1392 14th International Conference Of Organizational Innovation (ICOI2023)

Challenges in Implementing Work Flexibility in the Government

Sector in Indonesia

Tini Apriani1*, Riris Katharina 2, Diana Ma’rifah3, Ardy Firman Syah4,

Azmi Listya Anisah5, Rian Sacipto6

1,2,3,4,5,6
The National Research and Innovation Agency
* E-mail:[email protected]

Abstract
The purpose of this study is to describe the challenges of implementing work
flexibility in the government sector in Indonesia. The research was conducted using a
qualitative approach and descriptive method. Data were obtained through interviews,
observation and documentation. Data analysis used the thematic analysis method. The
study results show that policies, human resources, and work culture are challenges to
implementing work flexibility in the government sector. The findings of the
application of work flexibility in research and development institutions during the
Covid-19 pandemic show that these three aspects have not supported the application
of work flexibility, especially workplace flexibility. The implemented policies only
support the application of work flexibility but have not supported the expected
performance achievement. Available human resources can use technology to
implement work flexibility but do not yet have good and consistent communication
skills; do not yet have self-management skills oriented towards achieving
organisational performance; and not all employees prefer work flexibility, especially
working from home. The work culture that is applied still follows the old pattern that
does not support the application of work flexibility.

Keywords: Work Flexibility, Government Sector, Policy, Human Resources, Work

Culture.
 14th International Conference Of Organizational Innovation (ICOI2023) 1393

Introduction

When the Covid-19 pandemic hit Indonesia in early 2020, work flexibility
began to be implemented for both the private and public sectors to prevent the spread
of Covid-19. Work allowances have never been widely implemented for the public
sector, particularly government agencies. Only the Ministry of National Development
Planning and the Ministry of Finance ever conducted a pilot implementation of work
flexibility before the pandemic, from 2019 to early 2020.
Applying work flexibility implemented during a pandemic allows the public
sector to adapt to changes and assess readiness to adopt and integrate information
technology into its business processes. The public sector must overcome problems
related to inadequate information technology infrastructure and skills, ineffective
business processes, inadequate resources, and weak accountability (Nkate, 2020).
Applying work flexibility during the Covid-19 pandemic changed work patterns
in government agencies. Government employees no longer come to the office daily
from 08.00 WIB to 16.00 WIB to do their work. Work can be done from home.
Various important meetings and gatherings are conducted through video conferencing
applications. The application of work flexibility provides several implications.
On the one hand, implementing work flexibility has positive implications,
including being able to play a role in preventing the spread of Covid-19, reducing
traffic density which results in reduced levels of congestion, and improving air quality
in the city of Jakarta during a pandemic (Bardan, 2021; Rahadiansyah, n.d.;
Yudhistira, 2019). But on the other hand, applying work flexibility without planning
causes a decrease in performance, productivity, public services, and economic growth
(Daniarsyah & Rahayu, 2020, pp. 97–98). The non-optimal application of work
flexibility is partly due to uneven information technology infrastructure,
documentation systems that have not utilised technology, and not all government
agencies being ready with information technology-based services (Darmawan &
Atmojo, 2020).
Factors that influence the successful implementation of work flexibility include
technology trends and technology used; organisational factors, including
organisational characteristics and work character; and environmental factors,
including household characteristics and community problems (Ansong & Boateng,
2018); work environment factors, individual ability factors, and Okubo work culture
factors (2020). Omondi & K'Obonyo (2018) stated that quality communication, a
supportive organisational culture, suitable job characteristics, supportive policies,
employee involvement, and the demographic characteristics of workers also influence
the successful implementation of work flexibility.
Furthermore, MacRae & Sawatzky (2020, pp. 7–8), using the HPTI (High
Potential Trait Indicator), put forward six personality traits that can support the
successful implementation of remote work (workplace flexibility), namely
conscientiousness, adjustment, curiosity, ambiguity acceptance, and risk approach.
MacRae & Sawatzky (2020, p. 28) also identified competencies that must be
possessed by remote workers, including employee personality factors (communication,
self-direction, trustworthiness, discipline, curiosity, adaptability, and self-efficacy)
and supporting factors (selection, support, resources, development opportunities,
performance management structures, tools and supporting technologies).
1394 14th International Conference Of Organizational Innovation (ICOI2023)

In connection with the opinion of Omondi & K'Obonyo (2018) that the
demographic character of workers is one of the factors influencing the
implementation of work flexibility, Indonesia is currently in a state of demographic
bonus where around 67% are of productive age and 33.75% of them are millennials
(Badan Statistics Center, 2018). If you look at these facts, Indonesia's work world still
consists of baby boomers, generation X, and millennials. In each of these generations,
there are differences in characteristics that can influence the application of work
flexibility. Baby boomers tend to have idealistic characters, have a conservative
mindset, tend to be more willing to take risks, and adhere to principles, especially
regarding hereditary traditions. Then Generation X, the children of baby boomers,
still carry the values taught by the baby boomers. Generation X is a transitional
generation to more modern technology (Central Bureau of Statistics, 2018).
Furthermore, the Millennial Generation is known to have self-confidence, focus on
achievement, enjoy working in teams, expect meaningful work, have a strong level of
curiosity, and want strong explanations in every decision-making (Devina &
Dwikardana, 2019; Manuaba & Hidayat, 2019; Smith & Nicols, 2015).
While Nicklin et al. (2016) stated that individual and job characteristics
influence the successful implementation of work flexibility, furthermore, according to
Nicklin et al., individual characteristics suitable for work flexibility are individuals
who are trustworthy, reliable, honest, have good performance records, can manage
time and workload, can keep abreast of technological developments, can
communicate clearly and consistent, have high self-management and discipline skills,
have the desire and flexibility to work independently, have low social needs, are
results-oriented, can solve problems well, demonstrate adherence to workplace
policies and procedures, and have a family and a supportive home environment
(Nicklin et al., 2016, p. 52). Meanwhile, the character of work that is suitable for
work flexibility is a job that has the characteristic that there are opportunities for
socialisation, guidance, and communication of information when work flexibility
takes place; there must be performance expectations or targets during work flexibility;
it must be ensured that employees have the information technology needed to
complete the work; it must be ensured that employees master information technology
required in work; the existence of a work culture that supports the implementation of
work flexibility; as well as transparency regarding policies and expectations for work
flexibility actors (Nicklin et al., 2016, p. 52)
De Vries et al. found that work flexibility in the Netherlands as home
teleworking among civil servants indicates greater professional isolation and less
organisational commitment. Research has failed to identify the benefits often claimed
on the dimensions of work involvement. De Vries' findings show a negative trend in
implementing work flexibility in government organisations. Government agencies
implement work flexibility without preparation, which is why problems occur because
not all government agencies have utilised technology to complete work remotely
before the pandemic (Darmawan & Atmojo, 2020).
Work flexibility in government agencies in Indonesia started with the
President's mandate to prevent the spread of Covid-19 and ensure that the duties and
functions of government institutions continue to be carried out. As a guideline for
implementation is the Circular of the Minister for Administrative Reform and
Bureaucratic Reform. After the pandemic period ends, government employees can
 14th International Conference Of Organizational Innovation (ICOI2023) 1395

still carry out their official duties flexibly in terms of time and location in line with
the stipulation of Presidential Regulation Number 21 of 2023 concerning working
days and working hours of government agencies and employees of the State Civil
Apparatus. The Civil Service Development Officer or agency head determines details
related to applying government employee work flexibility. The application of this
work flexibility is excluded for work units in government agencies whose duties and
functions provide operational support services for government agencies; and directly
to the community. This provision also does not apply to the Indonesian National
Armed Forces and Indonesian National Armed Forces soldiers as well as employees
of the State Civil Apparatus within the ministries that carry out government affairs in
the field of defence assigned to the Indonesian National Armed Forces; The
Indonesian National Police (Polri) and Polri Members and State Civil Apparatus
Employees within the Polri environment; and RI Representatives abroad and State
Civil Apparatus Employees within RI representatives abroad. Reporting to the official
website of the Ministry of the state secretariat of the Republic of Indonesia, the
stipulation of this Presidential Decree was carried out to increase the work
productivity of State Civil Apparatus employees, provide legal certainty for the work
flexibility of State Civil Apparatus Employees, and to improve the quality of public
services.
This research will examine the challenges of implementing work flexibility in
the government sector in Indonesia, supported by field data obtained from research
and development institutions during the Covid-19 pandemic. Research and
development institutions have the main task of carrying out research, development
and assessment activities supported by administrative and planning work. Thus, there
are two types of work characteristics in research and development institutions:
functional and administrative. This is an interesting matter to study further to see the
challenges government agencies face in implementing work flexibility after the
enactment of Presidential Decree 21 of 2023 by comparing the application of work
flexibility during the pandemic.

Literature Review

In sustainable human resources, four dimensions are recognised: fairness and

equity, transparent HR practices, profitability and employee welfare. One of the
transparent HR practices is flexibility (Järlström M, Saru E, and Vanhala S, 2018). So
it can be said that applying work flexibility is one of the efforts to build and maintain
the sustainability of human resources. The context of this article is building and
maintaining the sustainability of human resources in the government sector.
Work flexibility, also known as a flexible working arrangement (FWA),
provides flexibility regarding how long, where, when and at what time employees
work (with a shift system, with longer or shorter working hours). And about the
ability to work differently, using different technologies and skills (CIPD, 2020; Jones,
2011). Referring to the two definitions of work flexibility, there are three forms of
work flexibility: workplace flexibility, work time flexibility, and flexibility in how
1396 14th International Conference Of Organizational Innovation (ICOI2023)

work is completed. Workplace flexibility means the freedom to choose the place from
where one will get the job done. Flexibility in working time is the freedom to choose
when a person will start and end his work and how long a person will work. Then the
flexibility of how to work, including using technology or other expertise/skills to
complete the job. Working from home, or working from home, is a form of applying
place flexibility. It can be combined with time flexibility or just in the form of place
flexibility. Working from home requires flexibility in working, which is influenced by
the choice of place to do work. Employees will be open about the flexibility created
by the availability of flexible working arrangements that serve their needs and will
likely return to the company in the form of increased productivity (Timsal & Awais,
2016; Berkery E, Morley M J, Tiernan S, Purtill H, and Parry E, 2017). This
represents conceptual work flexibility that can be created through flexible work
arrangements (time flexibility) and place settings in tasks (location flexibility) by
consistently maintaining quality work output for employees in carrying out their
duties for the State Civil Apparatus. The preparation of facilities to support work from
home tasks is also essential in implementing work flexibility.

Methods

The research was conducted with a qualitative descriptive method approach. A

qualitative approach is used to obtain an actual picture regarding the application of
work flexibility in research and development institutions. Primary data was obtained
through interviews, observation, and filling out a list of questions. Interviews were
conducted with informants willing to conduct face-to-face interviews while filling out
a list of questions was given to informants who were not willing to conduct face-to-
face interviews. Observations were made of working conditions when work flexibility
was implemented. Secondary data is in official documents and various regulations for
applying work flexibility in research and development institutions. Informants in this
study were research and development institutions employees who, during the Covid-
19 pandemic, implemented work flexibility in the form of work-from-home (WFH)
and work-from-office (WFO) with flexible working hours. There were 20 informants,
with details of 18 informants coming from research centres at research and
development institutions and two people coming from the secretariat. Most of the
informants came from research centres because the main tasks and functions of the
unit in the form of research, development and assessment activities were carried out
by functional officials in research centres. Of the 18 informants at the research centre,
4 were structural officials, and 12 were functional researchers. Data was collected in
April-June 2021 and analysed using the Thematic Analysis method. The information
and data obtained, deepened and re-understood to then be coded on points that are
considered important, are grouped into each theme related to the research question
(Fereday & Muir-Cochrane, 2006). In this thematic analysis, there are three stages
carried out, namely the semantic or explicit theme level, and the others are Latent or
interpretive level, data coding, and determining themes according to research
objectives (Majumdar, A., 2019; Heriyanto, H., 2018). The results of primary data
 14th International Conference Of Organizational Innovation (ICOI2023) 1397

analysis are then enriched with data obtained from observations, official documents
and related regulations.

Results and Discussion

Data analysis resulted in three major research themes: policy, human resources,
and work culture. The clustering results are coded based on the theme unit to
conclude conveying the final analysis. The explanation of each theme is conveyed
through the following narration:

Policy
Policy determination for applying work flexibility refers to the policy of the
parent agency at the ministry level. In this case, it is a circular letter from the Ministry,
which also refers to a circular letter from the Minister for Administrative Reform and
Bureaucratic Reform regarding work flexibility. In a circular letter from the Minister
for Administrative Reform and Bureaucratic Reform regarding adjustments to the
work system of the State Civil Apparatus in the framework of preventing the spread
of Covid-19, it is regulated that: State Civil Apparatuses can carry out their official
duties from their place of residence; there are 2 (two) levels of structural officials who
still have to work in the office to ensure that the administration of government and
services is not hampered; submission of WFH implementation arrangements to each
work unit head; utilisation of information technology such as e-mail, WhatsApp, and
other applications for carrying out official duties; employees who carry out WFH
must always be ready to carry out the duties and directions of the leadership;
reporting on the implementation of WFH to the minister by each work unit head;
giving assignment letters to employees who carry out WFH by the head of the work
unit; and an appeal to employees who carry out work from the office (WFO) not to
take actions/activities that trigger the spread of Covid-19.
Based on the stipulation of policies through a circular letter from the Minister of
Administrative Reform and Bureaucratic Reform regarding adjustments to the work
system of the State Civil Apparatus, several codifications can be presented from the
results of interviews with respondents through the following table:

Table 1. Codification of Statements from Policy Themes

No. Statement Code Description

1. Regulations regarding civil servant working

hours/hours have been regulated in
Presidential Decree No. 68 of 1995
concerning working days in government
institutions. In the context of implementing
Respondent's statement
work flexibility, working hours for WFH
Working time containing periodisation
employees have also been mentioned in the
of working hours
letter from the Ministry. Not including
working hours for WFH employees in the
assignment letter for research and
development institutions raises assumptions
from employees.
1398 14th International Conference Of Organizational Innovation (ICOI2023)

2. Some assume that working time is free,

without any provisions for starting and ending
work hours. Some assume that during WFH,
the whole day is working time without any
time limits. This assumption is supported by
the unavailability of the tap-in feature as a
marker of attendance when work time starts
and tap-out as a marker for the completion of
work time on the mobile application of the
personnel information system (application for
attendance) for WFH employee choices. Both
of these have an impact on the difficulty of
measuring the accumulated working time of
employees. Presidential Decree No. 68 of
1995 provisions stated that employees must
meet the accumulated effective working hours
for one week of 37.5 hours.

3. Performance appraisal indicators during the Performance Description of

implementation of work flexibility are not assessment performance appraisal
included in policies issued by research and in the flexibility scheme
development institutions or research and
development centres in a smaller scope. The
absence of technical procedures for
implementing WFH, such as assigning tasks
to employees and how the form of employee
reports or accountability makes employees
careless and consider WFH a holiday.
Source: Results of interviews with respondents (data processed)

The Circular Letter was followed up with a letter addressed to the work unit
under it. The Circular contains the regulation of the work system of the State Civil
Apparatus by each head of the work unit through an order; the implementation of
WFH is carried out selectively; State civil servants who carry out WFH so that they
are at their respective residences, easy to contact, must report the results of their work
and input them in the application that named as sikerja; provisions for working hours
for WFH employees, namely 08.00-16.00 Monday to Thursday, and 08.00-16.30 on
Friday; and an appeal to employee superiors who carry out WFH to monitor the
implementation of employee duties.
Along with the spread of Covid-19, which is increasingly under control, the
circular letter of the Minister for Administrative Reform and Bureaucratic Reform
regarding the adjustment of the work system for the State Civil Apparatus has
undergone adjustments. June 2020 is a transition period in which the country's
economic situation has started to return to how it was before the pandemic. However,
the pandemic has not completely stopped its spread. This transition period is referred
to as the new normal order. In this new normal order, the Minister of State Apparatus
Empowerment and Bureaucratic Reform issued a Circular on the work system of the
State Civil Apparatus in the new normal order as a guideline for
Ministries/Institutions/Regions in governance to adapt to the new normal order.
 14th International Conference Of Organizational Innovation (ICOI2023) 1399

Several adaptation points include adjusting ways of working, support for human
apparatus resources and infrastructure support. In principle, this Circular Letter still
accommodates the implementation of work flexibility that has been implemented. The
difference is that the Circular Letter emphasises considering the type of work,
achieving employee work goals and targets, assessing employee performance,
employee competency in operating information technology, employee discipline, the
effectiveness of carrying out tasks and organisational unit services, monitoring and
supervising employees, and infrastructure support in the form of information
technology that is integrated with office infrastructure.
Following up on the circular letter from the Minister of State Apparatus
Empowerment and Bureaucratic Reform, the Ministry issued a Circular Letter on
controlling the working hours of State Civil Apparatuses in the new normal order.
The circular letter regulates the percentage distribution of employees to do work from
the office (WFO) and work from home (WFH); the division of shifts for employees
who carry out WFO into two work shifts; the arrangement of working hours for
employees who carry out WFO; and provisions for changes or changes to the WFO
and WFH implementation schedule once a month. The circular letter of the Minister
of State Apparatus Empowerment and Bureaucratic Reform and the ministerial
Circular Letter underwent changes and adjustments following the level of spread and
control of Covid-19.
Research and development institutions, as stipulated in the ministerial Circular
Letter, follow up by issuing a letter of assignment for applying work flexibility in
research and development institutions. The points regulated in the assignment letter
since the first time the work flexibility was implemented the same, namely employees
doing WFH at their place of residence, sanctions for employees who are found to
have left their place of residence without permission from the leadership and urgent
need; distribution of work shifts and arrangement of working hours for employees
implementing WFO; reporting of employee duties both WFO and WFH through the
sikerja application; filling presence via Simpeg mobile; summons to all employees
who carry out WFH to carry out WFO in urgent circumstances; and evaluation by
each head of the research and development centre and section head to ensure the
smooth implementation of tasks and control of working hours in their respective
environments.
The existence of an assignment letter provides an opportunity for employees at
research and development institutions to exercise work flexibility, either in the form
of the flexibility of place through WFH or flexibility of time when implementing
WFO. However, providing opportunities for implementing work flexibility between
work units in component institutions is not the same. This is because the policy for
implementing work flexibility is left to the policies of each work unit (head of
research and development centre or head of the section). Thus, a ministerial circular
regarding work system adjustments followed up by research and development
institutions by establishing a letter of the assignment was sufficient to support the
application of work flexibility during a pandemic.
Several informants at the leadership level gave different views regarding the
application of work flexibility, particularly concerning workplace flexibility (work
from home). The basis for implementing work flexibility in a Circular Letter can only
be used during an emergency such as the Covid-19 pandemic. But for the application
of work flexibility as a new way of working, regulations are needed that are clearer,
not rigid, and support the socialisation and implementation of work flexibility
(Fadhila & Wicaksana, 2020; Okubo, 2020; Omondi & K'Obonyo, 2018). Concerning
1400 14th International Conference Of Organizational Innovation (ICOI2023)

working hours and work systems, all regulations concerning the State Civil Apparatus
are guided by Presidential Decree Number 68 of 1995 concerning working days in
government institutions and Presidential Regulation Number 94 of 2021 concerning
the discipline of Civil Servants. The two regulations allow the heads of government
agencies to implement work systems that suit the needs and characteristics of their
respective organisations. In addition, the application of work flexibility should also be
able to produce better performance, both for the organisation and for employees. So it
can be concluded that the policies implemented to implement work flexibility have
not supported achieving optimal performance as expected. Implementing work
flexibility in the form of work from home is still limited to moving the workplace
from the office to home. Still, it has not had a better impact on achieving
organisational performance.

Human Resources

Mac Rae & Sawatzky (2020) and Nicklin et al. (2016) put forward several
individual characteristics and competencies that can support the successful
implementation of work flexibility. This human resources section will discuss the
ability to keep up with technological developments, communication skills, self-
management skills, and work preferences.
The number of research and development institute employees as of January
2021 is 285, consisting of 186 civil servants and 99 non-permanent employees. The
number of employees can be divided into several generation groups, which affect the
ability to follow technological developments and use technology (Putra, 2016), as
follows:

Table 2. Number of Employees by Age Group

Baby Generation Generation Total
Boomer X Y
(1946-1964) (1965-1976) (1977-2000)
Echelon I & II 1 4 1 6
Echelon III & 6 37 12 55
IV
Executor 2 8 81 91
Researchers 6 10 18 34
Total 15 59 112 186
Source: Research and development institute staffing data as of January 2021
(processed)

From these several generation groups, generation Y, also known as the

millennial generation, is a generation that has used communication technology a lot
and grew up during the internet boom (Putra, 2016). The number of Y generations
dominates employees in research and development institutions, more than half of the
total number of employees. This causes few obstacles in using applications such as
Zoom as a substitute for face-to-face meetings. Most informants stated that the
 14th International Conference Of Organizational Innovation (ICOI2023) 1401

intended application had almost no significant obstacles. Difficulties are only felt in
the early days of using the application because they are not used to it. The absence of
obstacles means that it is supported by the use of applications that are still simple, in
the form of WhatsApp and e-mail applications for communication and work
completion.
Changes in work systems lead to changes in the way of communication.
Communication originally carried out face-to-face changed to indirect communication
through communication technology intermediaries. The ability to communicate
clearly and consistently will affect work implementation (Nicklin et al., 2016). The
intended communication can be in coordination or submission of work results in
reports between fellow employees and between employees and superiors.
The following is a codification table compiled based on statements from
respondents on the theme of human resources:
Table 3. Codification of Human Resources Themes
No. Statement Code Description

1. It is more difficult to equalise

perceptions regarding the
completion of a job when WFH,
compared to face-to-face
(especially in making decisions
during meetings/discussions)
Statement regarding
2. Some of the things that are the linkage of
considered to be hindering are the Barriers during WFH constraints with the
first network problems; not all implementation of
employees who do WFH have a work flexibility
stable internet network in their
home environment

3. Not all employees have the ability

to communicate clearly and
consistently.

4. The emergence of negative Alleged assessment Statement regarding

assumptions about employees when of the assumptions of
employees are difficult to contact superiors/colleagues leadership/co-
during the WFH period impacts a workers' assessment
lack of trust in employees who during the
carry out WFH. Assumptions arise implementation of
because superiors or colleagues work flexibility
who want to coordinate with the
employee concerned do not see
directly whether the employee is
completing work related to
assignments or using WFH
opportunities for other things
outside of work responsibilities, so
they do not respond quickly to the
call of duty.
Source: Results of interviews with respondents (data processed)
1402 14th International Conference Of Organizational Innovation (ICOI2023)

For the third point statement, it is suspected that through various negative
assumptions, it will not appear that employees can carry out and maintain clear and
consistent communication. In addition to the employee element as the sender of the
message or communicator, communication will be influenced by various things, such
as the formulation of the concept to be conveyed, the media or means used,
communication disorders, and the recipient of the message itself (Gitosudarmo &
Mulyono, 2001, pp. 199–202 ). The inability to formulate the concept to be conveyed
results in the recipient's misunderstanding of the message. Even if the message is
well-conceived, but the media is not chosen correctly, it is likely that the feedback
received will not meet the expectations of the sender of the message. So to support the
success of work flexibility (WFH), the ability to communicate clearly and
consistently through communication technology media is needed.
Next is self-management ability. Changes in work systems and patterns, both
in terms of time and place, require adjustments from employees to complete work
tasks. Adjustments are needed because the working time, which starts at 08.00 WIB,
is usually also a busy time at home for domestic needs, especially for households that
still have children who cannot be independent and need assistance from their parents.
Information from several informants supports this. Most informants stated that if a
superior gave a task, the informant would prioritise completing the task during
working hours. If not, domestic work will be completed first, then carry out activities
that support the implementation of the work. For employees with children who still
need assistance, it requires more effort to complete tasks given by superiors. It is not
uncommon for work to be done at night when the children are asleep.
From what was conveyed by the informants, it is known whether or not an
assignment from a superior influences how employees carry out self-management
related to work assignments. Employees prioritise urgent work tasks. On the other
hand, if there are no urgent tasks, employees prioritise completing domestic tasks
before carrying out work-related tasks. This applies to almost all informants. At this
point, the informant practised what Juana (2000) and Prijosaksono (2001) said about
self-management. Employees organise themselves to do what is needed according to
their reality and capabilities.
Another thing that supports the success or failure of implementing work
flexibility is preferences or tendencies, employees' preferences for how to work
(Bloom et al., 2015). Working with certain flexibility requires independence to
determine work priorities and carry out and complete work (Nicklin et al., 2016). In
carrying out work, creativity is required from employees, not only waiting for orders
from superiors to carry out a job but not depending on colleagues to complete certain
tasks.
The study results show that not all informants like working from home.
Several informants explicitly stated that they preferred to work the old way by coming
to the office when there was no pandemic. Informants realised that working from
home has more challenges, and dividing the focus between domestic work and office
work is difficult. However, informants also stated that they only followed the
implemented policies and did not expressly express preferences regarding the work
system. The implementation of the WFH work system has an impact on self-
management by limiting homework and office work according to the schedule. This is
applied with high flexibility in completing tasks through the WFH system. The
conclusion from the analysis results is that the limited ability to use technology to
 14th International Conference Of Organizational Innovation (ICOI2023) 1403

complete tasks is an essential factor for the characteristics of employees who can
work WFH. Alignment between competencies possessed and task characteristics can
be decisive in the successful implementation of work flexibility. On the other hand,
increasing leadership trust is initiated through face-to-face activities for employees
who lack communication skills in completing tasks through technology.

Work Culture
Work culture is understood as a way of doing work mutually agreed upon and
carried out continuously in work life (Hartanto, 2009). In comparison, Mangkunegara
(2002) provides an understanding of work culture as a set of procedures or values that
are believed and developed within the organisation, which are then used as a guide for
organisational members in solving problems of external adaptation and internal
integration. The two definitions have something in common, namely that there is an
agreement on values that are carried out continuously, which are then used as
guidelines in running the organisation. Work culture will have an impact on the
organisation and influence in dealing with various situations (Dianne (2002) (Frinaldi,
2014, p. 182)).
Based on Okubo's research (2020), the application of a context that regulates
work flexibility found that one of the factors hindering the implementation of
telework is organisational factors, in which some habits are carried out and become a
work culture, such as lack of file sharing, electronic payments, and digitalisation.
Data and documents. In addition, the traditional work culture is maintained, where
face-to-face communication and relationships are still carried out. This is because, in
the Asian context, traditional physical presence is still highly emphasised. Physical
presence is often equated with productivity (Fung, 2019). Following are the results of
respondents' statements presented in several codifications on the theme of work
culture:
Table 4. Codification of Work Culture Themes
No. Pernyataan Kode Deskripsi

1. The work culture in research and development institutions Work unit Statement regarding
does not yet support the application of work flexibility. Not culture changes in work
all leaders and employees are willing to change their patterns culture within the
mindset and work culture to support the implementation of scope of the work
work flexibility. unit
2. Research and development institutions have not used an
integrated system for each document produced. This has
resulted in not all interested parties being able to access the
required documents. Documents are not well organised and
stored.

3. Some still keep their work for themselves, so colleagues Individual Statement regarding
find it difficult if something needs to be improved at work. cultural changes in a work
patterns culture that affect
4. There are still members of the organisation who have a
individual employees
traditional mindset and maintain it, especially regarding
documents and face-to-face culture. Face-to-face meetings
are still being held, even though the pandemic is ongoing.
Source: Results of interviews with respondents (data processed)
1404 14th International Conference Of Organizational Innovation (ICOI2023)

Data on work unit cultural patterns in Table 4 provides a clear picture of the work
culture patterns of research and development leaders and employees in initiating and
planning digital-based work system adjustments. In individual cultural patterns, the
characteristics of employees who store work results so that they impact other work
results are clearly illustrated, and there is still a traditional mindset through face-to-
face activities in completing work.

The Challenges of Work Flexibility Implementation

From the experience of implementing work flexibility during a pandemic in
ministry research and development institutions as described above, an overview of
implementation and challenges will be encountered if work flexibility is permanently
implemented in the government sector, with or without a pandemic. From a policy
standpoint, Government Regulation Number 94 of 2021 and Presidential Regulation
Number 21 of 2023 have been stipulated, providing opportunities for applying work
flexibility with technical implementation handed over to the Personnel Development
Officer. This provides an opportunity for Personnel Development Officers to set
regulations at the organisational level tailored to the needs and character of the
organisation. But on the other hand, the application of work flexibility will be greatly
influenced by the preference of the Personnel Development Officer for work
flexibility. Suppose work flexibility is implemented in an agency. In that case, it is
necessary to have a policy that describes the technical implementation of the
application of work flexibility, job characteristics that can implement work flexibility
and indicators to measure the performance of employees who implement work
flexibility.
Regarding human resources, leaders need to consider the percentage of the
dominant generation in their agency to see the success rate of implementing work
flexibility. For employees, commitment and consistency are needed to carry out
intense communication, both with superiors and co-workers, considering that
communication skills greatly influence the implementation of work (Nicklin et al.
(2016). Employee self-management skills are needed to achieve organisational goals,
not purely personal ones. Employees must be self-aware to carry out work
responsibilities without waiting for superiors' orders. It must also be ensured that
employees who carry out work flexibility are those who prefer it, as stated by Bloom
et al. (2015). This work preference significantly influences the successful
implementation of work flexibility.
From a cultural point of view, a willingness to change mindsets and work
systems is needed both from the side of employees and organisational leaders.
Changes in mindset will be able to change the culture within the organisation and
affect employee performance. This follows what was stated by Okubo (2020).
Changes in the work system are more towards a willingness to face digitalisation in
all aspects of work. This culture is not limited to changing the mindset of employees
and leaders but also how employees (including leaders) carry out work. The role of
the leader is needed, especially in maintaining trust in employees to achieve
performance output.
 14th International Conference Of Organizational Innovation (ICOI2023) 1405

Conclusion

Referring to the results of research at development research institutes during a

pandemic, it was concluded that policies, human resources, and work culture had not
supported the application of work flexibility as a new way of working. The work
flexibility implemented during the pandemic can be used to evaluate the
implementation of work flexibility and find gaps that are still a weakness in the
application of work flexibility. In this way, it will be possible to find the composition,
model, or strategy suitable for implementing work flexibility in the government sector
according to their needs because each organisation has its own character and is
different from others. Government agencies that will implement work flexibility
referring to the presidential regulations that have been stipulated can consider the
challenges related to these three aspects. It is suggested that for further research
related to work flexibility, there are more research locations so that they can represent
government agencies in general, use more comprehensive methods, and conduct
direct interviews with all informants to extract more in-depth information.

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Date : May 26th, 2023
No : 52/Letter of Acceptance/ICOI-2023/Committee

To:
1. Tini Apriani, The National Research and Innovation Agency
2. Riris Katharina, The National Research and Innovation Agency
3. Diana Ma’rifah, The National Research and Innovation Agency
4. Ardy Firman Syah, The National Research and Innovation Agency
5. Azmi Listya Anisah, The National Research and Innovation Agency
6. Rian Sacipto, The National Research and Innovation Agency

Corresponding Email: [email protected], [email protected]

Corresponding Author: Tini Apriani, The National Research and Innovation Agency

Subject: Letter of Acceptance (LoA) ICOI 2023, Suan Sunandha Rajabhat University - Thailand

I am pleased to inform you that your papers submitted for 2023 International Conference in Organization Innovation
(ICOI), July 25th – 27th 2023, in Suan Sunandha Rajabhat Univ – Thailand, has been accepted to be presented in the
conference.

Papers Title:
 CHALLENGES IN IMPLEMENTING WORK FLEXIBILITY IN THE GOVERNMENT SECTOR IN INDONESIA
 Paper No. 2023-ICOI-52

For your papers to be presented in the ICOI 2023 conference and included in the proceedings, your Payment has to
reach us no later than June 14th 2023, otherwise it will be regarded as withdrawn automatically.

Attached with this LoA: (1) Invoice of Payment, (2) Invitation Letter, and (3) Poster ICOI 2023 Conference.

If you require any further information, please do not hesitate to contact the Indonesian Committee of ICOI via email
[email protected] ; or visit our website at http://icoi.fmi.or.id/

We look forward to seeing you at the conference.

Regards,

Dr. Frederick L. Dembowski Sri Gunawan, DBA.

ICOI 2023 – Honorable Chair ICOI 2023 – Conference Co-Chair
President, IAOI Association USA President, FMI Association Indonesia
Web: https://iaoiusa.org/ Web: https://fmi.or.id/
 LETTER OF INVITATION
Date: May 26th, 2023

On behalf of the Conference Organizers, The 2023 ICOI Conference Committee, is pleased to extend our invitation to,

Name / University:

1. Tini Apriani, The National Research and Innovation Agency

2. Riris Katharina, The National Research and Innovation Agency
3. Diana Ma’rifah, The National Research and Innovation Agency
4. Ardy Firman Syah, The National Research and Innovation Agency
5. Azmi Listya Anisah, The National Research and Innovation Agency
6. Rian Sacipto, The National Research and Innovation Agency

to attend the 2023 International Conference on Organizational Innovation (ICOI), and also to share and exchange
research interests and applications with others conference participators in July 25th – 27th 2023, in Suan Sunandha
Rajabhat University, Thailand.

Further information of the ICOI 2023 conference can be found at http://icoi.fmi.or.id/

Looking forward to seeing you in the 2023 ICOI in Suan Sunandha Rajabhat University - Thailand.
 INVOICE
Date : May 26th, 2023
Number : 52/INV/ICOI-2023/Committee

To:

1. Tini Apriani, The National Research and Innovation Agency

2. Riris Katharina, The National Research and Innovation Agency
3. Diana Ma’rifah, The National Research and Innovation Agency
4. Ardy Firman Syah, The National Research and Innovation Agency
5. Azmi Listya Anisah, The National Research and Innovation Agency
6. Rian Sacipto, The National Research and Innovation Agency

Corresponding Email: [email protected], [email protected]

Corresponding Author: Tini Apriani, The National Research and Innovation Agency

Total Amount:

 Rp. 2.650.000
(Two Million Six Hundred and Fifty Thousand Rupiah)

Description:

 Payment – Conference Fee of ICOI 2023 conference

 For 1 (One) Papers submitted in the ICOI 2023 conference
 For 1 (One) Corresponding Author as Presenter, attending the ICOI 2023 conference
 Deadline of Payment : Wednesday, June 14th 2023, at 23.59 WIB (EXTENDED DEADLINE)

Please transfer your payment to:

 Bank = Mandiri
Account Name = Tuwanku Aria Auliandri
Account No. = 141 000 9831 488
Bank Branch = Universitas Airlangga Surabaya

Regards,

Sri Gunawan, DBA

ICOI-2023 Conference Chair
Web = http://icoi.fmi.or.id/
Email = [email protected]
 SURAT PERNYATAAN KONTRIBUTOR

Yang bertanda tangan di bawah ini:

No Nama Instansi Status Dalam Peran

Keanggotaan
1 Riris Katharina Badan Riset dan Inovasi Nasional Kontributor Utama Penyusun Metodologi
2 Ardy Firman Syah Badan Riset dan Inovasi Nasional Kontributor Utama Hasil Analisis
3 Tini Apriani Badan Riset dan Inovasi Nasional Kontributor Utama Penyusun Draft Awal
4 Diana Ma’rifah Badan Riset dan Inovasi Nasional Kontributor Utama Penyusun Latar
Belakang Masalah
5 Azmi Listya Anisah Badan Riset dan Inovasi Nasional Kontributor Utama Penyusun Kesimpulan
6 Rian Sacipto Badan Riset dan Inovasi Nasional Kontributor Utama Parafrase

Menyatakan bahwa kami secara bersama-sama telah menyusun naskah Prosiding berjudul:
“Challenges in Implementing Work Flexibility in the Government Sector in Indonesia” yang
diterbitkan oleh International Proceeding 14th International Conference Of Organizational Innovation
(ICOI2023) bulan April 2023.

Demikian Surat Pernyataan ini kami buat untuk dipergunakan sebagaimana mestinya.

Riris Katharina Tini Apriani

Ardy Firman Syah Diana Ma’rifah

Azmi Listya Anisah Rian Sacipto