The Implementation Of Official Trip Control System In Terms Of Preventing Corruption Practices (Si
Nunukan Regency, North Kalimantan Province

A. Problem Analysis

 1. What was the problem before the implementation of the initiative?
Since the starting era of bureaucratic reform, the central government and local authorities are required to apply the principles of good and clean governance. This demands the accomplishment of the better, the cleaner, the more transparent and the more accountable good governance principles. One of the routine activities to be done by civil servants is official trip. An officer must obtain a letter of assignment and official trip order, shall they be assigned to do such travel. The official travel documents shares the officer the rights of acquiring per diem facilities, ticket and accommodation cost. The amount of the allowance depends on the position and location of the assigned trip. When the officer has finished the assignment, he/she is required to submit all proof of travel such as hotel bills, tickets, boarding passes and validation of the event. When all documents are submitted, the disbursement of the trip’s cost can be set. Far beyond the time of the implementation of the official trip control system, many cases of trip’s document manipulation were found. Such things include the marking up of ticket price, hotel bills, as well as the length or duration of the event attended. This kind of practices surely led to the leakage of national budget. The Ministry of Finance and Indonesian Financial Audit Agency stated that such leakage could reach the percentage of 40% of the national budget. In order to anticipate such manipulation or fraud cases, the Protocol Division, the unit responsible for issuing the documents for official trip, initiated the establishment of an integrated system to supervise and control the whole mechanism of the official trips for all staff and officers at Regency Secretariat Office of Nunukan. The introduction phase of the system triggered many resistance from various departments and sections as many officials consider it difficult for them to gain benefit from the official trips they were about to conduct, beside the other opinion that they will do less official trips due to the newly implemented system. Up until the present time, there are still many government agencies and local governments that still issue the task orders and trip warrants manually and independently in their respective agencies. Even in some cases, lots of officials are conducting the trip without complete documents. These conditions are very vulnerable to fraud or manipulation. Other problems faced by the division dealing with the issuance of such official documents are: the limited duration of time between the submission and the issuance of the documents; the limited human resources dealing with such process; the difficulty of carrying out the supervision and control of the double budget trip on the same day; and the unreliable reporting system as well as the high error rate of manual work resulting ineffective and inefficient performance. The online official trip control and monitoring system was established in order to minimize the chance of corruption practice occurrence so that the accountability of the many official trips can be improved.

B. Strategic Approach

 2. What was the solution?
The development of the official trip control system in Nunukan Regency is intended to reorganize the administration of official trips, especially business travel document application process and demands for transparency of the implementation of good and clean governance. The focus of innovation is aimed at the changing of the issuance procedures from manual process to an integrated system utilizing the advance information technology. The system development is directed to reorganize the standards of service and procedures of official trip documents applications by minimizing the chance of double-budget-trip cases and undocumented official trips. The strategy adopted in the early stages was identifying the trouble spots which were being the sources of any official trips misappropriation. The spots include two major parts, namely the document application process and the issuance of the documents. The identification noted that before the system implementation, the official trip documents application form are widely available at every working unit and that it is still possible for staff and officers to conduct official trips prior to the documents issuance. Thus, the first visible option was to remove all application forms at every working units. The forms would only be available at the Public Relations and Protocol Division. The second phase is to improve service standards and SOP on Protocol Sub-Division as the unit responsible for issuing the documents by conducting several trainings and altering the procedure of documents issuance. Starting January 1st, 2010, using the Official Trip Document Administration System, the documents issuance process can served in only 3 (three) minutes per document. Besides, non-official-hour service was also opened, allowing staff and officers to submit their official trip documents issuance application anytime. Simultaneously, the control of the double-budget-trip is also visible since it is possible to track all official trips conducted by the staff/officers. The collective data will then be reported to be evaluated by the Regent/Regent Secretary to determine the level of efficiency and effectivity, as well as performance of the staff/officers. The reports are also available electronically should there be any sudden inspection from higher rank officers.

 3. How did the initiative solve the problem and improve people’s lives?
1. Changing the official trip documents issuance procedures from a manual process to computerized application system (synchronization and system link); 2. Developing and utilizing officials’ identities data base and official trip control system to avoid fraud. If one official is on duty, the name and identity will not appear on the system, so the possibility of double-budget trip can surely be avoided; 3. Effectiveness and efficiency of the service apparatus performance by optimizing the data input procedures for the trip, allowing the system to shorten the service time of 10 minutes to 3 minutes per document; 4. The ability to establish official trips database of an official of a certain period of time electronically; 5. The ability to gain information about official trips’ related data, classified by budget, working unit, time period, and name of official; 6. Automatic registration and numbering systems; 7. Altering the method of manual archiving to electronic archiving; 8. Faster allowance liquefaction and trip reporting; 9. Simpler monitoring and controlling method.

C. Execution and Implementation

 4. In which ways is the initiative creative and innovative?
1. Proposed ideas were submitted to the programs leader hierarchically through the Assistant Administrator, Regional Secretary and the subsequent approval of the Regent through leadership meeting; 2. The approved proposal was then prepared with the TOR and Budget; 3. The idea was discussed with the IT Programmer to be designed for the application. The system designing was conducted by a third party using the budget of the Public Relations and Protocol of 2010; 4. The design was checked by the Organization Administration Division to be synchronized with the official text layout; 5. The system building was completed and was officially started as of 1 January 2010; 6. The administrator conducted several necessary updates concerning the data completion; 7. The development of the system is done every year, adjusting to organizational needs and rules. In 2011, the feature of destination control was added. In 2012, there were updates on the templates, data editing and filtering feature, and name search control function. In 2013, there was an update on the text layout for Official Trip Order (SPPD). The development for 2014-2015 include the online system integration, the integration with other e-gov/e-office application, the integration with fingerprint attendance system, and the building of replication software for other units or other institutions.

 5. Who implemented the initiative and what is the size of the population affected by this initiative?
The initiator of the system was Head of Protocol Sub Division at Regent Secretariat of Nunukan. The idea of the innovation was raised from the many numbers of complaints of the official administrators for the accumulated applications for official trips on weekend or certain peak times. Such complaints were also in line with the findings from the Inspectorate about some official trips having potentials of disserving the budget. The idea was submitted to the programs leader hierarchically through the Assistant Administrator, Regional Secretary and the subsequent approval of the Regent through leadership meeting. The idea was discussed with the IT Programmer to be designed for the application. Some of the staff were involved in the applications testing to ensure the application fitted the standard of service and user-friendliness. The Organization Administration Division conducted the supervisory actions on the text layout. Finance Administration division provided guidance related to the accounting standards for the official trip documents. In terms of Control and Monitoring function, The Regent and The Regent Secretary evaluate the official trip reports monthly and determine certain policies on the future implementation.
 6. How was the strategy implemented and what resources were mobilized?
The budget for the system development was IDR 50,000,000 covering the cost of hardware and software procurement. The budget for system maintenance and upgrade is appropriated for the amount of IDR 20,000,000 annually. The operation of this system requires trained and skillful staff in order to be able to master the whole operational procedures of the system. The system also needs staff who are able to deal with the database matters. A supervisor is also crucial in the system, to conduct the controlling and coaching functions including the supervisory actions on the documents verification.

 7. Who were the stakeholders involved in the design of the initiative and in its implementation?
Some concrete output of the system implementations are: 1. The changing of the documents issuance method, from manual to electronic using integrated computerized application; 2. The existence of the reliable official trip control system to reduce the practice of fraud and manipulation; 3. The availability of periodical report on the official trips in prompt, simple, and accurate way; 4. The electronic archiving optimizes the documents storing method and allows the effective and efficient working attitude to be applied.

 8. What were the most successful outputs and why was the initiative effective?
Monitoring and evaluation of the implementation of this system is done by a periodical reporting. Each report of the official trip has to be submitted at the end of working days of the corresponding month or maximum at the first day of the next corresponding month. Daily control system has also been designed in such way of data filtering and name search feature, so the control of an official’s trips can be automatically monitored by the system. To overcome such constraints, regular discussion on the correlating issues are conducted, involving system operators and users. The previous findings from Inspectorate are used as input for the development of features in accordance with the trend of the cases and the weaknesses of existing systems.Report to the higher rank officers in the form of complaints or policies are followed up with Decrees or Instructions.

 9. What were the main obstacles encountered and how were they overcome?
Some of the major obstacles encountered in the system implementation are: 1. The limited human resources comprehending the benefit and the development of information technology, particularly in the field of programming. This result in the state of using third party to build the design and the system environment. 2. The system implementation at all working units has not been able to be optimized due to the state of the official trip matters as internal affairs at those units. The realization of integrity pact and the improvement of corruption-free-zone policy are the two main thing supporting the implementation process.

D. Impact and Sustainability

 10. What were the key benefits resulting from this initiative?
The impact of the system implementation are as follows: 1. A decrease in the number of documents fraud or manipulation from the approximately 13% in 2009 to 0%. The numbers of findings by the Inspectorate through audit decreased from 13 cases (13%) in 2009 to the level of 4 cases in 2010, 2 cases in 2011, and 0 case in 2012. While the number of undocumented official trips decrease from 3% in 2009 to in 2010-2013. 2. Effectiveness, efficiency, and accountability of the official trip budgets are increasingly measurable. Prior to the implementation of the system, the realization of official trip expenses in 2009 reached IDR 11.41 billion, and after the introduction of the system, the absorption of the budget in 2010 only reached IDR 7.12 billion. If the value is associated with the findings of the Inspectorate in 2009 as a case in point 1 above, it is indicated as state financial loss. The official trip budget absorption level are also relatively stable and comparable to the increase in the number of trips and an increase in the expenses index, ranging from 5-10% annually. Official trip budget absorption in 2011 was IDR 8.03 billion, IDR 11.67 billion in 2012, and IDR 10.4 billion in 2013. This figure is still relatively good compared to the data in 2009, prior to implementation of the system. With a total operational cost of only IDR 120 million, the aggregate savings before and after the implementation of the system was IDR 8.4 billion. 3. The existence of the ease of control and supervision, especially to perform data synchronization for the official trip and employees’ attendance data through a system of regular reporting to the Division of Organization and Inspectorate. The impact on the number of trips can be monitored from the decreasing number of 2,086 trips in 2009 to 1,490 trips in 2010, 1,612 trips in 2011, 1,819 trips in 2012, and 2,236 trips in 2013. 4. The development and the addition destination control and trip duration control features in 2011, proved to lower the findings from Inspectorate on the audit. Based on the results of the 2009-2012 year, the amount of overpayment findings due to differences in place and trip duration decrease from 10 cases in 2009 to 11 cases in 2010, 1 case in 2011, and 0 case in 2012 and ever since. The development of the system also decrease the case of transport cost overpayment, from 61 cases in 2009 to 17 cases in 2010, 11 cases in 2011, 0 case in 2012. 5. The changing of official trip administration management system from manual/conventional method to an integrated ICT-based application system. 6. Improving the quality of service management. 7. The reluctance from the event organizers to accept the officials with incomplete documents which will force the officials to prepare more completed documents.

 11. Did the initiative improve integrity and/or accountability in public service? (If applicable)
This system has been applied since January 1st, 2010 and continues to operate until present time. Several steps were taken, including: 1. Incorporating this system as one of the programs and activities through the Budget of Public Relations and Protocol of Nunukan Regent Secretariat, financed by the Government of Nunukan Regency. For 2014 fiscal year, the implementation of this system are included in the program and general office administrative service activities with a budget of IDR 10,000,000. 2. The Public Relation and Protocol Division also prepares qualified and trained staff to deal with the system sustainability. 3. Since all government institutions and agencies are also conducting official trips, this system shares great probability to be replicated at those entities. 4. Several dissemination and socialization activities are done through some of the followings: a. Sharing of practices by other donors; b. Official Trip Technical Workshop by the Centre of Regional Performance Study - Jakarta and Ministry of Internal Affairs involving all local task units; c. Socialization of public service innovation by Institut Era Indonesia – Jakarta to several regencies/cities. d. Being a place of visitation for Leadership Training Batch IV held by National Administration Agency and Training Agency of Kalimantan Timur Province, on the material of public service innovation. 5. Online integration is on progress for future development. The integration include the electronic attendance machine connected to the system, financial matters administration and controlling system, as well as government internal supervisory system.

 12. Were special measures put in place to ensure that the initiative benefits women and girls and improves the situation of the poorest and most vulnerable? (If applicable)
The system was initially established to improve the staff performance at Public Relation and Protocol Division, particularly the Official Trip Documents Issuance unit. However, in a period of more than 4 years since this system is used as per January 1st, 2010, the lessons learned from the application of this system becomes more widespread, including: 1. The system makes it possible to create more effective corruption eradication and prevention method by altering the system involved in the official trip documents issuance matters. 2. The application can be used in offline condition as well as available online through local host. 3. The growth of work culture that becomes more creative, innovative, and systematic then ultimately improve the quality of service and service user satisfaction. 4. Integrity, commitment and strong will to reform the bureaucracy are a key to succeed this system, because many challenges and obstacles in the initial implementation of this system. It is common to know that the budget for the official trips are most prone to fraud. 5. The growth of the value of trust in the institutions resulting from building a culture and systems of work that become more honest, transparent and accountable, so that support for the program is getting stronger. 6. the increasing of capacity and human resource performance quality, changes in work culture and mind-set performance, increase of transparency and accountability that starts from oneself (official trip's budget is a budget that is managed by Civil Servants without involving the public), from small things, and begins as soon as possible (Public Relations and Protocol division started to stand at 8 October 2008, meaning that only takes 6 months to review the implementation of an official trip and design of this system) Become a strong capital for institutions to do the bureaucratic reform agenda. Recommendations: 1. It will take great leadership commitment to apply this system to the whole task units. The challenge is surely huge, given the state that official trips are sensitive to interfered by other agencies; 2. Wider coordination with other agencies/institutions are required to implement the system in greater environment.

Contact Information

Institution Name:   Nunukan Regency, North Kalimantan Province
Institution Type:   Government Agency  
Contact Person:   Joned Joned
Title:   Head of Protocol sub-division, State Secretary of  
Telephone/ Fax:   +6282155780099 Fax +62556 21088
Institution's / Project's Website:  
E-mail:   protokol_nunukan@yahoo.co.id  
Address:   Nunukan Regency Office, Jl. S.Jepun, Mansappa, North Nunukan
Postal Code:   77482
City:   Nunukan
State/Province:   North Kalimantan
Country:  

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