Investigating Organizational and Human Resource Capacity of Village Government: A Case Study in Kutai Kartanegara Regency

Indonesian Village Law No. 6/2014 mandates the village to be a selfgoverning community and local self-government. Based on the law, the village government conducts governmental administrative business, local development, fosters village society, and empowers local people. Organizational and human resource capacity become prerequesites to conduct the tasks. This paper aims to investigate any problems and possible solutions to strengthen village capacity in order to achieve the village’s law vision. This research was conducted in Kutai Kartanegara (Kukar) Regency, Indonesia. It used a qualitative approach and the data were collected in several ways, i.e. focus group discussions, interviews, secondary data, and observations. The study showed that village governments have no authority to design their own organizations because the designs are prepared by central and local governments in detail. Moreover, the lack of competence among village government staff and financial dependency also makes village governments rely on Policy & Governance Review ISSN 2580-4820 Vol. 4, Issue 2, pp. 99-115 DOI: https://doi.org/10.30589/pgr. v4i2.267 Andi Wahyudi Center for Training and Development and Decentralization and Regional Autonomy Studies, National Institute of Public Administration, Samarinda, Indonesia Email: awahyudi2@yahoo.co.id Dewi Sartika Center for Training and Development and Decentralization and Regional Autonomy Studies, National Institute of Public Administration, Samarinda, Indonesia Email: naurah10@yahoo.com Fani Heru Wismono Center for Training and Development and Decentralization and Regional Autonomy Studies, National Institute of Public Administration, Samarinda, Indonesia Email: efhawismono01@gmail.com Lany Erinda Ramdhani Center for Training and Development and Decentralization and Regional Autonomy Studies, National Institute of Public Administration, Samarinda, Indonesia Email: aikosweety@yahoo.co.id. Center for Training and Development and Decentralization and Regional Autonomy Studies, National Institute of Public Administration, Samarinda, Indonesia Mayahayati Kusumaningrum Center for Training and Development and Decentralization and Regional Autonomy Studies, National Institute of Public Administration, Samarinda, Indonesia Email: may.kaltim@gmail.com Siti Zakiyah Center for Training and Development and Decentralization and Regional Autonomy Studies, National Institute of Public Administration, Samarinda, Indonesia Andi Wahyudi is researcher at Puslatbang KDOD LAN in Samarinda. Graduated Bachelor (S1) from the Department of Public Administration, Faculty of Social and Political Sciences, UGM Yogyakarta and Masters (S2) from the School of Social and Policy Studies, Flinders University, South Australia. Involved in various researches at Puslatbang KDOD, collaboration with various regions, as well as being active in managing scientific journals. Several scientific papers (KTI) have been published in several journals, including the Borneo Administrator Journal (Puslatbang KDOD) and the Bina Praja Journal (the Ministry of Home Affairs). Lia Rosliana


Introduction
The village government is one of the closest government units to people because it is the lowest government tier in Indonesia. In in rural or village area by 15.81 million (60.9 %). Meanwhile, 10.14 million (39.1 %) live in urban areas (BPS, n.d.). However, the poverty line indicator applied for the village is lower than in the urban area. In the first semester (March) of 2018, the village poverty line is IDR 383,908 per capita per month. Meanwhile, the urban poverty line is IDR 415,614 per capita per month (BPS, n.d.). Therefore, if a similar poverty line is applied for village and urban, the village poverty would be higher than the data presented above. In addition, World Bank sets a poverty line of USD 1.9 or IDR 28,500 a day (if USD 1 = IDR 15,000) or it is approximately IDR 855,000 a month. So, if the World Bank standard is applied, the number of poor people will be higher.
In 2014, the central government issued a Village Law No. 6 of 2014.
The Village Law 2014 has a new spirit to make villages in Indonesia being entities that combine self-governing community and local selfgovernment concepts. A village government, based on the Village Law  Table 1 shows the comparison of village authority fields or tasks between the   Sources: UU No. 32/2004& UU No. 6/2014 The set of given authorities and budget sources allow village governments to develop their local potencies in order to make villages well-developed. On the other hand, if the village governments cannot work out how to manage their authorities and potencies in accountable ways so they will potentially be trapped in corruptive activities.

Commission of Corruption Eradication (Komisi Pemberantasan Korupsi
/ KPK) found out 14 problems in village budget management in some aspects. They include regulation and organization, business process, supervision, and human resource aspects (Putra, 2015). Furthermore, some budget misappropriation cases have occurred in some regencies.
It shows that the village government has many problems and they need serious attention from the local government to foster them.
The various opportunities and problems in villages raise an urgency to strengthen village capacity in conducting its tasks. The common solution to solve this problem is usually proposing training programs for village government staff. However, village governments have a low bargaining position to make decisions and the final decision belongs to local government or regency (Asrori, 2014). Village human resources consist of at least three main actors, such as the head of village and staff, BPD, and society. Institutional and human resource  , led by local actors which are also called bottom-up model) and government-led model (GLM, driven by policymakers which are also called top-down model). In this paper, we propose a theoretical framework, which goes beyond these two models. Then, we take three typical villages that experienced different models of HVR in recent years as case studies, exploring the intersection of the process of decision-making, the structure of governance and the performance of projects. Both theoretical analysis and case studies show that a hybrid governance structure (HGS), with a limited range of reconstruction in the distribution and functions of rural land, is most in line with China's background for HVR and rural vitalization. The participatory process is very important for these three modes, with villages and communities as the important carriers for participation and interaction. Not only can villagers truly participate in the planning and decision-making process in the HGS's approach, which enables villagers to have more autonomy, but also enhanced the project's performance by integrating villagers' interests and willingness with government proposals, matching the subjective and the objective conditions. This research indicates that we can integrate diverse driving forces of village revitalization, pay more attention to the governance's structure and operating models of reconstructing. More importantly, this study responds to Elinor Ostrom's common-pool resource theory and suggests a way forward in the public governance of rural vitalization in contemporary China.

Community
Participation And Government Role In Using Village Funds in Dlingo Village (Arifa, 2019) Discussing village development This study discusses community participation and the role of the government in the utilization of village funds in Dlingo Village. The aim of this study was to find out about the level of community participation in the use of village funds in Dlingo Village and to find out about the role of the government in determining the use of village funds in Dlingo Village. This study uses Arnstein's theory of participation ladder, which is used to determine the level of community participation at each stage of development, namely planning, implementation, and monitoring and evaluation. The research method used is qualitative descriptive research method by collecting qualitative data in the form of interviews, document studies, and observations. The results of this study indicate that: (1) Community Participation in Development Program Planning is at the level of community participation at the partnership level. Community participation in the process is quite high, reaching 90% attendance at the village development planning meeting forum.
(2) Community Participation in the Implementation of the Development Program is at the stage of placation, this is evidenced by the implementation of the program involving almost the entire community. The role of the village government as the manager of village funds in terms of implementing the program is as a coordinator so that each program can be implemented properly.
(3) Community participation in the Development Program Monitoring and Evaluation is in the consultation stage where the community becomes a consultant to the village government. The role of the government is in the monitoring and evaluation process in terms of being a driver of supervision and evaluation among the community
In terms of organizational aspect, the organization structure is designed based on needs to achieve the organization goal. Organizational  Table   1). The authority fields are then cascaded into the organization structure. Although the existence of villages in Indonesia has a long story even before this country was founded.
Almost everything is regulated and organized in the national and local laws, and therefore villagers and their leaders just take it for granted. Charter of Local Self-government) contain the organizational principle of independent local government authority (Babinova, 2011). In collecting data, we used several means, such as FGD, secondary data, interview, and observation. First, Focus Group Discussion (FGD) was one of the interview forms to collect data (Creswell, 2014, p. 191). Some other terms are often used to refer to such a group interview, such as a focus group interview and group interview (Punch, 2014, p. 146). In this interview method, researchers took a role as facilitator or moderator, did monitoring, and recorded activities (Punch, 2014, pp. 146-147    aspects. Not even all staffs have the ability to make a task or project report, and other complex jobs that require a regulation mastery. Task report or SPJ (Surat Pertanggungjawaban) is a task accountability report that must be prepared by every staff who has completed a particular task.
While arranging annual budget planning, they usually rely upon one certain staff to make the planning document (FGD, 2016). This competency gap among staff shows that human resource capacity is one of the serious problems in the village governments that need treatment. KPK (Putra, 2015) also finds out that human resources are one of the potential problems in budget management in the village government.
Unfortunately, a critical problem also comes from volunteers who should assist the village government and citizens. Based on the experience of PNPM Mandiri project implementation, volunteers committed to corrupt and cheated the village governments because of poor capacity among their staffs (Putra, 2015). Capacity strengthening or capacity building, therefore, needs to emphasize the village government staff and BPD members. This effort process includes developing skills, strengthening abilities, and improving business processes. This effort is expected to stimulate them to adapt to changing environments. It will enhance organizational effectiveness, but it needs a long process takes time (Kapucu, 2012). as local democracy (Islam, 2015), relationship between village with other government agency (Promphakping, Thongyou, & Viyouth, 2017), external intervention toward village (Navarra & Vallino, 2015), village capacity building (Kapucu, 2012) (Asrori, 2014), and community role in village (Bebbington, Dharmawan, Fahmi, & Guggenheim, 2004). Table 4 shows the various dimensions of village matters from some sources. The table also shows the difference position between this paper and them.

Dimensions Content Local Democracy
Local self-government and local democracy: Local self-government has an important role in promoting and developing democracy at a local level (Islam, 2015). Relationship with Other Government Institution V i l l a g e -s t a t e re l a t i o n s h i p : Bargaining power to negotiate with the state (Promphakping, Thongyou, & Viyouth, 2017). External Intervention External donors bring interventions to village organizations, and the effects might be in negative or positive forms (Navarra & Vallino, 2015) Capacity Building

Capacity Building for Nonprofit
Organizations: a capacity building is needed to enhance the organizational effectiveness of small nonprofit organizations (Kapucu, 2012). Capacity building to strengthen village government staffs through various pieces of training in order to support their tasks (Asrori, 2014) Community role Villagers' or community cultures affect governance arrangements in villages. (Bebbington, Dharmawan, Fahmi, & Guggenheim, 2004) Sources: Islam (2015), Promphakping, Thongyou, & Viyouth (2017), Navarra & Vallino (2015), Kapucu (2012), Asrori (2014), and Bebbington et al. (2004).  (Christensen & Laegreid, 2008) between the ministries. The policy coordination problem on village issues potentially creates misunderstood and also confuses local and village governments and the people. Therefore, tackling the policy coordination problem is an urgent agenda to avoid redundant regulations upon village issues. As Peters (1998)  Then political support is required to create a village self-government system. In terms of local democracy practice, local self-government has an important role to promote and develop a democratic culture at the local level (Islam, 2015).
China has a long experience in implementing this system since the 1980s and it faces controversial among top policymakers and the resistance from local leaders (Chen, 2005). Local self-government system at least includes three principles, such as autonomy, subsidiarity and regionalization principles (Brezovšek 2014