Public Administration at A Crossroad : Policy on Agricultural Extension within Digital Society

The study is aimed to reveal the public administration process in a challenging digital society. Facing the globalization, agriculture sector in Indonesia cope with the same challenge. In term of modernization, the role of agricultural extension is considered as one of the main factors in transferring technology and knowledge to the farmers. The case study was taken on Indonesian agriculture policy in Yogyakarta Province to reveal two diff erent aspects namely (a) the dynamic and relevance of agriculture policy to deal with nowadays digital society challenge and (b) how the extension agents respond the policy in terms of digitalized society and globalization. The qualitative data was taken from in-depth interview and FGD with extension agents in Yogyakarta province were used for the research main data. The research result has shown that the impact varied from diff erent extension groups/districts. The characters of extension agents and mostly Indonesian agriculture sectors are mostly the aging agriculture labors and lower technology application. This study results on how the agriculture policy was historically put the entity of extension agents as merely “object of development”. This phenomena fi nally has to cope with recently global agriculture problem.


Introduction
The dynamic of globalization has driven any nation to the changes of management in several sectors including agriculture and food policy.This study aimed to unwrap the dynamic of public administration process in a challenging digital society.Meanwhile the historical evidence explained that sone of the main achievement of Indonesia government is the productivity of food especially rice.Most of diff erent regime tried to lower price of basic food in Indonesia to be moderately inexpensive.In this purpose, the government will do anything for the sake of cheap food at all cost., including put all energy in the role of agriculture extension.This interest of government in fulfi lling the need was practiced since Order Lama era until the era.In New Order, rice was considered as a very political commodity so that the food institution was always the source of political party interest (Timmer, 2004).According to Simatupang (1995) as reconfi rmed by Lassa (2009), even the food policy in Indonesia was merely the practice of kleptocracy activity since Soeharto regime use Bulog as for the interest of individual and political purpose. 3 Facing the globalization, agriculture sector also has to cope with the same challenge to adjust with the global demand worldwide.In term of food global need, it is the public administration to provide the solution where the need of food is growing bigger and the worlds is considered gett ing smaller.Indonesia had faced problems in agriculture sector since the middle of 90'es when the productivity went declining.For the productivity reason, the role of agricultural extension is considered as one of the main factors in transferring technology and knowledge to the farmers to fulfill the productivity achievement 3 Kleptocracy refers to the term according to Winters (2000) which means negative behavior of a government that pay att ention only in their own interest by exploiting resources and ineffi cient political economy A decade later government has to deal with the big problem of food import including rice as staple food.No wonder that aft er that era all of government regime put the food policy and agriculture productivity as one of the development priorities.In term of increasing the productivity, extension agents (Penyuluh Pertanian) play a prominent role in achieving higher productivity.
T h e s t u d y w i l l f o c u s o n p u b l i c administration process in term of challenging globalization and today's digital society.Some studies in developing countries reported that the digital agricultural extension method has increased the result eff ectively into 7 to 10 times over a classic method.One of the potential for applying such advanced method should meet the requirement of possessing suffi cient agriculture sector and experiencing digital society Yogyakarta Province.
In the same time Indonesian agriculture sectors have problem in aging farmers and other agriculture actors, the emergency need for food supply should be fulfi lled.Refer to this emergency needs, it is considered that the need of bett er agricultural productivity and the need of digital society should be in the same way to get the comprehensive policy and bett er solution.
Based on those problems, it seems that government face the two contradictions of entities: (a) the aging farmers with lower technology transfer and (b) the very demanding global society that require technology as one of the main information media.The paper will answer on how the government has dealt with the problem and how they put the every element to provide the policy.

Public Policy in Digital Community
Public administration was at a crossroad in term of either it should follow the public needs or follow the nation situation is the difficult path to take.If government has to provide what public need, they have to deal with the very advanced and extremely changing society.In the other hand, the extension work and atmosphere are diff erent from the situation.The policy to make them meet in the same point will take long tough process to achieve.
The very same concern was studied by Farazmand (1999) about globalization and its implication for public administration.Both positive and negative consequences of globalization were discussed using the approach of political economy.One of negative consequences of globalization is Corruption and elite empowerment.Globalization pushes privatization as a part of structural-adjustment programs.Such corruption at the highest levels has already reached the point of national crisis.And later on, since Globalization as a process using a political economy view, this notion refers to globalization not as a phenomenon, but as a process-a continuing process of capital accumulation in modern capitalism that has been going on for centuries.
The biggest concern of public administration was that globalization will end the role of state.But since capitalism needs the state, and the state is not independent from capital; the elites of both work together in the globalization process because it serves both.For that reason, Farazmand argued that globalization does not end the state and public administration.There is a new global challenge that broadens public administration's scope of research, practice, and teaching.Public administration has just entered a new stage of human civilization, with a future that is both brightened and darkened by globalization and the hegemonic world order.We hope that prosperity for all will be the outcome (Farazmand, 1999: 509).

Political Economy Approach
Public policy should be able to be engaged with its public value.The literature review on extension policy did not emerge this aspect.
Research and study on extension agents were also reviewed as comparative study with other countries.The characters of Indonesian policy are shown in table 1.
Partly the research results in particular issues are simply.Firstly, The consequences of globalization in political economy approach.Secondly, positive consequences as continuity and persistent of the state.Negative consequences are thread to democracy and community and elite empowerment.Furthermore, according to the more recent study of Farazmand, converting possible counter hegemonic model that might alter or change the dominant world order (Farazmand, 1999).
Another study was organized by Farazmand (2004) and has shown that some of the most commonly known and often used concepts of governance or overnment during the last two decades or so are the following: good governance, intrepreneurial government, competitive government, and so on.A key haracteristic of all these concepts is a claim to rejecting the traditional forms of uthoritarian, bureaucratic government with unilateral decision making and implementation.These models or concepts of governance and government therefore pesent "new" ways of thinking, governing, and administration, with new philosophies nd new approaches that broaden citizen involvements and their feedbacks, and bring into the playing fi eld the civil society and nongovernmental organizations.
The challenges faced by globalization are meeting basic human needs, limiting population growth, restricting consumption of nonrenewable resources, building a ense of world community, and negotiating mutually beneficial agreements mong nations.These global sustainable goals can be achieved only within an extended, intergenerational timeframe with a collaborative, enlightened, and owerful political leadership at the helm (Farazmand and Pinkowski, 2006).
In other hand Duane (2004 ) had the same research focus on the global capital and its implementation.Examination the individual roles of separationof powers were observed such as federalism, and bicameralism in mediating the welfare impacts of internationalization confrms theoretical expectations.Thise estimation of the interactions of separation of powers with liberalization and the three forms of capital ows produces two insignifcant coeff cients and two substantially tiny positive coeff cients.Finally estimation of the (eight) interactions between federalism and bicameralism on the one hand, and the four capital mobility variables on the other, produces eight negative and signifcant coeffcients.Thus, the dimension of decentralization, as conceptualized and measured here, is the most important aspect of the structure of policymaking authority for conditioning the impact of internationalization.

Extension Policy and Novelty
Shortly of the literature review shown that both implications are faced in this sector.This also provides the further question on how government has dealt with today's challenge to provide the solution.This was simply the novelty of the study.As comparison Rikin (2009) has reported that Agricultural extension offi cer in India tends to restrict contact only to the richer farmer.
Another research in Bangladesh was taken by CABI and found out the positive respond from the farmers group that enthusiasm of farmers was the main social capital to succeed the knowledge transfer.Most of farmers were challenged to be "on TV".Qualitative of extension method and multiple learning tools were used during the whole one year pilot project.The very effective and innovative program for Bangladesh was caused by the nation character.Bangladesh has experience and learned from Grameen Bank Microfi nance and agricultural empowerment program (CABI, 2007).
The success in some less developed countries is confi rmed with the recent study on extension agents.Global agriculture sector believe that the most important things in improving rural development are Agriculture Knowledge, Science and Technology.Also it is supported by an Implication of Policy Simulations (IAASTD, 2009: 354).
To contribute to the extension officer activity, Subejo ( 2004) has learned from the previous research in term of local autonomy.Decentralization era seems to the promising for Indonesian extension policy since the steps would be shorter and would be able to accommodate local issues.Furthermore, empirical evidence has shown that extension problem existed in term of agricultural extension performance.Several issues on agricultural extension have been deeply studied as Agricultural Extension and Emerging Situation (Djuara P. Lubis).Some topic have been chosen as dissertation focus such as agriculture extension based on formal education (Sugeng Widodo, 2010); cyber extension as communication media (Retno Mulyandari, 2011) and the use of information for horticulture farmers (Dwi Hapasari, 2012)

Research Methods
The case study was taken on Indonesian agriculture policy in Yogyakarta Province to reveal two diff erent aspects namely (a) agriculture policy relevancy to deal with nowadays digital challenge and (b) how the extension agents respond the policy in terms of globalization and international trade.The qualitative data was taken from in-depth interview and FGD with extension agents in Yogyakarta province were used for the research main data.The pre-research result has shown that the impact varied from diff erent extension groups/districts.
Those prominent issues were then divided again into 5 research indicators to lead in obtaining data research, namely (1)

Discussion
Public Administration at A Crossroad Indonesian public policy was at a crossroad.Either it should follow the public needs or follow the nation situation is the difficult path to take.If government has to provide what public need, they have to deal with the very advanced and extremely changing society.In the other hand, the extension work and atmosphere are diff erent from the situation.The policy to make them meet in the same point will take long tough process to achieve.
As the biggest concern of public administration that globalization will end the role of state, it was capitalism that needs the state, and the state is not independent from capital; the elites of both work together in the globalization process because it serves both (Farazmand, 1999: 509).

Historical Policy on Extension Agents
This will explain how the process during older time is the main process when policies were formulated.During New order regime, extension agents are the extended hands of government.Related with political dynamics in Indonesia agriculture is important engine for economic development and agricultural extension was also developed (Lubis, 2013).Meanwhile, government itself is the representative of the regime.It is proven that extension agents are the part of political choice in increasing food.Other evidence showed that the existence of extensions agent and the institutions were merely the existence of agricultural inputs.Later on, in decentralization era in many districts, agricultural development (and agency) was abandoned.
Agricultural inputs were the main factor in increasing productivity.During the Green Revolution of 1960-1990, there were numbers of MNCs that provide the inputs for achieving self suffi ciency food called Swasembada Pangan.The characters of extensions agents and mostly Indonesian agriculture sectors are mostly the aging labors and lower technology.But soon aft er the end of New Order, innovation should be introduced so that the main extension task will be well delivered.
During last decade some necessarily interesting programs were built and developed throughout Indonesia.But again, the disadvantage of condition still found as follow: (1) Inconsistency of extension institutions in both national and regional levels.This did not meet the requirement based on Law Nbr. in Garut Disrict, West Java showed the evidence that education level infl uence the effi ciency on knowledge transfer from agricultural extension to farmers.When extension agents' role is mostly for increasing productivity only, This confi rm the previous study that extensions agent is just one of productivity input instead of the effi cient tool to educate farmers (Prabowo, 2003in Lubis, 2009)).Since the productivity is the main goal of government, this also concludes that the formulation of policy were state-oriented.In term of agricultural extension, some big policies were made during the period.The process has shown that the formulation meet the theory of statecentered policy making process as followed: (a) policy elites with very limited numbers of policy makers (b) monopoly in step of policy making in providing public needs, and (c) lack of society participatory (Allison, 1999).
Robert Evenson describes agricultural extension eff orts as following an awareness-  (Gandhi, et al, 2009).Furthermore, the fi rst eff ort as awareness insist that the agriculture extensuion to use and technology information to share the information to gain the awareness among the farmers group.Despite the problem of aging labor in agriculture sector, the extensions should be able to transfer the advanced technology.These applications of advanced technology are mostly made and provided by corporation, government and academic institution.During the last 5 years from 2012 to 2017 only, several applications were introduced to the agricultural sector to improve the farmers' knowledge and to increase productivity.
Among those advanced tools and applications there will be only few of them can be used and absorbed by the farmers as end users of this very technology.In fact, only 11% of the farmers in Gunung Kidul district can access and familiar with IT and internet facilities.This simply shows how the extension agents respond the policy in terms of digitalized society and globalization.

Research Data and Discussion
Today's policy by government actually has no choice but to fulfi ll the public needs and demanding society.The digital society makes it possible to control government policy process and should work along the very dynamic and rapid moving of public.In term of extension world, the main role of extension agents is in transferring knowledge and play role as mediators between government and farmers.Thus, the system made by governments should meet the need of eff ectively transferring the information.
The main programs and government policy to face the globalization through technology information can be seen in some examples.Some applications were made by government and academic circle.In extension activity some applications have been applied such as SIMLUH, and SIMONEV.In other hand academic institution have developed system to make the process rapidly such as DUTY PLANT and PETANI application.Furthermore, the The other interview and FGD were taken with farmer groups in Sleman District. 5 The discussions were taken to reveal the the dynamic and relevance of agriculture policy to deal with nowadays society.The farmers have theor role in making and changing the implementation and regulation.The government compromised some of technical diffi culties to ease the farmers problem when the farmers group think it is not a must to get their commodities certifi ed.
Most of the farmers experience was from the Food Safety Certifi cation.During the very long process, the groups were assisted by extension offi cer to make sure they are guided well enough.Along the process, the group admitt ed that the very big budget granted by local government was actually did not make The main issue is the benefit of possessing the certifi cation.Since the process is paid by government, the willing does not really come from the farmers.The process seemed to be the formal step only to get the certifi cation from government.Even in government compromised some of technical diffi culties to ease the farmers' problem, the farmers group think it is not a must to get their commodities certifi ed.Furthermore the group can not fi nd the diff erence between certifi ed.Most of the time the exporter does not really ask for the certifi cation pape" Meanwhile, the group also thinks that government has also been very cooperative in term of regulation.In this case it also shows how the extension agents respond the policy in terms of digitalized society and globalization.
During the early certifi cation process in the beginning of 2007, the farmer group thought that the requirement is too strict for them to deal with.Along the process they have to adjust with a very complicated recording, taking notes about every single detail of the process.In the later meeting the farmer was able to give a more simple way to make the process easier.Even so, the only aspiration was mostly from the chairman. 6"Mostly Farmer's Group in Yogyakarta Province have the sub ordinary group for women farmers called KWT (Farmer Women Group).Even the decision was mostly made by the women in organization.It was still diffi cult to fi nd out the real aspiration developed from the very root.The organization was dominated by few prominent persons who usually get involved with intern organization of village administration.Some KWT work effi ciently and innovative such as the initiative program of "bank sampah" (trash bank) They collecting trash separately from village and salacca plantation."7

Conclusion
Result of this research were mainly the diff erence of focus and characters on policy including the diff erent patt erns policy through different regulation.Meanwhile, the main reason of extension work was merely that interest of government.
The policy of all fi ve diff erent periods were possessing the same indicators namely (a) extension agents as objects of development (b) in term of farmers, extension works more to transfer the government goal instead of what farmers need, and (c) incremental policy of agriculture extension.Explanation of research fi nally answered the hypotheses as followed: (1) government is the main actors and they are mostly the policy makers from food institution, (2) the actors came from different political party and bring about the diff erent agenda to be supported with agriculture regulation, and (3) food institution determined the production based policy.
Two different aspects are namely (a) agriculture policy relevancy to deal with nowadays digital challenge and (b) how the extension agents respond the policy in terms of globalization and international trade.It concludes that the formulation of policy were state-oriented.In term of agricultural extension, some big policies were made during the period.The process has shown that the formulation meet the theory of state-centered policy making process as followed: (a) policy elites with very limited numbers of policy makers -no farmers organization get involved, even in Musrenbang (community discussion meeting), (b) monopoly in step of policy making in providing public needs-private extension is invited by the Law of Agriculture Extension, and (c) lack of society participatory -extension was part of the political agenda since New Order-.
The characters of extensions agents and 1.
mostly Indonesian agriculture sectors are mostly the aging labors and lower technology.This study will answer on how the public policy was historically put the entity of extension agents.The result will answer whether extension agents role are considered as the subject/object of development and how this phenomena will cope with recently global agriculture problem.
Evidence in Yogyakarta Province has 2.
provided a various situation term of ICT used by extension agent in transferring knowledge to farmers.The policy implementation should consider those different condition based on spatial in district level and local culture.
The law was that instead of finding 3.