Professional Documents
Culture Documents
study is a qualitative research to answer two research question proposed with use
semi-stuctured and open interview from SKPD officers in the local government of
Yogyakarta Province. The results of interview were analyzed use thematic content
analysis. Our finding show that three form of institutional isomorphism (coersive,
mimetic and normative) were existed in the implementation of performance
Keywords: measurement system and accountability in public sector organizations. This result
Accountability; also show an interesting finding in government agency that performance information
Performance; who reported in LAKIP was only a formality. The information content in LAKIP is
Institutional not used as feedback to aid decision-making and plan for future performance
Isomorphism improvement.
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have been made by the government agencies are researches focused more on hypothesis testing
merely to meet the regulatory and policy using quantitative method approach and therefore
requirements obligations. They do not substan- it cannot describe and explain in more detail the
tively reflect the performance that occurs in the accountability condition and real performance in
field. This could mislead the public as an the field.
information user and finally results excessive Overall, this paper begins with a brief
public expectations towards government agencies explanation of the problem and the research
(Ahyaruddin and Akbar, 2016). context that is described in the introduction. After
Based on the concepts in institutional theory, that, it is followed by an explanation of the
Ashworth et al. (2009) states that the main reason theoretical framework used, research methods,
behind organizational change is simply to gain and interview results. The final section of this
legitimacy rather than substantively improving paper explains the conclusions, implications, and
performance. This is also reinforced by the suggestions for further research.
findings of several studies which state that the
organization will be faced with competition to gain
institutional legitimacy and political power, as well LITERATURE REVIEW AND
as community and customer support (Chenhall, FOCUS OF STUDY
2003; Akbar et al., 2012; Sofyani and Akbar, 2013
; Wijaya and Akbar, 2013; Akbar et al., 2015; Institutional Theory
Ahyaruddin and Akbar, 2016).
Performance measurements and improve- In the organization context, especially public
ments in the government organizations need to be sector organizations, institutional theory becomes
viewed more thoroughly and comprehensively. most references to explain the structure and
The amount of demands for transparent mana- changes of an organization. Moreover, those
gement of government organizations is not organizations have many interactions and are
necessarily accompanied by government efforts to influenced by the external environment. Several
improve performance and accountability in the researches that used institutional theory in the
field. It may be that performance reporting and context of public sector organizations especially in
accountability are only a matter of formality and Indonesia, for example: Akbar et al . (2012);
therefore the existence of a clear measuring Wijaya and Akbar (2013); Syachbrani and Akbar
instrument is very important for government (2013); Sofyani and Akbar (2013); Manafe and
organizations. Currently, one of the indicators of Akbar (2014); Primarisanti and Akbar (2015);
government performance accountability measure- Sofyani and Akbar (2015); Akbar et al . (2015);
ment is LAKIP (Permendagri number 34 of and Ahyaruddin and Akbar (2016).
2011). LAKIP was originally created as an annual Institutional theory is a sociology theory that
performance report that requires government seeks to explain organizational structure (Scott,
agencies to provide an overview of mission, vision, 1995). Institutional theory has many dimensions.
strategic objectives, and key performance indica- In an organizational context, the concept of
tors and provide mechanisms for linking key institution and institutionalization is defined in
performance indicators to goals and organization different ways. Scott (1987) defines institutiona-
budgets (Rhodes et al., 2012). However, LAKIP is lization as:
currently one of the assessment criteria of
successful local government performance by the “The social process by which individuals come
central government. LAKIP is intended to help to accept a shared definition of social reality —
the government achieve accountability, as it a conception whose validity is seen as
requires system and performance information that independent of the actor’s own views or
actions but is taken for granted as defining the
are more comparable, relevant, and useful in
"way things are and/or the way things are to be
governmental decision-making (Akbar et al., done”.
2015).
Research related to the accountability and The institutional theory explains a structure
performance of local government has been done where an organization adopts something confor-
for several times, for example Nurkhamid (2008); mity with a cultural ethic code that then leads to
Akbar et al. (2012); Sofyani and Akbar (2013); the legitimacy and support of external organiza-
Manafe and Akbar (2014). However, these tions (DiMaggio and Powell, 1983; Ahyaruddin
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Ahyaruddin and Akbar - Local Government’s Accountability and Performance
and Akbar, 2016). DiMaggio and Powell (1983) Roberts and Scapens (1985) as quoted by
suggest that time over time, in an established area, Sinclair (1995) state that accountability requires a
organizations tend to move toward homogeny- relationship in which a person is asked to explain
zation, although at first they show huge diversity. and take responsibility for their actions. Sinclair
The exact term for describing the homogenization (1995) states that how that accountability defined
process is isomorphism. depends on the ideology, motives and language of
DiMaggio and Powell (1983) distinguish two our time. Furthermore, Sinclair (1995) argues that
types of isomorphism, namely: competitive iso- accountability has a special meaning of discipline
morphism and institutional isomorphism. Compe- and can be defined from multiple perspectives.
titive isomorphism is related to efficiency For example, an auditor discusses accountability
(technical or economic explanation). When there as being related to financial or numerical issues,
is a cheaper, better, or more efficient way of doing whereas political scientist views accountability as a
things, competitive strength leads the organization political necessity and law students view it as a
toward that new approach. While institutional constitutional arrangement, while a philosopher
isomorphism is developing in accordance with sees accountability as part of ethics (Iyoha and
three mechanisms, namely coercive, mimetic, and Oyerinde 2010). According to Sinclair's (1995),
normative. Based on the concept of institutional the definition of accountability is divided into five
isomorphism, institutional influences are disper- forms of accountability: (1) political accountability,
sed through an organizational area called the (2) public accountability, (3) managerial accounta-
organization's field, which means that organiza- bility, (4) professional accountability, and (5) per-
tions as a whole are a recognized area of institu- sonal accountability.
tional life, namely key suppliers, resources and
product customers, regulatory dependencies, and Political Accountability
other organizations that provide similar services
and products (Erro and Sanchez, 2012). Structural The concept of political accountability comes
isomorphism is described as an important from the democratic traditions of the Athenians
consequence of the competitive and institutional and Westminster. In this concept, the officials of
processes. As a result, organizations do not public organizations do authority on behalf of
compete to gain resources or customers but to elected representatives, who in turn are directly
gain power and legitimacy, in addition to social responsible to the people (Day & Klein, 1987 in
welfare and economic outcomes (DiMaggio and Akbar, 2011). In a democratic government (e.g.
Powell, 1983; Erro and Sanchez, 2012; Akbar et Indonesia), the executive officially releases their
al., 2012; Ahyaruddin and Akbar, 2016). accountability to politicians in parliament as repre-
Meyer and Rowan (1977) as quoted by Akbar senttatives of the people (Sinclair, 1995).
et al. (2012) stated that isomorphism has three
consequences to the organization, (1) they link Public Accountability
legitimated elements externally, not in efficiency,
(2) they use external criteria or ceremonial to Public accountability is almost similar to
determine the value of the structural elements, political accountability, but is more informal and
and (3) reliance on external institutions keep this accountability is directly facing the public, the
reducing turbulence and maintaining stability. individual, or the community. Public accounta-
bility involves various mechanisms available to
Accountability Concept clarify organizational policies and activities such as
public hearings, provision of government reports
Accountability has been described as one of in the mass media, or even through real-time
the golden concepts and no one can oppose it communication tools that enable people to
(Iyoha and Oyerinde, 2010). Pollit (2003) as communicate to government officials easily and
quoted by Iyoha and Oyerinde (2010) said that directly (Sinclair, 1995; Akbar, 2011).
accountability "has become a good thing, which we
seem unable to fulfill". As well as Bovens (2007) Managerial Accountability
argues that accountability is increasingly being
used in discourse politics and policy documents Managerial accountability is seen to focus on
because it conveys an image of transparency and controlling inputs and outputs or outcomes. In the
trust. concept of managerial accountability, accounta-
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Jurnal Akuntansi dan Investasi, 19 (1), 1-11: Januari 2018
bility relationships are also found within the Performance Measurement and Isomorphism
organization itself. Managerial accountability in
this case is related to the responsibility of lower Several researches that adopt the theory of
officials to higher officials for the performance of isomorphism assume that organizations which
delegated tasks (Akbar, 2011). conducted competition is not only for resources
and customers but also for political power and
Professional Accountability institutional legitimacy (Akbar et al., 2012).
Institutional theory suggests that organizations
Professional accountability is related to the pursue legitimacy by adjusting or matching to
calling or sense of duty that a person has as a existing isomorphic pressures in their environ-
member of a professional or expert group, which ment (Ashworth et al., 2009) and therefore in this
then occupies a privileged and knowledgeable case the theory is relevant to explain the perfor-
position in society (Sinclair, 1995). In this case, mance measurement system as one of NPM
government employees and officials are required concept which is expected to give benefit in
to act and behave professionally to provide the increasing efficiency, accountability, and service
best service and they can provide benefits based quality of public sector organization (Ahyaruddin
on their skills and expertise (Akbar, 2011). and Akbar, 2016).
Performance measurement system in public
Personal Accountability sector organizations, especially the government
according to Pilcher and Dean (2009) might
The concept of personal accountability is probably depend on the power relations between
related to individual responsibility and the ulti- their constituents and the government itself. In
mate point of accountability. This accountability Indonesia, normally, there are also power
lies in the compliance of personal conscience as a pressures from the central government on local
logical consequence of the internalization of moral governments in the decentralized governance
and ethical values, such as respecting human systems. This happens usually through the
dignity, and acting by accepting responsibilities to enactment of laws and regulations. One example
influence the lives of others (Sinclair, 1995; is Inpres number 7 year 1999 which requires all
Akbar, 2011). government agencies including local governments
The term of accountability can be defined to report their performance to the central
differently ways and it changes over time. There is government. The existence of such coercive
no single definition of accountability that is gene- pressure is because most local governments in
rally accepted by researchers. Many researchers Indonesia have the dependence of financial
define accountability according to their respective resources and recognition through various systems
contexts and conditions. In the context of public of appreciation from the central government
sector organizations, Inaga (1991) as quoted by (Akbar et al., 2012; Ahyaruddin and Akbar,
Iyoha and Oyerinde (2010) said that accountability 2016).
requires the government to provide a reason This research tries to analyze and explore
related to the source and use of public resources. qualitatively what is happening is actually related
Therefore, accountability in this case is related to to the accountability and performance of local
supervision and control of government behavior, government. This research focuses on the
prevent the development of power concentration, following two Research Questions (RQs):
and improve the learning ability and effectiveness
of public administration (Iyoha and Oyerinde, RQ1: Is institutional isomorphism occurring in the
2010). In the constitutional system of governance, practice of applying performance measure-
there are two types of accountability: (1) internal ment and accountability systems to public
accountability, which is a type of direct accounta- sector organizations?
bility that applies within a particular organizational
system and involves direct reporting of sub- RQ2: Do government agencies use performance
ordinates to superiors, and (2) external accounta- measurement system information to help the
bility which is a type of indirect accountability that decision-making and plan for future perfor-
involves reporting to outside organizations (Matek, mance?
1977 in Akbar, 2011).
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Ahyaruddin and Akbar - Local Government’s Accountability and Performance
RQ : Is
1
institutional
isomorphism
occurring in Analysis:
the practice? Institutional
Gap: performance Isomorphism
measurement is Theory
limited to formality Thematic
RQ2: Do
Content Conclusion
government
Analysis
agencies use
PMS
information
Interview
in decision-
making?
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Jurnal Akuntansi dan Investasi, 19 (1), 1-11: Januari 2018
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Ahyaruddin and Akbar - Local Government’s Accountability and Performance
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Jurnal Akuntansi dan Investasi, 19 (1), 1-11: Januari 2018
zation. Professional groups will gradually share service have ISO 9001 2008.” (R125, Head
collective norms and expectations about what of Labor).
behavior is desired by regulation or rules
(DiMaggio and Powell, 1983). Thus, it is clear that public sector organi-
Normative pressure in the context of public zations, in this case government agencies, received
sector organizations usually comes from profess- huge benefit from professional groups such as
sional groups such as consultants or universities BPKP or universities in performance measure-
through conferences, seminars, workshops, trai- ment and organizational accountability practices.
ning, and mentoring. The role of this professional Therefore, this condition reinforces the evidence
group becomes very crucial to the organization in that normative isomorphism also occurs in the
order to reduce errors and to increase the chances process by which the organization tries to obtain
of successful performance reporting practice and the best practice in its organizational management.
accountability (Akbar et al., 2012; Han and Koo, The evidence of normative isomorphism in
2010). The professional institutions that usually reporting the performance of government agencies
play a role in assisting government agencies are the has also been revealed in a study conducted by
BPKP (Badan Pengawasan Keuangan dan Akbar et al. (2012).
Pembangunan, BPKP). In addition, there are Related to the second research question
universities which in this case become consultants (RQ2) which is: "Do government agencies use
in the process of program planning. The reason is performance measurement system information to
simple, government agencies in Indonesia help the decision-making and plan for future
currently do not have enough resources and performance?" The results obtained were very
therefore to get optimal results in carrying out its surprising. The respondents who were interviewed
activities, they hold the university because it is in this research revealed that the performance
considered to have knowledge and excellent measurement system information presented in
academic qualifications that hopefully can help the LAKIP is not used in the decision-making process
practice of organizational management in govern- nor used to plan future performance.
ment agencies.
“The serious thing has never happened (using
“Yes there is, with BPKP and directly from the information contained in the LAKIP),
MENPAN (Ministry of Administrative which happened was only a formality. So
Reform, Red). Assistance given is such as LAKIP must be delivered on time, according
assistances, and then workshop. They gave the to the format, accordingly, this way, delivered
theories, and then the participants would to DEPDAGRI (Ministry of Home Affairs,
directly practice. Usually, it is done once a Red), to BAPPENAS (National Development
year during the start of preparing the report; Planning Agency, Red), but in fact it has only
the coordinator will later request the members been delivered, the information is not used for
of the team, so those members who will be anything. If for example, the performance of
given training on LAKIP (R97, Head of Minimum Service Standards (SPM) should be
Subdivision Job Analysis and Apparatus).” that much, that has meaning, sometimes not.
For example, we have the data from year to
“If we are going to have some kind of final year, the percentage of unlicensed homes,
evaluation at SKPD level, we will ask for since the licensing service is there, it is not
feedback from each field and section for decreasing but is increasing. It means that the
material preparation and performance material, the data, the report, is not used by
evaluation for one year, such as workshop the government for taking the action, it should
(R96, Head of Planning and Reporting).” have clear action.” (R4, Head of Socio-
Economic and Economic Research Sub-
“The planning is called Sleman district division).
manpower planning, the consultant is from
Gadjah Mada University. Not only that, Based on the respondent’s answers above, it
Sleman became the pilot project of SMART
is revealed that the performance accountability
City, the city which its development is IT-
based, its mentor is from ITB. In Indonesia report submitted by government agencies is a
there are seven cities that become pilot form of formalities only to implement the
project. The one that handle it is Bappeda, we regulatory obligations. The information contained
become part of it because we do the IT, like does not become a specific goal that is designed to
service of AK 1 card (kartu kuning), our improve the performance and achievement of
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Ahyaruddin and Akbar - Local Government’s Accountability and Performance
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Jurnal Akuntansi dan Investasi, 19 (1), 1-11: Januari 2018
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Ahyaruddin and Akbar - Local Government’s Accountability and Performance
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