests. The priority program in this segment is the embodiment of civilian supremacy in relation to civil-military relations which will position the TNI. In the field of defense budget is sufficient for the military in carrying out the task of maintaining national sovereignty and the territorial integrity of the Republic of Indonesia. The technical aspects of implementing FES can be developed through the latest data collection technology that can digitize the deployment of soldiers on or off the battlefield.

The priority program of Bureaucratic Reform in the fulfillment of defense equipment in the Control and Supervision process is still not effective. This situation occurred because the TNI participated in the process of obtaining defense budget allocations. The existence of a factor in the confidentiality of the Major Power System (Alat Utama Sistem Senjata/Alutsista) capability and access to information on the defense budget is very limited, making control and supervision efforts still cannot take place holistically in almost all units.

Based on some of the analyzes and conclusions above, the recommendations that can be given include, there is a need for more effective socialization policies and strategies from TNI Headquarters by continuing to coordinate intensively with the Ministry of PAN & Bureaucratic Reform so that the priority programs of Bureaucratic Reform, especially in the TNI, can be evaluated more transparently and thoroughly. It is necessary to prioritize promotion and rank programs through a more measurable Job Grading System by taking into account the typical TNI variables. Among them are the performance measures of soldiers in carrying out a mission or operation, the success of carrying out and designing an exercise as well as more attention to soldiers with outstanding academic achievements not only in general military development education such as staff and command college but also general higher education such as undergraduate, master and doctoral program.

There needs to be an FES-based priority program in an effort to increase objective civilian control rather than subjective civilian control so that it can support professionalism within the TNI in carrying out its roles and functions. The priority program of Bureaucratic Reform in the fulfillment of defense equipment is focused on an effective Control and Supervision process. It is necessary to reposition the perspective that the TNI participates in obtaining defense budget allocations. This is important in placing the position of the TNI who will have the authority to evaluate each Alutsista programmed by the Ministry of Defense.

1. Ali, Y. Reformasi Birokrasi TNI dan Kebijakan Tunjangan Kerja. 2017.

2. Gay, L.R. Educational research: Competencies for analysis and application. Retrieved March 7, 2021, http://www.cedu.niu.edu/~sorensen/502/criteria_sets/lrgay.htm, March 6, 2021

3. Yin, R.K. The Case Study Research Design and Methods, London, SAGE Publication Inc.

4. Denzin, N.K. and Y.S. Lincoln. Handbook of Qualitative Research, SAGE Publications, 1994.

5. Anita Permata Dewi. Survei: Masyarakat Puas atas Kinerja TNI/Polri, Antara News.com, 2020.

6. Imam Budilaksono. Survei: Lembaga TNI Jadi dengan Tingkat Kepuasan Tertinggi, Antara News.com, 2021.

7. Ginting, J.K. Reformasi Birokrasi TNI: Implementasi dan Kendala Menuju Perubahan, 2016. https://lembagakeris.net/reformasi-birokrasi-tni-implementasi-dan-kendala-menuju-perubahan-4/ 

8. Kementerian, PAN and RB, Peraturan Menteri PAN dan RB Nomor 25 Tahun 2020 tentang Road Map RB tahun 2020-2024.

9. Tentara Nasional Indonesia Markas Besar. Road Map Reformasi TNI Tahun 2015-2019, 2014.