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The Implementation of an Integrated Learning Management System: Challenges in the Indonesian Bureaucratic Organizational Structure

. The rapid changes in technology have impacted civil servant competency development, from training to learning aspects. From the learning perspective, public sector employees can measure their skills and abilities (self-assessment) to make sure that competency development is carried out according to their needs. An integrated learning management system (integrated LMS) can help support this competency development of government employees. However, integrated LMS development faces challenges related to the public sector organizational structure that is built uniformly using Mintzberg’s approach. In fact, each government institution has its unique needs in terms of organizational structure. Therefore, this paper analyzed the challenges in implementing an integrated LMS, employing Mintzberg’s organization framework. A literature search was conducted of books, news articles, academic literature and reports to evaluate the impact of integrated LMS implementation on the effectiveness of bureaucracy organizational structure and civil servant competency development. In conclusion, the article showed that the organizational structure of the Indonesian bureaucracy is treated and built similarly in every level and sector which leads to overlapping authority, programs and activities, and results in obstacles in the implementation of an integrated LMS.


Introduction
Nowadays, the world has entered the modern era, where information technology influences every part of human life. The existence of information technology helps people to carry out their daily activities. Technology also dominated the critical sector, for instance, the health sector, economic sector and socio-cultural sector. Thus, the improvement of information technology creates an effective, efficient and transparent way of life. It is also indicated that information technology creates a new world and new life perspective.
The digital world in the information technology improvement era has provided luxurious facilities for our life in terms of convenience and agility. High-speed process and time efficiency are the benefits of technology development. As a result, traditional methods are more likely left behind and creates the transition from old school to a modern way of life. The utilization of information technology has proven that new and modern methods can improve human quality of life. Consequently, the learning sector has to follow the digital world influences. Various learning tools have been introduced in the learning sector in order to improve learning process quality in both formal and informal education. E-learning is one of the information technology improvements in the learning method. E-learning is defined as an online learning method that offers easy access so we can save time and money. As the e-learning method support system, Learning Management System (LMS) is needed.
LMS is a software platform that use to deliver online learning materials. LMS is an important system in terms of supporting high quality learning through e-learning methods, and will increase employees' awareness of skill development [1]. It makes sense because as mentioned before e-learning offer an easier and cheaper learning platform.
So, the chance to improve employees' skills is wide open, easier and simpler. LMS is learning software that is used to manage online learning including learning materials, learning participant placement, class management and grading [2]. The learning process we discussed here is not only the learning process in the formal institution (school, university, etc.) but also the public sector's learning system. The utilization of LMS in the bureaucratic sector is to fulfil the agenda of the improvement in the government employee competency development. Thus, the competency improvement is expected to be more effective, efficient, modern and transparent. Therefore, LMS should be delivered with its usability factors that are intuitive, easy to learn and less ambiguity [1].
In the public sector, LMS is a new and interesting development in the competency improvement field. For example, Civil Service College in Singapore develops LMS to improve their civil service competency in the public service or another specific field that is relevant to employees' learning needs in terms of topics, learning delivery methods and learning experience [3]. LMS is seen as a system tool that will help to make some improvement in the employees' competency development. Thus, with the online learning (e-learning) method, LMS provides convenience in learning management, because the learning program can be carried out in a wider scope and reach more numbers of learning participants. LMS is a software package used to administer one or more courses to one or more learners. An LMS is typically a web-based system that allows learners to authenticate themselves, register for courses, complete courses and take assessments" [4]. Bailey (1992) presents general characteristics of LMS in education that include: tying instructional objectives to individual lessons, incorporating lessons into the standardized curriculum, extending courseware several grade levels consistently, providing a management system, collecting the results of learner performance, providing lessons based on the individual learner's learning progress [5].
In Indonesia, many private companies develop LMS for their employees' competency development programs, for example, banks and manufacturing factories. The efficiency and effectiveness of LMS to support employee's performance is the key factor. An employee is able to learn and do the job tasks at the same time. Thus, integrated and comprehensive workplace learning is not impossible to create with the preferential factors regarding contents (selection and clarity), process (learning feedback, control, motivation and sharing of information) are the important keys [6]. In the Indonesian bureaucratic sector context, LMS is the biggest function in the competency development department in each organization. However, there are some interesting cases in terms of how each organization develops and manages this system compared to how the Indonesian government builds the organization structure. On the one hand, the government organization structure is built using Mintzberg's five (5) key parts of the organization. These five keys' parts are the strategic apex, middle line, operating core, technostructure and supporting staff [7]. In every organization or department in the government body, we will find the division of work using the Mintzberg (1979) concept. For example, in the competency development department, the strategic apex running by the head of the department, the department secretary is responsible for the middle line function, head of line division is handling the operating core duties, in the technostructure, we have a teaching instructor and curriculum creator, whereas the head of supporting division is responsible in the supporting area.
On the other hand, LMS is developed differently in each organization and is highly dependent on the organization's resources in terms of both human resources and budgetary resources. However, the most interesting part is the LMS governance and work procedures. Each organization has its own procedures to manage and run the LMS. In fact, as mentioned before, LMS is the biggest part of the competency development organization/department. Since the Indonesian government organizations are developed with the same organization structure concept (Mintzberg's five keys part organization), in the authors' logic, working procedures are the organizational structure's derivatives. So, in the authors' opinion, if some organizations are built with the same structure concept, the work procedures that break down from the structure are also similar.
Mintzberg's organizational model is flexible and can be useful as an organizational improvement's tool [8]. Various organizations utilize Mintzberg organizational structure in the organization development. Poland railway company using the Mintzberg structure in order to improve the organization output [8]. Moreover, Morton & Hu [9] said that an adequate organization is needed to implement Enterprise Resources Planning (ERP) as the IT infrastructure backbone. They analyze whether Mintzberg organization structure fits with ERP systems [9]. From their research they found that in the dynamic aspect every part of Mintzberg structure will lead to different directions: (1) strategic apex leads to retain control over decision making; (2) techno structure pull to standardization; (3) the operating core leads to professionalize; (4) middle line leads to structure division units; and (5) supporting staff that leads to collaboration in decision making [9].
However, in the Indonesian bureaucracy sector's context, the uniformity in the organization structure development creates both positive and negative impacts on the government administration. On the positive side, government administration that is built with the same organizational structure concept makes the organizational arrangement easier to manage in both organizational size and organizational management. However, every government agency is unique and it will affect the needs of the organization body and the uniform organizational structure concept will also increase the lack of organizational goal achievement. For instance, each competency development department has its uniqueness in the context of the material, management, possession etc. In this case, the organization must adapt to the existing organizational structure in order to fulfil their specific needs without interfering with the organization's achievement. In order to adapt with their own needs in the existing structure, the organization applied different work procedures in the development of LMS. On the one hand, Indonesian government policy nowadays is emphasizing integration in every sector, especially in the budgetary aspect. On the other hand, the LMS development phenomenon in every government agency is against the government policy in terms of integration. Moreover, the competency development attached in every government organization structure will lead to the possibility of LMS development in every government agency. Considering the integration framework and uniform interpretation of Mintzberg organizational structure concept in every government agency, the LMS development certainly will experience big challenges. Therefore, in this article, the authors would like to analyze the challenge of the LMS integration in the context of uniform organizational structure in the Indonesian government organization.

method
The descriptive qualitative method was utilized in this research. Theoretically, the chosen method helped researchers to understand and to analyze the phenomenon in detail. In the context of this article, a descriptive qualitative methodology helps the authors to understand how the implementation of a learning management system as the competency development tool for Indonesian government employees and its context with Indonesian bureaucracy organization that was built using Mintzberg's organizational theory.
A desk study was carried out in the data gathering and writing process using secondary data. The secondary data was gathered from various books, articles, journals and news on the theme of LMS implementation in both public and private sectors. Moreover, the authors also gathered and analyzed the implementation of Mintzberg's organization structure approach in both public and private sectors. The analysis was important to get a comprehensive understanding of LMS implementation and its challenge in terms of the Indonesian bureaucracy uniformity using the Mintzberg concept.

Uniformly interpretation of Mintzberg's organization Structure Concept
Mintzberg's organization structure concept is still applicable in today's environment. Both the private and public sectors applied this concept in structuring or even restructuring their organization. For example, in 2010 a railway company from Poland experienced a breakdown because of insufficient employees, lack of rolling stock and bad weather conditions [8]. As mentioned the railway company is not ready to change in both organizational and in the production key factors [8]. As a result, Mintzberg's organizational concept that was applied in the railway company provides a practical solution in, such as clear division tasks competence and board management hierarchy; marketing department establishment; separation of strategic management processes; changes in the coordination mechanism; unit grouping; and redefining outsourcing [8].
Basically, Minzberg's organization structure concept is divided into five parts, which are: strategic apex, middle line, operating core, technostructure and supporting staff [7]. Those parts are adopted nowadays as the part of the organization namely division, At the local government level, at both provincial and city level, the organization distribution using Mintzberg's organizational structure concept is also similar. Strategic apex is the responsibility of the local government head (governor, regent, mayor).
The middle line is run by the regional secretary and organization unit with the region planning function. While the operating core is held by the regional department office  At the lower organization level, equivalent to echelon one work unit in the central government and echelon two in the local government, the organization division can be seen as follow: From the tables above, it can be interpreted that there is no significant difference between large medium and even small organizations in both central and local government. This also indicates that each level in the organization performs the same function.

LMS Development Phenomenon in the organizational Level
Indonesian Civil Servant is required to master three competencies, there are managerial, socio-cultural and technical competencies [10]. there is no pattern in the competency development system, in terms of curriculum quality nor another technical aspect. Moreover, the opportunity itself is not enough to improve competence development. However the selection contents, clarity and learning process regarding feedback, control, motivation and sharing information are the keys in workplace learning [6].
To discuss equal opportunity in the government organization regarding competency development, we have to look into the competency development function that

Uniformly organizational Structure leads to the identical organization's tasks and function
The uniform organizational structure we discussed above, leads to identical organizations' tasks and functions. For example, almost every ministry/government agency has a competency development function that is handled by the department of human resource development. The scope in the competency development is the only thing that distinguishes one department from another. NIPA is the institution with the national mandate in managerial and socio-cultural competency [10] responsible in a wider scope than any other organization. However, there is also the department of human resource development that arrange both managerial and technical competency development.
Moreover, with the similar organization's task and function, the organization also tend to have a similar business process. Therefore, there is a higher chance of learning program and infrastructure development duplication among the human resource development department. Especially in the local government, since there is no connecting line in the program development from one to another.
Thus, in order to develop adequate integrated LMS, the Indonesian government must regulate and appoint one government agency that will responsible for the development and implementation of integrated LMS. This regulation is expected to disrupt the whole existing system, and start brand new integrated LMS for civil servants all over the country.
With this new arrangement, competency development will be managed centrally. The department of human resource development at the organizational level, organize the competency development program in a coordinative manner with the supervisor agency.

Resources availability in the integrated LMS development
The In addition, human resource is the next important factor in the integrated LMS development. The underlying problem in the human resource is in the employees' numbers.
The human resources need is in line with the size of the organization. The bigger organization such as ministry offices have more employees number than a smaller government agency. In the information system development, the bigger employee number gives some advantage in the development, in terms of the number of the IT specialists among employees. However, in the smaller organization with smaller employee numbers, the lack of IT specialists can be fulfilled with the contract-based government employee (PPPK) with strict supervision to ensure high achievement in the system development. The PPPK recruitment argued as "buying" concept, is able to help government organization's achievement [11] [12].
Last but not least infrastructure development is also an important support factor in the integrated LMS development. The infrastructure is including an internet network, hardware and servers.

Conclusions
Developing integrated LMS in the government organization is challenging. Many obstacles must be faced in order to achieve integrated LMS goals. Mintzberg's organizational structure concept which was adopted uniformly in the organizational structure becomes