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 Volume 6 , Number 1, May 2021  

ISSN : 2579-8383 (Print) ISSN : 2579-8405 (Online) 
79 

 

  

  

 

Optimizing the Role of  Nganjuk Government  in Online Learning  

during the  Pandemic 

 
Maya Puspita Dewi1, Muh Barid Nizarudin Wajdi2 

1 Universitas Esa Unggul 
2 STAI Miftahul Ula Nganjuk 

maya.puspita@esaunggul.ac.id, baridnizar84@gmail.com  

 

Accepted: 

Jan 3th   2021 

Reviewed: 

March 5th 2021 

Published: 

May 30th 2021 

 

Abstract : The article aims to identify the role of the Nganjuk  district  government  toward Online 

learning in the pandemic. The author uses descriptive qualitative methods by describing and 

explaining comprehensively and specifically related to current events or phenomena, so that the role 

of the government  can be  done to the   maximum As a result of the discussion found that in its 

implementation, the role of the government brings a significant impact both for children as students 

and teachers as teachers,  especially  in  addressing  the lack of adequate supporting facilities and 

limited understanding of technology access and internet networks become the main obstacles felt by 

both parties.   the policy can be analyzed based on Van Meter and Van Horn theories. The theory in 

policy implementation is to look at the implementation achievements of 6 variables, including;  (1). 

Standards and Policy Objectives, (2) Resources, (3) Characteristics of Implementing Organizations, 

(4) Communication, (5) Attitudes of Implementers, (6). Social, economic, and political environment. 

All variables show the achievement of online learning implementation during the Covid-19 

pandemic in Nganjuk Regency. 

 

Keywords:  Online learning,  pandemic,  Government Policy 

 

INTRODUCTION 

This online learning policy for students aims to implement also the government policy for 

Social Distancing where in this case limited face-to-face meetings between students and teachers. 

Although, this policy is sure to have a positive impact as well as negative. Another policy in this 

regard, the elimination of the National Examination (UN)1.    Many obstacles are found in the 

application of this online learning.   students love cleanliness and also take care of the environment, 

but students learn at home sometimes even cause a sense of laziness in themselves, and many more 

 
1 Muh Barid Nizarudin Wajdi et al., “Education Policy Overcome Coronavirus, A Study of Indonesians,” 

EDUTEC: Journal of Education And Technology 3, no. 2 (2020): 96–106. 

mailto:maya.puspita@esaunggul.ac.id
mailto:baridnizar84@gmail.com


 
 
 

 
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obstacles that may be felt by students today. One of them who feels the impact of online learning is 

in Nganjuk Regency. 

All students feel the consequences of the coronavirus pandemic.   Various kinds or models of 

learning are carried out by the school or teachers of each subject. It is adapted to the environmental 

conditions and conditions of the students2.   In terms of online learning, also look at the side of the 

environment where online requires signals to access online learning. If the environment does not 

support signal strength it also has an impact on online learning. The policy carried out by the 

Government is solely to anticipate the spread of the Covid-19 virus, where it is hoped that the policy 

in this emergency situation can break the chain of spread of the Covid-19 virus or corona virus.  The 

government hopes that all forms of anticipation implemented can prevent this virus.  This situation 

makes us to better maintain cleanliness and health and to know how education in Indonesia in the 

face of the Covid-19 virus is conducted research that discusses how to implement the learning 

model conducted by schools in Nganjuk.   This study was analyzed using Van Meter and Van Horn 

implementation theory consisting of Standards and Objectives of Policy, Resources, Organizational 

Characteristics , Communication, Attitudes of Implementers, and Social, Economic, and Political 

Environment3.  The theory used is considered relevant because it is related to the research on the 

implementation of online learning models in Nganjuk Regency.    

 

METHOD 

The type of research used in this study is descriptive research with qualitative approach. This 

study intends to describe the implementation of online learning during the Covid pandemic at 

SMAN 1 Prambon.  The focus used in this review is the theory of implementation according to Van 

Meter and Van Horn which includes, Standards and Objectives of Policy, Resources, Characteristics 

of Implementing Organizations, Commu-nikasi, Attitudes of Implementers, and social, economic, 

and political environment. The research used is descriptive research with qualitative approach.   Data 

collection techniques with interviews.  Data analysis techniques are used by means of data collection, 

data reduction, data presentation, and conclusion drawing. 

 

RESULT AND DISCUSSION 

Nganjuk regency is a district located in East Java Province and became a red zone area of 

Covid-19 with positive patient details of 9 people and 2 others in the area of recovery. The spread of 

Covid-19 has had a  very important impact on Indonesia, in social, economic, and educational 

aspects.   One of the impacts of Covid-19 resulted in all teaching and learning activities being 

diverted into online or online learning. All educational institutions have implemented this online 

 
2 Muh Barid Nizarudin Wajdi et al., “Pendampingan Redesign Pembelajaran Masa Pandemi Covid-19 Bagi 

Tenaga Pendidik Di Lembaga Pendidikan Berbasis Pesantren Di Jawa Timur,” Engagement: Jurnal Pengabdian Kepada 
Masyarakat 4, no. 1 (2020): 266–277. 

3 Maya Puspita Dewi et al., “Ensuring Service Quality in Education for Indonesia’s Sustainable Education,” 
Journal of Social Studies Education Research 9, no. 4 (2018): 65–81. 



 
 
 

 
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policy since the issuance of Circular Letter No. 36962/MPK. A/HK/2020 so that all teaching and 

learning activities both schools and college campuses use online or online methods as an effort to 

prevent the spread and spread of Covid-194.  Circular letter that goes down that learning is done at 

home with internet access. This policy is implemented for all classes ranging from    Elementary 

School,  Junior High  School,  High School,   to  Higher Education.   The circular stated one of 

them is about the implementation of online learning, class increase plenary meeting, graduation 

plenary meeting, and graduation announcement announced through the school's website. The 

implementation of online learning models during the Covid-19 virus pandemic has its own 

advantages and disadvantages. The advantages of using online learning can be done at home, more 

relaxed, and can increase knowledge about technology, while weaknesses can be felt if in some 

places still constrained by signals that do not support to follow online learning that requires internet 

access, still stuttering technology especially for teachers who are elderly, more facing gadgets that 

can break eyes, and others. The online learning policy in Nganjuk Regency is based on the suitability 

of teachers in giving materials or exams. Learning is done through Google Classrom, Whatsapp 

Group, and Google Form apps. All learning models are implemented in several classes with details 

of online discussions, daily tasks, daily replays, and others.    Online learning when materials or 

assignments are delivered through Google Classroom and Whatsapp Group, with attendance 

presence seen from attendance in following learning.   If it is found that students who have not been 

caught presensi will be rechecked and the reason for not following the learning.   As for the Daily 

Deuteronomy or Exams are conducted using Google Form that has been provided by the school or 

teachers of their respective subjects. The focus of this research is the implementation model 

according to Van Meter and Van Horn5 which consists of Standards and Objectives of Policy, 

Resources, Characteristics of Implementing Organizations, Communication, Attitudes of 

Implementers, and social, economic, and political environment. Here's a breakdown of these 

indicators; 

1. Standards and Policy Objectives. The standard of online learning policy has actually been set 

out in Permendikbud No.  22, 2016 on The Standard Of Education Process but still failed to 

implement it6.   The purpose of this policy is to enter the digital age or industrial revolution 4.0.   

The Covid-19 pandemic is not an online learning lighter in the current situation.  This policy is 

carried out as a suppressor of outdoor activities to prevent the spread of Covid-19.   

2. Resources. Resources that determine  the success of the implementation and among others 

Human Resources, Time Resources, and Fund Resources. The implementation of online 

learning requires qualified resources, but not because online learning in the current situation of 

 
4 “Surat Edaran – Bersama Hadapi Korona,” accessed June 9, 2021, 

https://bersamahadapikorona.kemdikbud.go.id/category/berita/surat-edaran/. 
5 Riki Kurniawan, M. Benny Alexandria, and Heru Nurasa, “Implementasi Kebijakan Publik Model Van Meter 

Dan Van Horn,” Responsive (2018). 
6 Bahgie Mahtonami, “ANALISIS IMPLEMENTASI KEBIJAKAN PERMENDIKBUD NOMOR 28 TAHUN 

2016 TENTANG SISTEM PENJAMINAN MUTU PENDIDIKAN DASAR DAN MENENGAH DI KOTA 
MEDAN (Studi Kasus Di Dinas Pendidikan Provinsi Sumatera Utara Dan SMK Swasta” (UNIMED, 2018). 



 
 
 

 
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the Covid-19 pandemic can be carried out because of qualified resources, because the situation 

requires online learning. In its implementation during the situation, there are still many 

resources that are needed, such as competent human beings, the right time, and also funds as 

internet access. 

3. Characteristics of implementing organizations So far the implementing organization has been 

running strictly and disciplined in carrying out online learning policies to reduce the number of 

spread of the Covid-19 virus. The entire organization has also implemented Work From Home 

(WFH). 

4. Communication. Communication between the implementing agent and the actor involved to be 

disciplined online learning policy rules in education has been carried out well. No 

misunderstandings or misunderstandings occurred during the online shopper-ran policy. 

5. The attitude of the Implementersintesitas disposition of implementors can affect the pelaksa-na 

(performance) policy.   Assertiveness and discipline are the key to the successful 

implementation of this online learning. 

6.  Social, economic, and political environment. The environment conducive to the existence of 

online learning policies during the Covid-19 pandemic shows the implementation of this online 

defense model runs on purpose. However, the social, economic and political environment that 

is sometimes still not conducive can be constrained by the application of online learning. 

In response to this pandemic, The Minister of Education and Culture (Mendikbud) Nadiem 

Anwar Makarim issued Circular Letter No. 4 of 2020 on the Implementation of Education in the 

Emergency Period of Corona Virus Disease (Covid-19) which one of them discussed related to 

home learning policy7. The Minister of Education emphasizes that online/distance learning is 

implemented to provide a meaningful learning experience for students, without the burden of 

completing all curriculum achievements for class upgrades and graduations. Educators / Teachers 

must ensure that teaching and learning activities continue to run even though the students are at 

home, learning innovation is a solution that needs to be designed and implemented by teachers by 

maximizing existing media such as online media. Teachers can do learning using E-Learning 

methods, such as teaching and utilizing information and communication technology. The learning 

system is carried out through a computer device (PC) or laptop connected to an internet connection, 

teachers can do learning together at the same time using groups on social media such as Whatsapp 

(WA), Telegram, Zoom applications or other social media as a means of learning so as to ensure 

students learn at the same time even in different places. Teachers can also provide measurable tasks 

but still ensure that each day of student learning is carried out step by step of the task. The 

implementation of home learning policy during the Covid 19 pandemic for elementary school 

students in Nganjuk District itself also refers to Circular Letter No. 4 of 2020 concerning the 

Implementation of Education in the Covid 19 Emergency Period. All student learning activities in  

Nganjuk District are diverted with home learning activities. The concept of learning itself is to make 

 
7 “Surat Edaran – Bersama Hadapi Korona.” 



 
 
 

 
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use of online technology.    Elementary school students get school materials and assignments 

through their parents' whatsapp groups that have been provided by teachers from their respective 

schools. The process of collecting tasks and assessments was conducted online, so that there was no 

direct activity during the Covid 19 pandemic to minimize the ramps of the Covid 19 spread curve, 

especially in  Nganjuk Regency. In this case,  the Nganjuk Regency Government continues to 

supervise and strive to maximize the policy of learning at home during this pandemic.     All schools 

in  Nganjuk District have been diverted with home learning activities since the release of the circular 

from the central government.  The existence of a policy of home learning during the Covid 19 

pandemic has an impact on students, educators, related agencies and also the guardians.  The 

impacts are varied, both those that are classified as negative impacts and positive impacts. The 

positive impact is that elementary school students in Nganjuk District do not need to come to 

school to carry out the teaching and learning process, the materials are more simple because they are 

directly provided by teachers through the online system, as well as some other positive impacts. This 

home learning policy also brings some negative impacts, both felt by students, educators, and 

parents. One of them is that the teaching and learning process is considered less effective because of 

the lack of 2-way interaction between students and their teachers, teachers can not freely explain the 

material to their students as during the teaching and learning process in school as usual so that the 

material obtained by students is also less acceptable to the maximum.    In addition, the teaching and 

learning process is also often hampered by external factors such as the internet network that is often 

constrained in some villages in  Nganjuk Regency, in addition not all students and their parents have 

adequate mobile phones as well as economic conditions that often make it difficult for them to buy 

internet quotas to access learning with online systems. Another negative impact that is also often 

complained by some parents of elementary school students in the current condition that forces their 

children to learn from home is the difficulty of parents in replacing the role of teachers to explain 

the material to their children, children also seem more stretched and tend to be lazy because learning 

only from home. So many tasks given by teachers are actually done by their parents. Such conditions 

if continuously done will actually aggravate other adverse impacts and can also affect the mindset 

and absorption of the students, especially at the elementary level.  Because at this age, they should 

get a defense in school with the method of explanation directly by the father of the teacher and 

socialize with friends around, so that it will bring influence to the development and mindset of 

students at the elementary level. To get around some of these negative impacts, the Ministry of 

Education is trying to make new innovations for learning during the covid 19 pandemic. One of 

them is by working with one of the national tv to air learning on paud students up to high school.  

This is done for easy access and also so as to create learning that is not monotonous for students 

and educators.  

The Ministry of Education and Culture (Kemendikbud) launched a Learning from Home 

program that will cooperate with one of the national television stations. The program was designated 

as an effort to expand access to learning to students who have difficulty in obtaining online learning 

in the emergency of COVID-19, especially helping people who have limitations on internet access, 



 
 
 

 
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both because of economic challenges and geographical location.  This program is a form of quick 

response conducted by the Ministry of Education after holding a meeting and getting input from 

Commission X dpr ri at the end of March which is also in line with the spirit of Merdeka Belajar 

which continues to be encouraged by the Ministry of Education.In this case the Ministry of 

Education makes every effort in providing quality and meaningful educational content, not only to 

the students, but also to the parents of students and there will be non-government institutions that 

will conduct supervision and evaluation related to the content of the program.    The content or 

learning materials presented will focus on improving the literacy, numeration, and character growth 

of learners.  The program has been accessible to the public on Monday, April 13, 2020 starting at 08 

00 WIB. The program, which is planned to air for the next three months, will also contain tutoring 

materials for teachers and parents. This program is expected to be a comprehensive learning tool 

between students, teachers, andparents. 

Analysis of learning policy at home using implementation theory according to George 

Edward8, as follows: 

1. Communication Learning program at home can be seen implementation from the 

communication side through 3 things, namely the dimensions of transmission, clarity, and 

consistency of information.  Dimensionally the transmission of this policy is based on the 

Ministerial circular whose information is then submitted to the Nganjuk district government. 

Then, information to do teaching and learning activities at home is conveyed to teachers as 

educators to continue teaching online, to students and to the parents to always accompany their 

children during the study period in this house. The  Nganjuk District Government also told 

teachers to prepare several Whatsapp groups related to subjects to facilitate the learning process 

online later as well as using other digital platforms, so that clarity of information can be 

conveyed through briefings conducted through online-based mass media. The target of this 

policy is teachers and students as the main target, so that the  Nganjuk district government also 

through the Education office in collaboration with the central government in providing 

briefings and leeway in the application of home learning related to the task and provision of 

materials made simpler, so that it can be understood by each student.  In addition, the  Nganjuk 

district government also urges parents to continue to provide teaching also through mentoring 

to children in absorbing learning materials and doing tasks. 

2. Resources. In this resource factor can be seen from 4 things, namely human resources, budget, 

equipment, and authority.   Based on human resources, the policy of learning at home can be 

said to be enough. This can be seen from the human resources teachers who are qualified in 

providing teaching, because it is used to use online-based mass media to be used as a means of 

teaching, but this is constrained in elementary school students.  There are still many children 

who do not understand the material delivered, especially in science and mathematics subjects, 

 
8 Syahrul Mubarok et al., “Policy Implementation Analysis: Exploration of George Edward III, Marilee S 

Grindle, and Mazmanian and Sabatier Theories in the Policy Analysis Triangle Framework,” Journal of Public 
Administration Studies (2020). 



 
 
 

 
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because basically they are always accompanied by teachers directly. Resource budget, Nganjuk 

government districts provide a budget of 6.5 billion for handling during this pandemic, and 

some budgeted for education.    Equipment can still be considered enough, because there are 

many people who already use smart-phones, but there are still people who do not use 

smartphones, so that parents know information through their neighbors. In addition, the 

government also provides interactive programs of home learning through the central 

government in collaboration with TVRI in providing teaching materials as well. In authority,  

the Nganjuk district government has the right to determine how the Education agenda during 

this pandemic, but in the authority of teaching and learning, decisions are determined by 

teachers and parents regarding the teaching system in what way and through what mass media 

through discussions between teachers and parents that are adjusted to the state of their 

respective regions. 

3. Disposition. In this disposition factor can be seen from the attitude of policy implementers and 

incentives used by  the Nganjuk district government given to educators. In the attitude of the 

policy implementers, namely the  Nganjuk district government through the Education office of 

Nganjuk district is cooperative and follows the instructions of the central government. This 

they prefer how social distancing success can be run.   In addition, the  Nganjuk district 

government can also give the authority to learn to teach in accordance with the conditions of 

each school in each district to regulate how the teaching and learning activities should be 

conducted. In incentives,  the Nganjuk district government is considered to pay less attention to 

honorer teachers, because the incentives provided are still too small and insufficient for these 

honorer teachers to fulfill facilities in teaching and learning activities. As happened in,  Nganjuk. 

Honorer teachers must ride Wi-Fi in the local village hall to still be able to do teaching activities, 

because it is considered more efficient in terms of costs incurred. 

4. Bureaucratic Structure. In this bureaucratic structure can be seen from 2 sides, namely from 

standard operational Procedures and Fragmentation carried out. Sop, in this case using Circular 

Letter No. 4 of 2020 concerning the Implementation of Education Policy in the Emergency 

Period of Corona Virus Disease (Covid-19). This circular letter contains about the process of 

organizing home learning activities are as follows: 

a. Learning from Home through online/distance learning is implemented to provide a 

meaningful learning experience for students, without the burden of completing all 

curriculum achievements for class as well as seriousness 

b. Learning from Home can be focused on life skills education, among others, about the 

Covid-19 pandemic 

c. Learning from Home activities and assignments can vary between students, according to 

their interests and conditions, including considering the gap in access / learning facilities at 

home.  

d. Evidence or products of Learning from Home activities are given a qualitative and useful 

baiik bait from the teacher, without the need to give a quantitative score / value. Then 



 
 
 

 
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fragmentism, which is related to the distribution of responsibilities in the policy of learning 

at home is the Nganjuk district government and the Education and culture office of 

Nganjuk district is responsible as implementers who continue to coordinate with schools in  

Nganjuk district and under the auspices of the Education and Culture office of  Nganjuk 

district. They ensure the smooth learning activities at home optimally and answer the 

various obstacles that occur during the implementation of this policy. Responsibly, home 

learning activities have been given to each school in accordance with the conditions of each 

district and school. 

 

 

CONCLUSION 

This online learning policy for students aims to implement also the government policy for 

Social Distancing where in this case limited face-to-face meetings between students and teachers. 

The online learning policy in Nganjuk Regency is based on the suitability of teachers in giving 

materials or exams. Learning is done through Google Classrom, Whatsapp Group, and Google 

Form apps. All learning models are implemented in several classes with details of online discussions, 

daily tasks, daily replays, and others.  Online learning when materials or assignments are delivered 

through Google Classroom and Whatsapp Group, with the presence of presence in following 

learning.   If it is found that students who have not been caught presence will be rechecked and the 

reason for not following the learning.   As for the Daily Deuteronomy or Exams conducted using 

Google Forms that have been provided by the school or teachers of their respective subjects. Based 

on the implementation of online learning during the Covid-19 pandemic situation, the policy can be 

analyzed based on Van Meter and Van Horn theory. The theory in policy implementation is to look 

at the implementation achievements of 6 variables, including;  (1). Standards and Policy Objectives, 

(2) Resources, (3) Characteristics of Implementing Organizations, (4) Communication, (5) Attitudes 

of Implementers, (6). Social, economic, and political environment. All variables show the 

achievement of online learning implementation during the Covid-19 pandemic in Nganjuk Regency. 

The current condition provides many complex problems, this covid 19 pandemic affects also 

in all aspects, one of which is the field of Education. Policy changes are made by the government, 

one of which is the Education policy of the Nganjuk district government, namely Learning at home 

on the instruction of a circular letter from the Minister of Policy and Education. This policy was 

analyzed using the theory of implementation of George Edward III. In communication this policy 

applies it quite well and consistently, the resources used are still considered capable in carrying out 

this policy.   Various elemns that support each other are key in the implementation of home learning 

policy. In addition, bureaucraticly still spurred on the SE Minister of Education and culture, but this 

implementation is considered less in terms of incentives, because it is still considered less concerned 

about honorer teachers on facilities issues during the activities of worshiper. 

 

 



 
 
 

 
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Quality in Education for Indonesia’s Sustainable Education.” Journal of Social Studies Education 
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Kurniawan, Riki, M. Benny Alexandria, and Heru Nurasa. “Implementasi Kebijakan Publik Model 
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Mahtonami, Bahgie. “ANALISIS IMPLEMENTASI KEBIJAKAN PERMENDIKBUD NOMOR 
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