Implementation of the Policy for Capacity Building of Village Apparatus in Merangin Regency, Jambi

This study is intended to analyze the implementation of policies carried out by the Merangin Regency Government of Jambi Province in order to increase the capacity of village apparatus. This study used Weimer and Vining's policy implementation, which consists of policy logic, policy environment and implementor capability. This research was conducted using a qualitative approach with a type of case study. Data collection was carried out by interviewing 11 respondents and reviewing data related to the research topic. After collected, the data were analyzed by data reduction, data presentation, and drawing conclusions. Based on this research, it is known that in terms of policy logic, the Merangin Regency Government really understands the significance of the existence of village officials in managing existing resources, so it does Workshop on the Implementation of SISKEUDES and Provision of Village Technical Capacity Development (P2KTD) was held. The policy environment also supports the implementation of this policy through commitments conveyed by the Head of Regency, Head of the Merangin Regency Village Community Development Agency (PMD) and Heads of Sub-Districts. The ability of implementors consisting of village officials is still very limited in applying training materials in accordance with the potential context of their respective villages.


INTRODUCTION
The study of the capacity of village apparatus is very interesting and important to do. This is related to the importance of the ability possessed by village apparatus in managing a community and region. As it is known that the Indonesian Village Law Number 6 of 2014 further confirms the importance of focusing villages on development in Indonesia. This is related to Indonesian Central Statistics Agency (Badan Pusat Statistik 2020) data that the village is home to the majority of Indonesian people and is home to most of the country's natural resources. Besides that, the Indonesia village is the smallest region that has the government equipment recognized in the political system adopted by Indonesia.
The various characteristics above make the village always a concern of the government which was realized in the birth of various laws and rules; the latest is Law Number 6 Year 2014. These regulations were raised as a form of government attention to the village, while also intended to address the problems that arose in them. This latest village regulation manifests itself in the form of self-governing community and local self-government in the form of delegation of authority covering the affairs of village administration, implementation of village development, community development, and empowerment of rural communities (Wahyudi et al. 2016). According to Nikmatul Huda (Hartati, HM, dan Rahmi 2020) problems of the village because their quality is still low, not only related to the community in general, but also village officials or village government (Asrori 2014). The study by (Anto dan Amir 2017), (Sahi 2018), (Syaifullah 2017), (Brillo 2017), (Kisman dan Tasar 2014), (Nak-ai et al. 2018), (Sharma 2015), (Wikowski dan Kiba-Janiak 2014), and (Nugroho 2014) also revealed that the quality of village apparatus is still not optimal or is still very necessary to be improved and the ability, willingness and potential of the village apparatus as well impacts and approaches to governance and implementation development has not been maximized because the capacity of human resources is still limited. This phenomenon is of course closely related to other problems inherent in the domicile of the largest part of the Indonesian people, namely poverty, unemployment, education and health (Hartati et al. 2020).
On this basis, there needs to be an effort to overcome the problem of Peterson (HM 2020) defines public policy simply by considering it as an action taken by the government to overcome various problems. This effort also seems to be in line with Muhammad Fadli (Hartati et al. 2020) who stated that village management must pay attention to how the village apparatus adapted to the capacity needed to manage this important area in the modern world.
Public policy studies recognize several stages, namely policy formulation, policy implementation and policy evaluation (HM 2020). Policy formulation is a very important initial stage because it presents information to analysts. The formulation of policies contains plans that will be carried out to overcome social problems, their goals and priorities, policy alternatives, and the advantages and disadvantages of each policy. Furthermore, policy implementation is interpreted as a method used so that a formulated and defined public policy can be implemented and achieve the desired goals (HM M H P a h r u d i n : I m p l e m e n t a t i o n O f T h e P o l i c y F o r C a p a c i t y B u i l d i n g O f V i l l a g e A p p a r a t u s I n M e r a n g i n R e g e n c y , J a m b i | 221 2020). Meanwhile, policy evaluation is intended to assess the effectiveness of a public policy so that it can be held accountable to the public (HM 2020).
Therefore, efforts to increase the capacity of village officials are being carried out, it is interesting to see how it is implemented. As the main manager of village resources, the village apparatus absolutely has good capacity.
According to Marilee S. Grindle (Mirnawati 2019) (, capacity in terms of the ability to perform appropriate tasks effectively, efficiently, and sustainably.
However, not always policies to solve problems can be implemented and achieve the expected goals. Policy makers are not guaranteed to be successful in implementation. There are many variables that influence the success of policy implementation, both individually and in groups or institutions. The implementation of a program involves the efforts of policy makers to influence the behavior of implementing bureaucrats so that they are willing to provide services and regulate group behavior target.
In this regard, several parties have tried to present views about the factors that are considered to be able to influence the implementation of a public policy. Some of these experts include Grindle, van Meter and van Horn, Edward III, Mazmanian and Sabatier, and Weimer and (HM 2020). In the context of this study, the concept of policy implementation from Weimer and Vining which consists of (1) policy logic, (2) the environment in which the policy is operated, (3) the ability of policy implementers will be used. Through this study, we shall know the implementation of the policy to increase the capacity of village apparatus in Merangin Regency. This research also strengthens the findings of previous studies on the importance of government policies, especially local government in increasing the capacity of village apparatus. This is important to do, so that village apparatus have the ability to manage the resources their regions have as an effort to improve community welfare, especially after the enactment Law No. 6/2014.

METHOD
This study used a qualitative research approach, that according to (Creswell 2007) is an approach that gives an opportunity for researchers to be able to carry out detailed descriptions and interpretations in order to gain a holistic understanding. This type of research is a case study, which is understood by (Creswell 2007) as a type of research that can be interpreted as an approach to study, explain, or interpret a case in its natural context without outside intervention. More specifically, this research is an instrumental case study which is used to examine a particular case so that a perspective can be presented on the issue or improvement of a theory.
This study was conducted in Merangin Regency, Jambi Province, the largest region in Jambi Province (7,679 km 2 ), especially in Rantau Limau Manis Village and Limbur Merangin Village. Merangin Regency has a variety of potential natural resources that are suitable for the orientation of regional development. Merangin Regency has 4 superior commodities which are the backbone of the population's economy in one of the western districts of Jambi Province, namely rubber, oil palm, coffee, and coconut (HM 2017; Halim, HM 2020). Based on BPS data (2020), the area of rubber in Merangin Regency was 132,192 hectares, oil palm covering 53,792 hectares, robusta coffee with an area of 10,860 hectares, and coconut with an area of 1,658 hectares. All of the above resources are important capital to improve people's welfare through good management by the village apparatus.
As required in qualitative research using the case study method, the data is collected from several sources, namely through documents and archive records, interviews, direct observation, (participant observation) and other physical devices related to village apparatus in Merangin Regency (Creswell 2007). This research data is qualitative and consists of primary data and secondary data. Most of the primary data was collected through interviews, direct observation, and participant observation, while a small portion of other data was obtained from documents and physical devices related to the village apparatus of Merangin Regency.
Interviews were conducted to explore the experiences of ten informants and their subjective interpretations of village apparatus and policy of Merangin Regency. The determination of the ten informants is based on their involvement information. In this case, each interview is directed to a topic that in the view of the researcher is the competency of the relevant informant in accordance with their respective status, without neglecting the extraction of general information. The researcher records all the dialogue that takes place during the interview, and makes additional notes as needed. The recording is then converted into an interview transcript which is done after the interview is conducted. Creswell (2007) revealed that effort to analyze data can use qualitative data analysis techniques in three ways, namely data reduction, data presentation (displaying data), and drawing conclusions. Data reduction is the process of selecting, focusing on simplifying, abstracting, and transforming "rough" data that arise from written records in the field. Furthermore, the presentation of data is a collection of information that has been organized to facilitate the possibility of drawing conclusions and taking action. The final method used is drawing conclusions or verification, namely interpretation of the entire data collected so that adequate conclusions can be obtained. Meanwhile, other data that is also closely related to the village is the problem of poverty and unemployment. Based on BPS data (September 2020), Indonesia's poverty rate is still in the range of 9.66% (25.67 million people)

RESULT AND DISCUSSION
where as many as 15.54 million of these are domiciled in the village, while in Merangin Regency is 9.43% (35.48 peoples). The unemployment rate in Indonesia based on BPS data (2020) is also still quite large (5.01%), while in Merangin Regency is 4.000 people, most of which are those living in rural areas.
In addition to the three problems above, another problem that is also inherent in the village is related to the quality of the village apparatus which is still unable to meet the required standards. This is as raised in studies conducted by (Anto dan Amir 2017), (Sahi 2018), (Syaifullah 2017), (Brillo 2017), (Kisman dan Tasar 2014), (Nak-ai et al. 2018), (Sharma 2015), (Wikowski dan Kiba-Janiak 2014), and (Nugroho 2014) which states that the quality of village apparatus is still low. This finding is in line with Suwardjo's (Hartati et al. 2020) summary which mentions that there are various problems faced by village government in carrying out its duties, namely limitations of staff or employees both in quality and quantity that affects the implementation of government village; quality and quantity of assistance, training and monitoring village development is low so that it affects the effectiveness and efficiency of program M H P a h r u d i n : I m p l e m e n t a t i o n O f T h e P o l i c y F o r C a p a c i t y B u i l d i n g O f V i l l a g e A p p a r a t u s I n M e r a n g i n R e g e n c y , J a m b i | 225 interventions; village isolation which results in lack of community accessibility towards public service centers; low welfare of the village related to the provision of basic services and village economic development; the quality and competence of village human resources is still low and limited; the position of the dominant local figure is still a reference in policy making both cultural and formal causing the role of the village government system to be dominated by the spirit of feudalism and clientelism. In the same context, Garvera (2018) also states that public services by the government are highly increasing and the quality must be improved. Further consequences of this demand require the government to provide officers with high dedication and discipline as well as loyalty to full service to the tasks that are their responsibility and oriented to community service as public servants.
Meanwhile, according to Shakinah (2019), the low performance of village officials is influenced by several factors including:1). Age as a unit of time that measures the existence of an object or creature, both living and dead.
2). Lack of motivation is an impulse that causes someone to do an action to achieve the goal. While what happens in the field, the motivation given can be said to be very lacking that makes the village apparatus less eager to learn new things, such as the use of computers and websites that should be used by all village officials. 3). Lack of training and development as a process designed to improve technical knowledge and skills, or improve employee performance.
Development is the process of increasing conceptual ability, ability to make decisions and human relations. Therefore, to create work effectiveness, the village head should conduct a training and development program. It is intended that the village apparatus can complete their duties effectively and efficiently, without interfering with other work. 4). Consultation as the success of an organization in realizing its objectives is through several supporting factors.
The skills and knowledge possessed by the members of the organization very clearly will lead the organization to achieve the goals set. Besides that, one of the factors needed to achieve the goal is consultation, to assess the consultation process carried out through several indicators, namely by providing input, As the party entrusted with the resposibilities of managing the area, the Merangin Regency government should be able to use its local potential as a basis for regional development. This is in line with the concept of local potential-based development which relies on the understanding that real development comes from within (local government and society). Areas that have certain potentials (natural resources and human resources) can apply development models that are in accordance with their characteristics. The hope, by relying on sources originating from within the region, then everyone feels the ownership and development goals in the form of welfare will be achieved well.
Related to this, based on BPS Merangin data (2020), there were 101,866 people working in the agricultural sector (mainly rubber, oil palm, coconut and coffee) with 36,905 heads of families (KK). That is, by focusing development

| T h e J o u r n a l o f S o c i e t y and M e d i a 5 ( 1 )
on these three main commodities, Merangin Regency Government has helped the lives of most of its population. In this way, the level of welfare of the people of Merangin Regency will also increase because the main source has been well managed by the local government as the main controller at the regional level. This is in line with James Midgley (HM 2020) stating that there are three categories of achievement regarding welfare, namely regulation of social problems, fulfillment of needs and the acquisition of opportunities to improve living standards. This method can be carried out jointly by the family, community and society at large, including local government.
Regulatory, the efforts to overcome these village problems have been the According to Wahyudi's record (Hartati et al. 2020), the optimization of the government's capacity-building mechanism has proven to be able to improve the ability of village officials to carry out their functions. Village apparatuses who follow the stages of capacity building are provided with M H P a h r u d i n : I m p l e m e n t a t i o n O f T h e P o l i c y F o r C a p a c i t y B u i l d i n g O f V i l l a g e A p p a r a t u s I n M e r a n g i n R e g e n c y , J a m b i | 231 knowledge about village management from planning, implementation, to evaluation. The same thing was also expressed by (Nugroho 2014)  Efforts to improve the capacity of village officials carried out by The Government of Merangin Regency are indeed not directly related to the welfare of the community. However, as is well known, Merangin is one of the regencies that has the largest potential natural resources in Jambi Province. This region is a place for rubber, palm oil, coffee, coconuts and so on. The majority of Merangin residents also depend on their lives on these commodities. Therefore, by having a quality village apparatus, they will be able to help the community manage these large resources. Through good management of these potential resources, the socio-economic life of the community will also improve.
Based on the concept of Bappenas, this policy is part of capacity development at the individual level. This is because those who participated in this activity were village officials who underwent training about good village management. Even though village management training has been carried out, it is certainly not easy to change existing habits. Village management in Merangin so far has only been based on the wishes of a handful of village elites, without involving the public at large. Moreover, it is related to village assets (Tanah Bengkok or village-owned land) which have been earmarked for the village head's economic resources. Whereas, good village management requires broad public participation and accountability of village work programs (Wahyudi, Ngumar, dan Suryono 2019). Since the program will disrupt the existence of the elite, it will not be easy to implement it perfectly. Therefore, for M H P a h r u d i n : I m p l e m e n t a t i o n O f T h e P o l i c y F o r C a p a c i t y B u i l d i n g O f V i l l a g e A p p a r a t u s I n M e r a n g i n R e g e n c y , J a m b i | 233 this program to reach its targets precisely, more comprehensive tools are needed. Good village management also requires an effective internal control system. Thus, the implementation of the training carried out by village officials will be monitored and controlled by an internal control mechanism.

Implementation of Village Apparatus Capacity Building's Policy in
Merangin Regency. As previously mentioned, policy makers are not guaranteed to be successful in implementation. There are many variables that influence the success of policy implementation, both individually and in groups or institutions. The implementation of a program involves the efforts of policy makers to influence the behavior of implementing bureaucrats so that they are willing to provide services and regulate group behavior target.
In this regard, several parties have tried to present views about the factors that are considered to be able to influence the implementation of a public policy. Some of these experts include Grindle, van Meter and van Horn, Edward III, Mazmanian and Sabatier, and Weimer and Vining. In the context of this study, the concept of policy implementation from Weimer and Vining (HM 2020) which consists of (1) policy logic, (2) the environment in which the policy is operated, (3) the ability of policy implementers will be used.

Policy Logic.
In an effort to assist in the analysis of policy implementation, Weimer and Vining used policy logic. The first factor is intended so that a policy that is established makes reasonable and theoretical support. We can think of the logic of a policy as well as the logical relationship of a hypothesis.
As it is known that on the one hand, villages have a variety of resources, including the villages in Merangin regency, but on the other hand, poverty and unemployment are still high. In line with the enactment of Law Number 6 of 2014, villages have the authority to manage their resources. The management of these resources is of course carried out by village apparatus who are elected by the community themselves with a variety of good managerial capacities. The problem is that most village apparatus still have inadequate capacity to manage a variety of potential resources to improve community welfare. Therefore, the government must assist village apparatus through policies that can increase The environment in which the policy is operated. The environment is factor will influence the successful implementation of policy including the social, political, economic, defense, and physical or geographic. A policy can be implemented successfully in a certain area, but failed to be implemented in another area, due to different environmental conditions.
In this context, the policy of holding a Workshop on the Implementation of Sikeudes and Provision of Village Technical Capacity Development (P2KTD) for village apparatus in Merangin Regency is highly dependent on the socio-political conditions in Merangin Regency. Even though this program is a national program, of course its implementation is closely related to the regional government as the technical implementer in the field.
In relation to this, the Head of the Merangin Regency Village Community Development Agency (PMD) said that the Merangin Regency Government continues to be committed to continuing to carry out this activity. This is because there are still many village apparatus who do not understand how to manage the village and its resources. Not to mention the various regulations issued by the government regarding the existence of villages and their apparatus, especially after the existence of Law Number 6 of 2014.
The same thing was said by the Head of Tabir Ilir and West Pamenang Sub-Districts. The two sub-district heads expressed their commitment to support the government's efforts to increase the capacity of village apparatus, M H P a h r u d i n : I m p l e m e n t a t i o n O f T h e P o l i c y F o r C a p a c i t y B u i l d i n g O f V i l l a g e A p p a r a t u s I n M e r a n g i n R e g e n c y , J a m b i | 235 particularly through The Siskeudes Implementation Workshop Program and the Provision of Village Technical Capacity Development (P2KTD).
The problem is that not all village apparatus in Merangin Regency have the same level of understanding to be able to translate the material presented into real action in the field. This is as stated by the Rantau Limau Manis Village apparatus who stated that the materials presented in the activity were quite difficult for them to understand well. Not to mention that many village apparatus did not have adequate preparation before joining this program, such as the ability to use computers and their applications better.
Apparatus of Limbur Merangin Village also admitted that, frankly, they still could not fully apply these materials in managing their village resources.
The ability of policy implementers will be used. The success of a policy can be influenced by the level of competence and skill of the policy implementers.
In this context, the success of the village apparatus capacity building program really depends on the village apparatus itself. This means that the village apparatus is the determining factor whether this program is successful or not implemented and its objectives are well achieved.

As recognized by the apparatus of Rantau Limau Manis and Limbur
Merangin Villages, their ability to translate training materials into real action in the field in accordance with the local context is still difficult to do. The village of Rantau Limau Manis, for example, is an area that has potential natural resources in the form of rubber and oil palm plantations. Most of the inhabitants of this village are highly dependent on the rubber and oil palm plantations that are widespread in this village and its surrounding areas. Until now, Rantau Limau Manis Village apparatus have not been able to properly implement training materials based on the local potential of this region.
Limbur Merangin Village apparatus also conveyed the same thing.
Like Rantau Limau Manis Village, this village also relies heavily on rubber and oil palm plantations for its residents. Training materials related to village resource management have not been able to be translated properly by village officials in accordance with the context of the potential of the region. that support or limit the achievement of certain policy objectives and organizational structure, decision-making processes within the organization, work procedures and mechanisms, management instruments, relationships and networks between organizations.