https://doi.org/10.18196/jgp.123139 http://journal.umy.ac.id/index.php/jsp JURNAL STUDI PEMERINTAHAN An Integration Scenario of Visa and Residence Permit in Indonesia during Covid-19 Outbreak: A Policy Learning froM Australia DEDE LALAN MAULANA1, RIDWAN ARIFIN2 ABSTRACT: Indonesian visa and residence permits have separated functions, where a visa is an approval to enter, but a residence permit is to stay in Indonesia. Today’s Onshore and offshore visa policy is the breakthrough in rolling out an online visa application process to grant an electronic visa that is not inte- grated with residence permit functions. This study looks into a visa scheme and an integration scenario of visa and residence permit that responds to the Covid-19 outbreak in Indonesia. Using a document analysis and policy learn- ing from the Australian Government, this study proposes the functional inte- gration between the Indonesian visa and residence permits into one single visa provision as the approval mechanism for foreign visitors to enter and stay in Indonesia’s territory. This study shows that integration scenario sup- ports the proponent factors such as the current policies, systems, and practi- cality and simplification, and the public demand for improved public service delivery. Future work also should discuss the post-pandemic visa policy in Indonesia and the integration of other agencies’ application systems from the perspective of e-government. Keywords: Covid-19; Visa Policy; Residence Permit; Onshore Visa; Offshore Visa ABSTRAK: Visa dan Izin Tinggal di Indonesia memiliki fungsi yang berbeda, bahwa visa merupakan persetujuan untuk masuk dan izin tinggal untuk berada dan berkegiatan di Indonesia. Saat ini, permohonan visa dalam negeri dan luar negeri adalah terobosan terbaru Direktorat Jenderal Imigrasi dalam penerbitan visa secara daring, walaupun masih belum adanya integrasi dengan fungsi izin tinggal. Studi ini mengkaji skema visa di Indonesia dan skenario integrasi antara visa dan izin tinggal dalam merespons pandemi Covid-19 di Indonesia. Melalui dokumen analisis dan pembelajaran kebijakan dari pemerintah Aus- tralia, studi ini merancang integrasi antara visa dan izin tinggal menjadi satu kesatuan dalam sebuah visa bagi Orang Asing untuk masuk dan sekaligus berada di Indonesia. Hasil riset ini menunjukkan bahwa integrasi tersebut mendukung faktor-faktor penting seperti kebijakan terbaru, sistem, praktis, simplifikasi, dan tuntutan masyarakat untuk peningkatan kebijakan pelayanan 282 AFFILIATION: 1Kantor Imigrasi Jakarta Barat 2Politeknik Imigrasi CORRESPONDENCE: ridwan.arifin@poltekim.ac.id HOW TO CITATE: Maulana, D. L., & Arifin, R. (2021). An Integration Scenario of Visa and Residence Permit in Indonesia during Covid-19 Outbreak: A Policy Learning from Australia. Jurnal Studi Pemerintahan, 12(3). 282-311 ARTICLE HISTORY: Received: May 31, 2021 Revised: August 23, 2021 Accepted: September 23, 2021 http://journal.umy.ac.id/index.php/jsp mailto:ridwan.arifin@poltekim.ac.id https://orcid.org/my-orcid?orcid=0000-0001-6616-6976&justRegistered https://orcid.org/0000-0002-7311-2068 Vol. 12 No. 3 November 2021 283 publik. Riset selanjutnya dapat mengkaji kebijakan visa pasca-pandemi di Indonesia serta integrasi kesisteman antar-instansi terkait dari perspektif pemerintahan elektronik. Keywords: Covid-19; Kebijakan Visa; Izin Tinggal, Visa Daring INTRODUCTION The Indonesian government performs the ‘immigration se- lective policy’ in which selected foreign visitors who gives ben - efits and will not endanger the public security that will be al- lowed to enter then Indonesia’s territory. As roles and functions, the Directorate General of Immigration (DGI) Indonesia is re- sponsible for a public service delivery, law enforcement, national security, and public welfare development support (Indonesia, 2011). In terms of public service, DGI has an authority to issue a passport and travel documents for Indonesian citizens, and Visa and Residence Permits for foreign visitors. In relation to interna- tional and immigration crimes that threaten national security, the immigration law enforcement is conducted through the bor - der security and immigration operations (Arifin, Nurkumalawati, & Briando, 2019). In addition, the facilitator of public welfare development requires the DGI to support and be in line with the other public policies regarding economic development. From a more general perspective, the Indonesian immigration policy defines and distinguishes Visas and Residence Permits as two different things. The Indonesian Immigration Act No.6 of 2011 defines Visas and Residence Permits, respectively, and it has dif- ferent functions. Visa is a written information issued by an im- migration officer at Indonesian Embassy or Consulates overseas, which contains entry approval for a foreign visitor to travel to the Indonesia’s territory. On the other hand, Residence Permit refers to a permit granted to foreign visitors holding visa and staying in Indonesia for a short-term visit. The Indonesian visa policy is implemented to select and invite visitors by providing different types of visas. Visa on Arrival (VoA) is applied at points of entry upon arrival approved with an entry stamp and a label sticker. Visitor Visa (Single/Multiple Entries) and Temporary JURNAL STUDI PEMERINTAHAN Residence Visa are applied at Indonesian Embassy or Consu- lates prior to their travel to Indonesia. All types of Indonesian visas cannot be extended, but visitors enter Indonesia, they must apply for a residence permit and ex- tend them at selected immigration offices (Handayani & Wahyuningsih, 2020). The difference is clearly described that a visa is to enter Indonesia, and a residence permit is a permit during their stay in Indonesia regardless of their visa types ( Putra & Arifin, 2020). Visitors who hold different types of visas will indicate their further residence permit with a specific period of stay. As a result, the foreign visitor is required to apply for Visa and Residence Permit separately which could be a challenging process for them to stay legally in Indonesia. Foreign visitors holding a Temporary Residence Visa (Vitas) may be granted a Temporary Residence Permit (Itas) to remain in Indonesian for a limited period and purposes as indicated in their visa. The purposes consist of working, business, investment, research, study, family reunion, dependent, repatriation, and retirement (“Indonesian Immigration Act,” 2011). Once visitors apply for an Itas at immigration offices, they will be required to apply for a Multiple Reentry Permit (MREP) stamp as a permit to leave and reenter Indonesia. Visitors can apply for a Perma- nent Residence Permit (Itap) if they hold an Itas. It indicates visa and residence permits have separated functions, and it leads to confusion among foreign visitors when applying for residence permits again at immigration offices. DGI today’s visa policy fo- cuses on foreign nationals who could not leave Indonesia due to a lockdown policy, but they will expire the validity of residence permits (Indarti, 2021). Based on the Regulation of Minister of Law and Human Rights No. 27 of 2021, foreign nationals can apply for a new visa in Indonesia without lodging any required documents in person at Indonesian Embassy overseas, so -called an offshore visa application, where they can apply online from their home country. Also, they can apply for an onshore visa application when they are in Indonesia. This visa and residence 284 Vol. 12 No. 3 November 2021 285 permit arrangement shows complexities in the application pro- cess because visitors must go through several stages to get their permits. This study looks into a visa scheme and an integration sce- nario that responds to the Covid-19 outbreak in Indonesia as the new study discussed the Indonesian migration policy and immigration governance during the Covid-19 pandemic (Arifin & Wiraputra, 2020). Previous studies have widely discussed In - donesian free-visa policy (Dhesinta, 2017; Sudarwati, 2015) and visa on arrival (Pujiharini & Ichihashi, 2016), including visa vio - lation (Yuktatma & Darmadi, 2017), impacts to the tourism in- dustry in Indonesia (Loda, 2016), simplification through e-gov- ernment (Cordella & Tempini, 2015). Of these, the discussion of visa and residence permit integration has not been examined a visa grant, particularly during the Covid-19 outbreak in Indo- nesia. The functional integration of visa and residence permits in Indonesia is further discussed as a gap in the context of Indo - nesian visa policy by drawing lessons from the Australian immi - gration policy. The question is to what extent the visa policy in Indonesia is redesigned towards the integration of visa and residence permit? This study proposes the functional integration between the In- donesian Visa and Residence Permits into one single visa provi - sion as the approval mechanism for foreign visitors to both enter and stay in the Indonesia’s territory. It claims that this functional integration can be successfully implemented by the DGI Indo- nesia, and this simplification could contribute to solving a visa status of a foreign visitor who are isolated or in the lockdown area during the pandemic and post-pandemic era. This study shows an integration of visa and residence permit support the proponent factors such as the current policies, systems, and prac - ticality and integrity of this functional integration, and the pub - lic demand for improved public service delivery. This functional integration displays benefits for organizational accountability, simplicity, effectiveness, and efficiency. Also, downsizing the or- JURNAL STUDI PEMERINTAHAN ganization means decreasing the number of employees which can lead to minimizing the power abuse by officers, such as cor - ruption and bribery. This study contributes to restructuring a visa policy during the Covid-19 pandemic to simplify the visa application process both offshore and onshore scheme. Regarding policy learning, the Australian immigration policy has only one provision regarding Visas. It defines Visa as the approval for foreign visitors to both enter and stays in the coun - try. Thus, the DGI can draw a lesson from the Australian immi - gration policy in defining Visas as approval that can contribute to organizational simplicity, effectiveness, and efficiency. Austra- lia is a selective country regarding its immigration policy, yet the process is simple in practice. In contrast, Indonesia provides a visa-free facility to many countries, but its permit issuance is less practical. LITERATURE REVIEW AND RESEARCH FOCUS INDONESIAN VISA AND RESIDENCE PERMITS On behalf of the selective policy, the Directorate General of Immigration is responsible for immigration services, law enforce- ment and national security, and public welfare development sup - port (Indonesia, 2011). Its public service affairs deal with the issuance of travel documents (Passport) for Indonesian citizens and Visa and Residence Permit for foreigners. Regarding inter- national and immigration crimes that threaten national secu- rity, immigration law enforcement is conducted through border security and immigration surveillance (Arifin, Nurkumalawati, & Briando, 2019b). In addition, the facilitator of public welfare development requires the Indonesian Immigration Department to support and be in line with the other public policies regarding economic development. People migrating from one country to another cannot be sepa - rated from an immigration document called visa. Visa policy in every country may vary to control people movements where they apply for a visa prior to their arrival (Mau, Gülzau, Laube, & 286 Vol. 12 No. 3 November 2021 287 Zaun, 2015). In particular, the Indonesian Immigration Act de- fines and differentiates Visas and Residence Permits, respectively (Indonesia, 2011). It mentions that Visas is written information issued by an immigration officer of the overseas Indonesian gov - ernment representatives, which contains the approval for a for- eigner to travel to the Indonesia’s territory and underlies the Residence Permit issuance, i.e., any permit provided for foreign - ers to stay in Indonesia’s territory for a particular amount of time. Meanwhile, a Visa is not the only document needed by foreigners to enter Indonesia’s territory. Every foreign national must present their travel documents and visa at Indonesia’s borders and immigration officers exam - ine their eligibility to enter (Indrady, 2020). The officers do ‘pas- sengers profiling’ to check and examine foreigners in detail, in - cluding the validity of required documents and physical appear - ances, to ensure that the individual passenger presents his/her own document. This determination is also regarded as the imple - mentation of the ‘Selective’ policy, underpinning only eligible foreign nationals who can enter Indonesia, generate positive impacts, and maintain national security (Akbari, 2015). Further- more, a Visa cannot fully guarantee that foreigners can stay in Indonesia for a particular period. Foreigners should also obtain a Residence Permit in order to be able to stay in Indonesia’s territory (Indonesia, 2011, 2013). SIMPLIFICATION OF BUREAUCRATIC PROCESS Public service delivery as one of the administration processes cannot be separated from government bureaucracy. Bureaucracy has been viewed as a structure to improve organizational effi- ciency (Cordella & Tempini, 2015). The effectiveness and effi- ciency of the organizational procedures can derive from the sim - plification of the system. A range of literature has explored this concept. First, system simplification can be part of Business Pro - cess Reengineering. According to (Glick, 2015), Business Process Reengineering is defined as a systematic way to transform the JURNAL STUDI PEMERINTAHAN processing system as a result of redefining the organization to- ward the customers that encompass “strategy, structure, culture, jobs, and information system”. Functional simplification in in- formation and communication technology (ICT), proposed by (Cordella and Tempini, 2015, p. 281), contributes in resolving any technological issues which provides stages to solve the main problems. Breaking down the function and problem, this func- tional simplification concept can support bureaucratic practices to reform the administrative process and improve public service delivery, particularly when it is associated with e-government (Cordella & Tempini, 2015). Another concept of system simplification is Online one -stop government implementation (Hamad, Petri, Rezgui, & Kwan, 2017), in which public authorities are interconnected in one in- tegrated system, and citizens can apply for services in one access point. This integration can be successfully implemented through the reengineering of public administration processes into online services. Similarly, the implementation of a One -Stop Integrated Service in the Indonesian context aims to reform the public ser - vice by simplifying the application processes where all related public service agencies are located in the same site, or by inte- grating all related processes into one system (Gaus, Sultan, & Basri, 2017). More specifically, the example of a simplified con - cept of immigration permit mechanism derives from the Austra - lian immigration policy. A Visa is only needed when foreigners want to enter and stay in Australia. There is no provision oblig- ing foreigners to gain a Residence Permit. For example, the visa detail for Business Innovation and Investment and Temporary Work in Australian does not mention a Residence Permit, only the length of time that foreigners can stay (Home Affairs, 2019). It implies bureaucracy, public administration, and public service delivery are strongly intertwined and simplification of a business process in public sectors is significantly employed by a techno- logical approach. This literature review has highlighted necessary information 288 Vol. 12 No. 3 November 2021 289 exploring the circumstances, potential factors, and possible ben - efits of the functional integration of Indonesian Visa and Resi- dence Permits into one single provision on Visa as the approval for foreigners to enter and stay in Indonesia’s territory. The con - cepts of simplification have been discussed and can be the refer - ence in integrating systems from a more technical perspective. Then, from a policy perspective, this study focuses on function al integration, which should be further discussed as a gap in the context of Indonesian immigration by viewing and drawing les - sons from the Australian immigration policy. RESEARCH METHOD This study employs a qualitative document analysis (Karppinen & Moe, 2019) to analyze official documents such as laws, regula- tions, reports, policy brief, position papers by public sector orga - nizations. This method is the most appropriate because it in- volves the extensive analysis of the supporting factors for imple - mentation of the functional integration of Visas and Residence Permits into one single visa provision. This study is reviewing secondary data which is collected from reports, regulations, and publications. Data sources are publicly accessible and mainly from books, journal articles, and conference papers, and the data is analyzed and interpreted. Governmental documents such as leg- islation, policies, and legal letters are the key sources. A qualitative approach to policy learning is to examine poten - tial policy learning and implementation for the DGI Indonesia. Policy learning identifies concepts, principles, paradigms, proce - dures that must be learned and measured (Dunlop, 2017). It con- cerns about lesson learned in terms of policy instrument, policy issues, or feasibility studies related with political factors. In this regard, it evaluates policy related to the integration of visas, which the Australian Immigration Agency has implemented. Australia is a good example due to its similarity to Indonesia in terms of the high mobility of people through their borders. Data from the document analysis and policy learning is analysed by inter- JURNAL STUDI PEMERINTAHAN preting meanings, comparing them, and summarizing key con- cepts based on the theoretical framework applied. RESULT AND DISCUSSION THE INDONESIAN VISA AND RESIDENCE PERMIT Immigration selective policy in Indonesia concretely defines officers to conduct passenger profiling by checking and examin - ing every foreign visitor in detail, including the validity of re- quired documents and physical appearances. Foreign visitors shall obtain a Visa to enter and Residence Permit to stay in Indonesia for specific time and purposes (“Indonesian Immigration Act,” 2011). Visa cannot guarantee foreign visitors to enter unless they are eligible with entry requirements upon arrival. The DGI has rolled out an online visa and residence permit application where foreign visitors apply with a different login. Visa and residence permit applications are processed in the Management Informa- tion System of Immigration (SIMKIM) which has been devel- oped as a technology system utilized for data collecting, process - ing, and presenting to support immigration functions (Indone- sia, 2011). Apart from the visa policy, Indonesia has launched visa waiver programs (free-visa policy) to invite international tour- ists from selected countries. The following paragraph discusses the visa policy in Indonesia, types of visas, processes, and proce - dures, including the residence permits. In general, there are four types of Indonesian Visas: Diplo- matic, Official, Visitor, and Temporary Residence Visa. Diplo- matic and Official Visas are authorized by the Ministry of For- eign Affairs, while the DGI issues visitor and Temporary Resi- dence Visas under the Ministry of Law and Human Rights (In- donesia, 2011). Visitor Visa is granted for short periods of visit for a social, business, family affairs, and tourism purposes, while a Temporary Stay Visa is granted for limited periods for work, study, research, and investment (Indonesia, 2011). There are three types of Visitor Visa: Visa on Arrival (index B213), Single Entry Visa (index B211), and Multiple Entry Visa (index D212). This 290 Vol. 12 No. 3 November 2021 291 Visitor Visa Index B211 and D212 are issued at the Indonesian Embassy or Consulates, with two types: Single Visit (extendable) and Multiple Visit (non-extendable) (Directorate General of Immigration, 2013). Foreign visitors holding visitor visa and tem- porary residence visa, upon arrival, will be approved by an entry stamp as a residence permit while they stay in Indonesia (Indo- nesia, 2013). In the Presidential Regulation Number 21 of 2016 on Visa Exemption, Free Visa Facility is a visa granted for the passport holders of the 169 selected countries that can be used for tour- ism, social, family, cultural, and governmental purposes for a non-extended stay of 30 days (Directorate General of Immigra- tion, 2016). Visa on Arrival (VOA) is granted for passport hold - ers from the selected countries used for business, social, culture, family, governmental, and tourism purposes for 30 days. For- eign visitors with VOA will be approved an entry stamp on their passport/other travel documents, which is valid as their Resi- dence Permit (Indonesia, 2013). This visa is issued on arrival at immigration clearance, and they can apply once for a residence permit to stay for another 30 days. There are ten subclasses of Temporary Residence Visa (index C311-C320) issued in the Indonesian Embassy or Consulates. The process of Temporary Residence Visa involves other related agencies like Ministry of Manpower for permit of hiring foreign workers (IMTA), Investment Coordinating Board (BKPM) for investor permit, Ministry of Education for student’s letter of ac - ceptance. Foreign visitors holding Temporary Residence Visa, after their arrival, will be required to apply for a Temporary Resi- dence Permit at local immigration offices in the region where they stay. This permit application should be made within thirty days from the date of their arrival. This shows foreign visitors arriving for a short-term visit, work, study, research, and invest - ment purposes must apply for both a Visa and Residence Permit separately. In 2018, Presidential Regulation Number 20 of 2018 on For- JURNAL STUDI PEMERINTAHAN eign Workers was enacted to increase the business and invest- ment in Indonesia and consists of work permit arrangements for foreign workers (Indonesia, 2018b). To support the policy, the Regulation of Ministry of Law and Human Right Number 16 of 2018 on Visa and Residence Permit Grant to Foreign Workers, and the Letter of Directorate General of Immigration Number IMI-UM.01.01-5713 of 2018 on the Procedures of Temporary Residence Permit Application and Extension for Foreign Work - ers via TKA Online Application, have been passed (Indonesia, 2018a, 2018c). Foreign workers shall apply for a work visa at Indonesian Embassy or Consulates before entering Indonesia. When they arrive at selected airports, they will be granted a Temporary Resi- dence Permit and Multiple Reentry Permits without applying for it at designated immigration offices. The Temporary Resi- dence Permit will be granted upon their arrival by collecting their biometric data, and an electronic permit notification grant will be sent to their email. FIGURE 1. VISA ON ARRIVAL PROCESS Source: The Minster of Law and Human Rights Regulation Number 51 of 2016 on Indonesian Visa Policy FIGURE 2. VISITOR VISA PROCESS Source: The Minster of Law and Human Rights Regulation Number 51 of 2016 on Indonesian Visa Policy FIGURE 3. TEMPORARY RESIDENCE VISA PROCESS Source: The Minster of Law and Human Rights Regulation Number 51 of 2016 on Indonesian Visa Policy 292 Vol. 12 No. 3 November 2021 293 FIGURE 4. PROCEDURE OF TEMPORARY RESIDENCE VISA FOR FOREIGN WORKERS Source: The Regulation of Ministry of Law and Human Rights Number 16 of 2018 on Temporary Residence Permit for Foreign Workers The different provisions on Visa and Residence Permits, and their application processes for each type, indicate the complexi - ties of policies, regulations, systems, and processes to approve foreign visitors to enter and stay in Indonesia. A foreign visitor has a global perspective of visa to enter and stay in a country for specific periods and purposes. The payment process is made at different payment centers or designated banks. The visa or resi - dence permit application is not effectively implemented because an online application is not working properly. They fill in an application form and make a document lodgment at immigra- tion offices, rather than applying online at the official website. It implies foreign visitors will proceed to different places to apply for visa and residence permits and spend more time. Two different provisions between Visa and Residence Permits underlie different policies and frameworks. This separation has a long history of immigration policy development in Indonesia. At the early stage, migration politics in Indonesia was under the Dutch East Indies as the Dutch colony called the open door poli - tics (Syahrin, 2019). After the Dutch colony ended, the Japanese settlement in Indonesia separated visa and residence permit. Japa- nese colony’s administration regulated a filed operation and con- trol over foreigners who reside in Indonesia. Foreigners must apply Surat Pernyataan Berdiam Orang Asing (Foreigner’s Resi - dence Letter) as an identity card (Syahrin, 2019). This letter was issued as a guidance for the surveillance operation to all foreign - ers in Indonesia. JURNAL STUDI PEMERINTAHAN TABLE 1. CURRENT INDONESIAN VISA AND RESIDENCE PERMITS SCHEME 294 No. Types of Immigration Documents 1. Visitor Visa Places of Issue Visa and Residence Permit Forms Place of Issue for Residence Permits Visa on Arrival (VOA) B213 Visit Visa (Single Entry) B211 Points of Entry (Not applicable during the Covid-19 pandemic) Offshore Visa Application at DGI Visa Label and Entry Stamp upon arrival Electronic and Entry Stamp upon arrival Extended at Immigration Offices Immigration Offices Onshore Visa Application at DGI Electronic Visa Immigration Offices Visitor Visa (Multiple Entry) Offshore Visa Application at DGI Electronic and Entry Stamp upon Immigration Offices D212 arrival Onshore Visa Application at DGI 2. Temporary Residence Visa Electronic Visa Immigration Offices Working Purpose C311, C312 Offshore Visa Application at DGI Electronic Visa and Entry Stamp upon arrival Immigration Offices Onshore Visa Application at DGI Electronic Visa Immigration Offices Non-Working Purposes (investment, study, research, family) C313-C320 Offshore Visa Application at DGI Electronic Visa and Entry Stamp upon arrival Immigration Offices Onshore Visa Application at DGI 3. Temporary Residence Permit Electronic Visa Immigration Offices Working Purpose - Electronic and Entry Stamp upon arrival Immigration Offices Non-Working Purposes (investment, study, research, family) - Stamp and Card Immigration Offices Source: Indonesian Immigration Act Number 6 of 2011, Government Regulation Number 31 of 2013, Regulation of Ministry of Law and Human Rights Number 27 of 2014, Regulation of Ministry of Law and Human Rights Number 16 of 2018, Letter of Directorate General of Immigration Number IMI-UM.01.01-5713 of 2018, Regulation of Ministry of Law and Human Rights Number 26 of 2020. In the post-colonial era, Indonesia continued to issue visa and residence permit separately. Selective policy became essen - tial border policy with prosperity and security approaches ( Arifin & Nurkumalawati, 2020; Indrady, 2020). However, today’s frag- Vol. 12 No. 3 November 2021 295 mented rules, regulations, procedures, bureaucratic processes, and information systems lead to complexities, as shown in Table 1. For example, a foreigner who plans to work in Indonesia must apply for a temporary residence visa (Visa Tinggal Terbatas/ Vitas) index C312. Upon arrival, they present their passport and visa before an immigration officer at arrival check, where their Vitas is converted into a temporary residence permit (Izin Tinggal Terbatas/ Itas) for work. They also must apply for a re -entry per- mit. Visa validity, length of stay for Itas, and re-entry permit (REP) validity are different subject to the applicant’s request. Other than the C312 visa index, after landing, a foreigner must apply for Itas and REP at an immigration office in the area where an applicant stay (“Indonesian Residence Permits Procedures,” 2014). Additionally, a foreigner can apply for Itas for work and Visitor Visa (ITK) B211 index for work interchangeably (Budiartha, 2018). This bureaucratic process illustrates complexities in visa policy and management. This indicates an increasing workload for the organization is inevitable. Table 1 illustrates the current Indonesian visa and residence permit scheme in response to the global lockdown policy situa - tion due to the Covid-19 pandemic. Indonesian visa now is ap- plied online at https://visa-online.imigrasi.go.id/. Offshore visa is applied for from outside of Indonesia without appearing at Indonesian Embassy overseas, while onshore visa is applied for from inside of Indonesia without applying in person at DGI or immigration offices. Visa grant notification, called electronic visa, is sent to an applicant’s and sponsor’s email. An applicant must apply for a residence permit for staying in Indonesia, and they must lodge required documents in person at immigration office. This visa is granted only for purposes of emergency and essential works, maritime crews, workers at national strategic projects, and medical or humanitarian aid workers. Free visa program and visa on arrival are suspended during the Covid-19 outbreak because the Indonesia government has closed its international borders since April 2020 based on the travel restrictions policy. JURNAL STUDI PEMERINTAHAN Focusing on the service delivery of Visa and Residence Per- mit issuance, the DGI has designed systems to accommodate increased applications: The Online Visa Application and Online Residence Permit Application https://izintinggal-online.imi- grasi.go.id/. Another institution rolls out the Online Single Sub - mission (OSS) to facilitate foreigners obtain an approval letter from other authorities. For example, foreign workers must apply for a work permit under the Ministry of Manpower at https:// tka-online.kemnaker.go.id/ (Ministry of Law and Human Rights, 2018). This online application system will cut the process for foreign workers to get work permits and other documents. In addition, as a response to the increased number of Student visa applicants, the Ministry of Higher Education has created a new online application system https://izinbelajar.kemdikbud.go.id/ to support students in applying a student visa at DGI. This online system is created to make study permit issuance for foreign visi - tors more effective, efficient, and accountable, and to support the internationalization program of Indonesian higher educa- tion (Patdono in MENRISTEKDIKTI, 2017). Besides, foreign investors who apply for investment visa must apply online for an investment permit from BKPM (Investment Coordinating Board) at https://www.investindonesia.go.id/. However, when applicants received an approval letter, they must apply for an Indonesian visa at different online application system. All of these applica - tions are not integrated into a single window for an application system to apply for an Indonesian visa. According to the Indonesian Statistics Bureau data in 2019, there has been a 14% increase per year between 2014 to 2018, and only a 9% increase per year in the period of 2009 to 2013. It is predicted to be 18 million foreign tourists visiting Indonesia until 2019 (Widowati, 2019). The Indonesian Investment Coor- dinating Board (BKPM) released data about the investment that in the second quarter of 2019, the total Foreign Direct Invest- ment realization climbed 9.6% to IDR 104.9 trillion compared to the same quartal in 2018 (Darwanti, 2020, p. 40). There were 296 http://www.investindonesia.go.id/ http://www.investindonesia.go.id/ Vol. 12 No. 3 November 2021 297 14,027 international students in Indonesia (UNESCO, 2013), while the Ministry of Research, Technology, and Higher Educa - tion has issued 6,967 study permits for the International stu- dents (MENRISTEKDIKTI, 2017). The Indonesian government is now concerned with national economic development. Foreign Direct Investment (FDI) has focused on the Indonesian economic development strategy as it is relatively stable and the most supporting form of capital work for economic growth (Gopalan, Hattari, & Rajan, 2016). Series of policies about economic development and investment is set up to attract foreign investment. In 2018, the Indonesian presi- dent enacted Presidential Regulation Number 20 of 2018 on Foreign Workers. The enactment of this regulation is regarded as the commitment of the Indonesian president for national in- vestment, particularly in regulating foreign workers. This policy enactment is positive in which this policy simplifies the process where companies can more easily get permits for foreign worker employment, and foreign workers can easily obtain their work permits (Suhayati, 2018). In contrast, some people think this policy is contradictory to the policies decreasing the national unemployment rates because it can confiscate job opportunities from the locals (Llewellyn, 2018). Public demand for better visa policy in Indonesia is implied to be a significant variable for integrating visa and residence per- mits into one function. The role of technology supports the e- government in the visa application process. A visa integration with a residence permit will facilitate demands from any aspects: economy, business, investment, and tourism. POTENTIAL POLICY LEARNING AND IMPLEMENTATION This section examines the potential policy learning and its implementation on the integration of Visa and Residence Per- mit into one single provision on Visa as the approval for foreign visitors to enter and stay in Indonesia. In this context, Australia’s policy lessons that have a single provision to enter the country JURNAL STUDI PEMERINTAHAN will be drawn. Both Australia and Indonesia have a significant number of movement of people across the borders. Australia has a long history of immigration that influences its nation-states, policies, and frameworks. People have been mov - ing to Australia for many reasons: political, wars, economic, and education. Moreover, since Australia ratified the 1951 Refugee Convention, it has been dealing with asylum seekers and refugee resettlement issues, and it has made Australia the third country with the highest numbers of refugee resettlement (Inglish, 2018). For so long, Australia has been a destination country for many purposes. In addition to refugee resettlement, cities in Australia have also been favorable destinations for international tourists as Australia is listed in the top 10 most tourists-friendly coun- tries (World Economic Forum, 2019). Seeing a growing trend over the past years, it is expected that there will be 10 million arrivals of foreign tourists in 2019, a 5.2 % increase from the previous year (Molloy, 2019). In terms of education, the Austra- lian Department of Education and Training reported that Aus- tralia became the third most popular English-speaking country for study, following the US and UK (Macionis, Walters, & Kwok, 2018). This indicates the increased number of visa applications such as work visa, business visa, and visitor visa, and may influ - ence the visa policy, regulations, schemes, and processes. These circumstances have probably impacted the immigration policy that is related to the visa issuance. The Australian Migration Act 1958 requires any foreigner to obtain a visa to enter and stay in the country related to policy on visa and residence permits. It mentioned, ‘Subject to this Act, the Minister may grant a non-citizen permission, to be known as a visa, to do either or both of the following: (a) travel to and enter Australia; (b) remain in Australia’ (Australia, 2019). The visa provision also contains the conditions of what the visa holder is and is not allowed to do. It means that there is only one provi - sion, i.e., a visa; an approval to enter and stay in Australia. Aus - tralia provides an online visa application at https://online.im- 298 Vol. 12 No. 3 November 2021 299 mi.gov.au/, and the visa grant notification, in an electronic form, will be sent to the applicant’s email. The visa template contains an application status, visa conditions, visa duration and travel, visa summary, useful links, and the authority who issued the visa. As a result, foreign visitors only need to apply for a visa without a residence permit to be able to enter and stay in that territory. Having analyzed the visa policy in Australia and Indonesia, there are some similarities, differences, and potential lessons. Australia and Indonesia have an influx of foreign visitors through their borders despite different conditions. Vacations are the first reason (47% of the arrivals) for foreign visitors to visit Australia in 2018-2019 (Bureau of Statistics, 2019). Unlike Australia, In- donesia is not a country that ratifies the 1951 Refugee Conven- tion because of its low capacity and legal framework (Suryono, 2019). Indonesia has been dealing with asylum seekers issues because Indonesia is a transit country to continue their journey to the destination countries like Australia. With regard to visa exemptions, the Indonesian government has given visa-free fa- cilities to 169 countries to boost international tourists (Director- ate General of Immigration, 2016). Meanwhile, all passport hold- ers from any country will be required to obtain a visa before entering Australia. Only New Zealand passport holders can get an Australian visa on arrival (Department of Home Affairs, 2018). THE INTEGRATION OF VISA AND RESIDENCE PERMITS POLICY SCENARIO Public service delivery as one of the administration processes cannot be separated from the government bureaucracy. Bureau - cracy has been viewed as a structure to improve organizational efficiency (Cordella & Tempini, 2015). The effectiveness and efficiency of the organizational procedures can derive from the simplification of the system. Functional simplification in infor- mation and communication technology (ICT), proposed by (Cordella and Tempini, 2015, p. 281), ‘embodies the operational JURNAL STUDI PEMERINTAHAN logic that underpins how a technology defines the problem do- main it applies to and the steps that need to be taken in order to solve that problem domain.’ Breaking down the function and problem, this functional simplification concept can support bu - reaucratic practices to reform the administrative process and improve public service delivery, particularly when it is associated with e-government (Cordella & Tempini, 2015). Another concept of system simplification is an online one- stop government implementation (Hamad et al., 2017) which public authorities are interconnected in one integrated system, and citizens can apply for services in one access point. This inte - gration can be successfully implemented through the reengine- ering of public administration processes into online services. Simi- larly, the implementation of a One-Stop Integrated Service in the Indonesian context aims to reform the public service by sim - plifying the application processes where all related public service agencies are located in the same site, or by integrating all related processes into one system (Gaus et al., 2017). More specifically, the example of a simplified concept of immigration permit mecha- nism derives from the Australian immigration policy. A Visa is only needed when foreign visitors want to enter and stay in Aus - tralia. There is no provision obliging foreign visitors to gain a Residence Permit. For example, the visa detail for Business In- novation and Investment and Temporary Work in Australia does not mention a Residence Permit, only the length of time that foreign visitors can stay (Home Affairs, 2019). The concepts of simplification explained above can be in line with the spirit of bureaucratic reform in Indonesia. This reform is strongly influenced by the idea of New Public Management (NPM) in which the governmental agencies manage and regu- late in order to provide a professional, accountable, effective and efficient bureaucratic system so that quality public service can be delivered, and democratic management can be established to meet the challenges of the twenty-first century (Gaus et al., 2017). Also, as the implication of the Presidential Regulation Number 20 of 300 Vol. 12 No. 3 November 2021 301 2018 on Foreign Workers indicates, the procedural simplifica- tion of the Indonesian Visa, Residence Permit, and Re-Entry Permit issuance for foreign visitors with working purposes can be viewed as an example of bureaucratic reform. The functional integration of Visa and Residence Permits into one single Visa provision as the approval for foreign visitors to enter and stay in Indonesia can be implemented as well as a new policy and its framework. Borrowing and adopting terms from (Bowen et al., 2009, p. 453) on a feasibility study, practicality refers to what extent a new system can be processed with the existing one. As previously discussed, the DGI has developed the Management Information System of Immigration (SIMKIM) as the implication of e-government to accommodate public service delivery and law enforcement functions, with innovations and improvement toward effectiveness and efficiency. The introduction of one single provision on visa as the approval for foreign visitors to enter and permit to stay in Indonesia can be merged into one framework and integrated with the current system. There will not be any significant changes in the existing system, yet it will bring significant improvement to the process of visa issuance system. The DGI has simplified the visa application process for pro- fessional workers, but another foreign visitor is required to apply for Visa, Residence Permit, and Re-Entry Permit separately. Re- sponding to this situation, it is essential to set up a scenario for integration of visa and residence permit policy. At the first stage, the identification of the problem (from Public) including data are collected and analysed, such as uncertainty in visa and resi- dence permits application process, number of system errors, types of complaints, processing time average, and numbers of agencies involved process. The online application process for work visa, which has been simplified into a single visa provision, applied at selected airports, and issued electronic residence permits, might be reviewed to support the first stage. The next step is to learn from the visa policy and framework of the Department of Home JURNAL STUDI PEMERINTAHAN Affairs, Australia in relation to a procedure and requirements, an information system, an application process, stakeholders’ analysis, types of visa, and electronic visa formats. Referring to the first and second stages, it is important to design a legal and policy framework about requirements, an application process, visa grant procedures, mitigation plans, visa format designs, and an analysis of stakeholders. The legal and policy framework will instigate a design of an online application process and the use of technology for the in- formation system and network. Building an information system for visa and residence permits application process is intercon- nected with other existing systems such as Border Control Man - agement (BCM) system, Enhanced Cekal System (ECS) or move- ment alert list, Passenger’s Movement System (PMS), Interpol I - 24/7 system, and Advanced Passengers Information System (APIS). FIGURE 5. A SCENARIO OF INTEGRATION OF VISA AND RESIDENCE PERMIT POLICY Source: Authors and adopted from (Jann & Wegrich, 2017; Sidney, 2017) Figure 5 demonstrates the process of integration of visa and residence permit policy from agenda setting, policy learning, ICT design, trial and error, to an implementation and evaluation. At an ICT design stage, it should integrate interoperable applica- tions from other agencies such as Ministry of Manpower, Minis- 302 Vol. 12 No. 3 November 2021 303 try of Education, Ministry of Investment. The application sys- tem must consider a citizen-centric app development such as user interface, user friendliness, and network quality. Visa applica- tion review stage is to verify and validate applicant’s required documents referring to the database from those agencies. This integrated system will benefit foreign applicants to apply for an Indonesian visa all at once. FIGURE 6. ONLINE VISA APPLICATION PROCESS Source: Authors After designing steps are completed, trial and error will be an integral part of evaluating and improving areas. At last, it is to roll out the new visa policy where foreign visitors will apply for an online visa application which includes visa, residence permits, and multiple reentries permits. The electronic visa grant notifi - cation will be sent to an email of applicants, and they are not required to apply for a residence permit to an immigration of- fice. THE BENEFITS OF ONE SINGLE VISA PROVISION Integrating means to reunite separated parts into one part. Borrowing the principle of Business Process Reengineering (BPR), an organization focuses on an integration of entire process, inte - grated system, unified activities, structures, principles, tools which result in effectiveness, productivity, behavioral change (Bhaskar, 2018). As a continuous process towards organizational develop- ment, this BPR implementation has key success factors and fail - ure indicators. It means that integrating two processes into one single process will unify the two different sectional goals into a broader goal of a whole process. Another step in BPR is reorga - nization and reduction of any units in an organization to im- prove efficiency in public service delivery (Rinaldi, Montanari, JURNAL STUDI PEMERINTAHAN & Bottani, 2015). The ineffectiveness and inefficiency are caused by inevitable delays and errors when a task is carried out by sepa- rated a person/unit, in particularly the application process of Visa and Residence Permits in Indonesia. FIGURE 7. PROPOSED TEMPLATES OF AN INTEGRATION OF VISA AND RESIDENCE PERMIT Directorate General of Immigration Indonesia Visa Grant Notification 304 Visa Information Status : Granted Types of Visa : B211 (Single Entry) Visa Number : … Visa Conditions/Purposes : Social Visa. Work Prohibition. Join a Training Program/Short Course. Join a Seminar/Conference/Meeting/Workshop. Date of Issue : … Place of Issue : Indonesian Embassy in Singapore Personal Data Full Name : … Passport Number : … Date of Birth : … Date of Expiry (Passport) : … Place of Issue (Passport) : … Travel Duration Information Type of Permits : Temporary Residence Permit Visa Validity or Length of Stay : … Visa Entry : Multiple Entry Must Arrive After (date) : … Must Leave Before (date) : … Immigration Attaché Indonesian Embassy in Singapore Contact Number: Email: Directorate General of Immigration Contact Number: Email: Warning: If overstaying your visa (below 60 days), you will be imposed on a penalty Rp1.000.000/day. If overstaying your visa (more than 60 days), you will be imposed on a deportation order and denied entry (listed on the movement alert list). Source: Authors and adopted from Indonesian Immigration Act No.6 of 2011 and Regulation of Minister of Law and Human Rights No.51 of 2016 about Indonesian Visa Policy. Vol. 12 No. 3 November 2021 305 The process of the application of these two different approval documents encompasses data input, process, and output either manually and/or electronically. There is potential for delays and errors caused by humans or the system. Those two different ap - proval documents will be unified as a single approval to both enter and stay in Indonesia by doing such functional integra- tion. As a result, errors can be decreased so that the process of the issuance of Visa will be more effective. Also, the number of officers, the delays, and the documentation file (archive) can be decreased so that the process will be more efficient. The follow- ing figure is the proposed template of an Indonesian Visa, as a result of an integration of Visa and Residence Permit presented in one page of A4-sized paper. Second, integrating two different processes into one system means decreasing the number of officers from related agencies in issuing permits. In the concept of online one-stop service, it focuses on an operation, interoperability, and integration of whole process including from other agencies by an electronic service, at anytime and anywhere (Hamad et al., 2017). In the current procedure, foreign visitors need to apply for a Visa in their home country and obtain their Residence Permit in Indonesia (immi- gration checkpoints or local immigration offices). The contacts between the applicants and officers are inevitable. By such func - tional integration of Visa and Residence Permits, they only ap- ply for a Visa in their home country that functions as the ap- proval for both entering and staying in Indonesia. Similarly, integrating two different processes aims to unite two or more divisions/units. It will avoid overlapping authori- ties and fragmented policy and legal frameworks from different agencies. Visa application requires foreign visitors to lodge re- quired documents issued by other related agencies like Manpower Indonesia, Ministry of Education, and Investment Coordinat- ing Board. In the context of the DGI, Visa and Residence Per- mits are two different businesses carried on by two different divi- sions. Visas are authorized by the Directorate of Immigration JURNAL STUDI PEMERINTAHAN Documents and Border Control, while Residence Permits are authorized by the Directorate of Immigration Residence Permit (Directorate General of Immigration, 2019). By doing such func- tional integration between Visa and Residence Permits, includ- ing required documents from other authorities, it will be regu- lated and authorized by only one directorate in one application system. Downsizing the organizational structure in the DGI and integrated system from other agencies will result in the reduc- tion of costs and will lead to an increase in the effectiveness, efficiency, productivity, and competitiveness of the public ser- vice delivery and security system in the organization. CONCLUSION This study assumes the DGI Indonesia can successfully imple- ment this functional integration by implementing the policy stages. The integration of visa and residence permits supports the proponent factors such as the current policies, systems, and practicality of this functional integration and the public demand for improved public service delivery. This revolutionary concept will benefit the organization towards accountability, simplicity, effectiveness, and efficiency of public service delivery to mini - mize overlapping authorities, fragmented policy, and dispute le - gal implementation. Also, downsizing the organization means decreasing the number of employees from different agencies, which can minimize the power abuse by officers, such as corrup - tion and bribery. Table 2 show the simplification of visa applica- tion process for an electronic visa, including a residence permit, by an online service based on the website and app platform. Business Project Reengineering (BPR) and the other concepts of simplification have been discussed in the literature. It has been clearly revealed that simplifying the procedure in public service delivery has radically contributed to organizational effectiveness and efficiency. There should no longer be a differentiation be- tween Visa and Residence Permits, and electronic forms replace visa label. Indonesian Visa and Residence Permits should be func- 306 Vol. 12 No. 3 November 2021 307 tionally integrated into one single provision. There should be only one single Visa provision as the only approval for foreign visitors to both enter and stay in the Indonesia’s territory. As a result, foreign visitors only need to apply for and obtain a Visa before entering and staying in Indonesia. This study recommends that online onshore and offshore visa application process should be developed in terms of integrating an application system from other authorized agencies, and standard visa templates. No. Types of Visa TABLE 2. ONE VISA PROVISION AND ELECTRONIC VISA Places of Issue Forms of Visa Visa Extension 1. Visitor Visa Integrated with Visitor Residence Permit (ITK) Visa Free Facility Points of Entry (airports, seaports, border crossing stations) with an online pre-authorization. Electronic Entry Stamp upon arrival No Extension Visa on Arrival (VOA) B213 Points of Entry with an online pre- authorization. Electronic Entry Stamp upon arrival No Extension Visitor Visa (Single Entry) B211 Visa Online Application by Onshore and Offshore at DGI. Electronic Visa Sent to Email No Extension Visitor Visa (Multiple Entry) D212 Visa Online Application by Onshore and Offshore at DGI. Electronic Visa Sent to Email No Extension 2 Integration of Temporary Residence Visa (Vitas), Temporary Residence Permit (Itas), Multiple Reentry Permit (MREP) Visa Index C311- C320 Visa Online Application by Onshore and Offshore at DGI. Electronic Visa Sent to Email No Extension Source: Authors and adopted from Indonesian Immigration Act Number 6 of 2011, Government Regulation Number 31 of 2013, Regulation of Ministry of Law and Human Rights Number 27 of 2014, Regulation of Ministry of Law and Human Rights Number 16 of 2018, Letter of Directorate General of Immigration Number IMI-UM.01.01-5713 of 2018. 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