JURNAL DOI: https://doi.org/10.18196/jgp.112117 E-Government Institutional Capacity in Provincial Governments of West-Java and East-Java YOGI SUWARNO*1 NILA KURNIA WATI2 ABSTRACT: This study aims to analyze the institutional capacity of provincial governments of West-Java and East-Java on the implementation of Indonesian e-govern- ment hence providing lessons learned for the government in developing e- government institutions. It uses a qualitative method with a case study ap- proach to explore the implementation of e-government in local governments. This research focuses on five dimensions of the action environment, public sector institutions, task networks, organizations and human resources, and the Chief Information Officer (CIO). The results showed that the action environ- ment dimension of each region has different social and economic profiles so that the literacy level of the population in responding to e-government also varies. Unlike the East Java province, the West Java province has specific rules and procedures as well as clear standards and planning related to e-govern- mentonthe second and third dimensions. Yet,the West Java province has not determined particular regulation on task and duty of its Office of Communica- tionand Information. The aspectof thehumanresource dimensionshowsthat the professional ICT group has not yet been fulfilled and there are still many positionsrelated to IT are occupied by thosewhohave no IT background. With regardto CIOs, only West Javaprovincethat has specific rulesregarding CIOs. Keywords: Institutional capacity; E-Government; Innovation at Local Govern- ment ABSTRAK: Penelitian ini bertujuan untuk menganalisa kapasitas kelembagaan pemerintah provinsi di Jawa Barat dan Jawa Timur dalam pelaksanaan e-government di Indonesia agar dapat memberikan lesson learned bagi pemerintah dalam menyelenggarakan dan mengembangkan kelembagaan e-government. Penelitian ini menggunakan metode kualitatif dengan pendekatan studi kasus untuk mengeksplorasi secara mendalam terkait penyelenggaraan e-government di pemerintahan daerah. Penelitian ini memfokuskan pada beberapa aspek dalam kapasitas kelembagaan yang meliputi dimensi lingkungan aksi, kelembagaan sektor publik, jaringan tugas, organisasi dan sumber daya manusia termasuk Chief Information Officer (CIO). Hasil penelitian menunjukkan bahwa, pada aspek dimensi lingkungan aksi setiap daerah memiliki perbedaan profil sosial, STUDI PEMERINTAHAN (JOURNAL OF GOV ERN MEN T & POLITICS) 185 AFFILIATION: 1 Politeknik STIA LAN Jakarta 2 Politeknik STIA LAN Jakarta CORRESPONDENCE: (yogi@stialan.ac.id) CITATION: Suwarno, Y & Wati, N.K. (2020). E-Government Institutional Capacity in Provincial Governments of West-Java and East-Java. Jurnal Studi Pemerintahan. 11(2). 185-214 ARTICLE HISTORY: Received: April 13th, 2020 Accepted: May 29th, 2020 Vol. 11 No. 2 July 2020 ekonomidan politiksehingga tingkat literasi pendudukdalam merespon e-governmnet juga berbeda-beda. Untuk aspek kedua dan tiga, provinsi Jawa Barat telah memiliki aturan dan prosedur khusus yang jelas terkait e-government, tidak seperti provinsi Jawa Timur. Namun, provinsi Jawa Barat belum memiliki aturan terkait tugaspokokdan fungsi Dinas Komunikasi dan Informatika. Aspek dimensi sumber daya manusia menunjukkan bahwa kelompok ICT professional masih belum terpenuhi serta masih banyak jabatan yang seharusnya diduduki oleh SDM yang memiliki kompetensi IT justru diduduki oleh SDM yang tidak memiliki latar belakang IT. Terkait dengan CIO, hanya provinsi Jawa Barat yang sudah memiliki aturan khusus tentang CIO. Kata Kunci: Kapasitas Kelembagaan; E-Government; Inovasi pada Pemerintah Daerah INTRODUCTION E-government is a communication technology-based gover- nance system that aims to improve public services. Through the implementation of e-government, the public has the opportu- nity to oversee the performance and quality of public services which lead to a state of good and open government in Indone- sia. Atthegloballevel, Indonesiabelongstocountrieswithhigh adaptability to e-government. This is demonstrated by the achievement of the High EPI (E- Participation Index) category in the E-government Development Index (EDGI) survey in 2018 released by the UN. Unfortunately, at the regional level, such achievement is not yet comparable with neighboring countries performance such as Malaysia, Thailand and the Philippines (UNITED NATIONS, 2018). The basis for e-government implementation in Indonesia is the Presidential Instruction No.3 of 2003 concerning National Policies and Strategies for E-Government Development. The implementation of these instructions was consolidated by the issuance of Ministerial Regulation No. 41 / PER / MEN.KOMIN- FO / 11/2007 of the 2007 General Guidelines for Governance ofNational Information and Communication Technology Man- agement. Furthermore, in 2018 the Presidential Regulation Number 95 of 2018was issuedconcerning Electronic-Based Gov- ernment Systems. This regulation consolidates the legal basis for the government in implementing electronic-based govern- ment systems as well as for increasing the integration and effi- ciency of electronic-based government systems. Regulation of 186 JURN AL STUDI PEMERINTAHAN (JOURNAL OF GOV ERN MEN T & POLITICS) the Minister of Administrative Reform and Bureaucratic Re- form Number 5 of 2018 concerning Guidelines for Evaluating Electronic- BasedGovernment Systems is a reference in evaluat- ingtheimplementation of electronic-based government systems. In Indonesia a key challenge seems to be more the concrete willingness of bureaucracy to open its mind for a new under- standing of professionalism and to follow a reform agenda (Behrens, 2012). Moreover, he explained that the current orga- nizational setting, work standards and important structural com- ponents such as the system of remuneration and incentives do not support the building of the necessary basis for a more pro- fessional, citizen centered and democratic governance (Behrens, 2012). The 2015-2019 bureaucratic reform agenda document implies that e-government is still not running effectively and efficiently so that a strategy for strengthening e- government policies that governs e-government institutions is needed (PAN, 2016). The e-government institution becomes one of the important points because it is closely related to the implementation of e- government in government, especially in the context of local government. Institution is closely related totheexistence of an authorized organization and is responsible for the development and utilization of ICT. However, institutional capacity has not been well developed in all local governments even though rel- evant regulations from the central government were made to standardize it. This can be seen from the results of the evalua- tionof e-government implementationthat hasbeencarriedout by the Directorate General of Information Applications of the Ministry of Communication and Information through the e- Government Rating Indonesia (Pemeringkatan e- Government Indonesia or PeGI) activity. The PeGI activities aimtoprovidea reference for the development and utilization of Information and Communication Technology (ICT) in the government en- vironment, encourage increased use of ICT and to obtain a map of conditions for the use of ICT nationally. The results of the 187 Vol. 11 No. 2 July 2020 188 evaluation of e-government implementation through PeGI ac- tivities, especially in the three-year institutional dimension (2013- 2015) show that the provincial governments received the lowest institutional dimension index compared to the three ministries and the Non-ministry, as can be seen in the figure below. FIGURE 1. PEGI INSTITUTIONAL DIMENSION INDEX FOR 2013-2015 AT THE MINISTRY, NON-MINISTRY AND PROVINCIAL LEVELS Source: Ministry of Communication and Information (2019) E-government has an important role in the administration of local government, because local governments are an exten- sion of the central government and deal with the community directly, one of which is the regional government at the provin- cial level. The results of the PeGI at the Provincial level in 2015 showed that West Java and East Java are among the top three, behind Jakarta. The following is the ranking and average value of PeGI in the three selected provinces. TABLE 1. E-GOVERNMENT RANK FOR SELECTED PROVINCES IN INDONESIA 2015 Rank Province Average 1 Jakarta 3,39 2 West Java 3,07 3 East Java 3,01 Source: Ministry of Communication and Information (2019) JURN AL STUDI PEMERINTAHAN (JOURNAL OF GOV ERN MEN T & POLITICS) However, PeGI activities have only been carried out over a period of eight years, from 2007 to 2015. Yet, in 2015, the rank- ing datafrom PeGI covers majority of institutions like 27 minis- tries, 21 non- ministries 20 provinces. In 2018, an effort to im- prove the quality of government administration through the use of ICT in an effective, efficient and sustainable manner, and strengthen the legal basis for the implementation of e-gov- ernment evaluation was made. Thus, a regulation from Minis- ter of Administrative Reform and Bureaucratic Reform of the Republic of Indonesia was issued. It is the regulation no 5 of 2018 concerning Guidelines for Evaluating Electronic-Based Government Systems. Based on this rule, e- government evalua- tion is no longer optional but must be carried out by all Minis- tries, Institutions and Local Governments. Based on this regulation, e-government evaluation is no longer under the authority of the Ministry of Communication and Information, but rather distributed among central and local institutions. Thisevaluation is carriedoutthroughindependent and external evaluations. Independent evaluations are carried out by internal evaluators, determined by respective institutions. Whereas external evaluations are carried out by external evalu- ators, determined by the Minister of Bureaucracy Reform. The Ministry of Communication and Information emphasizes e-gov- ernment through five dimensions, namely policy, institutional, infrastructure, application and planning. Meanwhile the Minis- try of Bureaucracy Reform examines e-government through different dimensions (domains), namely internal policy, gover- nance, and services. This domain is sub-divided into several as- pects and indicators. Institutionalization is one of the dimensions used in both evaluations. In the implementation of e-government, strength- ening policies that govern e-government institutions is one of the strategies in supporting business processes in government and development. Therefore, the institution becomes one of the government priorities in 2015-2019. In PeGI, institution is 189 Vol. 11 No. 2 July 2020 190 one of the dimensions which includes indicators of organiza- tional structure, work systems and procedures, human resources, Chief Information Officer (CIO) and ICT Human Resource Development. Whereas in the Electronic-Based Government Systems (SPBE) evaluation, institutional is the third aspect con- sisting of the Electronic-Based Government Systems (SPBE) steer- ing team of government agencies and integrated business pro- cess innovations. This shows that, e-government institutions not only contain indicators in the form of rules and organizational structure but also include human resources. Prior research of e-government institutional capacity carried out by Moon, M. J and Norris, D. F. They explore the effects of managerial innovation on city government in e-government adoption. Oneof which shows how the adoption of city govern- ment is determined by government capacity and institutional characteristics such as city size and type of government and ex- amines the relationship between e- government and its outcome with one focus being how e-government outcomes associated with government capacity and institutional characteristics. The resultsshowthatcitysize is themost interesting determinant in city e-government adoption and different levels of e- government adoption can produce different results (Moon & Norris, 2005). Other research related to the topic was carried out by Tolbert, et all. They examined the ranking of American countries in the areas of fast-growing policy, e-government, and countries with the most sophisticated and comprehensive policies over five years. Theresultsshowthatinstitutionalcapacity is importantforcon- tinuous innovation. They also found a relationship of reinven- tion in the state government and IT institutions that showed a more general orientation towards government reform and modernization (Tolbert et al., 2008). Other researchcarriedout by Schuppan. He examined the different institutional and cul- tural contexts when implementing e-government in sub-Saharan Africa. Theresults showedthat Africa’s institutional conditions require more preparation and time to implement e- government JURN AL STUDI PEMERINTAHAN (JOURNAL OF GOV ERN MEN T & POLITICS) compared to developed countries. The argument that e-govern- ment projects in Africa have generally failed is naive since it is based on administrative experience from industrialized coun- tries. The development of e-government cooperation needs to be focused on capacity building. Therefore e-government pilot projects must be used to build relevant management competen- cies beyond the application of a simple IT system (Schuppan, 2009). While prior research on e- government in Indonesia car- ried out by (Wibowo et al., 2014). They examined the growth of e-government in the local level especially at city level. They found that thecity government’s commitment for continuing theeasy service development to the community is a key to the imple- mentation of e-government in the scope of city government. Based on the institutional aspect, the researchers want to know further the institutional capacity of local government e- government especially in the provinces of West Java and East Java based on the research question i.e. how is the e-govern- ment institutional capacity of thetwoprovinces in relation to the aforementioned five dimensions. The purpose of the re- search is to analyze, describe and compare e-government institu- tional capacity in both provinces. This research is expected to contribute in the development of e-government institutional capacity among local governments. LITERATURE REVIEW E-government is an approach for more effective and efficient governance. The e-government transformation and rationality in the public sector is through the use of Information and Com- munication Technology (ICT) that is able to connect all stake- holders in making transactions. It can increase the public ser- vices’ reach and quality, and improve government efficiency, accountability and transparency. In accordance with the objec- tives of e-government, namely to improve the quality of public services effectively and efficiently through the use of informa- tion technology (IT) in the administration of government 191 Vol. 11 No. 2 July 2020 192 (Schware & Deane, 2003). The e-government objectives are explained in Presidential Instruction No. 3 of 2003 concerning national policies and strategies for e-government development. There are four types of relationship that developed in the implementation of e-government, including (1) Government to Citizens / Government to Customer (G2C) where interaction between government and citizens/customers takes place to implement andbuild ITportfolios, (2) Government to Business (G2B) where both parties connect to each other in relation to business affairs utilizing IT, (3) Government to Government (G2G) where government institutions from all layers collabo- rate and work together based on an integrated database, and lastly (4) Government to Employees (G2E) where relations be- tween the two is established to improve the performance and welfare of employees working in a number of governments as community services (Indrajit, 2002). Institutional capacity is the ability of aninstitution to achieve its stated goals. It encompasses three things, first the task func- tion which the institution must have the ability to do, second theresources (human, technical andfinancial) andthe other is structures owned (Bhagavan, M. R. and Virgin, 2004). The in- stitutional capacity hasthree points, namely theenabling envi- ronment, the organizational level and individual level. The en- abling environment is the broad social system (rules, laws, poli- cies, power relations and social norms) within which people and organizations functions. The organizational level refers to the internal structure, policies and procedures that determine an organization’s effectiveness. Whereas the individual level are the skills, experience and knowledge that allow each person to per- form (UNDP, 2009). There are five dimensions of institutional capacity namely (1) Action-Environment Dimensions that refers to the stability of the social, economic and political conditions of a country where the public sector carries out its activities, (2) Public Sector Institutional Context, that refers to the overall rules and proce- JURN AL STUDI PEMERINTAHAN (JOURNAL OF GOV ERN MEN T & POLITICS) dures governing organizations and employees throughout the country, (3) Thetask network dimensions that arerelated to an organization’s ability to unite other organizations in carrying out certain tasks. (4) The organizational dimension that refers to the structure, processes, organizational resources and man- agement style adopted by members of the organization, and (5) Human resources which are related to the ability of organiza- tions to recruit, utilize, train and retain employees, especially those who are managerially, professionally and technically ca- pable (Hilderbrand & Grindle, 1997). Unfortunately, some lo- cal governments in Indonesia have to deal with a number of obstacles in implementing e-government such as human re- sources, budgetusedandinfrastructure(Wulandari&Tirtariandi El Anshori, 2012). E-government institutional capacity can also be interpreted as institution modernization that facilitates innovation (Tolbert et al., 2008). Therefore e-government institutional capacity can be defined as the ability of the institution to achieve e-govern- ment goals through the dimensions of the action environment, the institutional context of the public sector, the dimension of the task network, the dimension of the organization, and the dimension of resources. RESEARCH METHOD This research used a qualitative method with a case study approach. Qualitative methods were used to understand deeply about research questions and explore answers for later conclu- sions (Cresswel, 2013). Whereas the case study approach was taken with consideration that it would be easier to explore in depth the chosen research theme (Sugiyono, 2014), namely the institutional capacity of local government e-government. This researchutilizedprimary andsecondary datatosupport the re- search. The secondary data was obtained through interview, observation and document review. Individuals in charge of e- government in each province were selected to beinterviewed, 193 Vol. 11 No. 2 July 2020 194 as they are the most knowledgeable persons in respective office. The interviews were conducted during April 2019 in Bandung and Surabaya. In addition, to make research more relevant, re- searchers limit the study by determining the focus of research determined based on indicators that affect institutional capacity referring tofivedimensions (Hilderbrand&Grindle, 1997). RESULTS AND DISCUSSION RESULTS Action-Environment Dimensions The results show that each province has different social and economic conditions. In order to see social condition as one aspect of the institutional dimensions of government indicators, thesocialconditionstakeninthisstudyarethenumber of popu- lations, the level of community education, and the level of pov - erty. It alsocomparesthenumber of civilservants andadminis- trative areas of government in each province, to find out how their capacity to provide services to the community. The results showed that population in East Java is comparably smaller to those in West Java, as can be seen in the table below. TABLE 2. COMPARISON OF POPULATION DENSITY IN WEST JAVA AND EAST JAVA PROVINCES Item West Java East Java Population 48.037.830 39.292.972 Population Density per Km2 1.358 822 Source: (BPS, 2018a) and (BPS, 2018b) TABLE 3. COMPARISON THE LEVEL OF COMMUNITY EDUCATION IN WEST JAVA AND EAST JAVA PROVINCES Item West Java East Java No Schooling 4.195.137 1.874.050 Primary School 10.018.939 7.996.844 Junior High School 8.139.625 6.615.302 Senior High School 9.718.825 7.495.293 Diploma I/II/III/Academy/University 3.280.665 2.430.787 Source: (BPS, 2018a) and (BPS, 2018b) JURN AL STUDI PEMERINTAHAN (JOURNAL OF GOV ERN MEN T & POLITICS) In addition, the results of the study show that the province with the most people completing their education was West Java Province. In fact, the number of people in West Java who com- pleted their education at the Diploma I/II/III/Academy/Uni- versity level is approximately one million more than East Java province, as can be seen in the table 3. With regard to poverty levels, the results of the study showed that in 2017 the Province of East Java had the highest number of poor people compared East Javaprovinces, as eseeninthe table 4. TABLE 4 COMPARISON OF THE POOR POPULATION IN WEST JAVA AND EAST JAVA IN 2015-2017 Year West Java Province Number of Population East Java Province Number of Population 2015 4.485.650 9,57 4.775.970 12,28 2016 4.168.110 8,77 4.638.530 11,85 2017 3.774.410 7,83 4.405.300 11,20 Source: (BPS, 2018a) The social conditions also seen through comparing the num- ber of civil servants and administrative areas of government in each province to find out their capacity to provide services to thecommunity. Theresultsshowthat East Javahasthehigher capacity to provide service to the community than West Java, because the number of civil servants and administrative areas is East Java higher than West Java, even though the number of populations in East Java is lower than West Java as can be seen in the table below. TABLE 5COMPARISON OF CAPACITY TO PROVIDE SERVICES TO THE COMMUNITY IN W EST JAVA AND EAST JAVA IN 2 01 5 - 20 1 7 195 Province Number of Civil Servants Administrative Areas Population West Java 331.327 6.590 48.037.830 East Java 414.314 9.167 39.292.972 Source: (BPS, 2018a) and (BPS, 2018b) Vol. 11 No. 2 July 2020 196 In terms of economic conditions, each province’s achieve- ment was measured by Gross Regional Domestic Product (GRDP). The provincial GRDP illustrates the ability of a region tocreateaddedvalue at agiventime. GRDPpresentsthecom- position of value-added data broken down by source of economic activity (sectoral), that is, all components of gross value added that can be created by economic sectors for their various pro- duction activities and according to their user components, namely the use of these added values. Within a period of three years, namely 2015-2017, the GRDP based on current prices and constant prices in the provinces of West Java and East Java has increased every year, where East Java Province is better than West Java Province as can be seen in the table below. TABLE 6 COMPARISON OF GROSS REGIONAL DOMESTIC PRODUCT (GRDP) IN WEST JAVA AND EAST JAVA IN 2015- 2017 West Java East Java Years Current Market Prices Constant Market Prices Current Market Prices Constant Market Prices 2015 1.524.974,83 1.207.232,34 1.691.477,06 1.331.376,10 2016 1.652.757,82 1.275.527,64 1.857.597,7 1.405.561,0 2017 1.786.092,38 1.342.953,38 2.019.199,7 1.482.147,6 Source: (BPS, 2018a) and (BPS, 2018b) Differences in social and economic conditions as above af- fect the level of population literacy in an area so that this also affects the level of community response to the implementation of e-government. It is supported by the results of an interview conducted with one of the informants, Dian Istanti, S. Sos., M.AP asthe Head of the Governance Section of the E-Govern- ment Field of Communication and Information Office of West Java Province who revealed that: “Community literacy greatly influences their response to the development of e-government. In this case we provide several programs for the community such as digital service cars, usually we visit schools or villages to pro- mote digital literacy, and we also talk about healthy internet to JURN AL STUDI PEMERINTAHAN (JOURNAL OF GOV ERN MEN T & POLITICS) pupils. There is a section within our organization that handles this, namely Public Information and Communication “(Inter- view, 10 April 2019). Public Sector Institutional Context In terms of public sector institutional context, West Java Prov- ince already has specific rules and procedures governing the gov- ernance of e- government development while East Java Province hasn’t. The existing policy in East Java Province are still too broad in many ways, namely the Governor of East Java Regulation No. 48 of 2015 challenge Electronic System and Transaction Governance in the Regional Government of East Java Prov- ince. There is no specific policy that regulates the IT director in East Java Province. In addition, the Government of East Java Province also does not have regulations related to data centers, but data centers already exist in East Java Province and are man- aged by the Office of Communication and Information. The comparison of specific rules between West Java Province and East Java Province in relationto E-Governmentcanbeseenin the table 7. TABLE 7. THE COMPARISON OF SPECIFIC RULES BETWEEN WEST JAVA PROVINCE AND EAST JAVA PROVINCE RELATING E- GOVERNMENT 197 No Item West Java Province East Java Province 1 ICT Governance  Governor Regulation 86/2018 concerning Electronic Government-Based Government System Governance  Governor Regulation 87/2018 concerning Command Center Governance  Governor Regulation 48/2015 concerning Electronic System and Transaction in Provincial Government of East Java 2 IT Steering Policy  Governor Decree No. 049/Kep.1305- Disko minfo/2018 concerning Govern ment Chief Information Officer of West Java Province Government  Governor Decree concerning IT Steering Committee - Vol. 11 No. 2 July 2020 198 Source:Adapted from Communicationand Information Officeof West Java ProvinceandEast Java Province Theresult of thisstudy alsoshowsthedocument of the Elec- tronic Government-Based Government System of the West Java No Item West Java Province East Java Province 3 IT Institutional Policy  Governor Decree No. 049/Kep.1305- Disko minfo/2018 concerning Govern ment Chief Information Officer of West Java Province Government  Governor Decree concerning IT Steering Committee  Governor Decree No. 049/Kep.1306 - Disko minfo/2018 concerning Comman d Center Management  Governor Regulation 86/2018 concerning Governance on Electronic Government- Based Government System  Governor Regulation 87/2018 concerning Command Center Governance  Service Head Decree concerning Website Management  Governor Regulation 48/2015 concerning Electronic System and Transaction in Provincial Government of East Java  Circular Letter ofLocal Government Secretary No. 065/561/105/2016 concerning Standardization of Information System and ICT Materials. 4 One Data Management Policy  Local Government Regulation 24/2012 concerningOne Data Development  Governor Regulation 80/2015 concerning Implementation Guidance of Local Government Regulation24/2012 concerning One Data Development  Governor Regulation 68/2018 concerning One Data in East Java 5 Application Integration Policy  Local Government Regulation 29/2010 concerning the Implementation of Communication and Informatics  Agreement between the West Java Provincial GovernmentandLocalHouse of Representative concerning Integrated Action Planon Corruption Eradication 2017-2018  Governor Regulation 30/2016 concerning Masterplan ofICTin ProvincialGovernment of East Java 2016-2018 6 Procurement Policy  Governor Regulation 60/2013 concerning Guidance of E-procurement Implementation  Governor Regulation 9/2015 concerning Procurement Unit  Governor Regulation 38/2018 concerning Procurement Implementation 7 ICT Masterplan Policy  Local Government Regulation 29/2010 concerning the Implementation of Communication and Informatics  Governor Regulation 86/2018 concerning Governance on Electronic Government - Based Government System  Governor Regulation 30/2016 concerning Masterplan ofICTin ProvincialGovernment of East Java 2016-2018 8 ICT Budget Policy Local Government Regulation 8/2017 concerning Changes on Local Government Regulation 25/2013 concerning the 2013- 2018 West Java Middle-Term Development Plan Local Government Regulation 1/2017 concerning Changes on Local Government Regulation 3/2014 concerning the 2014-2019 East Java Middle-Term Development Plan JURN AL STUDI PEMERINTAHAN (JOURNAL OF GOV ERN MEN T & POLITICS) Provincial Government 2019-2023 that becomes the results of the SPBE Independent Evaluation conducted by the Internal Evaluation Team in 2018. It results the IT policy aspect of the West Java Provincial Government to receive a score of 2.71. It shows that the availability of IT policies in the Regional Gov- ernment of West Java Province is good enough. This was also strengthened by the results of an interview with Dian Istanti, S. Sos., M.AP who revealed that “for the standard operation pro- cedure itself actually already exists but also there are still some thatare still in process “(Interview, 10 April 2019). He further explained that “if there are actually quite a lot of institutional policies, like thedecreeissuedbythehead of thedepartmentin making teams with volunteers is also one of them” (Interview, 10 April 2019). Task Network Dimensions The task network dimension can be seen from the standard- ization and planning in implementing e-government. The re- sult shows that, each province already has a standard in the use of ICT. In West Java Province, the study shows that there has been already a standardization in the website management, data center, as explained by Dian Istanti, S. Sos., M.AP that “website standardization exists for regional equipment, there is also a stan- dard command center and data center but it is still in the sub- mission process. Governor Regulation No 86 concerning SPBE governanceregulates regional apparatuses so that the standards are thesame. If you want to build anapplication youmust have permission from the Information and Communication Agency “, (Interview, 10 April 2019). This explanation is supported by the Governor Regulation No. 86 regarding SPBE Governance, which explains that “SPBE governance is a framework that ensures the implementation, direction and control in the integrated application of SPBE”. Therefore, the results of the study indicate that for now, the standardization of the use of ICTs in West Java Province is still 199 Vol. 11 No. 2 July 2020 200 regulated generally in West Java Provincial Governor Regula- tion No. 86 concerning SPBE Governance, and special regula- tions especially related to data center standardization are still in the process of filing. Whereas in East Java Province, IT-related standardization is regulated based on the Notice of the Regional Secretary of the Government of East Java Province Number 065/561/105/2016 concerning Information System and ICT Content Standardiza- tion in the East Java Provincial Government Environment and General Guidelines for Information System and ICT Content Standardization for SKPD, UPT and Non-Structural Institutions in the Government of East Java Province. This guideline pro- vides standards for administrators of government websites in the Government of East Java Province in carrying out website management and improving quality public information services. In this guideline, a menu or content which must be standard in the Regional Performance Unit (SKPD) website is explained. In addition tostandardization, planning is also an important indicator in the task network dimension. The results showed that, West Java Province released the SPBE plan document in the 2019-2023 West Java Electronic-Based Government System Master Plan. This document contains an analysis of current con- ditions, to the planning of an electronic-based government sys- tem (SPBE) and a map of SPBE plans in West Java Province. Unfortunately, in theprevious year, West Java Province did not yet have a Communication and Information Technology (ICT) planningdocument. Thiswasstatedby Dian Istanti, S. Sosthat “based on Presidential Regulation 95 of 2018 regional appara- tus must obtain recommendations from the Department of Communication and Information. It is because of the occur- rence of budget wastage and the number of unused applications. Therefore, later what has been built will be examined in terms of its benefits as well. For example, in one area that has been built can be developed from the area. We also have a master plan for ICT development “, (Interview, 10 April 2019). JURN AL STUDI PEMERINTAHAN (JOURNAL OF GOV ERN MEN T & POLITICS) Unlike West Java Province, the results of the study indicate that, East Java Province do not yet have SPBE Plans. In East Java Province the TIK Master Plan is regulated in East Java Gov- ernor Number 30 of 2016 concerning the Information and Communication Technology Master Plan in the Regional Gov- ernment of East Java Province in 2016-2018, and the SPBE Master Plan is still in the process of preparation, as explained by the Head of Informatics Application, Dra. Nirmala Dewi, “Pro- vincial Governor Regulation related to ICT master planis Gov- ernor Regulation No. 30 of 2016. There we are still regulating within the government of East Java Province alone, not yet touch- ing districts / cities. We want to involve districts / cities but there is no legalprotection. But weconvey it tothedistrict / city but do not force it to require “, (Interview, 11 April 2019). She further said that “The ICT master plan exists and there willbeamasterplanfor SPBE”. Thisexplanation showsthat, at present the East Java Provincial Government does not yet have an SPBE Master Plan and is still in the planning stage. In addi- tion, the ICT Master Plan for East Java Province has also passed its validity period of 2016- 2018, by the time of the research completion, there should bea new oneforthenext period of master plan. Organizational Dimensions Organizational dimensions can be seen based on the organi- zational structure, main tasks and functions and organizational resources in the form of finance and infrastructure. IT has a strategic role in the activities of an organization, but unfortu- nately there are still many stakeholders, especially at the leader- ship level who still do not really understand it. As stated by Mr. Andhy Purwoko, S.Kom., M.Si as the Head of Infrastructure Section of the Office of Communication and Information Ser- vices in West Java Province that “We already have various types of e-government applications. One of them for internal offices we have e-office. Unfortunately, this e-office is not implemented 201 Vol. 11 No. 2 July 2020 202 to the fullest. During the last year we were back to the manual again, for example in the correspondence process. It has lack of leadership role for they might not understand that IT actually has a strategic role in the government activities. Without rules made by the leader to emphasize that the application must be used, employees will not implement it to the fullest “, (Inter- view, 12 April 2019). Incarryingoutits duties andfunctions, Department of Com - munication and Informatics (Diskominfo) astheorganizer of e- government has main duties and functions that are usually regu- lated in a Governor Regulation. Yet the results of the study showed that West Java Province Department of Communica- tion and Informatics (Diskominfo) does not yet have the latest Governor Regulation governing the main tasks and functions. The duties, principal and functions of the West Java Province Department of Communication and Informatics (Diskominfo) are only written on itswebsite. Nevertheless, organizational resources indicate that each re- gion has different financial and infrastructure resources. West Java Province allocates the higher funds for e-government de- velopmentthan East Java Province asseeninthetable below. TABLE 8. THE COMPARISON OF BUDGET ALLOCATION ON FUNDING THE DEVELOPMENT OF E-GOVERNMENT IN WEST JAVA PROVINCE AND EAST JAVA PROVINCE No Province Year 2018 1 West Java Rp. 72.451.100.000 2 East Java Rp. 41.110.553.617 Source: Document of Regional Medium-Term Development Plan of West Java in 2013-2018 and Regional Medium-Term Development Plan of East Java in 2014-2019 Based on the table above, West Java has benefit of having better budget allocation than East Java, since its government paysmoreattentiontoICTdevelopment. This is supportedbya statement by Ms. Dian Istanti, S. Sos that “financial resources are sufficiently supported by the government of West Java Prov- ince” (Interview, 10 April 2019). Similarly, the infrastructure, each province has a different JURN AL STUDI PEMERINTAHAN (JOURNAL OF GOV ERN MEN T & POLITICS) infrastructure. In some organizational units with local govern- ment, there are ICT infrastructures that have been built on their own and some that use third party services. ICT infra- structure has an important role in realizing the implementa- tion of e-government in the local government environment. The result shows that the Communication and Information Office of West Java Province has provided Data Center support- ing infrastructure in the form of storage. Based on the Master Plan for Electronic-Based Government System of West Java Pro- vincial Government in 2019-2023, storage as supporting infra- structure still uses individual storage for each application or server. There is no distributed or centralized storage arrangements be- cause data center function planning has not been good, sothe server and storage arestill managed independently. This was also explained by Ms. Dian Istanti, S. Sos that “if we deliberately donot provide facilitation servicesforregional apparatusinthe district / city “ (Interview, 10 April 2019). Human Resources Dimensions The result related to human resources dimensions shows that East Java province has advantage of having more manpower of ITworkingforgovernment thanthose that West Javaas canbe seen in the table below. TABLE 9. THE COMPARISON OF HUMAN RESOU RCES OF IT IN WEST JAVA PROVINCE AND EAST JAVA PROVINCE RELATING No Province Number 1 West Java 82 people 2 East Java 143 people Source: Secondary Data from Communication and Information Office of West Java Province and East Java Province Results of the study also indicate that until now HR compe- tencies in the development of e-government inboth West Java and East Java are still lacking. As the results of the interview with Ms. Dian Istanti, S. Sos., M.A.P. who explained “if the re- sources are approximately 100, but for the background of ICT is 203 Vol. 11 No. 2 July 2020 204 still lacking soweinvolvenoncivilservants“(Interview, 10April 2019). Despite the higher number of IT manpower, the result of interviews in East Java Province shows that the province also suffered from a shortage of human resources with an IT back- ground. Mrs. Dra. Nirmala, M.M. explained that “actually we are lack of HR, but if we ask for it, it is not granted. Therefore, wemaketrainingforexistinghumanresourcestoimprovetheir IT-related competency” (Interview, 11 April 2019). She further said that “if we should choose a civil servant, but if the civil servant is onretirement andthere arenoadditions todatethere are honorary for the helps. For more technical honors “(Inter- view, 11 April 2019). Further, Dra. Nirmala, M.M. explained that “there were cases when the Certified Communication and Information Officer is a civil servant, but then they were promoted, or the structural technicalfunctions arereduced. Theworse wasthey movedto anotherfield (or office) that was not related to IT, and we did not get substitution of the IT manpower with equal competence. In addition, many computer institutions at the Ministry of Com- munication and Information placed at OPD became aides or treasurers. So, it doesn’t connect. They should have helped us”. (Interview, 11 April 2019). Nevertheless, the result shows that the government of East Java Province has a competency development program for hu- man resources involved in e-government development. As the results of an interview conducted to Mrs. Dra. Nirmala, M.M. who explained that “in terms of human resources, we budgeted forasocialization program, workshops inevery OPD, therewill be an increase in human resources in the IT sector. Because actually we lack of human resources, but if you ask, we are not given. Therefore, we make training for existing HR to improve IT “(Interview, 11 April 2019). Whereas in relation to the Chief Information Officer (CIO), the result of the study indicates that the current development JURN AL STUDI PEMERINTAHAN (JOURNAL OF GOV ERN MEN T & POLITICS) of e-government in West Java Province has been supported by the existence of GCIO, as said by Dian Istanti, S. Sos., M.A.P. that “in 2018, there will be a regulation on CIO based on Presi- dential Regulation no. 95 of 2018 concerning SPBE, so every local government must have a CIO, and in the West Java Prov- ince a Governor Decree on GCIO has been issued. Currently we are also proposing the same SPBE coordination team as well as the chairperson, the Regional Secretary. It is difficult to coor- dinate interregional equipment although in the same level, so we are making a regulation that is related to the SPBE coordi- nation team. So, in 2018 there is the Governor’s Regulation on governance and the Governor’s Decree on the CIO. It strength- ens in the management. Government gives the policy. “(Inter- view, 10 April 2019). This statement was strengthened by the stipulation of the Decree of the Governor of West Java Number: 049 / Kep.1305- Diskominfo / 2018 concerning the Government Chief Infor- mation Officer (GCIO) of the Regional Government of West Java Province. This decision is a form of the formation of CIOs in West Java Province. Based on this decision, the Head of the Communication and Information Office of the West Java Pro- vincial Government is the GCIO of the West Java Provincial Government. Whereas until now in the provinces of East Java do not pos- sess specific rules governing CIO or GCIO. The results showed that in East Java Province the CIO had not yet been formed so that it often caused differences in understanding of IT gover- nance among SKPDs in East Java Province. Even today, some of the East Java Non-TI Regional SKPDs also do not yet have a section or sub-section of IT managers with competency standards that meet and have official responsibilities in managing IT in their respective institutions. 205 Vol. 11 No. 2 July 2020 206 DISCUSSION Action-Environment Dimensions The results showed that each province has different social and economic conditions. Social conditions are one aspect in the action- environment dimension of institutional capacity. Related to e- government, social condition reflects the influence of the e-government implementation especially in the provision of public services to the public. Differences in social and eco- nomic conditions as the result of this study affect the level of populationliteracyinanareasothatthisalsoaffectsthelevelof community response to the implementation of e-government. The response and interaction of the community towards e- government shows that the development of e-government in localgovernments hasshown a typeof government tocitizens (G2C) relationship. It is seen that there is a better interaction between the government and the community in the develop- ment of e-government so that the community can more easily reach access to services provided by the government. This is in line with the main objective of the G2C type of relationship accordingto(Indrajit, 2002) thatthetype of G2C relationimple- ments and builds an IT portfolio with the primary goal of im- proving the relationship of interaction with the community so thatthe public more easily reaches access to services provided by the government. Therefore, in e-government planning, local governments must pay attention to the social, economic, and political conditions that exist in their respective regions. Public Sector Institutional Context The institutional context of the public sector refers to the overall rules and procedures in the development of e-govern- ment. The result shows that the rules and procedures for devel- oping e- government were realized in the form of policies at the level of strategic andoperational management. Inthescope of local governments, policies at the strategic management level are realized in the forms of Local Government Regulations JURN AL STUDI PEMERINTAHAN (JOURNAL OF GOV ERN MEN T & POLITICS) (Peraturan Daerah), Regional Head / Governor Regulations, or lead other forms of decision related to e-government. Whereas at the operational level, e-government policies are re- alized in the form of Standard Operating Procedures (SOP). While the study shows that West Java Province already has spe- cific rules and procedures governing e- government development governance, the East Java Province appears to have no specific rules and procedures governing e-government development governance. The existing policy in East Java Province are still too broad, namely the Governor of East Java No. 48 of 2015 challenge Electronic System and Transaction Governance in the Regional Government of East Java Province. There is no spe- cific policy that regulates the IT director in East Java Province. In addition, the Government of East Java Province also does not have regulations related to data centers, but data centers already exist in East Java Province and are managed by the Of- fice of Communication and Information. The existence of specific rules and procedures governing the governance of e-government development in West Java Prov- ince shows highest support from the leader regarding the imple- mentation of e-government. The institutional context refers to the overall rules and procedures governing organizations and employees throughout the country (Hilderbrand & Grindle, 1997). This shows that rules and procedures arethe important basis in the implementation of e- government because it regu- lates how organizations and employees implement e-govern- ment. Leaders have an important role in the implementation of e- government because it has a strategic role. However, the weak policy of the local government related to the implementation of e-government shows that the role of the leadership is not optimal. Therefore, there is a need for more support from the highest leaders of the local government in the development of e-government through the formulation of policies related to e- government. 207 Vol. 11 No. 2 July 2020 208 Task Network Dimensions The task network dimension can be seen from the standard- ization and planning in implementing e-government. Standard- ization is one important indicator in realizing the dimension. Good coordination in a government organization will be achieved when there are standards in the form of rules and procedures that govern the actions of each organization. This is in accordance with the opinion of (Cheema, 1981) that good coordination between governm ent organizations can be achieved through several indicators, one of which is standard- ization which contains procedures and rules that govern the ac- tions of each organization in independent relations. In addition tostandardization, planning is also an important indicator in the task network dimension. The absence of care - ful planning results in a waste of budget in the implementation of e- government because there are many applications that are less useful. Result of the study shows that so far there has been a waste of budget due to lack of careful planning in the develop- ment of e-government. In addition, it can be seen that there is no coordination in planning between OPD and the Office of Communication and Information, so there are many unused applications because these applications do not provide benefits. This also shows that, previously there was no planned develop- ment of government in West Java Province. But withthe SPBE master plan in 2019, it is hopedthattheimplementation of e- government development in West Java Province will be better. Besides that, related to e-government planning, every OPD may not plan its own system development anymore, because it must get recommendations from the Provincial Office of Communi- cation and Information Technology (Diskominfo). Therefore, all local governments must have e-government planning, in ac- cordance with the mandate in Presidential Regulation No. 95 of 2018 concerning Electronic-Based Government Systems (SPBE) in the form of Regional Government SPBE Master Plan documents. Unfortunately, only West Java Province that already JURN AL STUDI PEMERINTAHAN (JOURNAL OF GOV ERN MEN T & POLITICS) has clear standards and planning related to the implementa- tion of e-government. Organizational Dimensions Dimensions of the organization can be seen based on the organizational structure, main tasks and functions and organi - zational resources in the form of finance and infrastructure. The result shows that each region has a different organizational struc- ture that is directly related to the implementation of e-govern- ment. The authority to manage regional government affairs in the field of communication andinformation technology is exer- cised by the Office of Communication and Information Tech- nology (Diskominfo). Diskominfo is a group of ICT Profession- als. In managing the implementation of e-government, Com- munication and Information Technology (Diskominfo) coordi- nates with other regional apparatus, specifically in the provision and management of infrastructure and applications for sharing and provision of information and public communication such as the Regional Revenue Agency (Bappeda) and the Regional Financial and Asset Management Agency (BPKAD) especially in West Java province. Basically, theleadership plays animportant roleinrealizing the successful implementation of e-government. The leaders need to realize that IT has a strategic role in government activities, because IT enable improvements of the effectiveness and effi- ciency in the activity. But until now the role of leadership is still lacking. In carrying out its duties and functions, Diskominfo as the organizer of e- government has main duties and functions that are regulated in a Governor Regulation. However, the re- sult of the study shows that West Java Province Diskominfo has not got the latest Governor Regulation governing the main tasks and functions. The duties, principal and functions of the West Java Province Diskominfo are only written on the Diskominfo website. Therefore, it is necessary to have clear rules related to the main tasks and functions of the West Java Province 209 Vol. 11 No. 2 July 2020 210 Diskominfo because it will be a reference in carrying out the main tasks and functions of the Diskominfo as an ICT Profes- sionals group. While organizational resources indicate that each region has different financial and infrastructure resources. In some organizational units with local government, there are ICT infrastructures that have been built ontheir own and somethat use third party services. ICT infrastructure has an important role in realizing the implementation of e-government in the local government environment. Human Resources Dimensions Human resources of IT play an important role in the devel- opment of e-government. However, the availability of IT man- power in the ICT Professionals group of the local government has not yet been fulfilled even some positions that should be occupiedby HRwhohavecompetenciesinthe ITfieldareactu- ally occupied by employees who do not have any IT competency. In addition, local government support for the development of IThuman resources is alsostill minimal andthere is nospecific position responsible for planning activities or IT operational activities in each regional device. Therefore, it is necessary to haveamapping of IThumanresourcesinthelocalgovernment environment as well as increasing support in the development of IT human resources. Basically, civil servants are requiredto have competence in carrying out their respective duties and functions. Competent civil servants can determine the success or failure of an organi- zation in achieving goals. Likewise, in the development of e- government where appropriate competencies are needed in car- rying out the development of e-government. But unfortunately, the results of the study indicate that until now HR competen- cies in the development of e-government in the three research centers are still lacking. In addition, the results of interviews in East Java Province showed that East Java Province also had a shortage of human resources with an IT background. JURN AL STUDI PEMERINTAHAN (JOURNAL OF GOV ERN MEN T & POLITICS) Concerning the Chief Information Officer (CIO), based on the General Guidelines on National ICT Governance, the CIO is one of the ICT governance structure entities that needs tobe formed in e- government development to ensure ICT leadership capacity at all levels of government. The CIO is tasked with coordinating the planning, realization, daily operations and in- ternal evaluation of ICTs in their respective institutions, in col- laboration with ICT work units and other user work units. The result of the study indicates development of e-government in West Java Province currently. It was strengthened by the stipulation of the Decree of the Governor of West Java Number: 049 / Kep.1305-Diskominfo / 2018 concerning the Government Chief Information Officer (GCIO) of the Regional Government of West Java Province. Thisdecision is aform of theformation of CIOs in West Java Province. Basedonthisdecision, the Head of the Communica- tion and Information Office of the West Java Provincial Gov- ernment is the GCIO of the West Java Provincial Government. In this case the GCIO of the Government of West Java Prov- ince has the task of carrying out ICT management in the Re- gional Government of the Province of West Java. The results of this study indicate that, basically the aspects of human resources in the institutional dimension of e-government in local governments are still not good. It is indicated by the lack of competency of HR who occupy positions related to IT because most do not have an IT background. In addition, the same problem in the provinces of West Java and East Java is the small number of Computer Resources. Even though computer institutions have important tasks that can support the imple- mentation of e-government in local governments. In addition, only West Java Province hasspecific rules relatedto CIOwhile the other provinces do not. TheCIO has animportant role in theimplementation ofe- governmentbecause it hasthetaskofcoordinatingthefields of planning, realization, daily operations and internal evaluation 211 Vol. 11 No. 2 July 2020 212 of ICTs in each of its institutions, in collaboration with ICT work units and other user work units. But until now not all local governments have rules related to the CIO. The results show that, only West Java Province already had special rules on CIO while East Java Province had not. Therefore, each region needstomakerulesrelatedtothe CIO toensuretheleadership capacity of ICT management at all levels of government. CONCLUSION Differences in the social and economic conditions of an area affect the level of population literacy in theareasothatthisalso affects the level of community response to e-government devel- opment. Therefore, in planning e-government local govern- ments must pay attention to the social and economic conditions in their respective regions. Regional governance rules are realized at the strategic man- agement level and operational level. Rules and procedures are an important basis in the implementation of e-government be- cause they regulate how organizations and employees implement it. However, not all local governments have specific rules re- lated to e-government at both the strategic and operational management levels. Therefore, it is necessary to increase policy support both at the level of strategic management and opera- tions in the implementation of e-government specifically in lo- cal government. Leaders, onthe other hand, play important role in the imple- mentation of e-government because of their decisive and strate- gic roles. However, the weak policy of the local government re- lated to the implementation of e-government shows thatthe role of the leadership is still less than optimal. Therefore, there is a need for more support from the highest leadership of the local government in the development of e-government through the formulation of policies related to e-government. Theabsence of carefulplanningresults inawaste ofbudget in the implementation of e-government because there are many JURN AL STUDI PEMERINTAHAN (JOURNAL OF GOV ERN MEN T & POLITICS) applications that are less useful. Therefore, all local governments must have e-government planning, in accordance with the man- date in Presidential Regulation No. 95 of 2018 concerning the Electronic- Based Government System (SPBE) in the form of a Regional Government SPBE Master Plan document. Human resource in IT plays roles in the development of e - government. However, the availability of IT human resources in the local government ICT Professionals group has not yet beenfulfilled. In addition, the lack support of local government for the development of IT human resources and there is no specific position responsiblefor planning activities or ITopera- tional activities in each regional apparatus. 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