Journal of Environmental Treatment Techniques

2020, Volume 8, Issue 4, Pages: 1618-1624

J. Environ. Treat. Tech.

ISSN: 2309-1185

Journal web link: http://www.jett.dormaj.com

https://doi.org/10.47277/JETT/9(1)178

Managing Complexity and Resource-Based

Strategy Cases in the Implementation of Food

Security Policy in Indonesia

Novayanti Sopia Rukmana S , Alwi , Gita Susanti

Lecturer of the Department Administrative Science, Universitas Negeri Makassar,

Professor in the Department of Administrative Science, Hasanuddin University,

Department of Administrative Science, University of Hasanuddin

Received: 09/08/2020

Accepted: 22/10/2020

Published: 20/12/2020

Abstract

The main objective of this study is to explain managing complexity through the resource-based view as a strategy for the

implementation of food security policy. Because the study so far still focused on the form, type, and its dimensions. The study uses a

qualitative design and case study strategy to explain the implementation of food security policy. Techniques of data collection used were

observation, depth-interviews, and documentation. Based on the matching patterns and time series analysis, managing the complexity

of resource sharing in the implementation of food security policy is not effective. This happens because the resources owned by them

are not integrated through the governance network. Besides, the governance network organization does not have a clear vision, so they

also behave in a changing manner and controlling their resources. This is shown by each government agency controlling the funds for

this program and the extension workers do not have the necessary expertise in the food diversification, rice, and animal food programs.

Therefore, resource sharing strategies that have value, rareness, imperfect imitability, and organization can achieve successful

implementation of this policy.

Keywords Managing complexity, resource-based strategy, implementation policy, and food security policy

people experience food shortages and starvation. The worst

Introduction

conditions have occurred in Africa and South Asia. In fact,

according to the UN Population (2000) predicts that in 2050, there

will be an increase in the population of around 2.32 billion peoples

who must be met their food needs under the pressure of an

increasingly severe climate change threat [8].

The complexity of public problems causes the government to

have difficulty implementing various public policies because it has

limited resources. These limitations include skills, finance,

information, facilities, and infrastructure. This shows the

government needs to involve the private and non-government

sectors in the process of solving problems and meeting public

needs. Such conditions no longer allow the government to become

the main domain but require collaboration between stakeholders in

this process [1], [2].

Collaboration among all stakeholders in the public service

requires a synergy between actors, in this case, state, private and

non-governmental organizations. The process of interaction in

collaboration shows the interdependence between them and this

shows the complexity in the process of public service delivery and

policy. In addition, this complexity also occurs because those who

have different backgrounds, interests, skills, and perspectives

cause the delivery of public services and policy also vary

Data from the Global Food Security Index (GFSI) shows that

Indonesia's food security has increased from year to year, but this

condition does not put Indonesia ahead of Southeast Asian

countries such as Singapore, Thailand, Malaysia, and Vietnam.

The score of GSFI in 2018 rose by 1.6 points to a level of 54.8 and

placed Indonesia's position in the 5th place out of the Nine

Countries of Southeast Asia. The food security index can be seen

from the availability aspect of 58.2 (3rd rank). Then in terms of

quality and safety, Indonesia only received a score of 34.5 (8th

rank) while in terms of resilience and natural resources it received

a score of 43.9. Singapore at the global level is superior with the

highest food security index with a score of 85.9, while Indonesia

is in 65th position under Morocco and Ecuador. The data shows

that Indonesia has not been able to compete with other countries

to improve the Food Security Index. This shows that the

complexity of the food security policy process. The government

made various attempts as a form of governance network among

them is the Food Security Council (DKP), which is set in

Presidential Decree No. 132 of 2001. This policy attempted a

gather all stakeholders to integrate resources through sharing

[

3],[4],[5],[6],[7]. This complexity can be demonstrated in food

security policies because food security is a very urgent issue both

nationally and internationally. In addition, it also includes

stakeholders that are so varied that they have difficulty coping with

this wicked problem. The increase in the world population affects

the increase in food needs. Food crisis and hunger are a threat to

the world. Based on data from FAO-UN 2009 showing the highest

cases of food shortages and hunger since 1970, around 1.02 billion

Corresponding author: Alwi, Professor in the Department of Administrative Science, Hasanuddin University, Email:

alwifisip@gmail.com

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2020, Volume 8, Issue 4, Pages: 1618-1624

resources in problem-solving and meeting food needs as a public of animal food policy. The three cases are described based on the

domain. Therefore, the focus of this study is the resource-based dimension of complexity, namely non-linear dynamics, self-

strategy to overcome these strategic problems. This is done to organization, and co-evolution.

overcome the theoretical gap, which has been concerned only with 1. Case 1: Implementation of food diversification policy in

the form, type, and dimensions of the complexity [3],[7].

Indonesia

The effort to accelerate food diversification is manifested in

several aspects, namely consumption, development of food

business, production, food independence, and self-sufficiency.

The effort has not been effective as shown table 2 and 3.

One of the complexities in governance networks can be seen

from the process of interaction between actors. Each actor will

appear with different knowledge and skills, he has information and

perceptions of problems that tend to be different and the actors will

tend to prioritize their respective interests. Each of the actors will

try to maintain and try to achieve their own goals outside of the

same goals in the organization.

Nonlinear dynamics interpreted as the difficulties to predict the

future of the organization caused by the behavior of actors who

often differ between one another. This causes the process

interactions that are sometimes no longer unidirectional, erratic,

and the performance of this policy be difficult to achieve. This can

be shown in table 1 below.

Food diversification policy is not a new policy, long before this

policy was launched. When viewed from the time of the realization

of this policy, Indonesia should be able to achieve a high level of

food diversification. In fact, from the date of the last three years,

Indonesia's food security index tends to increase, but in reality,

Indonesia's food security index is still in the low category and is

unable to compete with other ASEAN countries' food security

indices.

Methods

This study seeks to uncover and explain the managing

complexity of the aspects of important resources sharing in

governance networks. Resource sharing is a complex matter

because the actors involved have different resources, interests,

goals, and strategies in implementing this policy. The three cases

of policy implementation are top-down approach policies, in

which the central government designs its policies, then, its

implementation is left to the local government, including

provincial and regency/city governments. This kind of policy

implemented in the separate simultaneously across Indonesia, so

the performance of policies varies from one region to another,

depending on the readiness and capability of local government

agencies as an implementer of the policy. Food security policy is

a complex policy because it involves many government agencies

from the central government to the lowest government. In addition,

many other actors outside the government are involved in the

policy process, including the farmer groups as the target group.

1.Research Design and Strategy: The research design used in

this study is qualitative research, which aims to uncover and

explain managing complexity in the implementation of food

security policy in Indonesia, includes food diversification, rice,

and animal food programs. Then the research strategy used in this

study is a case study with an explanatory type to explain

phenomena in the implementation of food security policy based on

the context.

Table 1: follows the comparison of Indonesia's food security

index with other ASEAN countries

2.Informants: The informants in this study are primary data

sources that provide information about conditions and reality and

are directly involved in policy implementation. The informants in

this study are as follows: a) Chairman and members of the Farmer

Group; b) Chairman and members of Gapoktan; c) District

extension team; d) Region extension team; e) Head and staff of the

Food Security Service, and f) Head and staff of the Department of

Agriculture.

Country

Indonesia

Vietnamese

Thailand

Score (%)

54.8

58.9

.Data collection techniques: This study uses data collection

Malaysia

Singapore

68.1

techniques including observation, in-depth interviews, and

documentation. Tangible objects are the focus of observations on

the implementation of food security policy. The situation observed

was Production, Distribution and Consumption activities. Then,

in-depth interviews are addressed to all informants mentioned

above. Subsequently, various documents were collected, such as

85.9

Source: Databoks, 2018

Based on the table above, it can be seen that the Indonesian Food

regulations, laws, statistical data, reports on institutional activities Security Index is at 54.8%. Indonesia ranks fifth out of nine

related to the implementation of food security policy.

countries in the Southeast Asian region. Based on the affordability

.Processing and Data Analysis Techniques: The data aspect, Indonesia's food security score of 55.2% and ranked 5th in

processing technique used is data reduction through data the Southeast Asia region. Then the score from the aspect of

categorization and classification. Then, the analysis techniques availability is 58.2% (ranked 3rd). Then from the quality and

include pattern matching and time series techniques. Matching safety aspects, Indonesia only received a score of 34.5% (8th rank)

patterns based on theoretical patterns is a resource-based strategy while from the aspect of resilience and natural resources gained a

that determines the success of policy implementation. In this study, score of 43.9% (9th rank). Food consumption quality indicators

these techniques are used together to complement each other [9].

are shown by the Hope Food Pattern (PPH) score which is

The three stages of data analysis used in this study are: data influenced by the diversity and balance of consumption between

reduction, data presentation and withdrawal and verification of food groups. Table 2 below is targets and the realization of the

conclusions [10]. Data are categorized and classified based on their desired food pattern in the last 4 years. Self – Organization: Self-

similarities and differences after being collected through Organization focuses on how a system operates, develops and

observation, in-depth interviews and documents.

changes. This change includes the patterns of action and

interaction of the actors, which in turn will form new structures or

new organizations that are considered capable of achieving

Results and Discussion

There are three cases related to the implementation of food stability in the achievement of the interests of the actors.

security policy, namely the implementation of food diversification Government Regulation No. 68 of 2002 concerning Food Security

policy, the implementation of rice policy and the implementation states that food diversification is carried out to improve food

security that takes into account local resources, institutions, and

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2020, Volume 8, Issue 4, Pages: 1618-1624

culture, by increasing food diversity, developing processing to increase and was the highest compared to other food

technologies and food products, and increasing public awareness commodities. If compared with other countries such as South

to consume a variety of foods with the principle of balanced Korea number of rice consumption is only 40 kg per capita per

nutrition.

year, Japan 50 kilograms per capita per year, Malaysia 80

kilograms per capita per year, and Thailand 70 kilogram per capita

per year, then the levels of Indonesian rice consumption are still

relatively high. This is in line with rice imports which are quite

high even though Indonesia proclaimed itself as an agrarian

country, as shown in Table 4 below.

Based on the table above, from 2013 to 2017 the level of rice

consumption continued to increase and was the highest compared

to other food commodities. If compared with other countries such

as South Korea number of rice consumption is only 40 kg per

capita per year, Japan 50 kilograms per capita per year, Malaysia

Table 2. Hope Food Pattern Score

Year

Target (%)

Realization

(

2015

2016

2017

2018

84.1

86.0

88.4

90.5

85.2

86.2

90.4

90.7

80 kilograms per capita per year, and Thailand 70 kilogram per

capita per year, then the levels of Indonesian rice consumption are

still relatively high. This is in line with rice imports which are quite

high even though Indonesia proclaimed itself as an agrarian

country, as shown in Table 4 below.

The rice import policy was carried out by the government

because of the lack of inventory on the one hand and the high level

of demand on the other. The main problem of food diversification

is the imbalance between food consumption patterns and food

production/availability in the community. In this case, not all

regions can produce various types of food needed by following the

ideal food consumption patterns.

Coevolution: The process of developing a network organization

through interacting among actors and assuming that system

changes can occur because there are changes in the interests of

each actor. The implementation of the diversification policy on

food includes many actors, one of which is the farmer group. This

farmer group is the target group of this policy and it is an

institution that grows and develops from, by, and for farmers to

strengthen cooperation in fighting for farmers. The development

of these institutions, such as farmer groups, an association of

farmer groups (Gapoktan), and national commodity councils, can

be shown in Table 5 below.

Source: Ministry of Agriculture's Food Security Agency, 2018

Some of the programs that have been implemented are

expected to support the food diversification policy. However, the

problem of food insecurity remains a threat to Indonesia. The

presence of the Indonesian Food Security Council is an effort to

strengthen the achievement of the country's food security. This

organization as a communication forum by the actors involved in

implementing food diversification policy is an important part of

food security.

Besides, several government programs in increasing food

diversification are welfare equalization programs and handling

poverty and food insecurity, which includes the Lestari food Home

Area, Balanced and safe Diversity Food Consumption Movement

(

B2SA). Then the government also promoted the development of

the local food industry, but its implementation has not been able to

achieve the goal of diversifying food consumption. This can be

seen from the level of rice consumption of Indonesian people

which is still very high compared to other food commodities such

as corn and tubers, as shown in Table 3 below. Based on the table

above, from 2013 to 2017 the level of rice consumption continued

Table 3 Food Commodity Consumption Rate

2014 2015

(Thousand (Thousand Tons)

Food

2013

2016

2017

Commodities

(Thousand Tons)

Tons)

70,000

20,000

22,000

12,000

Paddy

Corn

68,000

19,000

23,000

12,000

75,000

21,000

11,000

79,000

23,000

20,000

11,000

80,000

29,000

19,000

10,000

Cassava

Sweet potato

Source: BPS Data (Processed), 2018

Table 4: Number of Indonesian Rice Imports in the Last Three Years

Year

amount

016

017

018

1.28 million tons

3.05 million tons

2.25 million tons

Source: Statistics Indonesia, 2018

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2020, Volume 8, Issue 4, Pages: 1618-1624

(

GEMPITA) was born as a form of concern for the government, in

Table 5: Number of farmer groups in Indonesia

this case, the Ministry of Agriculture to realize food self-

sufficiency. Through this movement, it is expected that the young

generation will not spend their time only on things that are not

useful, but young people are invited to join together with the

government to use abandoned land for agricultural development.

The Agricultural Human Resources and Development Agency

Year

Farmers

527,310

561,791

Gapoktan

62,061

2016

2017

63,120

Source: 2017 Agricultural Extension and Development Agency

(

BPPSDMP) together with the Youth Farmers Movement

GEMPITA) formed a Joint Business Group (KUB). To form

The number of farmer groups that continues to grow indicates

that community involvement in achieving food diversification

policy is quite large. A team of extension workers to implement a

food diversification policy fosters Farmer groups. An increase in

the number of farmer groups is also followed by an increase in the

number of extension workers. The number of extension agents per

the year 2018 based on data from the Agricultural Human

Resource Extension and Development Agency is 31,511 extension

agents. In certain regions in Indonesia, 1 PPL (Field Extension

Officer) accompanies 20-22 Farmer Groups originating from 1-2

villages, whereas ideally, 1 PPL accompanies 8-16 farmer groups.

Overall, Indonesia still lacks 28,000 extension workers, with a

total potential of 72,000 in the agricultural sector, while only

assistance for farmers so that farmers are not left to walk on their

own by building farmer corporations. The formation of youth

organizations those are able to move youth to enter the world of

agriculture.

The presence of the “Karang Taruna” as a youth organization is

also part of the government's program to increase community

participation in agricultural development. It is a place for youth

development to develop economic, social and cultural activities. It

intends to use all the potential that exists in society both human

resources and natural resources itself. Based on the inter-census

agriculture survey (SUTAS) BPS 2018, the number of young

farmers that had aged about 25 years as many as 273 839 people,

while in 2013 only amounted to 187 734 people.

4,000 have become instructors. The implementation of food

“

Pemuda Pancasila” as a youth organization is also involved in

diversification must be done simultaneously; it can be started in

rural areas by paying attention to the behavior of households

including farm households as producers and consumers of food as

well and by empowering local institutions as social capital in an

effort to accelerate food diversification in rural areas.

Case 2: Implementation of the Rice policy in Indonesia: Rice is

a staple food commodity and consumption levels are quite high

when compared with countries in Asia. The average amount of

Indonesian rice consumption is 36,413 million tons, Bangladesh is

food security policy. Youth is the successor agency of the nation

who can take an important role in strengthening food security. This

organization is given the task to carry out the function of

community empowerment through involving and giving authority

to the community so that they can organize their lives more

independently.

Coevolution: Indonesia is a country that includes a high level of

rice consumption, which is 36.413 million tons per year with a

population of 269.1 million. This is caused by the rise is the staple

food of Indonesian citizens, so the government is very concerned

with its supply. However, the government's systematic efforts in

the form of a food security policy with various derivative policies

have not yielded maximum results, as in Table 6 below.

1,490 million tons, Vietnam is 21,490 tons and Myanmar is

0,440 million tons per year (Data center and agriculture system,

016).

Non-Linear dynamic: Complexity in organizational networks

arises from the process of interaction between each of the actors

involved. Actors involved in rice policy consist of government and

non-government actors. Actor government, in this case, is the

Ministry of Commerce, Ministry of Agriculture, State - owned

enterprises, Public Cooperation Logistic Agency (BULOG), the

House of Representatives and PT.PPI (Indonesian trading

company). It also shows the many interests that play in the

implementation of this policy. In addition, skills, knowledge, and

perception of problems will also be different. This can be shown

by the Ministry of Trade protecting farmers by refusing rice

imports, in contrast to the Ministry of Agriculture protecting

farmers by increasing rice production and PT PPI as a rice

importing company in Indonesia. The differences of interest that

exist in network organizations ultimately lead to a separate

polemic in the implementation of this policy. Changes in behavior

by each actor can occur depending on the interests of the actors.

The behavior of actors in organizations that tend to experience

changes is very dynamic so it is difficult to predict the performance

of this policy.

There are several programs designed by the government to

support the achievement of increasing rice production in Indonesia.

The program is a rice self-sufficiency program, supply availability

and price stabilization (KPSH) program. In the implementation of

the KPSH, BULOG involves many parties with the Regional

Government through the Department of Cooperatives, UMKM,

and Trade or in charge at the Provincial / Regency / City level;

Regional Inflation Control Team (TPID) of each region, and

Regional and Owned Enterprises (BUMD) for Food and Markets.

Self- Organization

Table 6: Comparison of Production and Consumption

Year

2013

Production

Consumption

39 Million Tons

34.5 Million

Tons

34 Million Tons

34.5 Million Tons

2014

2015

43.9 Million Tons

33.3 Million

Tons

Source: Ministry of Agriculture, Tempo Inti Media Harian, 2015.

Indonesia as an agrarian country is able to produce rice in large

quantities. But almost every year, rice imports continue to be done

to meet the needs of food stocks and supply parts of the deprived

areas. In 2013, the consumption was very high reaching 39 million

tons while Indonesia was only able to produce 34 million tons of

rice. In 2015, rice production increased from the previous year

which was 34.5 million tons to 43.9 million tons

Case 3: Implementation of Animal Food policy in Indonesia:

Non-linear Dynamic: The food problem is a very complex and

multi-sector and multi-actor problem, especially in solving

community nutrition problems. Consumption of food sourced

from animal protein in sufficient quantities is needed to overcome

various nutritional problems, including stunting. Regarding food

supply for animal protein, the Ministry of Agriculture is expanding

its self-sufficiency target from beef to livestock. However, these

efforts have not effective. It can be shown that Indonesia only

consumed 8 percent of animal food in 2018 and far below ASEAN

Self- organization includes the development of this organization

in the form of new structures or new organizations that show the

increasingly complex issue. Indonesian Youth Farmers Movement

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2020, Volume 8, Issue 4, Pages: 1618-1624

countries, as shown in Table 7 below.

marine and fisheries resources in 2017 are carried out by

encouraging the active involvement of the community, especially

as a driving force for conservation. The Ministry of Marine and

Fisheries initiated the formation of a conservation driving

community group, abbreviated as KOMPAK. Also, the

government assisted farmer groups as an effort to meet the demand

for fish production, as illustrated in Table 8 below.

Table 7: Comparison of Indonesian Animal Food Consumption

with Other Countries, 2018

Country

Consumption of Animal Protein

Some programs related to efforts to increase animal food

consumption, such as the Movement to Promote Fish Eating

(

GEMAR IKAN), are an effort to increase fish consumption and

Indonesia

Malaysia

Philippines

Thailand

to raise awareness of individuals and community groups about the

importance of consuming fish. GEMAR IKAN as a national

movement is carried out from the center to the local level. Self-

Sufficiency Program in meat, egg, and milk is an effort to deal with

nutritional problems and continue to increase production and

productivity. Likewise, this program seeks to increase the

28%

21%

20%

Community food consumption patterns differ between regions population and ensure the supply (production) of people for animal

depending on the environment including natural resources, local food to be Safe, Healthy, Undamaged and Halal (ASUH). The

culture, people's tastes, and income. Likewise, food consumption increase in animal food production is expected based on local

patterns also change from time to time which is affected by resources. Another program related to this matter is The

changes in income, changes in public awareness of the importance AISUMAKI (Indonesian Children love to eat fish). This program

of food and nutrition, and lifestyle changes. Animal food consists was initiated as an effort to strengthen Indonesia's food security

of animal husbandry products in the form of meat, eggs, milk, and that is expected to be able to increase the nutritional content for

food from fisheries, which are divided into sea fish, shrimp, fresh children. It does not only invite children to eat fish, but also

fish, and salted fish. Food and Agriculture Organization (FAO) become culinary entrepreneurs based on fishmeal.

shows the level of consumption of animal protein in Indonesian Coevolution: The government continues to strive to increase

society in 2017 still lags in developed countries even with some animal food production as a source of protein as indicated by

ASEAN countries. The cause of the problem is they have low setting targets for beef self-sufficiency. The determination of beef

purchasing power, besides meat is still a luxury food commodity self-sufficiency has been done for a long time, although with

with a relatively expensive price so that people on low incomes different names. Animal food consists of animal husbandry

cannot afford to buy. The next obstacle is the growing number of products in the form of meat, eggs, milk, and food from fisheries

Indonesia's population from year to year as well as increasing which are divided into sea fish, shrimp, fresh fish, and salted fish.

groups of people with higher income levels. This certainly causes This can be shown in Table 9 below. Based on table 9 above, the

the pattern of consumption of meat commodities also increase and amount of animal food production tends to increase but not

the high demand for meat cannot be provided by the domestic significantly. The production rate of 2 animal food commodities,

market.

namely eggs and milk, has increased in the last 4 years. However,

the amount of beef production has fluctuated and tended to decline

to reach 518,484 in 2016 and in 2019 it decreased again to 490,421.

This is not in line with the level of animal food consumption which

continues to increase. The level of consumption of animal food

such as eggs, meat, and milk is based on data from the Ministry of

Food Security Agency, 2019 as follows.

Table 10 above shows that the level of consumption of animal

foods such as eggs, meat and milk continues to increase. However,

the level of fulfillment of the national hope food pattern (PPH) of

Table 8: The Level of Fish Consumption

2016

2017

47.12

47.34

2018

50.65

50.69

Target (%)

Achievements

43.88

43.94

(

Source: Statistics Indonesia, 2018

12% has not been fulfilled. PPH for animal food in 2018 only

reached 11.6%.

Self- Organization: Efforts to maintain the sustainability of

Table 9: Animal Food Production

2016

2017

2018

2019

Egg

Milk

Meat

2,031,217

912,735

518,484

2,089,997

928,108

486,320

2,311,066

951,004

497,972

2,371,457

996,442

490,421

Source: Directorate General of Animal Husbandry and Health, 2019

Table 10: Levels of Consumption of Animal Food

Animal Food

Egg

2015

7,1

2016

7,3

2017

7,8

2018

7,2

Meat

9,3

10,2

3,0

10,8

2,3

12,3

3,1

Milk

2,8

Source: Ministry of Food Security Agency, 2019

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Various efforts have been made by the government to fulfill strategic management, the vision and mission of the organization

the need for animal food through increasing meat production, must be clear, because they determine the direction of the

including encouraging the maintenance of cows from individuals organization in the future [15],[16].

to groups and providing group assistance by a team of experts.

Managing the complexity of resource sharing for service

Besides, it also develops crop-livestock integration patterns, such delivery and public policy requires a resource-based strategy

as cattle-oil palm integration. Then, it also carried out the because managing them requires the capacity of public

development of pastureland, optimization of ex-mining land and organization resources. In this case, the implementation of public

grazing areas in eastern Indonesia, and facilitation of cattle service and policy becomes the main vision for public

business insurance (AUTS).

organizations, so that the ability of resources is a strategic factor

Based on table 11 above, food is a complex issue that is not of this organization. The vision of service delivery and public

possible to be handled by the government itself but needs to policy are not clear because resource sharing in the governance

involve other parties to resolve it [1],[11],[12],[13]. This shows the network of policy implementation does not happen. Resources-

need for synergy between these strategic actors to integrate their based strategy largely determines the success of policy

resources to achieve food security. Because the main purpose of implementation. An effective resource sharing process between

the collaboration is due to the limited resources owned by an each actor in a food security policy will determine the achievement

organization or stakeholders to achieve goals or gain competitive of effective food needs for the community.

advantage [14]. These limitations then led to the emergence of

Resources are indeed a strategic factor in determining an

efforts to integrate resources through resource sharing by the organization's competitive advantage, but if an organization's

actors involved. Actors or stakeholders identified in this study can vision is not clear then these resources will not support all strategic

be in the form of organizations, groups, and individuals. Then, the programs running effectively. This can be shown in this study that

resources can be in the form of skills, financial and information the food security policy is a governance network policy, but each

resources.

In solving problems and meeting the needs of public resources the resources they have in the implementation of this policy.

sharing by the actors involved becomes very important. This is In addition, the food security policy as a governance network

actor in the government (local government agencies) each controls

because the public problem is a wicked problem, as food needs as policy is not successful, because the resources owned by each actor

the main staple food, while the government has limited resources especially actors outside the government are not integrated for the

for this. Government actors such as government agencies relating implementation of this policy. However, they have strategic

this issue each have resources but are not coordinated or integrated resources that enable a network-based organization to achieve

for the implementation of this policy. Then, the same thing is the these policy objectives in a sustainable manner. The power sources

organizations that exist outside the government relating to the can push this organization to sustained competitive advantages,

implementation of this experience the same thing, so that the such as value, rareness, imperfect imitability, and organization.

problem solving and meeting the food needs of citizens is not The resources that satisfy such characteristics can achieve

effective, especially in terms of meeting these needs through local sustained competitive advantage [16], [17], [18].

food potential. The government relies more on rice imports even

though this country is a very potential food producer.

Each local government agency has valuable resources, but there

are local governmental agencies that have certain resources and

This happens because the vision of services and meeting the are not owned by others but are important in implementing

needs of citizens is not clear so that both government agencies as governance network policies. Then, in terms of quantity and

government actors, private actors, and community-based quality of resources differ from one actor to another, so the

organizations show changing or unclear behavior. Likewise, the integration of strategic resources through the governance network

resources they have are not integrated through resource sharing in becomes important in the delivery of public service and policy.

the implementation of food security policies. In the perspective of

Table 11: Managing Complexity Through Resource-Based Strategy for implementation of food security policy

Characteristics of

complexity

Case 1

Case 2

Case 3

Non-linear Dynamic

Actors' behavior tends to

change

Actors' behavior tends to

change

Actors' behavior tends to change

Each government agency has a different

budget allocation

Each government agency

has a different budget

allocation

Each government agency

has a different budget

allocation

Required skills vary

Self-organization

Coevolution

Less varied

Low

Varies greatly

High

Less varied

Very low

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Journal of Environmental Treatment Techniques

2020, Volume 8, Issue 4, Pages: 1618-1624

cross‐sector collaborations: Needed and challenging. Public

administration review. 2015;75(5):647-663.

Conclusion

Each actor involved in this program have strategic resources in

[

12] Agranoff, R. Collaborating to manage: A primer for the public

sector. Georgetown University Press, 2012.

solving problems and fulfill people's needs for foods. However,

these resources were not integrated through resource sharing and

the extension workers do not have the necessary expertise in the

food diversification, rice, and animal food programs in the policy

implementation. In addition, the managing strategic resources in

the implementation of governance network policy do not have a

clear vision, so the behavior of the actors are not clear, - changing

in any occasion, resources controlled its own, including the actors

in the government. Therefore, the actors need to agree and commit

to establish a clear vision of network organization in the delivery

13] Ansell C, Gash A. Collaborative governance in theory and

practice. Journal

of public administration research and

theory. 2008;18(4):543-571.

[

14] Barney JB, Clark DN. Resource-based theory: Creating and

sustaining competitive advantage. Oxford University Press on

Demand, 2007.

15] Sharhan AAM, Bora C. Effect of audit committee characteristics on

audit quality: A critical literature review. Journal of Advanced

Research in Economics and Administrative Sciences. 2020;1(1):1-12.

of public service and policy. Then, resources that have values, [16] Wernerfelt BA. Resource‐based view of the firm. Strategic

rareness, imperfect imitability, and organization need to be

Management Journal, 1984;5(2):171-180.

integrated and managed effectively to meet the needs for food and [17] Insani N. Apparatus Professionalism and Public Service Ethics.

the lives of the people will be sustainable.

Journal La Sociale, 2020;1(1): 25-28.

Sharhan AA, Bora C. Effect of Audit Committee characteristics on Audit

Quality: A Critical Literature Review. Journal of Advanced Research

in Economics and Administrative Sciences, 2020;1(1):1-12.

Acknowledgements

We are very grateful to our intitutions.

Ethical issue

Authors are aware of, and comply with, best practice in

publication ethics specifically with regard to authorship

(

avoidance of guest authorship), dual submission, manipulation of

figures, competing interests and compliance with policies on

research ethics. Authors adhere to publication requirements that

submitted work is original and has not been published elsewhere

in any language.

Competing interests

The authors declare that there is no conflict of interest that

would prejudice the impartiality of this scientific work.

Authors’ contribution

All authors of this study have a complete contribution for data

collection, data analyses and manuscript writing.

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