To what extent have street-level bureaucrats used their discretionary powers during the COVID-19 pandemic in Indonesia?

• DOI: https://doi.org/10.1108/IJPSM-12-2021-0272
• Published date: 12 September 2022
• Date: 12 September 2022
• Pages: 806-820
• Subject Matter: Public policy & environmental management,Politics,Public adminstration & management
• Author: Agus Heruanto Hadna,Umi Listyaningsih,Idris Ihwanudin

To what extent have street-level

bureaucrats used their

discretionary powers during the

COVID-19 pandemic in Indonesia?

Agus Heruanto Hadna

Department of Public Policy and Management, Universitas Gadjah Mada,

Yogyakarta, Indonesia and

Graduate School of Leadership and Policy Innovation, Universitas Gadjah Mada,

Yogyakarta, Indonesia

Umi Listyaningsih

Department of Environmental Geography, Universitas Gadjah Mada,

Yogyakarta, Indonesia and

Graduate School of Leadership and Policy Innovation, Universitas Gadjah Mada,

Yogyakarta, Indonesia, and

Idris Ihwanudin

Centre for Population and Policy Studies, Universitas Gadjah Mada,

Yogyakarta, Indonesia

Abstract

Purpose –The objective of this research is to analyze the extentto which street-level bureaucrats (SLBs) have

exercised discretion (low, medium and high) and the contributing factors involved (i.e. the influence of personal,

work environment and demographic factors on the exercise of discretion).

Design/methodology/approach –The mixed-methods research uses theembedded design approach. Data

were collectedduring the COVID-19pandemic through a surveyof 2,867 Official Certifierof Title Deeds (Pejabat

Pembuat Akta Tanah/PPAT) as SLBs spreadacross fifty regencies/cities in tenprovinces in Indonesia.

Findings –This field study found a significant and positive correlation between SLBs’economic motive and

the client’s knowledge of land issues with the exercise of discretion. In addition, the study found a significant

correlation between the age and gender of SLBs and their practice of discretion.

Practical implications –This study provides insights into that new policies should not further complicate

the system but reduce face-to-face interactions between SLBs and their clients by allowing digital technology.

Originality/value –The novelty of this research is the paradox of SLB service during the COVID-19

pandemic differed from the paradoxes identified in earlier studies. SLBs commonly cope with service paradox

by limiting their services or focusing solely on the most profitable clientele. However, this study shows that

some SLBs actively reach out to clients using a “friendly”service model.

Keywords Discretionary power, Street-level bureaucrat, Official certifier of title deeds, A paradox of service,

COVID-19

Paper type Research paper

1. Introduction

Michael Lipsky provided one famous study of street-level bureaucrats (SLBs) and their

behavior through his book Street-Level Bureaucracy: Dilemmas of the Individual in Public

Services, published first in 1980 and again in 2010. In the 1980 edition of his book, Lipsky

IJPSM

35,7

806

We are grateful to the CPPS, Universitas Gadjah Mada that provide primary data of the Survey of Land

Deed Making Official Performance, 2021.

The current issue and full text archive of this journal is available on Emerald Insight at:

https://www.emerald.com/insight/0951-3558.htm

Received 20 January 2022

Revised 18 June 2022

5 August 2022

Accepted 18 August 2022

International Journal of Public

Sector Management

Vol. 35 No. 7, 2022

pp. 806-820

© Emerald Publishing Limited

0951-3558

DOI 10.1108/IJPSM-12-2021-0272