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Analyzing Administrative Service Quality: A Case

Study Of A Regional Secretariat

Djoly Vekky Warokka

a,1

, Ressy Mewengkang

b,2

, Brain Fransisco Supit

c,3

a,b,c

Public Administration Program, Universitas Negeri Manado, Indonesia

djollywarokka@unima.ac.id

INFO ARTIKEL

ABSTRACT

Article history:

Accepted: 26 May 2026

Reviced: 5 June 2026

Approved: 23 June 2026

Available online: 1 July 2026

Administrative service delivery remains one of the most visible

measures of government performance, yet local bureaucracies in

Indonesia continue to struggle with translating formal procedures into

consistent, citizen-centered practice. This study examines the quality of

administrative services, particularly the handling of incoming and

outgoing correspondence, at the Administrative Service Unit (Unit

Layanan Administrasi/ULA) of the General Bureau, Regional Secretariat

of North Sulawesi Province, and identifies the factors that constrain

optimal service delivery. A descriptive qualitative approach was

employed, guided by an interactive analytical model of data collection,

reduction, display, and conclusion drawing. Data were gathered through

in-depth interviews with key informants, direct observation, and

documentation review, with credibility established through source and

method triangulation. The findings show that consistent application of

standard operating procedures, supported by electronic queuing

systems and online document-tracking platforms, has meaningfully

improved timeliness, accuracy, and transparency. However, service

quality remains constrained by uneven staff understanding of

procedural detail, ageing infrastructure, unstable internet connectivity,

and workload imbalances relative to staff numbers. Courtesy, complaint

responsiveness, and physical comfort were found to be strong

contributors to public trust, even as budgetary and spatial limitations

persist. The study concludes that sustainable improvement in

administrative service quality requires an integrated strategy

combining continuous staff training, infrastructure renewal, and

adaptive procedural review. These findings offer practical implications

for regional secretariats seeking to strengthen bureaucratic

responsiveness and provide a contextual basis for future research on

digital-era public service reform in Indonesia's subnational

governments.

Keywords:

Administrative Service Quality

Standard Operating Procedure

Bureaucratic Responsiveness

Regional Secretariat Governance

Digital Public Service Innovation

This is an open access article under CC BY-SA license

1. Introduction

The accelerating diffusion of information technology across public and private institutions

has reshaped the way governments organize, deliver, and account for public services.

Technology has become deeply embedded in the operational fabric of modern bureaucracy,

shaping how administrative tasks are planned, executed, and evaluated (Batool et al., 2021).

Without adequate technological support, government agencies struggle to deliver services with

the speed, precision, and efficiency that citizens increasingly expect. This transformation is

particularly visible in the shift toward digital government platforms, which several studies

describe as central instruments for improving transparency, efficiency, and citizen access to

public services (Aminah & Saksono, 2021; Nurlaila et al., 2024; Wagola et al., 2023). Yet the

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promise of digitalization is realized only partially when it is not accompanied by parallel

investment in human resource capacity, institutional culture, and procedural discipline

(Zacharias et al., 2021).

Public service delivery functions as one of the clearest indicators of how citizens perceive

the performance of the state, whether that service originates from civil servants or from private

providers acting on the government's behalf (Fakhriyah et al., 2022). Public service, in this

sense, denotes every activity conducted by government or private actors that produces goods or

services intended to satisfy collective needs (Fakhriyah et al., 2022). This framing is broadly

consistent with Indonesia's Public Service Act No. 25 of 2009, which remains the subject of

ongoing scholarly review regarding its adequacy in guiding contemporary service standards

(Oktarina & Israhadi, 2023). More recent theoretical developments have moved beyond the

transactional New Public Management paradigm toward a Public Service Logic that positions

citizens as co-creators of value rather than passive recipients of standardized output (Andhika,

2025). This shift carries direct implications for how correspondence and records units should be

evaluated: not merely by procedural compliance, but by their capacity to generate trust through

consistent, responsive interaction with the people they serve.

Public sector organizations occupy a strategic position in Indonesia's governance

architecture precisely because the sheer number of government institutions places corresponding

pressure on them to demonstrate accountability and responsiveness (Dewi & Suparno, 2022).

Good governance principles, transparency, accountability, and public participation, have

increasingly been treated as measurable determinants of citizen trust rather than abstract

normative ideals (Yuniarta & Purnamawati, 2020), and bibliometric evidence suggests that good

governance scholarship in Indonesia has expanded rapidly over the past decade without a

corresponding increase in practice-based, sector-specific studies (Fauzan & Jahja, 2021). Public

institutions are consequently expected to innovate continuously, streamlining internal processes

to achieve productivity, responsiveness, transparency, accountability, and freedom from

corruption, collusion, and nepotism (Linelejan, 2021).

Administrative service is an inseparable component of state governance, closely tied to the

pursuit of transparency, efficiency, and accountability in public management (Masengi et al.,

2023). In the Indonesian context, ensuring that administrative processes run smoothly and in

accordance with regulation remains a persistent challenge, one closely linked to the quality of

human resources, the maturity of supporting systems, and the availability of enabling

infrastructure such as information technology (Gusliana et al., 2026). Empirical evidence drawn

from local government audit and financial data likewise indicates that administrative and

oversight quality is directly associated with the public service quality that citizens ultimately

experience (Furqan et al., 2020), while cross-regional studies show considerable disparity in

service quality outcomes between more developed and less developed regions of the country

(Aryani et al., 2023).

North Sulawesi Province illustrates these national dynamics at the subnational level. As

digital infrastructure expands, provincial government agencies face mounting pressure to

modernize administrative processes while continuing to confront familiar constraints: limited

numbers of competent personnel, inconsistent internet connectivity, and inadequate supporting

facilities (Pane et al., 2020). Within the General Bureau of the Regional Secretariat of North

Sulawesi Province, the Administrative Service Unit (Unit Layanan Administrasi/ULA) is tasked

with managing personnel, finance, general administration, records, and official vehicles. Earlier

studies conducted within this same institutional setting examined the effectiveness of data

management within the unit (Pane et al., 2020) and the implementation of e-office-based

administrative policy across the provincial government (Linelejan, 2021); both reported that

human resource limitations and infrastructural gaps continued to undermine otherwise well-

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intentioned procedural reforms. Complementary evidence from a neighboring administrative unit

in Manado further shows that archival and document-handling practice remains a persistent

weak point in local bureaucratic performance (Mandulangi et al., 2024), while nationwide

studies on civil servant competency consistently identify training gaps as a root cause of uneven

service quality (Tamsah et al., 2020; Zacharias et al., 2021).

Despite this accumulating body of evidence, three gaps remain unaddressed. First, most

prior assessments of ULA-related services in North Sulawesi relied on generic effectiveness

indicators or single-dimension policy evaluation, without situating findings within an integrated

service-quality framework capable of capturing both procedural and relational dimensions of

delivery (Linelejan, 2021; Pane et al., 2020). Second, the theoretical lenses used in earlier local

studies, frequently derived from generic, decades-old service-industry quality typologies, have

rarely been cross-validated against more recent, empirically grounded frameworks such as the

modified SERVQUAL model (Shetty et al., 2022) or Public Service Logic (Andhika, 2025),

both of which offer sharper analytical distinctions between reliability, responsiveness, assurance,

tangibility, and empathy in bureaucratic settings. Third, few studies have specifically isolated the

correspondence-handling function (surat-menyurat) as a unit of analysis, even though incoming

and outgoing correspondence functions as the connective tissue of nearly every downstream

administrative process within a regional secretariat.

This study addresses these gaps by examining administrative service quality in the

correspondence function of the ULA through a qualitative lens that integrates procedural

indicators, effectiveness and efficiency, consistency, standards, and systematization, with a

discussion grounded in contemporary SERVQUAL and Public Service Logic scholarship. Its

novelty lies in combining fine-grained interview evidence from frontline officials and service

users with a theoretical discussion connecting procedural compliance to wider debates on civil

servant competency, digital infrastructure, and citizen trust, an integration that earlier single-lens

studies of the same institution have not attempted. Addressing this gap is urgent: unresolved

inconsistencies between formal procedure and everyday practice risk eroding public trust

precisely as North Sulawesi's provincial government invests heavily in digital transformation.

Accordingly, this study aims to analyze strategies for improving the quality of administrative

services at the ULA, to identify the factors that inhibit optimal service delivery, and to formulate

recommendations that support more responsive, accountable, and citizen-oriented public

administration.

2. Method

This study employed a descriptive qualitative approach intended to produce a

comprehensive, contextually grounded picture of administrative service practice rather than a

statistically generalizable measurement of it. Consistent with the interpretive tradition in public

administration research, the approach prioritizes depth of meaning over breadth of sample,

allowing the researchers to trace how formal procedures are interpreted and enacted by different

actors within the same institutional setting. The research was conducted at the Administrative

Service Unit (ULA) of the General Bureau, Regional Secretariat of North Sulawesi Province,

with an explicit focus on the handling of incoming and outgoing correspondence. Four indicators

guided the inquiry: effectiveness and efficiency, consistency, adherence to standards, and

systematization of service delivery. Key informants included the Head of the General Bureau,

the Head of the General Affairs Division, the Head of the Finance Division, the Head of the

Leadership Administration Sub-Division, members of the unit's information-technology team,

and two service users, a member of the general public and a civil servant from another agency,

selected purposively for their direct involvement in or experience of the correspondence service.

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Data were collected using a triangulated combination of direct observation, in-depth

interviews, and documentation review. Observation allowed the researchers to verify informants'

accounts against the actual flow of service delivery, including queuing practice, document

handling, and staff-citizen interaction at the service counter. Semi-structured interviews were

conducted with each informant using a guide organized around the four service indicators, with

follow-up questions used to probe unanticipated themes as they emerged. Documentation review

covered internal SOP manuals, service standard charters, and archival records related to

correspondence handling, which served both as a source of contextual data and as a means of

cross-checking informants' statements. This triangulated design was chosen to compensate for

the limitations inherent in any single method and to strengthen the credibility of the resulting

interpretation.

Data analysis followed an interactive model comprising data collection, data reduction, data

display, and conclusion drawing and verification (Masengi et al., 2023). Data reduction involved

coding interview transcripts and field notes according to the four service indicators and

emerging sub-themes such as infrastructure, staff competency, and citizen experience. Reduced

data were organized into thematic displays that allowed patterns and contradictions across

informant groups, officials as against service users, to be compared systematically. Conclusions

were drawn iteratively throughout the fieldwork period rather than only at its end, and were

continuously verified against new data as they were collected. Trustworthiness was addressed

through source triangulation, comparing accounts from officials, technical staff, and service

users, and through method triangulation, cross-checking interview data against observation and

documentary evidence; discrepancies between sources were treated as analytically meaningful

rather than discarded as noise.

3. Result and Discussion

Fieldwork at the ULA generated a rich body of interview, observation, and documentary

evidence, organized below around the four indicators that framed the inquiry, timeliness and

efficiency, consistency, standards, and systematization, and interpreted throughout through the

combined lens of the modified SERVQUAL model, which foregrounds reliability,

responsiveness, assurance, tangibility, and empathy (Shetty et al., 2022), and Public Service

Logic, which reframes citizens as active participants in the co-creation of service value rather

than passive recipients of standardized output (Andhika, 2025).

Timeliness and Efficiency Strengthen Reliability at the Service Counter

Informants across ranks converged on a single point: the consistent application of Standard

Operating Procedures (SOPs) is what keeps the correspondence service moving. As the Head of

the General Bureau put it, every obstacle is treated as an opportunity to innovate, and a clearly

written SOP is what allows the unit to keep its service consistent and professional. That

conviction is visible in concrete measures already in place: an electronic queuing system, an

online consultation channel, and recurring staff-competency training, all of which have

shortened waiting times, reduced friction, and made the process more transparent. The Head of

the General Affairs Division framed the underlying philosophy in similarly direct terms, arguing

that good service should be reachable anytime and anywhere, and that technology is the

backbone of efficiency. Innovations such as a digital service portal and an online document-

tracking system have made the unit noticeably more responsive to citizens' needs. From the

vantage point of service users, this responsiveness is tangible. GR, a member of the public,

described feeling respected because staff consistently verified that documents met requirements

and remained courteous even close to closing time. MO, a civil servant from another agency,

likewise praised the professionalism shown by staff even under time pressure.

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These gains map directly onto the reliability and responsiveness dimensions that dominate

recent SERVQUAL-informed public sector research (Shetty et al., 2022); electronic queuing,

online tracking, and structured consultation channels have visibly shortened waiting times and

improved the accuracy of document handling, consistent with evidence that digitally integrated

service-quality frameworks measurably improve institutional responsiveness and efficiency in

similarly resource-constrained public organizations (Utami et al., 2026). Yet timeliness and

efficiency have not been fully achieved without friction. The Head of the General Affairs

Division acknowledged that some newer staff still struggle to internalize SOP details, describing

procedural understanding as a foundation that has not yet spread evenly across the workforce.

The unit's IT team pointed to a parallel constraint: outdated devices and unstable internet

connections that periodically undermine the smooth operation of online systems, a problem

compounded by a workload that has grown faster than staffing levels, as the Head of the General

Bureau also confirmed. Service users, for their part, raised concerns about long queues during

peak hours and insufficiently clear information about administrative requirements, which GR

said often forces the public to ask the same questions repeatedly.

This persistence of workload imbalance, ageing hardware, and connectivity gaps illustrates

a pattern documented across Indonesian local governments more broadly, where administrative

and oversight quality correlates directly with the service quality citizens actually receive (Furqan

et al., 2020), and where measurable disparities between well-resourced and under-resourced

regions continue to constrain reliability even where procedures themselves are sound (Aryani et

al., 2023). Critical success factor research on public service modernization similarly finds that

technology adoption alone rarely resolves reliability gaps unless paired with sustained

investment in staffing and infrastructure renewal (Karampotsis et al., 2024), a conclusion this

study's evidence strongly corroborates. Taken together, these accounts suggest that consistent

SOP implementation paired with targeted technology adoption has produced genuine,

measurable progress, even as resource and infrastructure constraints continue to cap how far that

progress can go. As the Head of the Finance Division observed, every rupiah allocated to facility

improvement functions as an investment in public trust, a sentiment that captures the unit's

broader ambition to evolve into a more responsive and professional model of modern local

bureaucracy.

Consistency and Assurance Shape the Human Side of Frontline Service

Beyond day-to-day efficiency, informants emphasized SOPs as the backbone of consistency

over time. The Head of the General Bureau described the SOP as a roadmap that guides every

step of service delivery, allowing the unit to maintain quality without compromise even as

demand and technology evolve. Digital tools such as the electronic queuing and document-

tracking systems were explicitly designed to reinforce, rather than replace, this procedural

backbone, easing staff workloads while making the process more legible to the public. The Head

of the General Affairs Division reinforced this point, describing the SOP as a living document

that must be continually adapted to field conditions if it is to remain both consistent and relevant.

Continued investment in staff competency was identified as essential to sustaining this

consistency. The Head of the Leadership Administration Sub-Division stressed that employees

must understand the SOP not as a mere rulebook but as a tangible expression of the institution's

commitment to quality service.

The courtesy, accountability, and thoroughness that service users repeatedly praised

correspond closely to the assurance dimension of service quality, understood as the confidence

citizens place in staff competence and conduct (Shetty et al., 2022). That this assurance persists

even amid heavy workloads suggests a degree of institutional culture and professional

commitment that aligns with findings on how organizational culture and workplace environment

shape frontline employee performance in Indonesian public agencies (Zacharias et al., 2021).

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Even so, informants candidly acknowledged limits to this consistency. The Head of the General

Bureau noted that a procedure not properly understood functions as little more than text on

paper, and that newer staff in particular require closer guidance. Under time pressure, some

procedural steps are occasionally skipped altogether, a pattern the Head of the Finance Division

linked directly to infrastructural shortfalls: without adequate supporting systems, SOPs are

difficult to implement in full. Service users experienced this tension from the other side of the

counter. MO, a civil servant, observed that SOPs sometimes feel too rigid to accommodate

situations that call for a faster, more flexible response.

This observation echoes the Head of the Leadership Administration Sub-Division's own

framing: a good SOP should make service easier, not more restrictive, an ambition the unit

continues to pursue through ongoing evaluation and revision of its procedures in dialogue with

both staff and the public it serves. This uneven grasp of SOP detail among newer staff,

repeatedly flagged by supervisors themselves, echoes a well-documented pattern in the

Indonesian civil service literature: training and knowledge-sharing mechanisms remain the

single most consistent predictor of service quality and work-life quality among civil servants

(Tamsah et al., 2020), and competency gaps of exactly this kind persist nationally despite formal

mandates for continuous professional development. Addressing this gap through structured,

recurring training rather than one-off orientation sessions would directly strengthen the

assurance dimension identified in this study's findings.

Standards and Digital Access Reveal the Limits of Infrastructure

A third theme concerned how well staff understand and apply the service standards

embedded in the SOP. The Head of the General Bureau described the SOP as a promise to the

public that every service will be carried out with professionalism and accuracy, framing

procedural discipline as an institutional commitment rather than a bureaucratic formality. Digital

tools, again, were positioned as enablers of this standard: the Head of the General Affairs

Division explained that the electronic queuing and tracking systems give staff a structured way

to ensure every process unfolds systematically, which in turn builds public confidence.

Continuous training was repeatedly cited as the mechanism through which abstract standards

become everyday practice. The Head of the Leadership Administration Sub-Division described a

deliberate effort to translate SOP theory into daily routine so that the document functions as a

living guide rather than an inert reference. From the service-user side, GR reported a distinctly

positive experience, noting that the clarity of process and staff members' evident command of

procedure left little room for confusion.

This orientation toward structured, technology-enabled service reflects a broader shift

toward Public Service Logic, in which citizens are treated as co-producers of value through

participatory interaction rather than passive recipients of a fixed procedural output (Andhika,

2025), and is consistent with national evidence that digital transformation initiatives improve

efficiency, transparency, and accountability in Indonesian public services, provided they are

matched by adequate social, political, and organizational readiness (Aminah & Saksono, 2021;

Wagola et al., 2023). Nonetheless, gaps in standard implementation persisted, particularly

among newly recruited staff. The Head of the General Bureau conceded that a standard is only

as effective as its shared understanding, and that some employees had not yet fully internalized

procedural detail. The Head of the Finance Division added that under deadline pressure, certain

steps are sometimes bypassed altogether. Technical disruptions compounded this problem: MO

described how digital-system outages occasionally force the unit back onto slower manual

methods, while some members of the public reported insufficient clarity about the standards

governing their specific requests, a gap that can breed confusion among those less familiar with

contemporary administrative procedure.

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This recurring reversion to manual processes whenever systems fail underscores a persistent

access and innovation gap: digital tools widen the door to service only as far as the underlying

infrastructure allows. The finding parallels evidence from a neighboring administrative unit in

Manado, where document and archival handling remained a structurally weak point despite

broader digitalization efforts (Mandulangi et al., 2024), suggesting that infrastructure and

records-management capacity, not merely front-end digital interfaces, deserve closer

institutional attention going forward.

Systematization Shapes the Everyday Experience of Service

The final theme concerned the systematic character of daily administrative work. The Head

of the General Bureau likened the SOP to a compass, arguing that its presence keeps every

process orderly and prevents steps from being skipped or rushed. The Head of the General

Affairs Division extended this metaphor to leadership, arguing that supervisors must themselves

model correct SOP application if staff are to follow procedure with confidence rather than mere

compliance. Digital systems again played a supporting role: the unit's IT team described

integrated tracking tools as the backbone that keeps every stage of the process visible and easier

to monitor and follow. For service users, this systematization translated into a tangible sense of

order. GR observed that the entire process felt well organized, with staff who clearly knew their

responsibilities, leaving little sense of wasted time.

This everyday sense of order, cleanliness, and accessibility functioned as a quieter but no

less consequential determinant of citizen trust, corresponding to the tangibles and empathy

dimensions of service quality (Shetty et al., 2022). The finding resonates with governance

research showing that transparency and physical accessibility function together as key elements

shaping how citizens judge the legitimacy of local government institutions (Yuniarta &

Purnamawati, 2020), and with bibliometric evidence indicating that good governance

scholarship in Indonesia has increasingly linked procedural transparency to tangible, experiential

dimensions of service delivery rather than treating them as separate concerns (Fauzan & Jahja,

2021). Challenges nonetheless surfaced. The Head of the Leadership Administration Sub-

Division noted that newer employees still require close mentoring to follow procedural steps

correctly, while the Head of the Finance Division pointed to high workload volumes as a

recurring source of skipped steps and minor, avoidable errors. Infrastructure again emerged as a

constraint: the IT team described how ageing hardware and unstable connectivity periodically

force a reversion to slower, more error-prone manual methods.

On the public-facing side, MO noted that information about required steps is not always

communicated clearly, leading citizens to make repeated inquiries before understanding what is

expected of them. The persistence of these capacity constraints, despite the unit's genuine efforts

at improvement, suggests that budgetary allocation for tangible service infrastructure remains as

important to public trust as procedural or digital reform, a conclusion consistent with public

service management scholarship emphasizing that citizen-perceived value emerges from the

interaction of procedural, relational, and physical service elements together, not from any single

dimension in isolation (Andhika, 2025).

4. Conclusion

This study set out to analyze strategies for improving the quality of administrative services

at the Administrative Service Unit of the Regional Secretariat of North Sulawesi Province, to

identify the factors inhibiting optimal service delivery, and to formulate recommendations for a

more responsive, accountable, and citizen-oriented public administration. The findings show

that consistent SOP implementation, reinforced by targeted digital tools such as electronic

queuing and document-tracking systems, has produced measurable gains in timeliness,

consistency, and procedural clarity. Read through the combined lens of SERVQUAL and Public

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Service Logic, these gains correspond most clearly to improvements in the reliability,

responsiveness, and assurance dimensions of service quality. At the same time, uneven staff

understanding of procedural detail, workload imbalance, ageing infrastructure, and unstable

connectivity continue to constrain the unit's capacity to translate well-designed procedures into

fully consistent practice, particularly in the tangibles and access dimensions of service delivery.

These findings carry practical implications for the Regional Secretariat and comparable

local government units elsewhere in Indonesia. Structured, recurring competency training,

rather than sporadic orientation, would directly address the assurance and reliability gaps

identified among newer staff. Continued investment in hardware renewal and network stability

would reduce the unit's dependence on error-prone manual fallback procedures, while periodic,

participatory review of the SOP itself, involving both staff and service users, would help keep

the document a living guide rather than a static compliance artifact. More broadly, the study

suggests that digital transformation efforts in subnational government are unlikely to yield their

full benefit unless pursued alongside parallel investment in human resource capacity and

physical service infrastructure.

This study is not without limitations. Its qualitative, single-site design privileges depth of

understanding over statistical generalizability, and its relatively small number of informants,

while appropriate for the purposive, meaning-oriented aims of the inquiry, means that the

findings should be read as analytically rather than statistically representative of administrative

service units elsewhere in Indonesia. Future research would benefit from complementing this

qualitative account with quantitative service-quality instruments, such as a modified

SERVQUAL survey administered across a larger sample of service users, and from comparative

case studies across multiple regional secretariats to test whether the patterns identified here,

particularly the tension between procedural design and infrastructural capacity, hold more

broadly across Indonesia's decentralized public administration.

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