How Does Perpres 93/2024 Define the National Institute of Public Administration?

Executive Summary

Perpres 93/2024 establishes Lembaga Administrasi Negara (LAN) as Indonesia's primary non-ministerial government agency responsible for public administration development, civil service capacity building, and governance research. Enacted in 2024, this regulation positions LAN as a technical institution under direct presidential authority with a comprehensive mandate spanning training delivery, policy research, assessment services, and knowledge management in public administration. The regulation establishes LAN's organizational architecture comprising four substantive deputies (Training, Assessment and Accreditation, Research and Innovation, Knowledge Management), supported by secretariat and inspectorate functions. LAN's institutional positioning as an LPNK (Lembaga Pemerintah Non Kementerian) reflects its specialized technical role complementing the Ministry of State Apparatus Empowerment and Bureaucratic Reform (PANRB), which holds primary policy formulation authority in civil service matters. This analysis examines LAN's legal mandate, institutional positioning, functional architecture across training and research domains, coordination mechanisms with PANRB and regional governments, and the national capacity-building infrastructure LAN manages through regional training centers.

1. The LAN Mandate: Public Administration Development and Research

Constitutional and Statutory Foundation

Perpres 93/2024 derives its legal authority from Indonesia's constitutional framework governing executive agencies and public administration reform. The constitutional basis rests on Article 4(1) of the 1945 Constitution granting the President authority over government administration and Article 17 concerning ministerial organization and presidential prerogatives to establish supporting government bodies. The statutory foundation emerges from Law 39/2008 concerning State Ministries, particularly Article 11 which provides the framework for non-ministerial government institutions (LPNK) that perform specialized technical functions outside standard ministerial structures.

The regulation's preamble establishes the necessity rationale for LAN's institutional existence: "bahwa untuk melaksanakan pengembangan kompetensi aparatur sipil negara, penelitian administrasi negara, dan peningkatan kualitas penyelenggaraan pemerintahan, perlu menetapkan Peraturan Presiden tentang Lembaga Administrasi Negara" (that to implement civil state apparatus competency development, state administration research, and governance quality improvement, it is necessary to establish a Presidential Regulation concerning the National Institute of Public Administration). This tripartite justification—competency development, research generation, and governance quality enhancement—defines LAN's core value proposition to Indonesia's public sector modernization agenda.

The regulation explicitly references Law 5/2014 concerning State Civil Apparatus as the primary statutory framework governing LAN's training and capacity-building mandate. Law 5/2014 established the merit-based civil service system replacing the previous career-based model, creating demand for systematic competency development programs that LAN provides. Additionally, the regulation invokes Presidential Regulation 81/2010 concerning Grand Design of Bureaucratic Reform 2010-2025, positioning LAN as a key implementation instrument for Indonesia's long-term administrative modernization strategy. This regulatory genealogy demonstrates LAN's institutional role as a technical implementing body translating broad statutory mandates and reform visions into operational training programs and evidence-based policy recommendations.

Core Government Task Definition

Pasal 3 establishes LAN's fundamental mandate with precision: "LAN melaksanakan tugas pemerintahan di bidang administrasi negara, pembinaan dan pengembangan kompetensi aparatur sipil negara, serta kajian dan inovasi administrasi negara berdasarkan ketentuan peraturan perundang-undangan" (LAN carries out government tasks in the field of state administration, civil state apparatus competency development and enhancement, as well as assessment and innovation in state administration based on statutory provisions). This formulation establishes three distinct but interconnected operational domains: (1) state administration as the overarching subject matter, (2) civil service competency building as the primary operational activity, and (3) research and innovation as the knowledge generation function supporting evidence-based policy development.

The definition of LAN provided in Pasal 1(1) clarifies its institutional classification: "Lembaga Administrasi Negara yang selanjutnya disingkat LAN adalah Lembaga Pemerintah Non Kementerian yang menyelenggarakan tugas pemerintahan di bidang administrasi negara" (The National Institute of Public Administration hereinafter abbreviated as LAN is a Non-Ministerial Government Institution that carries out government tasks in the field of state administration). The LPNK designation situates LAN within Indonesia's administrative hierarchy as a specialized technical agency with national scope but operating outside the standard ministerial structure. This institutional form provides LAN with operational autonomy for curriculum development, research agenda setting, and training delivery while maintaining presidential oversight through direct reporting relationships.

The specification that LAN operates "berdasarkan ketentuan peraturan perundang-undangan" (based on statutory provisions) establishes LAN's subordinate regulatory position—the institute implements frameworks established by laws and presidential regulations rather than exercising independent policy-making authority. This distinguishes LAN from the Ministry of PANRB, which formulates civil service policies that LAN then operationalizes through training programs. The division of labor reflects Indonesia's broader institutional architecture where ministries hold policy formulation authority while LPNKs provide technical implementation, standard-setting, and specialized services that cross-cut multiple ministerial jurisdictions.

National Scope and Beneficiary Definition

LAN's mandate encompasses the entire Indonesian civil service apparatus spanning national ministries, non-ministerial agencies, regional governments (provincial and district/city levels), and state-owned enterprises where civil servants occupy positions. The regulation establishes LAN's responsibility to serve multiple beneficiary categories defined by employment status and institutional affiliation. Pasal 5 specifies that LAN's training programs target: "(a) calon Pegawai Negeri Sipil (PNS) dalam rangka pembentukan karakter dan kompetensi dasar" (civil servant candidates for character formation and basic competency development), establishing LAN's role in pre-service training that socializes new recruits into public service values before assuming operational responsibilities.

The regulation mandates LAN to serve "(b) Pegawai Negeri Sipil yang akan menduduki jabatan pimpinan tinggi, jabatan administrator, dan jabatan pengawas" (Civil Servants who will occupy high leadership positions, administrator positions, and supervisor positions), creating a hierarchical training architecture aligned with Indonesia's three-tier civil service leadership structure. This provision positions LAN as the primary provider of leadership development programs preparing civil servants for progressively senior management roles requiring strategic thinking, organizational leadership, and policy formulation capabilities beyond technical expertise.

Additionally, LAN serves "(c) Pegawai Negeri Sipil yang memerlukan peningkatan kompetensi teknis, manajerial, dan/atau sosial kultural" (Civil Servants requiring technical, managerial, and/or socio-cultural competency enhancement), establishing LAN's continuing professional development role. This three-competency framework—technical (job-specific skills), managerial (organizational and leadership capabilities), and socio-cultural (collaboration and adaptive capacity)—reflects the multidimensional skill requirements for effective public service delivery in Indonesia's diverse institutional and cultural contexts. The regulation's inclusion of socio-cultural competency acknowledges that technical proficiency alone proves insufficient when civil servants must navigate complex community relations, inter-ethnic dynamics, and local governance traditions that vary significantly across Indonesia's 38 provinces.

Matrix 1: LAN's Beneficiary Categories and Training Objectives

Functional Architecture - Five Core Domains

Pasal 4 establishes eleven distinct functions organized around five substantive operational domains reflecting LAN's multifaceted institutional mandate. The five primary domains are: (1) pelatihan kompetensi aparatur sipil negara (civil state apparatus competency training), (2) asesmen dan akreditasi lembaga pelatihan (assessment and accreditation of training institutions), (3) penelitian dan inovasi administrasi negara (research and innovation in state administration), (4) manajemen pengetahuan administrasi negara (state administration knowledge management), and (5) dukungan internal (internal support functions).

The policy formulation function specified in Pasal 4(a) requires LAN to engage in "perumusan dan penetapan kebijakan teknis" (formulation and determination of technical policies) across all five domains. This technical policy authority differs from substantive policy-making power held by PANRB—LAN develops operational guidelines, curriculum standards, accreditation criteria, and research methodologies rather than establishing fundamental civil service policies like recruitment systems, remuneration structures, or performance management frameworks. The functional specification "dalam rangka mendukung tugas Menteri yang menyelenggarakan urusan pemerintahan di bidang pendayagunaan aparatur negara" (in order to support the duties of the Minister who administers government affairs in the field of state apparatus empowerment) explicitly establishes LAN's subordinate role supporting PANRB's primary policy jurisdiction.

The implementation function in Pasal 4(b) obligates LAN to execute technical policies through operational service delivery spanning training program implementation, institutional accreditation processes, research project execution, and knowledge management system operation. The coordination function in Pasal 4(c) establishes LAN's horizontal integration responsibility—"koordinasi dan sinkronisasi pelaksanaan kebijakan teknis" (coordination and synchronization of technical policy implementation)—requiring LAN to align its training calendars, research agendas, and accreditation schedules with broader government priorities and inter-institutional needs. This coordination role becomes particularly critical when multiple government agencies pursue parallel training initiatives that risk duplication or when research findings require dissemination across institutional boundaries.

The standard-setting function in Pasal 4(d) authorizes LAN to formulate "norma, standar, prosedur, dan kriteria" (norms, standards, procedures, and criteria) governing training program design, trainer qualifications, research methodologies, and knowledge management practices. This NSPK authority positions LAN as the technical standard-setter for Indonesia's public administration capacity-building infrastructure, enabling national consistency while allowing institutional adaptation. The guidance and supervision function in Pasal 4(e) requires LAN to provide "bimbingan teknis dan supervisi" (technical guidance and supervision) to subordinate entities, particularly regional training centers operating under LAN's technical authority though administratively subordinate to provincial governments.

Matrix 2: LAN's Eleven Functions Across Five Operational Domains

2. The Institutional Position: LPNK Under State Apparatus Minister

Direct Presidential Subordination with PANRB Coordination

Pasal 2 establishes LAN's dual institutional relationships creating both hierarchical accountability and functional coordination mechanisms. The primary relationship is direct presidential subordination: "(1) LAN berada di bawah dan bertanggung jawab kepada Presiden" (LAN is under and responsible to the President). This "berada di bawah dan bertanggung jawab" formulation creates a direct accountability line without intermediate ministerial oversight, distinguishing LAN from technical directorates within ministries that report through ministerial hierarchies. The direct presidential reporting relationship reflects LAN's national scope and cross-cutting mandate serving all government institutions rather than a single sectoral ministry.

However, Pasal 2 immediately establishes a coordination obligation that qualifies LAN's autonomy: "(2) Dalam melaksanakan tugas sebagaimana dimaksud dalam Pasal 3, LAN berkoordinasi dengan Menteri yang menyelenggarakan urusan pemerintahan di bidang pendayagunaan aparatur negara" (In carrying out tasks as referred to in Article 3, LAN coordinates with the Minister who administers government affairs in the field of state apparatus empowerment). This coordination requirement with PANRB creates functional subordination distinct from hierarchical accountability—LAN maintains presidential reporting relationships but must align its technical programs with PANRB's policy directives. The coordination mechanism prevents institutional conflict where LAN's training curricula might contradict PANRB's civil service policies or where research findings might undermine policy initiatives PANRB pursues.

The regulation specifies coordination content in Pasal 2(3): "Koordinasi sebagaimana dimaksud pada ayat (2) meliputi perumusan kebijakan teknis, pelaksanaan kebijakan, koordinasi pelaksanaan tugas, dan pelaporan" (Coordination as referred to in paragraph (2) includes technical policy formulation, policy implementation, task implementation coordination, and reporting). This four-element coordination framework creates multiple touchpoints preventing institutional divergence: (1) ex-ante coordination during policy formulation ensures LAN's technical policies align with PANRB's strategic direction, (2) implementation coordination addresses operational issues and resource allocation conflicts, (3) task coordination prevents duplication when both LAN and PANRB might pursue similar initiatives, and (4) reporting coordination ensures presidential briefings present coherent narratives rather than contradictory institutional perspectives.

Leadership Structure and Organizational Hierarchy

Pasal 6 establishes LAN's executive leadership structure: "(1) LAN dipimpin oleh Kepala. (2) Kepala sebagaimana dimaksud pada ayat (1) berkedudukan di bawah dan bertanggung jawab kepada Presiden" (LAN is led by a Head. The Head as referred to in paragraph (1) is positioned under and responsible to the President). Unlike some LPNKs led by officials with ministerial rank, LAN's head typically holds a position equivalent to deputy minister (Setingkat Wakil Menteri), reflecting the technical rather than political nature of LAN's mandate. The presidential appointment of LAN's head—implied by the direct accountability relationship—ensures institutional leadership aligns with presidential priorities for civil service reform rather than serving purely bureaucratic interests that might resist modernization.

Pasal 7 establishes internal organizational hierarchy: "(1) Kepala mempunyai tugas memimpin LAN dalam melaksanakan tugas dan fungsi sebagaimana dimaksud dalam Pasal 3 dan Pasal 4. (2) Dalam melaksanakan tugas sebagaimana dimaksud pada ayat (1), Kepala dibantu oleh: a. Sekretaris Utama; b. Deputi Bidang Pelatihan; c. Deputi Bidang Asesmen dan Akreditasi; d. Deputi Bidang Penelitian dan Inovasi; e. Deputi Bidang Manajemen Pengetahuan; f. Inspektur; dan g. kepala pusat" (The Head has the task of leading LAN in carrying out tasks and functions as referred to in Article 3 and Article 4. In carrying out tasks as referred to in paragraph (1), the Head is assisted by: Secretary General; Deputy for Training; Deputy for Assessment and Accreditation; Deputy for Research and Innovation; Deputy for Knowledge Management; Inspector; and center heads).

This organizational architecture creates a seven-tier structure beneath the agency head, with four substantive deputies managing core operational domains, one secretary general coordinating administrative functions, one inspector providing internal oversight, and multiple center heads managing specialized support functions. The four-deputy structure reflects LAN's multifaceted mandate requiring specialized leadership for training operations, quality assurance through accreditation, knowledge generation through research, and knowledge dissemination through management systems. This functional specialization prevents the operational overload that would occur if a single deputy attempted to manage all four domains, while creating potential coordination challenges requiring strong leadership from the agency head to maintain institutional coherence.

Matrix 3: LAN's Institutional Relationships and Coordination Mechanisms

Budget Autonomy and Resource Management

Pasal 45 establishes LAN's financial framework: "Pendanaan dalam pelaksanaan tugas dan fungsi LAN bersumber dari Anggaran Pendapatan dan Belanja Negara dan/atau sumber lain yang sah sesuai dengan ketentuan peraturan perundang-undangan" (Funding for the implementation of LAN's tasks and functions is sourced from the State Revenue and Expenditure Budget and/or other legal sources in accordance with statutory provisions). This dual-source funding model provides both fiscal stability through direct APBN appropriation and revenue flexibility through authorized non-APBN sources. The primary APBN funding reflects LAN's status as a core government function requiring stable public financing, while permissive language regarding "sumber lain yang sah" (other legal sources) enables LAN to generate supplementary revenue through fee-based training services to state-owned enterprises, commissioned research for government agencies, or international development partnerships.

The regulation's reference to "sesuai dengan ketentuan peraturan perundang-undangan" (in accordance with statutory provisions) invokes the broader legal framework governing non-tax state revenue (Penerimaan Negara Bukan Pajak/PNBP) under Law 20/1997. This framework allows government agencies to retain portions of service fees as operational funding supplementing APBN allocations, creating incentives for quality service delivery that attracts paying clients. However, PNBP revenue cannot substitute for core APBN appropriations covering civil servant salaries, facility maintenance, and basic operational costs—supplementary revenue streams enhance rather than replace public financing.

Pasal 44 establishes comprehensive resource management authority: "Pembinaan dan pengelolaan sumber daya manusia, keuangan, sarana dan prasarana, organisasi dan tata laksana, serta ketatausahaan dilaksanakan sesuai dengan ketentuan peraturan perundang-undangan" (Development and management of human resources, finance, facilities and infrastructure, organization and procedures, as well as administrative affairs are implemented in accordance with statutory provisions). This grants LAN autonomous control over five resource categories—human capital, financial assets, physical infrastructure, organizational processes, and administrative systems—subject only to statutory constraints rather than ministerial approval. This operational autonomy enables LAN to recruit specialized trainers and researchers without civil service recruitment constraints that bind line ministries, structure training programs based on adult learning principles rather than rigid bureaucratic procedures, and invest in modern training facilities and digital learning platforms that traditional government processes might impede.

3. The Core Functions: Training, Research, and Capacity Building

Training Function - Pre-Service and Leadership Development

The Deputy for Training, established in Pasal 8, bears primary responsibility for LAN's most visible operational function—delivering training programs that build civil service competencies across career stages. Pasal 8(1) specifies: "Deputi Bidang Pelatihan mempunyai tugas menyelenggarakan koordinasi, perumusan, dan pelaksanaan kebijakan teknis di bidang pelatihan kompetensi aparatur sipil negara" (The Deputy for Training has the task of organizing coordination, formulation, and implementation of technical policies in the field of civil state apparatus competency training). This encompassing mandate spans strategic training planning, curriculum development, instructional delivery, and quality assessment—positioning the Training Deputy as responsible for the entire training value chain from needs assessment through impact evaluation.

The regulation establishes hierarchical training delivery through three subordinate units under the Training Deputy, as specified in Pasal 8(2): "Dalam melaksanakan tugas sebagaimana dimaksud pada ayat (1), Deputi Bidang Pelatihan dibantu oleh: a. Direktur Pelatihan Dasar; b. Direktur Pelatihan Kepemimpinan Administrator; dan c. Direktur Pelatihan Kepemimpinan Tinggi" (In carrying out tasks as referred to in paragraph (1), the Deputy for Training is assisted by: Director of Basic Training; Director of Administrator Leadership Training; and Director of Senior Leadership Training). This three-directorate structure reflects Indonesia's tiered leadership development architecture aligned with career progression stages.

The Basic Training Director manages pre-service programs for newly recruited civil servants, providing fundamental orientation covering public service ethics, government organizational structures, administrative procedures, and civil service rights and obligations. These programs, typically delivered intensively over several weeks immediately following recruitment, serve socialization functions instilling shared public service values before participants assume operational responsibilities in diverse institutional contexts. The regulation's emphasis on "pembentukan karakter" (character formation) alongside competency development acknowledges that effective public servants require not merely technical skills but internalized ethical commitments resisting corruption and prioritizing public welfare over personal benefit.

The Administrator Leadership Training Director develops middle management capacity for civil servants transitioning from specialist technical roles to supervisory positions requiring organizational management skills. These programs target individuals preparing for echelon III-IV positions (equivalent to division and section heads) where responsibilities expand from individual task execution to team coordination, budget management, and inter-unit collaboration. Curriculum typically addresses program planning, performance management, human resource supervision, and stakeholder communication—capabilities distinct from the technical expertise that earned participants their initial civil service positions.

The Senior Leadership Training Director delivers executive development programs preparing senior civil servants for echelon I-II positions (equivalent to directors-general and directors) where strategic thinking, organizational vision, and policy formulation capacities become paramount. These highly selective programs target career civil servants identified as high-potential leaders capable of directing major organizational units or managing complex policy portfolios. Curriculum emphasizes strategic planning, change management, political-administrative interface navigation, and inter-institutional coordination required to lead in Indonesia's complex bureaucratic environment where organizational leaders must simultaneously respond to political direction, maintain technical integrity, and manage diverse stakeholder expectations.

Matrix 4: LAN's Training Architecture and Delivery Mechanisms

Assessment and Accreditation Function - Quality Assurance Infrastructure

The Deputy for Assessment and Accreditation, established in Pasal 9, manages LAN's quality assurance mandate ensuring training institutions across Indonesia meet minimum standards for curriculum quality, instructor qualifications, and learning environment adequacy. Pasal 9(1) specifies: "Deputi Bidang Asesmen dan Akreditasi mempunyai tugas menyelenggarakan koordinasi, perumusan, dan pelaksanaan kebijakan teknis di bidang asesmen dan akreditasi lembaga pelatihan pemerintah" (The Deputy for Assessment and Accreditation has the task of organizing coordination, formulation, and implementation of technical policies in the field of assessment and accreditation of government training institutions). This quality assurance role positions LAN as the authoritative standard-setter and certifier for Indonesia's public sector training infrastructure, analogous to academic accreditation bodies in higher education.

The regulation establishes two subordinate units under this deputy, as specified in Pasal 9(2): "Dalam melaksanakan tugas sebagaimana dimaksud pada ayat (1), Deputi Bidang Asesmen dan Akreditasi dibantu oleh: a. Direktur Asesmen Aparatur Sipil Negara; dan b. Direktur Akreditasi Lembaga Pelatihan" (In carrying out tasks as referred to in paragraph (1), the Deputy for Assessment and Accreditation is assisted by: Director of Civil State Apparatus Assessment; and Director of Training Institution Accreditation). This two-directorate structure distinguishes individual competency assessment from institutional quality assurance, recognizing that effective capacity building requires both competent individuals and capable training institutions.

The Civil State Apparatus Assessment Director develops and administers assessment instruments measuring civil servant competencies across technical, managerial, and socio-cultural domains. These assessment tools enable several critical functions: (1) pre-training competency diagnosis identifying individual development needs, (2) post-training competency evaluation verifying learning outcomes, (3) promotion readiness assessment determining whether candidates possess competencies required for higher-level positions, and (4) organizational competency mapping revealing institutional capacity gaps requiring targeted training interventions. The assessment function provides empirical foundation for training decisions, replacing intuitive approaches with evidence-based competency measurement that tracks individual and organizational development over time.

The Training Institution Accreditation Director manages accreditation processes for government training institutions spanning national ministerial training centers, regional training centers operated by provincial governments, and specialized training facilities managed by large government agencies. The accreditation framework typically evaluates institutions across multiple dimensions including: (1) curriculum quality and alignment with competency standards, (2) instructor qualifications and pedagogical capabilities, (3) training facilities adequacy including classrooms, accommodation, and learning resources, (4) learning environment quality including participant services and administrative support, (5) governance structures ensuring quality management, and (6) financial sustainability enabling continuous improvement. Accreditation results—typically expressed as tiers (A, B, C, Unaccredited) with validity periods—create public accountability and competitive incentives driving institutional quality improvement.

Research and Innovation Function - Evidence Generation for Policy Development

The Deputy for Research and Innovation, established in Pasal 10, manages LAN's knowledge generation mandate producing empirical evidence and analytical insights informing public administration policy development. Pasal 10(1) specifies: "Deputi Bidang Penelitian dan Inovasi mempunyai tugas menyelenggarakan koordinasi, perumusan, dan pelaksanaan kebijakan teknis di bidang penelitian dan inovasi administrasi negara" (The Deputy for Research and Innovation has the task of organizing coordination, formulation, and implementation of technical policies in the field of state administration research and innovation). This research mandate positions LAN as a think tank embedded within Indonesia's executive branch, generating policy-relevant knowledge from practitioner perspectives distinct from academic research's theoretical orientations.

The regulation establishes three subordinate units under this deputy, as specified in Pasal 10(2): "Dalam melaksanakan tugas sebagaimana dimaksud pada ayat (1), Deputi Bidang Penelitian dan Inovasi dibantu oleh: a. Direktur Penelitian Administrasi Negara; b. Direktur Inovasi Administrasi Negara; dan c. Direktur Kerja Sama" (In carrying out tasks as referred to in paragraph (1), the Deputy for Research and Innovation is assisted by: Director of State Administration Research; Director of State Administration Innovation; and Director of Cooperation). This three-directorate structure distinguishes systematic research, innovation identification and diffusion, and partnership management—recognizing that evidence generation requires both internal research capacity and external collaboration networks.

The State Administration Research Director manages LAN's research portfolio addressing priority questions about public sector effectiveness, civil service performance, administrative reforms, and governance innovations. Research agenda typically encompasses several thematic areas including: (1) civil service system effectiveness evaluating recruitment, promotion, and performance management practices, (2) organizational performance assessment identifying factors distinguishing high-performing from low-performing government agencies, (3) public service delivery analysis examining factors affecting service quality, accessibility, and citizen satisfaction, (4) bureaucratic reform evaluation tracking progress toward Grand Design objectives, (5) comparative administration research benchmarking Indonesian practices against international standards, and (6) emerging issue analysis addressing governance challenges including digitalization, climate adaptation, and demographic transitions. Research outputs—reports, policy briefs, academic publications—provide empirical foundation for policy reforms, replacing ideology-driven or intuition-based reform approaches with evidence-informed decision-making.

The State Administration Innovation Director identifies, documents, and disseminates governance innovations emerging across Indonesia's vast bureaucratic landscape. This innovation diffusion function recognizes that breakthrough practices frequently emerge through frontline experimentation by individual government agencies or regional governments rather than centralized innovation design. The director systematically identifies innovations through competitive awards programs, practitioner surveys, and field research; documents innovations through case studies detailing innovation origins, implementation processes, outcomes achieved, and replication requirements; evaluates innovations through assessment frameworks distinguishing genuine breakthroughs from superficial changes; and diffuses proven innovations through publications, training curricula incorporating innovation case studies, and facilitated peer learning enabling direct knowledge transfer between innovating and adopting institutions.

The Cooperation Director manages LAN's partnership network spanning domestic and international collaborations that enhance research capacity, training quality, and knowledge access. Domestic partnerships typically include academic institutions providing theoretical frameworks and methodological expertise that complement LAN's applied policy focus, think tanks offering comparative perspectives and cross-sectoral insights, and professional associations connecting LAN to practitioner communities. International partnerships encompass foreign public administration institutes enabling comparative research and best practice exchange, international development organizations providing technical assistance and financing for capacity building initiatives, and multilateral networks like the United Nations Public Administration Network (UNPAN) facilitating global knowledge sharing. The regulation's establishment of a dedicated cooperation director signals recognition that LAN cannot independently generate all required knowledge—strategic partnerships leverage external expertise while positioning LAN as a knowledge hub synthesizing diverse sources for Indonesian context.

Matrix 5: LAN's Research Priorities and Knowledge Generation Mechanisms

Knowledge Management Function - Dissemination and Institutional Memory

The Deputy for Knowledge Management, established in Pasal 11, manages LAN's knowledge dissemination mandate ensuring research findings, training materials, innovation case studies, and administrative knowledge reach relevant audiences and remain accessible over time. Pasal 11(1) specifies: "Deputi Bidang Manajemen Pengetahuan mempunyai tugas menyelenggarakan koordinasi, perumusan, dan pelaksanaan kebijakan teknis di bidang manajemen pengetahuan administrasi negara" (The Deputy for Knowledge Management has the task of organizing coordination, formulation, and implementation of technical policies in the field of state administration knowledge management). This knowledge management mandate positions LAN as Indonesia's institutional memory repository for public administration, preventing the knowledge loss that occurs when expertise remains tacitly held by individual civil servants who retire without transferring accumulated wisdom.

The regulation establishes three subordinate units under this deputy, as specified in Pasal 11(2): "Dalam melaksanakan tugas sebagaimana dimaksud pada ayat (1), Deputi Bidang Manajemen Pengetahuan dibantu oleh: a. Direktur Perpustakaan dan Dokumentasi; b. Direktur Publikasi; dan c. Direktur Sistem Informasi" (In carrying out tasks as referred to in paragraph (1), the Deputy for Knowledge Management is assisted by: Director of Library and Documentation; Director of Publication; and Director of Information Systems). This three-directorate structure distinguishes knowledge collection and preservation (library), knowledge dissemination (publication), and digital knowledge infrastructure (information systems)—recognizing that effective knowledge management requires complementary functions spanning acquisition, organization, dissemination, and technological enablement.

The Library and Documentation Director manages LAN's physical and digital library collections encompassing public administration textbooks, government regulations, research reports, policy documents, international publications, and historical archives. Beyond traditional library functions of collection development and reference services, this director manages documentation systems capturing LAN's institutional knowledge including training curricula, research datasets, assessment instruments, and accreditation standards. The documentation function prevents the knowledge loss that occurs when key staff depart—explicit documentation of procedures, methodologies, and decision criteria enables institutional continuity despite personnel turnover.

The Publication Director manages LAN's scholarly and practitioner publication portfolio disseminating research findings and expert knowledge to policy-makers, academics, and practitioners. Publication channels typically include: (1) Jurnal Kebijakan dan Manajemen PNS—LAN's peer-reviewed academic journal publishing research on civil service policy and management, (2) policy brief series translating research findings into actionable recommendations for policy-makers, (3) practitioner guidebooks providing step-by-step implementation guidance on administrative reforms, (4) training modules codifying instructional content for replication, (5) annual state-of-bureaucracy reports tracking sector trends, and (6) books and monographs addressing major public administration themes. The publication function transforms tacit knowledge held by researchers and practitioners into explicit, accessible formats enabling knowledge diffusion beyond LAN's immediate organizational boundaries.

The Information Systems Director develops and maintains digital knowledge platforms enabling broad access to LAN's knowledge resources while facilitating knowledge exchange among public administration practitioners. Key information systems include: (1) LAN's website providing public access to publications, training catalogs, research findings, and institutional information, (2) e-learning platforms delivering online training to civil servants unable to attend residential programs, (3) digital libraries enabling full-text search across LAN's collection holdings, (4) knowledge sharing portals facilitating practitioner communities of practice where civil servants exchange experiences and problem-solving approaches, and (5) research databases organizing research datasets for secondary analysis. The digital knowledge infrastructure overcomes Indonesia's geographical dispersion challenges—enabling civil servants in remote provinces to access knowledge resources that residential programs and physical publications cannot efficiently deliver.

4. The Coordination Role: Supporting Ministry for State Apparatus

Division of Labor with Ministry of PANRB

The relationship between LAN and the Ministry of State Apparatus Empowerment and Bureaucratic Reform (PANRB) reflects a carefully structured division of labor distinguishing policy formulation from technical implementation. PANRB, as the sectoral ministry holding primary jurisdiction over civil service affairs, exercises authority to formulate substantive policies including civil service laws, government regulations on recruitment and remuneration, presidential regulations on performance management, and ministerial regulations on competency standards. These policy instruments establish the legal framework governing civil service system architecture, employment terms, career progression mechanisms, and accountability structures.

LAN's mandate complements rather than duplicates PANRB's policy authority by translating broad policy frameworks into operational programs and technical standards. When PANRB establishes competency-based civil service systems through policy regulations, LAN develops competency assessment instruments measuring specific competencies, creates training curricula building targeted competencies, establishes accreditation standards ensuring training institutions deliver quality competency development, and conducts research evaluating whether competency-based systems actually improve organizational performance. This implementation role requires deep technical expertise in adult learning principles, assessment methodologies, organizational development, and change management—specialized capabilities that policy-focused ministries typically lack.

The coordination requirement in Pasal 2 prevents policy-implementation disconnection that could undermine reform effectiveness. Regular coordination mechanisms likely include: (1) joint strategic planning sessions aligning LAN's annual work plans with PANRB's policy priorities, (2) technical working groups addressing specific issues like competency standard development where PANRB's policy authority and LAN's technical expertise must combine, (3) implementation review meetings assessing whether LAN's programs effectively operationalize PANRB policies and identifying policy adjustments needed when implementation reveals unforeseen challenges, and (4) joint reporting to the President presenting coherent narratives about civil service reform progress rather than contradictory institutional perspectives. The coordination framework recognizes that effective policy implementation requires iterative dialogue between policy-makers and implementers, enabling policies to adapt based on implementation learning while maintaining strategic coherence.

Inter-Institutional Training Coordination

LAN's coordination mandate extends beyond PANRB to encompass the broader ecosystem of government training institutions operated by sectoral ministries and regional governments. Numerous Indonesian ministries operate specialized training centers addressing sector-specific competency development—Ministry of Finance operates BPPK (Financial Education and Training Agency), Ministry of Law and Human Rights operates BPSDM (Human Resource Development Agency), Ministry of Agriculture operates BPPSDMP (Agricultural Human Resources Development Center), and similar specialized training institutions exist across major ministries. Regional governments operate Balai Diklat (Regional Training Centers) delivering training to provincial and district civil servants unable to travel to Jakarta for LAN programs.

The proliferation of specialized training institutions creates both opportunities and risks for Indonesia's public sector capacity building system. Opportunities emerge from specialization enabling deep technical expertise—Finance Ministry trainers understand complex tax administration and budgeting topics better than generalist LAN faculty, while regional training centers understand local governance contexts better than national programs. Risks arise from potential duplication, inconsistent quality standards, and curriculum gaps when specialized institutions focus narrowly on technical competencies while neglecting leadership development and cross-cutting management skills required for senior positions.

LAN's coordination role addresses fragmentation risks through several mechanisms specified in Pasal 4(c): (1) establishing national training standards that apply across all government training institutions, creating baseline quality expectations while allowing specialized content variation, (2) coordinating training calendars preventing schedule conflicts when multiple institutions target the same participant populations, (3) facilitating resource sharing where specialized institutions provide subject-matter expertise for LAN programs while LAN provides pedagogical expertise improving specialized training quality, (4) operating a training information system enabling participants to discover programs across institutions rather than being limited to their home agency's offerings, and (5) convening annual coordination forums where training institution leaders share best practices, address common challenges, and coordinate strategic directions. These coordination mechanisms maintain decentralized training delivery's specialization benefits while mitigating fragmentation risks through standards, information sharing, and strategic alignment.

Research-Policy Interface Management

LAN's research function creates unique coordination challenges requiring careful management of the research-policy interface. Research quality depends on intellectual independence enabling objective findings even when results contradict policy assumptions or reveal implementation failures. Simultaneously, policy relevance requires research agendas addressing priority questions that policy-makers actually confront rather than purely academic concerns. Balancing independence and relevance constitutes a perennial challenge for policy research institutions embedded within executive branches where political pressures can compromise objectivity.

The regulation addresses this tension through institutional design elements supporting research independence while maintaining policy relevance. Research agenda-setting likely involves consultation processes where PANRB and other ministries identify priority policy questions requiring evidence, but LAN retains discretion to pursue fundamental research addressing longer-term questions beyond immediate policy cycles. Publication independence—LAN's authority to publish research findings without ministerial approval—creates accountability to scholarly and public audiences that deters political suppression of inconvenient findings. Quality assurance through peer review processes and external advisory committees comprised of academics and international experts provides methodological rigor checks preventing politically motivated research that sacrifices objectivity for predetermined conclusions.

The coordination framework balances independence with engagement through structured dialogue mechanisms that expose research to policy perspectives without compromising integrity. Advisory boards including PANRB officials, ministerial representatives, and external experts provide input on research priorities while respecting methodological independence. Draft report review processes enable policy-makers to flag factual errors or clarify policy context without dictating findings. Launch seminars presenting completed research create dialogue forums where researchers explain findings and policy-makers pose challenging questions, improving mutual understanding even when disagreements persist. Annual research conferences bringing together LAN researchers, government officials, academics, and civil society create broader accountability structures ensuring research serves public interest rather than narrow institutional agendas.

Matrix 6: LAN-PANRB Coordination Across Policy-Implementation Cycle

5. The Regional Network: Training Centers and Provincial Collaboration

National-Regional Training Infrastructure Architecture

LAN's national mandate operates through a hybrid delivery architecture combining centralized flagship programs delivered at LAN's Jakarta headquarters and regional training centers (Balai Diklat) operated by provincial governments under LAN's technical guidance. This two-tier infrastructure reflects practical necessity accommodating Indonesia's vast geographical scale—mobilizing civil servants from remote provinces to Jakarta for extended training programs creates cost and disruption barriers that limit participation, particularly for district-level civil servants with operational responsibilities they cannot easily abandon for weeks-long residential programs.

The regional training center network, spanning all 38 provinces, enables geographically dispersed training delivery bringing capacity building to civil servants rather than requiring civil servants to travel to capital. Provincial Balai Diklat deliver basic training for newly recruited civil servants, technical competency programs addressing job-specific skills, and short supervisory training for frontline managers. However, advanced leadership programs targeting senior civil servants and specialized programs requiring cutting-edge expertise or international faculty typically remain centralized at LAN Jakarta facilities, where institutional resources enable quality levels difficult to replicate across 38 provincial locations.

Pasal 4(e)'s requirement that LAN provide "bimbingan teknis dan supervisi" (technical guidance and supervision) to subordinate entities establishes LAN's quality assurance role over regional training centers. This technical authority—distinct from administrative control, which remains with provincial governments—enables LAN to establish training standards, approve curricula, certify instructors, and conduct quality audits ensuring provincial centers maintain acceptable quality levels. The hybrid governance model recognizes practical reality—LAN lacks administrative capacity to directly operate 38 provincial training centers staffed by thousands of trainers, while provincial governments possess operational management capabilities but require technical standards preventing quality erosion when 38 autonomous institutions operate independently.

Technical Guidance and Quality Assurance Mechanisms

LAN's technical guidance to regional training centers encompasses multiple quality assurance mechanisms creating a comprehensive supervision framework. Curriculum standardization requires provincial centers to adopt LAN-developed curricula for mandatory training programs like basic training for new civil servants, ensuring national consistency in core competency development while allowing provincial centers to develop supplementary modules addressing local context. This approach balances standardization and localization—national curricula ensure all Indonesian civil servants receive common foundational knowledge about government systems, public service ethics, and administrative procedures, while provincial supplements address regional governance peculiarities, local language considerations, and provincial development priorities.

Instructor certification programs require trainers at regional centers to complete trainer-of-trainers programs at LAN, acquiring pedagogical skills and subject matter expertise meeting LAN standards before delivering programs independently. This certification requirement addresses a persistent challenge in Indonesia's training ecosystem—many government trainers are civil servants assigned to training roles based on seniority rather than pedagogical capability, lacking adult education expertise that enables effective knowledge transfer. LAN's trainer certification provides both initial qualification and continuing professional development, gradually building a professionalized training workforce across Indonesia's provinces.

Quality audits conducted by LAN assessment teams involve periodic inspections of regional training centers evaluating curriculum implementation fidelity, instructor performance, participant satisfaction, facility adequacy, and learning outcome achievement. Audit findings typically generate quality improvement recommendations that provincial centers must address, with follow-up audits verifying corrective action implementation. Serious quality deficiencies—consistently poor participant evaluations, unqualified instructors, inadequate facilities—can trigger escalated interventions including direct LAN technical assistance, mandatory corrective action plans with defined timelines, or temporary suspension of accreditation preventing centers from offering certain programs until quality standards are restored.

Performance benchmarking creates transparency and competitive incentives by publishing comparative performance data across regional training centers. Benchmarking metrics typically include participant satisfaction scores, training completion rates, post-training competency improvement, facility utilization rates, and cost per participant. Public benchmarking generates reputational incentives—provincial governments face political pressure when their training centers consistently underperform peers, motivating quality investments. Simultaneously, benchmarking enables peer learning as poorly performing centers study high-performing peers' practices, while LAN identifies best practices emerging in leading centers for codification and diffusion across the network.

Resource Sharing and Collaborative Delivery Models

The regulation's coordination mandate in Pasal 4(c) enables resource-sharing arrangements that leverage specialized expertise distributed across the national-regional training network. When regional centers require specialized subject-matter expertise exceeding their internal capacity—for example, training on complex regulatory frameworks like environmental impact assessment procedures or sophisticated technical skills like geographic information systems—they can access LAN faculty or instructors from other regional centers through temporary assignments. This resource mobility prevents duplication where every regional center attempts to maintain expertise in all possible training topics, an economically infeasible approach given specialized expertise's scarcity.

Collaborative delivery models increasingly adopt distributed approaches combining centralized and regional components. Leadership development programs might comprise: (1) initial modules delivered residentially at LAN Jakarta providing theoretical foundations and networking opportunities across provincial participants, (2) action learning projects implemented in participants' home provinces where they apply leadership concepts to actual organizational challenges under mentorship from LAN faculty and provincial center staff, and (3) culminating seminars reconvening participants at LAN for reflection, peer learning from diverse provincial experiences, and final assessments. This distributed model maintains flagship program quality while reducing time away from work and leveraging provincial centers' proximity advantages.

Digital learning infrastructure increasingly bridges national-regional divides through technology-enabled delivery mechanisms. LAN's e-learning platforms enable asynchronous online modules that participants complete independently, reducing residential program duration by shifting routine knowledge transfer online while preserving face-to-face time for interactive discussions, simulations, and mentoring that require physical presence. Live videoconferencing enables LAN faculty to deliver lectures simultaneously to multiple regional centers, democratizing access to scarce expertise without requiring continuous travel. Digital knowledge repositories enable trainers across the network to access LAN's curriculum materials, case studies, and assessment instruments, ensuring provincial trainers can deliver quality programs even when their local institutions lack comprehensive library collections.

Provincial Government Collaboration on Needs Assessment

Effective training requires accurate needs assessment identifying competency gaps that programs must address. LAN collaborates with provincial governments to conduct systematic competency assessments of regional civil servants, generating empirical foundations for training planning. These assessments typically employ: (1) organizational performance analysis identifying agencies underperforming on service delivery or administrative efficiency metrics, suggesting competency deficiencies requiring development, (2) supervisor evaluations where managers assess subordinates' competency levels across technical, managerial, and socio-cultural dimensions, highlighting individual development needs, (3) employee self-assessments enabling civil servants to identify competencies they perceive as requiring strengthening, and (4) citizen satisfaction surveys revealing service quality shortcomings that competency development might address.

Provincial governments contribute local knowledge essential for contextualized needs assessment. Provincial HR agencies understand regional governance challenges—perhaps certain provinces face acute infrastructure management capacity gaps due to rapid decentralization of public works functions, while other provinces require urgent environmental management competencies due to mining or plantation pressures. This provincial intelligence enables LAN to customize training emphases for regional context rather than delivering one-size-fits-all programs that may address competencies irrelevant to particular provincial circumstances while neglecting pressing local needs.

The collaboration extends to training delivery logistics where provincial governments provide operational support enabling programs to function effectively. Provincial civil service agencies assist participant recruitment ensuring appropriate candidates attend programs rather than agencies using training as rewards for favored staff unrelated to competency development needs. Provincial facilities supplement LAN and regional center capacities when large-scale training initiatives require accommodation and classroom space exceeding training institutions' permanent infrastructure. Provincial budget support supplements national financing, particularly for training categories primarily serving provincial rather than national interests—provinces fund training addressing regional development priorities while national budgets cover programs serving broader civil service system objectives.

Matrix 7: Regional Training Center Network and Quality Assurance Framework

Capacity Building for Regional Autonomy

LAN's long-term strategic objective involves building provincial training center capacity enabling progressive devolution of training delivery while maintaining quality standards through oversight rather than direct management. This capacity building strategy recognizes both the practical necessity of regional delivery given Indonesia's scale and the desirability of empowering provincial governments to independently manage capacity development aligning with regional priorities. However, achieving regional autonomy while maintaining quality requires systematic capability building across multiple dimensions spanning human resources, physical infrastructure, financial sustainability, and governance systems.

Human capacity building initiatives focus on developing provincial center faculty and management capabilities that currently concentrate in LAN. Faculty development programs provide specialized subject-matter training enabling provincial instructors to deliver advanced technical content previously requiring LAN faculty, gradually expanding the range of programs provincial centers can offer independently. Management capacity building addresses institutional leadership, strategic planning, quality management systems, and financial planning that enable provincial centers to function as high-performing organizations rather than merely implementing directives from LAN. Leadership development for provincial center directors creates a professional training center management cadre capable of driving institutional improvement independently.

Physical infrastructure support involves capital investment upgrading provincial training center facilities to standards enabling quality program delivery. Many provincial centers operate in outdated facilities lacking modern classrooms, adequate accommodation, library resources, or digital infrastructure that contemporary training approaches require. LAN's advocacy for provincial center infrastructure investment—leveraging LAN's national visibility to prioritize training infrastructure in regional capital budgets and national transfer mechanisms—gradually modernizes the facility stock enabling provincial centers to deliver programs meeting national standards.

Financial sustainability mechanisms address the economic viability challenge many provincial centers face when entirely dependent on provincial budgets subject to political volatility. LAN supports provincial centers developing supplementary revenue streams through fee-based training to state-owned enterprises, commissioned training for private sector clients, and facilities rental generating income supplementing public appropriations. Revenue diversification provides fiscal stability enabling longer-term planning while creating performance incentives—provincial centers that deliver quality training attract paying clients whose fees enable continuous improvement investments that further enhance competitiveness.

Governance system development establishes organizational structures and processes enabling provincial centers to operate effectively within complex institutional environments where they simultaneously report to provincial governments administratively, receive technical standards from LAN, and serve diverse client agencies with varying expectations. LAN supports provincial centers establishing governing boards comprising government officials, private sector representatives, and civil society members that provide strategic guidance balancing multiple stakeholder perspectives. Quality management systems institutionalize continuous improvement cultures through systematic data collection on training effectiveness, regular client satisfaction assessments, internal quality audits identifying improvement opportunities, and corrective action processes ensuring issues receive timely resolution.

The ultimate vision involves regional training centers evolving from dependent implementers of LAN programs to autonomous professional institutions capable of independent operation while voluntarily adhering to LAN standards because they recognize quality assurance value rather than due to hierarchical imposition. Achieving this vision requires sustained investment over multiple years, but success would create a robust national training infrastructure leveraging local knowledge and geographical proximity while maintaining quality through professional norms rather than continuous central oversight.

Source:

Peraturan Presiden Republik Indonesia Nomor 93 Tahun 2024 tentang Lembaga Administrasi Negara. Official source: https://peraturan.bpk.go.id/Details/296609

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