POLICY IMPLEMENTATION OF WORKING CULTURE DEVELOPMENT IN MINISTRY OF RELIGIOUS AFFAIRS

Indonesia as a religious state has the Ministry of Religious Affairs who has a vision and mission in realizing the Indonesian communities are obedient, harmonious, intellectually intelligent, emotional and spiritual as well as prosperous born inner. However, ironically, the ministry that should be the front guard of this morality, in 2012 was the ministry with the lowest perception index version of Corruption Eradication Commission known as KPK, and in 2014 the only ministry with the value of self under the standard of Corruption Eradication Commission known as KPK. Ministry of Administrative and Bureaucratic Reformhas published a regulation No. 39 in 2012 on the guidelines for the development of work culture for ministries and institutions in 2012. This research aims to identify and analyze the policy implementation of working culture development of based on regulation Number 39 in 2012 in the Ministry of Religious Affairs and identify factors affecting the implementation of development policy of The Ministry of Religious Affairs. This research is a qualitative study using descriptive analytical techniques. The findings in this study, the Ministry of Religious Affairs have not developed a structured, comprehensive and sustainable work culture.


INTRODUCTION
The bureaucracy reform in Indonesia has begun from 2010. There are eight areas of change in bureaucracy reform, namely: Organization, governance, regulatory law, human resources apparatus, supervision, accountability, public service, mindset and working culture. One area of change is the mindset and the culture of work (mindset and culture set). The change of mindset and culture of work has a strategic role in organizing bureaucracy for the better. According to the Grand Design bureaucracy reform 2010-2025, in the wave reform II, namely year 2010-2014, the bureaucracy in Indonesia has become a free government of corruption, collusion and nepotism known as KKN, the quality of public services are increasing and capacity at once Improved performance accountability.
The Ministry of Religious Affairs has a duty to conduct governance in religious fields. The vision of the Ministry of Religious Affairs is the realization of the Religious Society of Indonesia, peace, intelligent, and prosperous born inward in order to realize Indonesia's sovereign, independent, and personality based on the foundation of communally. However, ironically, the institute gets a black note about corruption. www.japmnt.com In 2012, the Ministry of Religious Affairs was established as a ministry with the lowest perception index of Corruption Eradication Commission version, and in 2014 is the only ministry with self-value under Corruption Eradication Commission standardization (KPK, 2015).
From the side of the public complaint, from 2015 to 2017 there was a significant increase annually as shown in table below. The Ministry of Religious Affairs as a religious institution with the lowest integrity became contrary to (Lerner, 1982)opinion of the religious influence on the undisputed manifestations of morality. In addition, spirituality is important to reveal the inner and learn to recognize the impact that possessed spirituality on professional and personal lives of individuals(S. Robbins, 2013). Malik stated that there is a significant positive relationship between spiritual intelligence and organizational performance (Malik & Tariq, 2016) (Osman-gani, Hashim, & Ismail, 2007). Therefore, that with religiosity and religious background and the Ministry of Religious Affairs should be holy institutions that uphold integrity as a universal core value. As well as assisting ministries/institutions and local governments to encourage changes in the attitudes and behavior of officials and employees in their respective environment, and provide guidance on planning, implementing and monitoring as well as evaluating the implementation of the development of work culture.
The study of implementation is to understand what the real thing happens after a program is declared valid or formulated, while the focus of policy implementation attention, are events and activities arising after the dismissions of the State policy guidelines, which include both efforts to administrate it and to create real consequences/impacts on society or events (Sabatier & Mazmanian, 1980).

II. LITERATUR REVIEW
The problem of this this research issues are as follows: 1. How is the implementation of a working culture of development policy in the Ministry of Religion? 2. What factors do influence the implementation of the development of culture work in the Ministry of Religion?

Policy Implementation
Policy implementation in principle is a way that a policy can achieve its objectives. There is no more and no less. In order to implement public policy, two options exist, namely implementing in the form of a program or through a formulation of derivation policies or derivatives of these public policies. The implementation of a series of policies can be clearly observed, namely starting from programs to projects and activities. Implementation studies have a focus on work programs, operational activities of policy devices and resource allocation (Denzin & Lincoln, 2000). Or organizing and leadership to achieve policy objectives (Nugroho Riant, 2017). In the implementation study analyzes if the conformity of policy implementation with guidelines and procedures should be (Sugiyono, 2014).How to realize policies, how to involve people to respond to policies (Jodi & Stephanie, 2015).

Development Policy of Working Culture
The policy of working culture development is set on the Regulation of Ministry of Administrative and Bureaucratic Reform Number39 in 2012. The goal of this policy is the creation of the mindset and the working culture of the State apparatus into a culture that develops the attitude and behavior of the outcomeoriented outcomes gained from the productivity of work and high performance to provide service to the community.
The transformation in working culture applies from the highest level to the smallest unit. The success of cultural change is determined by organizational leader behavior. Ministries and institutions are expected to create and develop organizational cultures that are oriented towards improved performance through training, work unit of working evaluation and personnel, socialization, brenchmarking and learning laboratories. The development of work culture is a systematic effort to implement the values and norms of ethical work of the State apparatus and implemented consistently in the implementation of governance tasks and services to the community. The work culture is formed from values that have been consistently agreed and have been socialized in the environment of ministries/institutions as well as the internalization results expressed in the conduct of daily work in each employee. The internalized work culture can be seen from the work ethic shown.
The fundamental principle of work culture is the culture of work derived from the organizational culture, the result of the internalization process of organizational values expressed in the behavior of daily work. Culture of work is a mental attitude developed to always look for repairs, enhancements or improvements to what has been accomplished, the work culture is developed with the teachings of religion, Constitution, social and cultural conditions, and change of working culture should go on the planned. www.japmnt.com A structured, comprehensive and sustainable system with a precise and consistent strategy, the work culture implanted or transformed through organizational values changes.
The task of changing the mindset and developing a working culture in Ministry of Administrative and Bureaucratic Reformenvironment and the local government is the responsibility of the bureaucracy reform teams in each ministry/institution in particular the change management team. The development of work culture requires three major phases, namely the formulation of values, implementation and evaluation monitoring.
The formulation of a value consists of five steps, namely 1) planning, 2) identifying the value, 3) identifying the sensitive area, 4) Assigning the main behavior and 5) formulating how to measure the main behaviour. The implementation consists of as follows 1) Declaration of Value, 2) Phase of the soisalization and internalization through communication.
Monitoring and evaluation to observe how much progress of the work culture of development process is.

A. Communication
Communication on this study used the theory of implementation of (Lawler III & Worley, 2006), according to (Lawler III & Worley, 2006) in (Widodo, 2007)communication was interpstated calssify reted as "the process of delivering communicator information to the communicable". Information on public policy according to (Lawler III & Worley, 2006) in (Widodo, 2007) need to be communicated to policy perpetrators so that policy players can know what they should prepare and do to run the policy so that the objectives and policy objectives can be achieved in accordance with the target (Widodo, 2007).This theory stated classify as follows that policy communication has many dimensions, such as transmition dimension, clarity and consistency. i.
The dimension of transmission demanded that public policy be delivered not only to the implementation of policies but also to the target groups of policies and other parties concerned either directly or indirectly. Before an official can implement a decision, he must realize that a decision has been made and an order for its implementation has been issued.
The most important is how a policy stakeholder's readiness knows and understands the policy that has been made by the center and transfigured it into various forms of implementation and clear standards of operational procedures so that the executor can carry out its duties as policies implementation that have been issued. Signings of regulatory context of a policy becomes very important for the implementation of the program. ii.
The dimensions of clarity would require that if the policies are implemented as desired, then the policy executor should not only accept the instruction manual, but also the communication of the policy should be clear. Often the instructions forwarded to the executor are blurred and do not specify when and how a program is implemented. The obscurity of the communication message with respect to the policy implementation will encourage incorrect interpretation to even contrary to the meaning of the original message. iii.
The third dimension of policy communication is consistency. If the implementation of the policy wants to take place effectively, the execution orders must be consistent and clear. Although the commands presented to the policy executor have elements of clarity, but if the order is contradicted then the order will not facilitate the policy executor to perform its duties properly. On the other hand, the commands of inconsistent policies will encourage executor to take very loose actions in interpreting and implementing policies. When this happens, it will result in the ineffectiveness of the policy implementation due to the extremely loose actions that are likely not to be used to implement policy objectives a. Resources In government organizations as a public organization, the implementing organization that administis the administrative policy must have a resource consisting of: "Staff, Information, Authority, Facilities" (Lawler III & Worley, 2006) in (Kadarisman, Gunawan, & Ismiyati, 2017).

1) Human Resources (Staffs)
Implementation of the policy will not succeed without the support of human resources sufficient quality and quantity. The quality of human resources is related to skill, dedication, professionalism, and competence in the field, while the concern concerning the amount of human resources is enough to cover the entire target group. Human resources are very influential in the success of implementation, because without human resources that reliability of human resources, implementation of policies will run slowly.

2) Budgetary
In the policy implementation, the budget is related to the adequacy of capital or investment in a program or policy to guarantee this policy implementation, because without the support of a crowded budget, the policy will not run effectively in Reach goals and objectives. www.japmnt.com

3) Facilities
Facility and infrastructure is one of the factors that influence the implementation of the policy. Procurement of decent facilities, such as buildings, land and office equipment will support the success of the implementation of a program or policy.

4) Information and Authority
Information is also an important factor in the implementation of policies, especially relevant information and enough about how to implement a policy. While authority plays a crucial role to assure and guarantee that, the policy is implemented according to the desired. b.

Commitment and Leadership
Commitment and leadership using the first Sabatier theory, the direction and ranking of the objectives at the priority scale of the office. Secondly, the ability of officials in realizing these priorities is namely, how to achieve objectives by deploying available resources (Sabatier & Mazmanian, 1980).

c. Organization Culture
From the organizational culture, theory uses the Robbin theory on elements of organizational culture formation (S. Robbins, 2013)classified as Organization's founding philosophy, selection, top management and socialization.

III. RESEARCH METHOD
This study is a qualitative study with an in-depth interview method, observation and documentation. The analytical techniques used in this study are descriptive analytical techniques. Interviews conducted on the Minister of Religious Affairs as the supreme leader, central bureaucracy reform team and head of research and development of religious ministries, and and regions, 15 employees in the area.

IV.
RESULT AND DISCUSSION 1.

Implementation of Working Culture Development in Ministry of Religious Affairs
The Ministry of Religious Affairs is one of the ministries that are not in the autonomic. The Ministry of Religious Affairs also includes vertical institutions with a total of 4,543 units of work.

Bureaucracy Reform in Ministry of Religious Affairs
Religious ministers feel the size of working culture can be seen from the results of the evaluation of bureaucracy reform increasing annually. Bureaucracy reform in the Ministry of Religious Affairs from 2010 to 2017 structural was an additional task on personnel Bureau and Ortala Bureau. Only since the year, 2017 has been described as structural regulation that handles bureaucratic reform in the Ministry of Religious Affairs. In addition, to date, in addition to the Ministry of Religious Affairs, the task of the bureaucracy reform team in the provincial office and the Office of the district Ministry of Religious Affairs is an additional task.
In 2018 and DIPA 2019, performance reports there were no specific budgets regarding bureaucracy reform and the development of a working culture(Kementerian Agama RI, 2019). In regional offices and district, offices have been formed bureaucratic reform teams. Nevertheless, the tasks and functions have not yet run according to guidelines.

Promotion System
The From the research results, structural bureaucracy reform are only in the central Echelon I., Central Java Provincial Office has been established a bureaucratic reform team but only additional tasks. The results of interviews with the bureaucracy reform team in Demak District, to date there have been no programs executed, only the DECREE of the team to fulfill the application data of bureaucracy reform from the center.
From the transmission dimension, the minister's working culture policy that does not specifically issue of Decision of Minister of Religious and the detailed rules on the implementation of the cultural value of work will make the transmission process not well received by the implementers and policy objectives. From the dimensions of clarity, without clear guidelines, communication can be misunderstood by the communfishes.
As for the consistency side, the five values of the working culture that have been declared are not considered as one of the assessment of personnel or as the code of Ethics of the Ministry of Religious Affairs. The absence of operational indicators and instruments to make an individual of State Apparatus does not have objective and measurable standards in carrying out five cultural values of work, making it difficult to do objective assessment by leadership of the implementation of five cultural values of work by a State Apparatus individually. In developing the work culture required guidelines and law enforcement, so the implementation of the development of the culture of planned work, structured with systematic, comprehensive and sustainable. Communication strategies may include as follows:

Budgetary
The policy will not run effectively in achieving goals and targets without the compacted budget support. List of Budget Implementation (DIPA)stated that No budget related to work culture program(Kementerian Agama RI, 2019).At the regional and district level, with a working unit of 8,532 units of work, education and training in order to change mindset and culture set apparatus depends on 14 training halls in Indonesia. This is because there is no budget in the framework of socialization and internalization of work culture in each unit of work.
The strategy taken in socialization and internalization is to communicate five cultural values of work on each activity to the audience as one of Standard Operating Procedure of activities in the Ministry of Religious Affairs.

Facilities
The facilities in implementing five cultural values in the Ministry of Religious Affairs are banners. In the selection of change agents, the bureaucratic reform team has created a computer-based application to facilitate the establishment of change agents. Currently it has not been applied to all satkers, but hopefully the application can facilitate the selection of agent changes in each unit of work.
As the largest vertical organization, the development of work culture needs to be facilitated with work culture laboratory. So that policies and strategies that are applied can run effectively and efficiently.

1) Information and Authority
Relevant and adequate information are about how to implement a policy. While authority plays a crucial role to assure and guarantee that, the policy is implemented according to the desired. In terms of the development of the cultural work in the Ministry of Religious Affairs related information and authority, should the role of the Research and Development agency be empowered. Research on the culture of work will provide valid information regarding the achievement of work culture value.

Commitment and Leadership
According to (S. Robbins, 2013), the existence of the leader will have an influence on (i) the value he wants to accomplish, (ii) the direction of the Organizationfuture, (ii) showing how the tasks are resolved. Position leaders in the process of achieving organizational objectives, therefore, associated with the behavior displayed, skills, knowledge and values. Research Data from the Research and Development Agency of the Ministry of Religious Affairs provides an overview that the leadership of each of the Ministry of religious work units has two opposite sides. Who need to get a record in the implementation of the program 5 (five) cultural value of work is the implementation of the merit system in terms of recruitment, placement and promotion of employees. These are who assessed not yet concerned about the competency aspect, resulting in employees who in a certain position has no competency and disposing in the field (interview results with the head of the Ministry of Religious Affairs Research and Development April27, 2019).
First, the direction and ranking of the goal is at the priority scale of the office. And secondly, the ability of officials to realize such priorities (Sabatier & Mazmanian, 1980).According to Nugroho, a top executive (in this case the Minister of Religious Affairs) who has been appointed must bring a vision. The team they lead can only be asked to provide inputs to decode the vision (Nugroho Riant, 2017).The Ministry of Religious Affairs has the vision of "the realization of the Religious Society of Indonesia, the pillars, intelligent and prosperous born inward in the framework of realizing the sovereign, independent and personality based on mutual cooperation"(Kementerian Agama RI, 2017b). One of the missions in fixing the bureaucracy is to realize clean, accountable and trustworthy governance. The objectives related to the improvement of the quality of the development of the field of religion is the implementation of the development of effective, efficient, transparent and accountable field of religion. Among others with: (a) the Defended Unexclusion Reasonable (WTP) in the opinion of Audit Board of Indonesia known asBPK RI to the financial report of the Ministry of Religious Affairs; (b) Increased results of the Ministry of Religious Affairs performance report; and (c) the rising of the Ministry of Religious Affairs of Reform assessment.
The results of interviews with the Minister of Religious Affairs, the supreme Leader internalized the five cultural values of the work by relying on the consciousness of State Apparatus of Ministry of Religious Affairs and not coercive. (Interview with the Minister of Religious Affairs, April 24, 2019), assumption of the Minister of Religious Affairs relate to culture work and code of ethics is something that is already built-in in State Apparatus, so that unpublished rules that bind apparatus concerning five cultural values of work and no budget Related to internalizing the value of working culture.
The Ministry of Religious Affairs as a ministry with the lowest corruption perception index in 2012, and the only ministry with the lowest self-value under the standard of Corruption Eradication Commission known as KPK in 2014have a huge "task" in fixing the 4543 units. Development of work culture as a strategy change mindset and culture set will not run without planning, programmatic, systemic, comprehensive and sustainable.

Organizational Culture
Robbin stated that organizational culture created by some elements of the organization's founding philosophy, selection and top management (S. Robbins, 2013). According to Robbins there are some questions to read the culture of work in an organization (S. P. Robbins & Coulter, 2016),consists of as follows: Former Irjen Ministry of Religious Affairs, M Jasin stated, "In Minister of Religious Affairs the crisis of integrity and crisis adherence to the prevailing rules. If an official is stated this according to the Standard Operating Procedure. Jasin was appointed in 2012-2016 at Inspectorate General of Ministry of Religious Affairs, after he was no longer there, he taught more officials who get promotion in the neighborhood at Ministry of Religious Affairsis the people who once had precisely a discipline strike because of a number of Violation.

b. Observing the physical environment and the corporate symbols
The Ministry of Religious Affairs has a "charity sincere" logo written on the organization's emblem.
The State Apparatus appearance and dress pay attention to their respective religious teachings. www.japmnt.com The State Apparatus areworking in the Ministry of Religious Affairs is regarded by society as a religious figure or a person who understands religious matters.
From the openness between the Offices, the Ministry of Religious Affairs is still "no distance" between the task executors Unit. Ministry of Religious Affairs building dominated by green color, in Islamic teachings green color is the preferred color of Prophet Muhammad after the color white. Worship facilities are very well built in the office area. Ministry of Religious Affairs generally has a sports field. This physical condition reflects that the Ministry of Religious Affairs is a religious institution.

c. How do you classify people you meet
Civil apparatus of the Ministry of Religious Affairs that I have encountered mostly be formal and keep myself in providing information. The organizational hierarchy looks strict. This indicates that the organization is a type of culture hierarchy.

e. Asking questions about people you meet
From the interview, the Ministry of Religious Affairs imposed an open bidding for Echelon 1 and Echelon 2 beginning in 2018. As for Echelon 3 and 4 has not been treated merit system. From one of the informant, for Echelon 3 and 4 is still based on consideration like and dislike of superiors. From the results of interviews with the head of Research and Development of the Ministry of Religious Affairs that research Data from Research and Development provides an overview that the leadership of each of the Ministry of Religious Affairs units has two opposite sides Back. Implementation of merit system in terms of recruitment, placement and promotion of employees who are judged not to pay attention to the competency aspect, resulting in employees who are in a certain position has no competency and to take care of the industry.
From the explanation above, it is concluded that the Ministry of Religious Affairs has not fully implemented the merit system in its promotional process. Of these five, the culture of the Ministry of Religious Affairs can be concluded, namely the Ministry of Religious Affairs is an institution that needs attention in integrity, institutions with a type of cultural hierarchy, religious, and yet to fully implement the merit of the system. The development of the working culture in the Ministry of Religious Affairs has a strategic role to fix the working culture of the institution. On the other hand, the culture of the previous real organization when contrary to new cultural values can lead to resistance. www.japmnt.com This needs to be identified seriously so that the implementation of the cultural value of work reaches the goal.

V. CONCLUSION AND SUGGESTION
Based on the results of the field findings can be concluded as follows: The Ministry of Religious Affaris of worling culture is in fact an institution that needs attention in integrity, institutions with a type of cultural hierarchy, religious, and yet to fully implement the merit system. The culture is in fact contrary to the value of the working culture declared the integrity and professionalism. This affects the implementation of the value of cultural work in the Ministry of Religious Affairs.

Suggestions:
According to the research resultsabove, the advice for the Ministry of Religious Affairs are as follows: