Implementation Challenges of Civil Servants' Competency Development in Indonesian Local Government

Abstract

This research aimed to: 1) explore the implementation challenges of the competency development approach for civil servants within the Surabaya City Government; and 2) identify the structural and organizational factors affecting the implementation of competency development programs. This study adopted a qualitative case study approach. Data were collected through semi-structured interviews with officials from the Regional Civil Service and Human Resource Development Agency (BKPSDM) of Surabaya City and supplemented with documentary analysis to provide a comprehensive understanding of the implementation of competency development. The findings show that although the Surabaya City Government has established competency development programs supported by national regulations and local budget allocations, limited financial resources constrain the extent to which training needs identified through Training Needs Analysis (TNA) can be accommodated. These constraints encourage selective implementation through talent management, particularly the use of a nine-box matrix to prioritize employees based on performance, competency gaps, and development potential. However, selective implementation also raises concerns about equitable access to competency development. The study further identifies structural gaps among training content, job requirements, and career advancement. Although training contributes to employees’ knowledge and capabilities, its impact on career progression remains limited because promotions are influenced by formal educational requirements. Institutional capacity constraints, such as limited availability of facilitators and learning facilities, further limit the scale of competency development and encourage the adoption of digital and technology-enabled learning. The study suggests that local governments should integrate TNA into budget planning, strengthen the design of position-based training, establish clearer links between demonstrated competencies and career pathways, and balance strategic talent prioritization with equitable access to continuous learning.