The Implementation of the Quality Control System Policy of Land Program in East Nusa Tenggara Province’s Office Performance of National Land Agency

This study examined the Implementation of the Quality Control System Policy of Land Program in East Nusa Tenggara Province’s Office Performance of National Land Agency. This study aimed to find out, describe, and analyze the Implementation of the Quality Control System Policy of Land Program in East Nusa Tenggara Province’s Office Performance of National Land Agency. This research was a case study with an inductive approach. The focus of this research was implementing the Quality Control System Policy of Land Program in East Nusa Tenggara Province’s Office Performance of National Land Agency. The research sub-focus was on the factors of communication, resources, disposition, and bureaucratic structure. The informants were determined by purposive technique. The type of data was primary and secondary data. Data collection techniques used was interviews, documentation, and observation. Analysis of the data used in this study was proposed by Miles and Huberman (2007). Validity checking applied for the findings/conclusions was the triangulation technique.The results showed that the communication at the East Nusa Tenggara Province's Office Performance of National Land Agency related to the Land Programs' Quality Control System went well. However, the self-awareness to fill the results of completion at each stage of activities into the Land Program Quality Control System or Sistem Kendali Mutu Program Pertanahan (SKMPP) reporting application should be strengthened to avoid the procrastination in data charging due to other works. Besides, the resources in the form of apparatus and facilities to implement the SKMPP were adequate, but the problem was that the apparatus prioritized the completion and reporting of work/activities in their respective fields and forgetting to enter data on the SKMPP. Furthermore, the disposition carried out by officials in handling the arrangement of street vendors was excellent, but incentives must be taken into account for the officials who carried out the policy. Finally, the bureaucratic structure related to the operational standards and the spread of responsibilities in implementing the SKMPP had been perfect, but the implementing apparatus had not seen any significant changes. Keywords: Implementation, Policy, System, Program, Performance, Land DOI: 10.7176/PPAR/10-9-05 Publication date: September 30 th 2020


BACKGROUND
Up to 2015, East Nusa Tenggara Province's Office of National Land Agency still reported the performance reports of each work unit manually through the Government Institution Performance Accountability Report. Later on, in 2016, it used the Government Agency Performance Accountability reporting done manually without being supported by the SKMPP data, an electronic performance reporting by the Ministry of Agriculture and Spatial Planning/National Land Agency.
The description of achievements towards the performance of work units within East Nusa Tenggara Province's Office of National Land Agency can be seen from the Institutional Performance Accountability Reports or Laporan Akuntabilitas Kinerja Instansi Pemerintah (LAKIP) as follows: The table above explains that the realization of the performance of East Nusa Tenggara National Land Agency in 2010 until 2017 reached the target, where the realization of existing physical activity exceeds the target. East Nusa Tenggara Province's Office of National Land Agency requires changes in organizational governance to improve land services, especially the quality control of land programs implemented to boost the apparatus' performance, so there is a need for a quality control system from the organizational performance.
From 2007 to 2009, the National Land Management Information and Management System was developed, but it could not answer all the information and control of the programs by the National Land Agency. Therefore, the quality control system was developed in 2019 as a development of the Land Program Quality Control System or Sistem Kendali Mutu Program Pertanahan (SIMTANAS).
SKMPP is part of the internal control system within the Ministry of Agrarian Affairs, and Spatial Planning/National Land Agency of the Republic of Indonesia in ensuring programs in the land sector to run as it plans. SKMPP is set out in the form of an application system that will become an integral part of the planning and management system to regulate and direct every activity. SKMPP is a Supporting System for the implementation and achievement of bureaucratic reforms that have been running at the Ministry of Agrarian Affairs and Spatial Planning/National Land Agency, especially East Nusa Tenggara Province's Office of National Land Agency. SKMPP is not only a reporting system that shows performance but is expected to improve public services in the land sector.
East Nusa Tenggara Province's Office of National Land Agency with twenty-two Regency/City Land Offices needs a system that can collect data regionally to be accessed nationally and provide accountable and representative data.
As a reporting system that shows performance, SKMPP has not been carried out to the full and orderly in East Nusa Tenggara Province's Office of National Land Agency. Based on the information from the Head of Administration Section, the problem in implementing the SKMPP policy is the communication, resources, and attitudes of the implementers. According to the background, the writer will conduct research on "The Implementation of the Quality Control System Policy of Land Program in East Nusa Tenggara Province's Office Performance of National Land Agency." This study aims to determine, describe, and analyze the Implementation of the Quality Control System Policy of Land Program in East Nusa Tenggara Province's Office Performance of National Land Agency. Besides, this research also has theoretical benefits and practical benefits. The intended theoretical benefit is to contribute thoughts to the field of public administration and be used as data or references, further examining the same problem. It can also be input into the East Nusa Tenggara Province's Office of National Land Agency to improve the community's services through the SKKMP. Also, the practical problem referred to is that it can provide benefits to the community as information material to better know about the role of the National Land Agency in improving Public Services through the SKMPP implemented by the East Nusa Tenggara Province's Office of National Land Agency. In addition, the SKKMP can help East Nusa Tenggara Province's Office of National Land Agency to improve the efficiency and effectiveness of land services.

LITERATURE REVIEW Public Policy
In its implementation, this public policy must be derived in a series of implementation instructions and technical guidelines that apply internally in the bureaucracy. Meanwhile, from the community side, what essential is the standard of public service, describing what services it is entitled to, who is accustomed to getting them, what are the requirements, as well as what form of service. This will bind the government (state) as the service provider and the community as the service recipient.
According to James E. Annderson (in Islamy 2001: 17), a policy is "a series of actions that have a specific purpose followed and implemented by a principal or group of actors to solve a particular problem." The term public policy is more often used concerning government actions or activities. It is as stated by Carl J. Friedrick (in Solichin, 2004: 3) that policy is "An action that leads to the goals proposed by a person, group, or government in a particular environment regarding certain obstacles while looking for opportunities to achieve goals or desired goals." The definition of the policies mentioned above is an action proposed by the government. It is different from the opinion of George C. Edwads III and Ira Sharkansky (in Islamy, 2001) that "State Policy is an action taken or not by the government" so that a policy is not only a proposed but also not implemented action.
Some opinions above show that public policy taken by the government is to achieve goals and objectives for the benefit of the whole community to accommodate the values in society, whether done or not. This understanding is in line with the opinion of Islamy (2001: 20) that "State policy is a set of actions determined and implemented or not carried out by governments that have goals or are oriented towards the interests of the whole community." The State Policy can be in the form of laws and regulations used for the purposes, objectives of the programs, and actions taken by the government. From the understanding of public policy above, it is concluded that the policy is a set of government to respond problems faced by the community and have specific goals, oriented to the interests of the public (community), and aims to overcome problems, meet the desires and demands of all members of the community. The policy also includes all actions taken or not by the government in which there is an element of coercion to the implementation or policy users to be obeyed. This is in line with Easton's opinion (in Islamy, 2001: 19) that the policy contains legitimate coercive values the government can do as a policymaker.

Policy Implementation
Policy implementation seen in a broad sense is a legal administration tool in which various actors, organizations, procedures, and techniques work together to carry out policies to achieve the desired impact or goals. (Lester and Steewart, 2000: 104). On the other hand, implementation is a complex phenomenon that may be understood as a process, an output, or an outcome. Van Meter and Van Horn (in Winarno, 2002: 102) limit the implementation of policies as actions taken by the government and private individuals directed to achieve the goals set in policy decisions. These actions included efforts to change decisions into operational actions within a certain period and to continue efforts to achieve major and minor changes determined by policy decisions. What needs to be emphasized here is that the policy implementation phase will not begin before objectives and recommendations are established or identified by policy decisions. Thus, the implementation phase occurs only after laws are enacted, and funds are provided to finance the policy's implementation.
The implementation model's application is the stage of implementation by policymakers and the people they influence according to the objectives; if the implementation is not appropriate, it will not reduce the problem and even fail. Furthermore, Van Meter and Van Horn (in Solichin, 2004: 81), in their policy implementation model, also assume that communication factors will be influential, namely, communication between related organizations and their implementation activities, including relationships in the political system environment with target groups. Van Meter expects that all executors must understand what is idealized by policies whose implementation is their responsibility, superior organizations should be able to condition subordinate or executors, because in the implementation of a program needs support and coordination with other agencies; thus, it requires coordination and cooperation for success a program.
According to Van Meter and Van Horn (in Winarno, 2002: 122), successful implementation is a function of the ability of the implementing organization to do what is expected to do. Van Meter and Van Horn also suggest that capacity is an influential factor for policy implementation. On the other hands, Van Meter and Van Horn (in Winarno, 2002: 12) suggest that the ability to implement policies may be hampered by factors such as poorly trained staff and too much work, inadequate information and financial resources, or impossible time constraints. In more detail, Van Meter and Van Horn (in Winarno, 2002) formulate an abstraction (framework) that shows the relationship between various factors that influence the results of policy.
Policy implementation intentionally carried out to achieve high performance occurs in the interrelationship of various factors and is developed in a policy implementation model that consists of six variables believed to form the relationship between policy and policy performance: This model likens the implementation of the policy runs linearly from communication, available resources, disposition, and application of policy implementation. According to Edward III, communications "have an important role as a reference for implementing the policy, knowing what will be done. It means that communication is also expressed by orders from superiors on the implementation of policies, so communication must be stated clearly, quickly, and consistently." (Edward III, 1980:10) Based on this definition, communication is crucial in achieving the objectives of implementing public policy. Implementation will occur if the decision-makers already know what will be done.

Concept of Performance
According to Setiawan (1988: 9), "Performance relates to the assessment of the management quality and the quality of the tasks implementation or company's operations. Another aspect is the relationship between the organization and its political environment." When examined from the main objectives and mission, the objective of public organizations is to meet the public's needs and interests (Dwiyanto, 1995), so the performance of the public organization can only be said to be successful if it is able to realize its goals and mission.
Levine et al. (in Dwiyanto, 1995) put forward three concepts to be a reference for measuring the performance of public organizations; (1) Responsiveness refers to the harmony between programs and service activities provided by public organizations with the needs and desires of the community. (2) Responsibility explains the extent to which the implementation of public organization's activities is carried out following the correct principles of administration under the organizational policies, both implicitly and explicitly. (3) Accountability refers to how much the policy and activities of public organizations are subject to political officials elected by the people. In this context, the performance of public organizations is considered good if all or at least most of their activities are based on efforts to meet the hopes and desires of the people's representatives.

METHODOLOGY
The approach used in this study was an inductive (qualitative) research because it starts from observation, patterns, hypotheses, theory (Liliweri; 2018: 27). This type of research is a case study of the implementation of the SKKMP policy at East Nusa Tenggara Province's Office of National Land Agency. This research was carried out at at East Nusa Tenggara Province's Office of National Land Agency. The focus of this research was implementing the SKKMP in East Nusa Tenggara Province's Office performance of National Land Agency. The sub-focus of the research was on the factors of communication, resources, disposition, and bureaucratic structure that, according to the author, was under the conditions or phenomena that appear at East Nusa Tenggara Province's Office of National Land Agency. The informants were determined by using a purposive technique with certain considerations. They are Echelon officials II, Echeleon officials III, Echelon officials IV, General Functional Officers, and Application Operators. In this research, the type of data collected was primary and secondary data. Data collection techniques used was interviews, documentation, and observation. Analysis of the data used in this study was proposed by Miles and Huberman (2007). Validity checking applied for the findings/conclusions was the triangulation technique.

Bureacratic Structure
Disposition Resources Communication Implementation East Nusa Tenggara are socialization, fieldwork completion, data processing, and data entry. According to the explanation above, it can be concluded that the existing Operating Standards are very good in implementing the SKMPP in East Nusa Tenggara. The distribution of responsibilities is an activity that significantly influences the implementation of the SKMPP. The distribution of responsibilities within East Nusa Tenggara Province's Office of National Land Agency is carried out structurally, meaning that the highest level of authority has the rule to directly regulate his subordinates. Policy executors in carrying out their duties help one another and work together and compete healthily. This can lead to a healthy work environment resulting in policy executors can continue to look for innovations to improve the implementation of the SKMPP in East Nusa Tenggara Province's Office of National Land Agency.
The dissemination of responsibility is an activity influencing the policy of SKMPP. That dissemination of responsibility in East Nusa Tenggara Province's Office of National Land Agency is already excellent, but there are some problems from the executors, such as often delaying the entry of data on the SKMPP. There have not been any significant changes today because there are still several executorss carrying out their activities in their fields without deliberately forgetting data entry in the SKMPP reporting application. Moreover, there is no firmness and suitable solution to the implementers, so that the same problem is still happening today.
Organizational structure is a framework of work patterns and task groups or functions of organizational parts that will be used to achieve organizational goals. The forms of organizational structure, among others; Organizational Structure based on function, Organizational Structure based on product/market, and organizational structure matrix.
With the organizational structure, organizational goals will be more easily achieved because there is a clear division of functions and authority. The organizational structure also illustrates whether there are concurrent positions in an operation that produces the same results. According to the provisions of the Internal Control System and Good Corporate Governance, a good organizational structure must have a separation of functions between operation and function, authorization and function, storage and function, and record and function. The organizational structure is a strategic tool for organizational management because it separates precise functions and powers, and concurrent positions regulated under statutory regulations for operations that produce the same results. After separating precise functions and authority, the company can determine the people who are following the place and expertise to make it easier to plan the position levels and requirements and the search for desired officials. The organizational structure is very influential in the success of an organization, especially in overcoming its human resource problems. Each organization will make a different organizational structure through organizational goals, company culture, work activities, and business patterns.