51313-001: building inclusive social assistance...7. develop training plan and design training...

Technical Assistance Consultant’s Report

This consultant’s report does not necessarily reflect the views of ADB or the Government concerned, and ADB and the Government cannot be held liable for its contents.

Project Number: 51313-001 December 2019

INO: Building Inclusive Social Assistance (Financed by the Japan Fund for Poverty Reduction)

- Inception Report

Prepared by Oxford Policy Management Ltd Oxford, United Kingdom

For Asian Development Bank

TA-9609 INO: Building Inclusive Social Assistance

Capacity Building and Communication and Advocacy Support

Final Inception Report

Oxford Policy Management Ltd

December 2019

BISA – Capacity Building & Communication and Advocacy Support Final Inception Report

Oxford Policy Management Limited Registered in England: 3122495 Level 3, Clarendon House 52 Cornmarket Street Oxford, OX1 3HJ United Kingdom Tel: +44 (0) 1865 207 300 Fax: +44 (0) 1865 207 301 Email: [email protected] Website: www.opml.co.uk Twitter: @OPMglobal Facebook: @OPMglobal YouTube: @OPMglobal LinkedIn: @OPMglobal

About Oxford Policy Management

Oxford Policy Management is committed to helping low- and middle-income countries achieve growth and reduce poverty and disadvantage through public policy reform.

We seek to bring about lasting positive change using analytical and practical policy expertise. Through our global network of offices, we work in partnership with national decision makers to research, design, implement, and evaluate impactful public policy.

We work in all areas of social and economic policy and governance, including health, finance, education, climate change, and public sector management. We draw on our local and international sector experts to provide the very best evidence-based support.

http://www.opml.co.uk/

https://twitter.com/OPMglobal

https://www.facebook.com/OPMglobal

https://www.youtube.com/c/OPMglobal

https://www.linkedin.com/company/opmglobal/


© Oxford Policy Management i

Acknowledgements

We would like to thank Azusa Sato and Lua Pottier at ADB Indonesia for their guidance on the scope and objectives of this assignment, as well as their insightful comments about the PKH landscape and ADB Indonesia’s current work on Social Protection in Indonesia. We are grateful for their time in setting up kick-off meetings with relevant government counterparts in Jakarta. We are also grateful for discussion and inputs received from individual consultants implementing Output 2 of the BISA program.


© Oxford Policy Management ii

Table of contents

Acknowledgements ........................................................................................................ i

List of tables, figures, and boxes .................................................................................. iv

List of abbreviations ...................................................................................................... v

1 Introduction ........................................................................................................ 1

1.1 Purpose of the assignment ............................................................................. 1

1.2 Purpose of this inception report ...................................................................... 2

1.3 Limitation of this report ................................................................................... 3

1.4 Structure of inception report ............................................................................ 3

2 Background of the PKH program ........................................................................ 4

2.1 Overview of PKH and BPNT programs ........................................................... 4

2.1.1 Program Keluarga Harapan 4

2.1.2 Bantuan Pangan Non Tunai 6

2.2 Initial findings .................................................................................................. 7

2.2.1 Initial findings on capacity of PKH and BPNT implementers 7

2.2.2 Initial findings on communication and advocacy 13

3 Overall approach to this assignment ................................................................ 19

3.1 Phase I: Inception and initial assessment ..................................................... 19

3.1.1 Capacity building 19

3.1.2 Communication and advocacy 20

3.2 Phase II: Review and assessment ................................................................ 22


3.2.2 Communication and Advocacy 27

3.3 Phase III: Strategy development ................................................................... 29


3.3.2 Communication & advocacy 29

3.4 Phase IV: Strategy implementation ............................................................... 31


3.4.2 Communication & advocacy 32

3.5 Phase V: Project Completion and Reporting ................................................. 32

4 Project Management ........................................................................................ 33

4.1 Project management approach ..................................................................... 33


© Oxford Policy Management iii

4.2 Stakeholders engagement ............................................................................ 33

4.3 Changing in team composition ...................................................................... 34

4.4 Risk management ......................................................................................... 35

4.5 Updated workplan ......................................................................................... 36

Bibliography ................................................................................................................ 39

Annex A Terms of reference .................................................................................... 40

Annex B List of meetings ......................................................................................... 47


© Oxford Policy Management iv

List of tables, figures, and boxes

Table 1. Scope of work as stated in the original ToRs ............................................... 1

Table 2. PKH Social Assistance Index 2019 ............................................................. 6

Table 3. BPNT beneficiary awareness .................................................................... 16

Table 4. Comparative needs analysis ..................................................................... 17

Table 5. Initial findings and follow-up questions ...................................................... 19

Table 6. Current team composition ......................................................................... 34

Table 7. Risks and mitigation measures .................................................................. 35

Table 8. Updated workplan ..................................................................................... 37

Table 9. Deliverables .............................................................................................. 38

Figure 1. PKH household beneficiaries by year .......................................................... 5

Figure 2. Ministry of Social Affairs organisation structure for PKH and BPNT ............. 8

Figure 3 Current Institutional Framework for PKH delivery ........................................ 9

Figure 4. Current Institutional Framework for BPNT delivery .................................... 12

Figure 5. Diagnostic Capacity Framework ................................................................ 23

Figure 6. Sequencing of a Training Needs Analysis ................................................. 25

Figure 7. Line Management Reinforcement of Training Process .............................. 31


© Oxford Policy Management v

List of abbreviations

ADB Asian Development Bank

BADIKLIT Badan Pendidikan, Pelatihan dan Penyuluhan Sosial, Agency for

Education, Training and Counselling

BAPPENAS Badan Perencanaan dan Pembangunan Nasional, National

Development Planning Board

BISA Building Inclusive Social Assistance

BPNT Bantuan Pangan Non-Tunai, Non-Cash Food Assistance

CCT Conditional Cash Transfer

FDS Family Development Session

JSK Jaminan Sosial Keluarga, Family Social Security

KPM Keluarga Penerima Manfaat, Beneficiary Family

KUBE Kelompok Usaha Bersama, Joint Business Group

Linjamsos Perlindungan dan Jaminan Sosial, Social Protection and Security

MoSA Ministry of Social Affairs

OPML Oxford Policy Management Ltd

PFM Penanganan Fakir Miskin, Handling Poor and Vulnerable Population

PKH Program Keluarga Harapan, Family Hope Program

PUSDATIN Pusat Data dan Informasi Kesejahteraan Sosial, Social Welfare Data and Information Center

TA Technical Assistance

TKS Tenaga Kesejahteraan Sosial, Social Welfare Workers

TKSK Tenaga Kesejahteraan Sosial Kecamatan, Sub-District Social Welfare Workers

TNA Training Needs Analysis

ToRs Terms of Reference

UDB Unified Database


© Oxford Policy Management 1

1 Introduction

1.1 Purpose of the assignment

The overall objective of this assignment, as stated in the Terms of Reference (ToRs), is to support the Ministry of Social Affairs (MoSA) and Directorate of Family Social Security (or Jaminan Sosial Keluarga/JSK) on delivering two outputs:

• Output 1: capacity of selected Program Keluarga Harapan (PKH) implementers improved; and

• Output 3: analytical, communication and advocacy skills of MoSA staff enhanced.

These two outputs are part of overall technical assistance (TA) from the Asian Development Bank (ADB), namely Building Inclusive Social Assistance (BISA), financed on a grant basis by the Japan Fund for Poverty Reduction. Another output, i.e.: Output 21, is managed by individual consultants.

The ToRs also identifies the scope of work and deliverables for this assignment, as described in Table 1 below. We indicate potential changes to this in the notes below and highlight that this only relates to support on PKH.

Table 1. Scope of work as stated in the original ToRs

Training and capacity development

Human resource development

Communication strategy development

1. Conduct a capacity and training gap assessment for the Directorate of Family Social Security (JSK) and PKH operational units. [Deliverables]

2. Undertake a review of the human resource development and staffing arrangements for: (a) PKH and the JSK as a whole; (b) PKH-Akses1; and (c) communications unit or staff of JSK; PKH for elderly1

3. Review the communications and advocacy strategy of PKH and prepare options and proposals to strengthen the strategy and existing communications unit in PKH. [Deliverables]

4. Review of existing training strategy or plans, modules and delivery mechanisms in support of PKH.

5. Develop staffing plan, competency profiles and TORs for key PKH staff and propose HR improvement plan for PKH, acceptable to JSK and ADB. [Deliverables]

6. Prepare a communications strategy for PKH acceptable to JSK and ADB2.

7. Develop training plan and design training program, manuals, and training aids for PKH staff, PKH Akses1 and JSK’s communications unit, acceptable to KSK and ADB3. [Deliverables]

8. Provide training for supervisors, coordinators, facilitators, and select staff as may be determined in coordination with JSK, including selected PKH-Akses1 staff and communications staff. [Deliverables]

1 PKH implementation in disadvantaged areas strengthened.



Training and capacity development

Human resource development

Communication strategy development

9. Prepare final training manual and materials3. [Deliverables]

10. Develop applications or digital platforms to support various areas of operations of PKH (e.g., e-recruitment, e-learning).

11. Prepare and finalize ten (10) knowledge products and advocacy materials based on the outputs and results of the TA4. [Deliverables]

Notes:

1. This is part of Output 2 work (font colour in blue), so needs reconsideration.

2. A communication strategy is already in place, so this deliverable needs to be revised

3. Training materials and manuals will be provided in Bahasa

4. It is not clear what these products would entail. We assume these are less resource intensive outputs such as policy briefs and exclude mass media adverts

During the kick-off meeting with ADB on 17 October, OPML received information that the scope of work above needs to be modified to include another large social assistance program, i.e. Non-cash Food Assistance program (or Bantuan Pangan Non Tunai/BPNT) implemented by Directorate General for Handling Poor and Vulnerable Population (or Penanganan Fakir Miskin/PFM). The inclusion of BPNT to this assignment is based on BAPPENAS request after the original advertisement for the selection and was therefore not included in the original ToRs.

The scope of work related to BPNT still needs to be discussed in more detail to ensure whether the scope of the assignment will be exactly the same as the scope of work for PKH, as indicated in Table 1 above, and how this addition will impact on the resourcing and timing of this project. The full assessment on the current status of BPNT program and the staff capacity, which will be delivered in Q1-2020, will confirm the scope of work for Output 1 and 3 on BPNT program.

However, given this request to add BPNT to the scope of the project, our understanding of the overall objective of the assignment is therefore to:

Provide support to the Ministry of Social Affairs (MoSA), Directorate of Family Social Security (JSK) and Directorate General of Handling Poor and Vulnerable Population (Penanganan Fakir Miskin/PFM) to improve their capacity by delivering two outputs:

Output 1: capacity of selected implementers of Program Keluarga Harapan (PKH)

and Bantuan Pangan Non Tunai (BPNT) improved; and

Output 3: analytical, communication and advocacy skills of PKH and BPNT staff

enhanced.

1.2 Purpose of this inception report

The objective of this report is to provide ADB with an overview of our understanding of the current status of the project, a list of indicative activities planned for this assignment together with the methodological approach that will underpin these activities, and present challenges related to the implementation of TA to MoSA.

More specifically, this inception report’s objectives are as follows:

• Present our understanding of the scope of works and changes that may be needed based on current development.



• Present the methods suggested to implement capacity building and communication support to JSK staff who manage PKH program and DG-PFM staff who manages BPNT program.

• Present a summary of initial findings obtained during the inception phase based on discussion with central level staff and field staff during field visits.

• Present ADB with risks and mitigation strategies with respect to the implementation of TA to MoSA.

• Present OPML’s communication and reporting strategy for the project.

• Present the changes to original TORs and team composition as a result of request from the government.

This report is intended to be used as a roadmap that will guide OPML’s efforts to deliver this assignment rather than provide a prescriptive description of all planned activities, their timing and resourcing.

1.3 Limitation of this report

The initial draft of this inception report was prepared within a very limited timeframe, given the ADB requirement to submit the inception report within 5 weeks from the start date of the contract. Owing to reasons outside our influence2, we could only meet with limited JSK staff and only limited meetings could be conducted with PFM staff since beginning of November this year. Furthermore, changes to the scope of the original ToRs, such as the inclusion of support to BPNT, changes to TA team requested by MOSA, and parallel work under Output 2 necessitates further discussions and thinking regarding the complete scope of OPML’s support to Output 1 and Output 3. Further discussion and consultations are expected to take place in January onward along with OPML assessment phase to clarify and finalise the scope of work and deliverables.

Our main source of information for producing this report is secondary sources/documents, including reports that have been produced by Output 2 team. Hence our analysis is less comprehensive than we had initially hoped for. As noted in Section 4.5 on updated workplan, we will deliver a more comprehensive analysis in Phase II of assignment which will include primary data sources and further documentation review.

1.4 Structure of inception report

This inception report is structured as follows.

• Section 2 provides a background to the PKH and BPNT programs and presents the findings from our desk review and initial meetings/discussions with ADB and MoSA.

• Section 3 outlines our methodology and approach in implementing this assignment.

• Section 4 describes the project management, including our updated work plan for this assignment.

Supporting documentation is provided in the Annexes.

2 December was a busy period for both Directorate of JSK and DG of PFM. Many workshops and activities were conducted by the directorates outside Jakarta which resulted limited meetings can be arranged with both directorates. In addition to this, the OPML team is not yet complete – several additional positions will be on board, possible in mid-January, after full approval from ADB is obtained.



2 Background of the PKH program

2.1 Overview of PKH and BPNT programs

The PKH, together with the BPNT program, represent the two largest national social protection programs in Indonesia and are a core part of Government of Indonesia’s (GoI) poverty reduction strategy. They are of high importance to the GoI and the PKH will likely be a significant component in future efforts to harmonize and create efficiencies in social protection programs in Indonesia.

2.1.1 Program Keluarga Harapan

The PKH Conditional Cash Transfer (CCT) program, launched in 2007, targets the poorest 18% of Unified Database (UDB)3 households to improve their access to health, education and social welfare services. It seeks to reduce household expenditure on basic services while investing in future generations through improved health and education.

Currently PKH is the Government’s priority program with the aim to reduce poverty and inequality. PKH is implemented by JSK under MoSA, that assigns facilitators at the sub-district level to verify the commitment of each household in meeting program requirements (on education and health). PKH has an operational Monitoring and Evaluation (M&E) system that has been able to provide internal management indicators, including indicators of household experience that feed into a program improvement cycle.

The PKH was piloted in 2007 in seven provinces, 48 districts and 337 sub-districts, reaching 382,000 households. The program has gradually increased the number of beneficiaries to reach 3.5 million households by 2015, then rapidly increased to around 6 million in 2016, and now reach 10 million households by 2018. This rapid expansion has involved broader geographic coverage, including the poorest districts of Papua and West Papua, and previously not covered areas.

3 OP2 presentation on ADB-BISA dissemination workshop, 4 November 2019



Figure 1. PKH household beneficiaries by year

Source: PKH Implementation Guideline 2019, MoSA

Key objectives include improving the nutritional status of children and pregnant and post-partum women, reducing the poverty gap across income groups and improving the education levels of children in poor households. PKH benefits are conditional on specified health or education requirements.

PKH has demonstrated positive impacts in consumption and health-seeking behavior (and minor impacts in education) for poor households and the communities in which they live. In 2017, a World Bank mid-line evaluation showed that PKH increased average monthly household expenditure by 10%4, with most going towards protein food consumption and health care costs. More modest improvements in school attendance and immunization were also attributed to the receipt of the grant.

PKH’s impact is mediated by the transfer amount or benefit level which is relatively low compared with other CCT programs around the world. CCTs in Mexico, Brazil and the Philippines have benefit levels of about 20% of consumption.

PKH eligibility criteria are twofold, taking into account 1) household composition (e.g. presence of a pregnant/lactating woman, one or more children below age 5, children aged 6-15 attending school or children aged 16-18 yet to complete basic education); and 2) household consumption (threshold set at the bottom 14% of households in the UDB.

In 2019 the amount of money received by beneficiaries – which was previously flat was made non-flat or different between one recipient to another, depending on the household composition, as above, for them to access public services on health, education and social welfare with a maximum number of up to 4 people per family. Table 2 below summarizes the benefit received by household.

4 World Bank (2017), Towards a Comprehensive, Integrated, and Effective Social Assistance System in Indonesia; The World Bank Office Jakarta.



Table 2. PKH Social Assistance Index 2019

Beneficiaries category Yearly amount (IDR)

Basic assistance for every eligible family (regular PKH)

550,000

Basic assistance for every eligible family (PKH Akses)

1,000,000

Pregnant woman 2,400,000

Children below 6-year-old 2,400,000

Children at primary school 900,000

Children at junior secondary school 1,500,000

Children at senior secondary school 2,000,000

Elderly (above 60 years) 2,400,000

People with disability 2,400,000

Source: PKH guidelines 2019

In September 2019, Minister of Social Affairs launched e-PKH, a digital based application for PKH to improve data accuracy and ensure effective distribution of social assistance. The application aims to monitor program achievement’s targets. Some key features in the application are: (1) Calculation of the social assistance fund, (2) The verification of KPM commitment, and (3) real time data update on the program’s implementation. Previously, PKH information systems were managed through an application called SIM-PKH which was used since 2011. E-PKH has some updated features that did not exist in SIM-PKH, but in general these two applications were designed to capture data in PKH business processes.

PKH implementation is divided into two categories, i.e.: regular PKH and PKH Akses. As mentioned above, PKH Akses will be assessed in more detail by Output 2 team. As also reported by the Output 2, the target group of PKH Akses is a poor and vulnerable family in the hard-to-reach areas. Currently, there is a request from the government to define the criteria of Akses area and Output 2 is preparing a policy brief on this.

2.1.2 Bantuan Pangan Non Tunai

BPNT or Bantuan Pangan Non Tunai is a non-cash food assistance program. It was introduced in 2017 to transform Rastra gradually, from in-kind to direct transfer (IDR 110,000 per month or equal to USD 8) to a beneficiary's bank account. Currently, the fund is used to buy food such as rice and eggs. There is a discussion amongst implementers that the fund can be also used to buy other types of food in the future.

Family Beneficiaries (KPM) of the Food Social Assistance Programs comprise families in the bottom 25% socio-economic group in the respective implementing areas. Both BPNT and PKH use UDB as the basis to determine the target beneficiaries, i.e. household on the bottom of poverty lines.

BPNT initially rolled out with 1.3 million beneficiaries in 44 cities. In September 2019, Rastra had been transformed into BPNT by reaching 15.6 million beneficiaries in 514 regencies/ cities. The main objective of this transformation is to ensure that beneficiaries would receive the rice in the correct amount, at the right time and with adequate quality. In addition, BPNT has granted flexibility to beneficiaries to select the type, quality, price, and place for buying the rice.



BPNT’s first goal is to assist beneficiaries buying their food. Based on study in 2019 by MicroSave Consulting, BPNT contributes 12%-29% of the total monthly food expenditure or covers one to two weeks of basic food (rice) consumption.5 As an impact of non-cash disbursement, BPNT helps to boost financial inclusion for the poor, particularly women. 87% of the beneficiaries have new bank accounts through BPNT. It also helps micro-entrepreneurs to be familiar with digital channels. In the long run, this will help to develop a cashless society. However, when checked on usage, the study found that only a negligible number of respondents (<1%) have used their Family Welfare Card (or Kartu Keluarga Sejahtera/KKS) for savings. 52% of the beneficiaries said that they did not know KKS has a linked savings account or they didn’t know how to save in the account.

2.2 Initial findings

OPML team conducted its initial orientation to the program and stakeholders as part of inception phase from the start date of the assignment on 17 October 2019. On 4 November 2019, ADB together with BAPPENAS organized a dissemination workshop in order to: a) disseminate Output 2 rapid review findings6, and b) introduce OPML team to MoSA and BAPPENAS. Following the workshop, OPML conducted various meetings with relevant units/sections at MoSA at the central level. A full list of meetings is provided in Annex B.

For this Inception Report, data gathering initially focused on secondary sources and consultations with key staff at DG of Linjamsos and Directorate of JSK. Unfortunately, we only managed to meet with two out of three directorates under DG of PFM (see also footnote #2 above).

In December, the team carried out field visits to Kota Malang and Kabupaten Malang in East Java, Kota Prabumulih and Kabupaten Ogan Ilir in South Palembang, and Kota Jakarta Pusat in DKI Jakarta. In each location, we had the opportunity to meet with District Social Affairs Office, PKH coordinators, supervisors and facilitators, as well as BPNK facilitators/TKSK and Korteks. We also had a chance to visit e-warong and observe the FDS session. This field visit helped the team to understand the dynamics, learn success stories and identify challenges of program implementation in the field. Annex B provides more detail on meetings conducted.

Earlier work carried out by the Output 2 team on PKH AKSES and BPNT, their findings and recommendations, have proved a timely and highly relevant source for capacity issues that also face the “regular PKH” and BPNT. Wherever possible, we have adopted a common vocabulary and approach to Output 2 in order to facilitate the integration of results, and the production of outputs and tools that can be as widely used as possible.

We group these findings based on two outputs that are part of the assignment.

2.2.1 Initial findings on capacity of PKH and BPNT implementers

This assignment takes place in the context of Government of Indonesia (GoI) policy to continue the expansion of PKH program, and to do so by increasing efforts to reach populations that have formerly been difficult to access and enroll. The program continues to be facilitation-based with Family Development Sessions, and local verification of

5 MicroSave Consulting (2019), BPNT Operations Assessment, Jakarta 6 Led by a separate team



health and education conditions being met, placing a high reliance on the capacity of local program staff. The primary focus of our capacity assessment attention is clearly the “regular” PKH, but also includes the capacity issues affecting BPNT, PKH AKSES, the elderly poor, and people living with disabilities, which are dealt with in detail by Output 2.

Overall, a picture emerges of programs where activity growth has outpaced the capacity of the implementing entity to fully support it. The PKH, together with the BPNT program, represent the two largest national social assistance programs in Indonesia.

A structural overview of how the two programs are placed within MoSA is shown in Figure 2 below.

Figure 2. Ministry of Social Affairs organisation structure for PKH and BPNT

Source: OPML analysis, MoSA organisational structure.

PKH

At central level, PKH is currently managed by Directorate of Family Social Security (JSK) staff of 45 civil servants and 62 non civil servants (called ‘expert’), who are responsible for managing PKH activities involving 10 million households facilitated by around 40,000 field staff at provincial, district and sub-district level.

The administrative pressures involved in meeting the latest objectives for targeted expansion are considerable, both at local and at central level, with stresses evident in widespread recruitment problems, an administrative establishment constrained by inadequate numbers and conflicting employment terms7, fragmented technical training, achieving the desired outcomes from Family Development Sessions, and embracing the promotion of new entrepreneurial skills.

The institutional structures that support the PKH are indicated in Figure 3 below, with central Directorates within the MoSA having overall accountability for strategic decision-making, monitoring, linkages with other social protection activities, and direction of

7 BISA Output 2 Assessment of HR for PKH and BPNT Implementation



implementation. The delivery of benefits, and education and health promotion are largely decentralized8 down to district level and technical responsibility is in the hands of Coordinators and Supervisors to oversee the activities of Facilitators at sub-district and village level.

Figure 3 Current Institutional Framework for PKH delivery

Source: OPML analysis

A number of themes have emerged during these early discussions with stakeholders and review of documents and literature.

• In discussions with high level staff at DG of Linjamsos and Directorate of JSK, we acknowledged that the need for capacity building for PKH implementers which includes improving their ability to provide support to the community in terms of addressing social problems. One important element in this regard is to recruit more field staff with social work backgrounds, which is expected to help improve service provision using a case management approach in the field. Currently, many facilitators have backgrounds that are not related to community empowerment or social development. Since 2016, JSK added one position at district level, namely the Social Worker Supervisor with the task of assisting PKH implementation through Family Development Session (FDS).9

• The establishment of a unified database (UDB) of eligible beneficiaries is a major achievement and an essential requirement for future program expansion and integration. This is a developing scene, but challenges appear to exist, from data collection and updating, to data use and exchange. These challenges highlight the critical need for PUSDATIN to attract and retain the technical, and administrative skills to continually upgrade the UDB for its multiple users10.

8 In the sense of deconcentrated, rather than devolved or delegated to local government. 9 FDS is a structured learning process to strengthen the behaviour change in KPM. Currently, there are 5 modules in FDS activities, i.e.: a) health and nutrition, b) parenting and education, c) child protection, d) family financial management, and e) social welfare. 10 https://dfat.gov.au/about-us/publications/Documents/integrating-data-information-management-social-

protection-a1-indonesia.pdf

https://dfat.gov.au/about-us/publications/Documents/integrating-data-information-management-social-protection-a1-indonesia.pdf

https://dfat.gov.au/about-us/publications/Documents/integrating-data-information-management-social-protection-a1-indonesia.pdf



• The staffing structure that delivers PKH – from planning to payment of beneficiaries and their graduation out of poverty – has been recently reviewed in some depth by Output 2 in examining options for integrating PKH and BPNT. The current status of this exercise will clearly have an impact on a recommended staffing and skills profile for program implementation,

• Training for field staff of PKH has been delivered by the MoSA Agency for Education, Training and Counseling (or Badan Pendidikan, Pelatihan dan Penyuluhan Sosial/BADIKLIT), with a mix of modules and delivery methods. BADIKLIT, that was previously responsible for induction and entry-level training, is now mainly managing FDS training. There are two methods for delivering the FDS training, 1) online version where the facilitator receives an account to access the online FDS materials and 2) offline or face-to-face training for 10 days, which includes 5 days classroom training and 5 days practice sessions. Face-to-face training is conducted in BADIKLIT six regional training centres (Padang, Bandung, DI Yogyakarta, Banjarmasin, Makassar and Papua).

• There is, however, a reported need for a more formal training structure, with more robust monitoring of online trainee performance, accurate targeting, record keeping and measurement of results. A targeted Training Need Analysis (TNA) will identify specific areas where new training support is required for PKH to match policy adjustments, e.g. ‘the shift from social assistance to social empowerment’.

• We have not yet explored with BADIKLIT the functionality of their training administration system, but the forthcoming introduction of a Human Resource Information System (HRIS) will not, on its own, ensure rigorous management of human resource development.

• As a force for continuous improvement in supporting cash transfers such as PKH, we will need to further understand the causes of backlogs in PKH training roll-out that now exist. The underlying causes of this situation will need to be fully explored in the assessment phase.

• We observed the use of a Performance Management System (PMS) in the shape of annual appraisal forms. There are some doubts as to how rigorously the system is used (it was reported that it did not occur in 2018) or how the data gathered is used for planning purposes. A PMS forms an essential tool in recording and improving individual performance and demonstrating the outputs of training. As noted above, the introduction of an HRIS is not sufficient to ensure it is institutionalized in practice.

• Our knowledge of the new HRIS is still very limited but it should prove to be a critical tool in all aspects of the human resource cycle. The implementation and staff utilization of such a system is, typically, dependent on the strength of the manual system and processes it replaces, but even where this is not the case, the HRIS will undoubtedly improve data transfer, and provide a central repository for all staff information.

• Whether using HRIS or a manual system, there is a pressing need for workforce record-keeping to be disaggregated by gender, particularly in terms of recruitment, training attainment, and career advancement. This visibility will enable efforts to mainstream gender-sensitive participation, facilitation and training of beneficiaries in FDSs.

• Job descriptions are available for most roles; however, it is not clear how recently these have been reviewed and updated, or whether they include competencies. Certainly, the introduction of mandatory certification11 is a driver to formalize and record technical qualifications.

11 Law No 14/2019 on Social Worker



• It appears to be the case that some “regular” PKH field staff struggle with the same resourcing issues faced by PKH AKSES sites, e.g. old or poorly maintained computers and communications equipment, few vehicles of any sort, and deficiencies in power supply and connectivity.

• Consultations with Output 2 specialists suggest a serious capacity gap in Akses facilitators’ skills who lack the advanced skills to influence and persuade KPM to achieve behavior change, in these difficult locations.

BPNT

The implementation of BPNT, under the auspices of the Directorate General for Handing Poor and Vulnerable People (Penanggulangan Fakir Miskin/PFM), is divided along regional lines with the program managed by three (3) directorates as follows:

1. Directorate of Area I that covers eleven (11) provinces: all ten (10) provinces in Sumatera and West Java;

2. Directorate of Area II that covers twelve (12) provinces: DKI Jakarta, Banten, Yogyakarta, Central Java, 5 provinces in Kalimantan, Bali, West Nusa Tenggara, and East Nusa Tenggara; and

3. Directorate of Area III that covers eleven (11) provinces: East Java, 6 provinces in Sulawesi, North Maluku, Maluku, West Papua and Papua.

The Output 2 team identified that each directorate is using a different monitoring and reporting system. During the assessment phase, we will examine all of these systems and their implications for BPNT implementation in the field.

Similar to PKH, BPNT also use facilitators in the field, Sub-district Social Welfare Worker (or Tenaga Kesejahteraan Social Kecamatan/TKSK) and Coordinator of Social Welfare Workers (or Koordinator Tenaga Kerja Sosial/Korteks). In addition to these TKSK and Korteks, BPNT implementation in the field is also dependent on the participating Banks, who are responsible in preparing e-warong, opening an account for each beneficiary, giving an explanation to the beneficiary regarding the use of cards to buy food, etc. Figure 4 below provides the institutional framework of the BPNT.



Figure 4. Current Institutional Framework for BPNT delivery


During the dissemination workshop on 4 November 2019, the DG of PFM highlighted some issues in BPNT implementation, including:

• Reporting system of BPNT is currently a major concern at DG PFM. As identified also by Output 2, each director under PFM is using different e-reporting, e-monitoring, and e-proposal systems. They also prepare different materials for guidance and orientation.12

• There are still many complaints that have not been resolved, including on undistributed card to family, targeting error, etc.

• In terms of human resource, PFM recognized the importance to provide reward-punishment system to motivate staff to improve their performance.

Through further discussions with the directorates under PFM, we realized that PFM currently do not involve BADIKLIT in the training of BPNT local staff, either as providers/deliverers or in a quality assurance role. The team have yet to view the training materials in use for BPNT staff, which may vary between the three management regions.

Korteks, which were recruited in late 2017, received technical coaching (Bimtek) from PFM for 3 days on BPNT business process and Korteks roles in this process. TKSK, which has served in the sub-district for a long time to handle various social assistance programs, is currently also assigned as a BPNT facilitator. TKSK mentioned that they never received specific training for BPNT, but they instead attended coordination meetings at regional level and district level before BPNT is implemented. This coordination meeting usually discussed the mechanism for channeling BPNT assistance and issues surrounding it.

12 BISA Output 2, Assessment of PKH and BPNT Capacity Development.



We also hope to examine the recruitment process of Korteks and the management of all BPNT field staff (such as TKSK) during the assessment phase, specifically the roles of each directorate (Area 1, 2 and 3) in that process.

2.2.2 Initial findings on communication and advocacy

Throughout this inception period, OPML communication specialists have also conducted desk-based research, literature review, consultation meetings, field visits and discussions to better understand the landscape of communication related activities of PKH and BPNT. Annex B provides more detail on meetings conducted.

PKH

In the past three years, the DG of Linjamsos had been supported by an appointed consultant deployed by the Ministry of Communication and Informatics, regarded as Government Public Relations (Tenaga Humas Pemerintah/THP) consultant. With the assistance of external THP consultant, DG of Linjamsos has produced a communication strategy for PKH that has been officially endorsed by the DG. We found that this strategy is a good starting point to build a more structured annual plans and priorities.

The presented strategy elaborates comprehensive communication methods. It outlines various approaches from mass communication through media engagements, social media management, collaboration with community groups, empowerment of beneficiaries (Keluarga Penerima Manfaat/KPM), incentive and recognition programs for the PKH facilitators, to the involvement of external influencers such as key opinion leaders, academia and observes, Himpunan Bank Rakyat (Himbara) and other related stakeholders.

From existing operations of PKH communication programs, there are five key areas that need further improvement:

1. Communication Management: Communication Activities of PKH is led by the Section on Organization, Law and Public Relations (Organisasi, Hukum dan Humas/OHH) of Linjamsos as well as the Directorate of JSK. However, classic issues on less adequate numbers of communications staffs still exist, while job title and position, levels of roles/responsibilities, and appropriate skill sets of the existing people remain undefined. In addition to this, limited collaboration between units are found across the organization (OHH of Linjamsos, Directorate of JSK/PKH program, and PR Department of the MoSA).

To improve the communication management as well as the capacity of PKH staff in conducting communication activities, OHH has conducted Bimtek on Journalistic for Social Work Supervisor and JSK staff. However, the training covered only 20 supervisors and few of JSK staff, who then have not yet been able to fully contribute/apply the knowledge they gained from the training. This proved that a more solid plan, relevant modules, right targeted participants, and continuous monitoring are required.

We also acknowledge the importance of working collaboratively with staff at the Directorate of JSK and the DG of Linjamsos to build communication plans and programs. There is an expectation that this assignment can empower JSK and Linjamsos’ staffs to optimize the utilization of available resources and existing tools/platforms, continue best practices and retain established relationships with



PKH network/stakeholders.13 The assignment must hold to the principle of working with the team, and not working for the team.

2. Communication Strategy: the existing PKH communication strategy has not been implemented fully and the PKH communication activities are mainly directed to build awareness of the mass public which relies very much on media relations (earned and paid). Communications are yet to the extent of creating motivation or changing the behavior of the eligible/PKH recipients.

Social media conversation, to a certain degree, has been carried out in a fairly appropriate manner. Deeper knowledge regarding social media management is evidently required. This would include, development of strategic social media narratives and timelines, design of regular updates or ‘always-on’ information, design of a strategic social media campaign, creative content production, loyalty management and enhance outreach to foster greater engagement. This area also needs a complete internal/organizational social media communications guideline for better practice among the staffs.

With around 40 thousand of field staff and 10 million beneficiaries, PKH has grown a massive number of audience groups that is represented as; (1) a big cluster of beneficiaries (KPM), (2) a big cluster of partners and supporters, and (3) a big cluster of program coordinator/facilitator working on the ground. There is not yet a well-oiled system in place, that is able to facilitate the cascading-down of information updates, to receive feedback from the field, and to build dialogue with and among these 3 groups. Some of the already available channels such as the call center14 and Satria Linjamsos15 need to be reviewed and further empowered.

Difficulties in getting feedback and information from the facilitators are due to their already high workload, low awareness and lack of habit to contribute to communication activities as well as limited working tools available to them. Despite platform/access such as Satria Linjamsos has been initiated, information about the existence of Satria Linjamsos was only disseminated through the above-mentioned OHH’s Journalistic Training. Facilitators on the field has very minimum knowledge about the platform. Further information dissemination and activation are needed, to make effective use of Satria Linjamsos.

Overall, the above findings suggested the need for further assessment to the existing communication strategy to produce a more strategic communications plan, with a well-structured priority, by taking into the account a sound job distribution, adequate number and capacity of the human resources.

3. Advocacy: A strategically planned communications methods to support effective policy advocacy is not yet demonstrated. It is evident that well-thought advocacy plans, that are based on knowledge and data analysis, are needed. This to be used particularly to promote action or change in policy and behavior of other ministries and government agencies16 – partners of PKH/DG of Linjamsos/MoSA.

13 Example of a successful knowledge and skills-transfer is the establishment of a video shooting studio and formation of a skilful team, that was initially backed by an international donor through 3rd party service provider. Today, they DG team is more self-reliance in terms of video production. 14 See point 5: Communication-related component of complain handling mechanism. 15 Satria Linjamsos is a web-based platform to collect news and data at real time basis from the field facilitators/staff for all Linjamsos’ Programs including PKH and disaster relief initiatives. 16 These stakeholders are including, but not limited to; Ministry of Finance (MoF), the National Development Planning Agency (Bappenas), President Office, and the Parliament in responding to social assistance programs.



4. Knowledge Management: Better management, formulation, and analysis of the data in e-PKH17 to be used for various purposes such as to inform decision making, and to enrich the PKH’s narrative to the external audience. Such data analysis is also envisaged to provide information to PKH management on areas, such as; whether aid disbursement has been conducted properly, program outcomes are achieved, and if program impacting public awareness and behavior change is materialized. Better knowledge management may also be utilized to collect, document, and manage tacit knowledge among facilitators, program implementers and staffs of MoSA in implementing PKH and BPNT.

5. Communications-related Component on Complain Handling Mechanism (CHM): Interview with MoSA staffs responsible for PKH and BPNT and result from the field visit suggested that PKH Contact Center is not being well recalled by the program’s beneficiaries. Part of the beneficiaries claimed to be aware of the availability of this hotline facility but cannot recall the phone number. Meanwhile, other part of the beneficiary groups admitted zero awareness about the Center. As mentioned in different parts of this report, the management and control of both PKH and BPNT program rely heavily on interpersonal relations between the KPMs and the Facilitators. Problems are settled directly on the ground, with information and updates are channeled through the already-established chain of command. Actors involved in PKH and BPNT would prefer to troubleshoot issues at local level and prevent at their best to raise concern to the higher level of authority (let alone to the Central Government).

We acknowledged that the World Bank also provides technical assistance in CHM and we will coordinate with them during assessment phase to enquire on the current status of CHM implementation and effectiveness. This will be the basis for us to assess whether additional technical assistance in this area is required.

BPNT

Within the context of communication and advocacy, the BPNT is at its elementary stage of self-promotion and reputation-building. Starting in 2019 (after the transformation from Raskin and Rasta program), the general insights gathered during our consultation meetings, showed that the public has very little awareness of BPNT as a ‘new brand’. Instead, they keep referring to the past Raskin/Rastra program and recall the overall program as ‘the rice distribution’ aid despite the changing names of the program.

This is verified by the Secretary of the Directorate General of Handling Poor and Vulnerable Population (or Penanganan Fakir Miskin/PFM) during dissemination workshop, who stated that assistance is required around the following activities:

• Dissemination of general information to the broad public and beneficiaries (including access to the program, terms for participation, BPNT amount, frequency of transfer, etc).

• Dissemination of technical information to the local governments and program implementers.

• System development and human resources capacity building for rapid response and complain handlings.

17 E-PKH is a management information system of PKH’s implementation, including data of beneficiaries’ condition, validation and PKH fund disbursement. E-PKH just recently launched and used on the 3rd quarter of 2019 to replace previous system SIM-PKH.



Despite the urgency to increase the awareness of all participating parties as mandated above, a recent assessment18 showed improvement in various aspects of BPNT operations that included beneficiary awareness and effective means of communication for the socialization of the program. It presented an encouraging finding, through comparative figures between 2017 and 2018.

Table 3. BPNT beneficiary awareness

2017 2018

Awareness of BPNT amount (IDR 110,000)

15% 70%

Awareness of BPNT frequency of transfer (1 time every month)

16% 94%

Source: MicroSave Consulting

This Report revealed the beneficiaries were obtaining – and would prefer – verbal information regarding BPNT from face-to-face meetings (67%) and word of mouth from other beneficiaries regarding the frequency of transfer (44%). This is respectively followed by preference for getting such information from the most common social network: SMS (short message service), WhatsApp or Line (19%) and communication with PKH facilitators, TKSK, MoSA staff or Bulog staff (staff in Agency for Logistical Affairs) (36%).

The above finding is supported by the fact that mobile phone penetration in this segment is as high as 85% of the total respondents and nearly half of these are smartphones. This enables them to exchange information via text or phone call (89%), common social network: WhatsApp and Line (30%), and social media: Facebook and Instagram (19%).

The BPNT institutional framework as outlined in Figure 3 stated the use of letters and leaflets as main tools for awareness creation, which is contradictory with the beneficiaries’ response and proved to be less effective if compared to interpersonal communications.

Overall, the report presented a general program satisfactory level of 81% as conveyed by the beneficiaries, while 67% expressed their satisfactory with BPNT complaints handling mechanism. Considering BPNT has only been effective in approximately the past two years, these findings are encouraging.

As such, these findings suggest the assignment has significant room for opportunities to come forward with a deeper assessment and more strategic planning to improve BPNT communications and rapid-response, and to explore creative ways that involve direct participation of beneficiaries (townhall meetings, local community gathering, the strengthening capacity and championship of TKSK, etc.) to effectively reach the objectives.

At this stage, the assignment could explore synergies in communications for both BPNT and PKH, especially at the field level. Exercises in order to deliver messaging of both programs through e-warongs or cross-posting on digital channels are some of the worthy ideas to nurture public understanding about the two programs.

18 BPNT Operations Assessment 2018, conducted to 2,398 beneficiaries and 779 e-warongs from 93 cities or regencies, covering 25 provinces. The Report was presented on January 2019 by MicroSave Consulting.



The assignment will also include suggestions and strategies to channel complaints better, and to enable constituent/beneficiary feedback more promptly

Analysis regarding the assignment

The above impressions are put together into a comparative needs analysis, between what have been outlined in the initial ToRs and what OPML team identified on the ground, as in the Table 4 below.

Table 4. Comparative needs analysis

Described in the TOR Actual requirements after meeting and discussion with key stakeholder

Review of the existing communication and advocacy strategy of the PKH and prepare options and proposals to strengthen the strategy and existing communications unit in PKH.

• PKH Communication Strategy has already existed. We will undertake further review and provide options to strengthen the strategy.

• Additional request to provide support on BPNT communication strategy, which we will assess its existence and provide recommendation based on the assessment.

• No advocacy strategy/plan for PKH and BPNT available due to the absence of clear direction of topic priority. We will provide support to the development of advocacy strategy/plan, with an agreement upon topic of priority.

Prepare a communications strategy for PKH acceptable to JSK and ADB.

• Enrich the already available PKH Communication Strategy.

• Prepare a communication strategy for BPNT

• Provide recommendation as well as workplan with timeline for the implementation of the 2020 – 2022 Communication Strategy for both PKH and BPNT.

Develop training plan and design training program, manuals, and training aids for PKH staff, PKH AKSES and JSK’s communications unit, acceptable to KSK and ADB.

• Prepare a plan for series of capacity building programs and development of related guidelines or standard operating procedures. This plan will include the timeline for delivering the capacity building programs that we will identify in coordination with relevant JSK and PFM staff.

• Identify and clarify on the suitable approach;

o Format/concept: different options of seminar, classroom training and workshop, sharing session, regular technical assistance.

o Topic: different options of communicating social assistance programs in the 4.0 era, social media planning and management, technical skills in writing, technical skills in video production, technical skills in graphic designing, technical skills in data reading, production of infographic and narrative building, public speaking, how to work with the media, etc.

o Different options of resource person.

Provide training for supervisors, coordinators, facilitators, and select staff as may be determined in coordination with JSK, including selected PKH-

Explicit requests for themed and continuous capacity development programs from OHH Section, Directorate of JSK, Directorate General of Linjamsos.

This will be translated into:



Described in the TOR Actual requirements after meeting and discussion with key stakeholder

AKSES staff and communications staff.

• Implementation of the training plans (see also above) starting from the Q2-2020, including facilitation and technical support.

• Selection of experts, monitoring and supervision.

• Further requests, including request from Directorate General of PFM will be accommodated in the strategy.

Develop applications or digital platforms to support various areas of operations of PKH (eg. e-recruitment, e-learning).

• Assess the effectiveness of the existing digital platforms, including e-PKH, Satria Linjamsos, PKH and BPNT social media accounts. Based on the assessment we will provide recommendation on the next steps. This could include optimization the existing platform or creating a new platform based on the need.

• Cooperation with the appointed statistician and data analyst.

• Close assistance in terms of data analysis and translation into ready-to-use message.

• Distinction use for public awareness creation and/or policy advocacy.

Prepare and finalize ten (10) knowledge products and advocacy materials based on the outputs and results of the TA.

Depends on the development and requirements, which could include infographic on PKH achievements/impact; Policy Briefs; Communication Guidelines for MoSA staff; PKH & BPNT Social Media Protocols; Audio-visual materials for social media use.

No description Development of BPNT communication strategy, action plans, and capacity building programs as mentioned above.



3 Overall approach to this assignment

Discussions with relevant stakeholders conducted during inception phase has helped OPML to update its approach/methodology and workplan for this assignment.

In order to best plan, implement and monitor project activities, OPML has organized its methodology into five phases, each comprised of specific steps that lead to connected deliverables. The following sub-sections describe our methodology for each of these five phases, indicate our initial assessment of how the work will be carried-out over time and what are the operational procedures OPML will put in place to secure the most effective and efficient delivery of activities.

3.1 Phase I: Inception and initial assessment

The inception phase that has just completed in December 2019 allowed us to identify current issues and challenges in PKH and BPNT implementation. A set of initial findings have been presented in Section 2.2. Yet, we recognize further exploration during Phase II of this assignment is needed to gain comprehensive understanding of the problem.

3.1.1 Capacity building

Some findings obtained during this inception phase helped us to compile further questions to be explored in the next phase. In the following table we summarize some of the initial findings and follow-up questions. This list is non-exhaustive but will guide us in further research during assessment phase (see Section 3.2 below).

Table 5. Initial findings and follow-up questions

Topic Initial findings Questions for further assessment

Legal framework Recent introduction of mandatory certification of social workers/ facilitating cash transfer activities

What laws and regulations govern the implementation of PKH and BPNT? How this regulation is implemented in the field?

Results required Enrolment data and funds disbursed / in-kind disbursement, compliance with conditionalities, etc

How are the results disaggregated? What gender data is available?

Existing records of PKH and BPNT capacity

Largely by exception, internal reporting of problems

Enrolment and beneficiary totals

What data is available, and in what form, to measure performance against targets?

Is this recurrent or ad hoc?

Capacity building of staff

Training for frontline staff is provided by BADIKLIT

Is there any capacity building plan and strategy?

Are there other training providers beside BADIKLIT?

How are training needs assessed and budgets allocated?

How will OPML work with BADIKLIT in implementing the




capacity building program in this assignment?

Human resources 107 staff (45 organic and 62 non-organic) to manage PKH

Around 40,000 field staff

BPNT operations managed by 3 directors with similar number of field staff as PKH

What HRM processes are mapped?

What recruitment skills are required?

What is the effect of civil service/ and non-civil service employment terms?

What are the staffing figures for central and local teams for BPNT?

Management systems

The installation of MoSA HRIS is work in progress

What specific mechanisms are used for managing such a large front-line workforce?

What performance records are kept?

Business Processes

There are some program processes

What business processes have been mapped for programs and operations for JSK, PKH and BPNT, using what methods?

Training capacity BADIKLIT and any out-sourced services and products

Qualifications and areas of expertise of each provider? How are training resources selected and measured?

How are outputs and impacts measured?

What earlier reviews of BADIKLIT have taken place?

Skill profiles Job descriptions exist Are these recently updated? Have any competencies been used in the past?

3.1.2 Communication and advocacy

In the following table we summarize the initial findings on communication related activities and follow-up questions to guide us in the assessment phase.


Communication Management

• There is not yet a well-oiled system in place

• Limited appointed and skilled communication staffs and limited collaboration between units

• How is the human resources map in the area of communication and advocacy?

• How to best optimize the internal communication channels that have already in-place?

• How to promote better coordination between units?




Communication Strategy incl. Communication Channels, etc

PKH

• Communication activities carried out mainly directed to build awareness of the mass public

• Communications are yet to the extend towards creating motivation or positive behavior on education, health or financially of those among the eligible/already PKH recipients.

• More advanced communications methods to support effective policy advocacy is not yet demonstrated.

• Social media conversation, to a certain degree, has been carried out in a fairly appropriate manner.

• With the assistance of external THP consultant, DG of Linjamsos has produced a communication strategy for PKH that has been officially endorsed by the DG

BPNT:

• Lacks structured communication activities

• The 2018 BPNT Operational Assessment could be used as a baseline to improve the program’s communications outreach

• How the communications strategy developed by THP remains relevant with current needs, pressing issues, existing channels and skill-sets available at the MoSA?

• How the available communications strategy needs to be developed further and translated into an annual workplan.

• How is the current status and sentiment, and how to improve the news coverage, social media exposure and webpage of PKH and BPNT.

• What are the communications platforms used by PKH and BPNT implementers internally and externally?

• How to explore synergies in communications for BPNT and PKH at field level?

• Is there a need to establish a joint program communication working group to streamline collaboration?

Knowledge Management

Knowledge management is not yet a familiar topic and becomes priority. The PKH program is willing but not yet optimally using the available big data and do analysis to feed the program’s narratives (for various purposes).

• How to better get and analyze data from the e-PKH - in terms of coordination and technical methodology?

• What are the main purposes, and expected outputs and outcomes from the data analysis?

• How to be best package and publish the data to reach the targeted audiences?

Advocacy • More solid PKH advocacy strategy is desired to; (1) influence the adjustment or reform of relevant policy(s) pertinent to PKH business operations, (2) to increase the program’s profile, to obtain better buy-in from stakeholders,

• What are key policy changes that are prioritized issues to be advocated?

• Who are the key stakeholders to be targeted through advocacy?




and to take the program to the next level.

• Internally, a well-designed advocacy plan is also desired to help decision making, foster transformation, and support seamless coordination between units/authorities in the Ministry.

• Is there any stakeholders’ analysis and political mapping in place? PESTA (political, economy, social, tech. analysis)

• Is there any possibility to form a communication working group within relevant key ministries?

Complaint Handling Mechanism

• There are complaint handling mechanisms in place for both programs

• There is a need to better communicate the mechanism to beneficiaries and facilitators

• How to better inform beneficiaries on complaint handling mechanism?

• How to generate questions/complaints to feed the development of messages and communication strategy?

3.2 Phase II: Review and assessment

To be able to answer questions listed above, we will undertake more structured review and assessment in the second phase of this assignment.


Assessment Overview

In any study of “capacity” it is useful to establish a common understanding of the term. Capacity only exists in relation to performance and can only be defined in relation to the undertaking of particular activities or the achievement of particular purposes19.

It follows that the requirement for this assessment, to set out what constitutes required capacity in the PKH and BPNT systems, and to identify capacity gaps, is best addressed by beginning with a review of existing capacity, and examining how far it has proved adequate in delivering the government’s program objectives. It is then possible to identify specific deficiencies as the source of weaknesses in delivery, and to make recommendations for improvement. Such recommendations may address a wide range of possible capacity defects, from staffing levels to skills and training to management systems to material resources.

Our approach to capacity development is therefore “systemic”, in that activities, especially on a scale and complexity required for national social assistance programs, require a comprehensive view of the factors that either enable or constrain capacity. The

19 UNDP (2007), Capacity Assessment Methodology: User’s Guide, p. 3, at http://europeandcis.undp.org/uploads/public/File/Capacity_Development_Regional_Training/UNDP_Capacity_Assessment_Users_Guide_MAY_2007.pdf ADB Capacity Development Working Group (2005), Draft Framework for Capacity Development (unpublished).

http://europeandcis.undp.org/uploads/public/File/Capacity_Development_Regional_Training/UNDP_Capacity_Assessment_Users_Guide_MAY_2007.pdf

http://europeandcis.undp.org/uploads/public/File/Capacity_Development_Regional_Training/UNDP_Capacity_Assessment_Users_Guide_MAY_2007.pdf



diagnostic Capacity Framework below illustrates this view, albeit the main areas of our focus, as described in the Terms of Reference will be around Structure20, Processes and People.

Figure 5. Diagnostic Capacity Framework


By way of explanation, in this diagnostic framework each component is determined by others so the Mandate that establishes why an entity exists, will shape the Results it must achieve. These Results will require a special Strategy and delivery Structure, and specific Processes and People for effective implementation. The required capacity is always defined by the Results to be achieved – in this case the expansion in PKH beneficiaries, and efficiency gains for the BPNT.

It is also worth noting that the “Process” component in this framework refers to high-level program delivery and Human Resource Management (HRM)/Human Resource Development (HRD) processes, and we anticipate that these may already exist, in some form, from the Ministry or earlier projects. Where this is not the case, the team will carry out a rapid process mapping exercise in order to understand the detailed processes through which the key functions of the PKH modalities are carried out, and the human capacity (in terms of both staff numbers and skills and experience) and other resources which they demand. Detailed process information is essential to identify accountabilities, responsibilities, functions and tasks for any competency and training needs analysis. We will also draw on the workload assessments and staffing level recommendations for both programs, resulting from World Bank support since 2018.

Assessment Components

In order to accurately assess the capacity needed to equip the PKH function with a workforce to carry out its mandate, a number of steps are necessary, including those that precede and succeed the main Training Needs Assessment (TNA) activity:

1. The identification of a small number of subject matter experts on PKH and BPNT to provide feedback, information, linkages and deep institutional or program knowledge. We gratefully note the involvement of the DG and the National Board in the capacity

20 To be discussed with Output 2 in the light of their additional work in this area



development exercise, and that the lead for Output 1 will be the JSK Sub-Directorate of Resources. The close engagement of such respected individuals can do much to mitigate the risk of any assessment exercise being perceived by staff as “threatening”, and we value their ability to provide feedback, information, linkages and deep institutional and program knowledge.

2. A rapid review of the current status of the Capacity Development framework components: Mandate, Results, Strategy, and Structure. This picture will be enlarged and validated by further data collected during fieldwork. The findings of this review will answer the questions of whether the component is: clear, up to date, and well-known to the workforce, and aligned with capacity needs.

3. The rapid identification of a skills profile for the PKH and BPNT – what skills will be needed to carry out its Mandate and at what level. Some of these skills are already evident in BADIKLIT modules and/or outlined in Output 2 Reporting; and some benchmarks are implicit. The skills profile will be developed in close consultation with Output 2 HR consultant and using existing HR workforce data, and skill-focused process mapping where required. This type of mapping is suitable for both the central technical team and local implementers, and create visibility of how tasks are carried out, and by which jobholder.

4. This skill profile will inform a competency framework in consultation with the advisors and key functional managers. For immediate diagnostic purposes a “model” social protection competency framework can be used at the data gathering stage, prior to the finalization of a new Social Protection Competency Framework that can feed into Job Descriptions, performance measures, management information, and of course, training needs. The competency framework is typically a short list of generic work competencies, and a list of technical competencies required for that job family. The level of competency required will differ by job. This exercise can also feed into the development of evidence-based formal Certification and other qualifications.

5. The process of gathering information on current competency levels for a TNA will broadly follow the sequence illustrated below:



Figure 6. Sequencing of a Training Needs Analysis

Source: OPML

We propose to carry out fieldwork data gathering using a layered approach that will ensure total coverage and meet the requirements of the Assessment in terms of sample size and distribution. The layers will include:

a. Ongoing documentary and performance evidence review

b. In-depth interviews will all key informants

c. Participatory workshops / Focus Groups. The aim of the workshops will be to facilitate discussion and elicit information to complement that already obtained from the interviews and evidence bundles

d. Survey. A targeted questionnaire-based survey to ensure that the widest possible range of stakeholders is able to contribute to the TNA process. A range of different approaches to the administration of the Survey can be adopted according to the circumstances of respondents, including paper-based, telephone and web-based surveys. The most appropriate approach will be agreed during the inception phase.

Data Gathering – Sub-national

The field work for this Assessment has to meet two objectives: to acquire essential data for 1) a wide-ranging capacity assessment of PKH and BPNT implementation, and 2) a detailed training needs analysis of the program workforces and other key roles. The field work proposed is an exercise in purposive sampling. Given that we are investigating a national program that is intended to operate consistently and homogeneously across Indonesia, we believe that this approach is appropriate. However, this is an approach that will be more fully developed in consultation with Output 2 consultants, PFM and JSK teams.



The work plan envisages that in each case the team will interview regional, area, district and sub-district-level managers and coordinators involved in the administration of the programs. We will require further guidance on whom our teams should aim to meet. We then propose interviews with PKH Supervisors, Facilitators and Database administrators and Korteks and TKSK for BPNT.

Provisionally we propose fieldwork in 6-8 sites (3 provinces, with 2 districts in each). Provided that the necessary data were readily available, a number of possible criteria could be used to select the study sites, e.g. geographical representation, number of populations, poverty rate, urban-rural area, etc. PKH Akses areas will be selected for this fieldwork, based on avoiding duplication of earlier Output 2 studies, and recognizing the special factors that define Akses locations.

The principal instruments for data collection during the field visits will be semi-structured interviews, combined with direct observation of working conditions and practices. At the beginning of the fieldwork phase we will develop an interview guide/TNA instrument so that team members can be working in different locations but within a common protocol that ensures key issues are addressed.

The interviews and direct observation will between them contribute information not only about staffing levels, knowledge, skills and training, allocation of time to tasks and functions, and work processes, but also about the quantity and condition of physical resources allocated to or available for the administration of the PKH and BPNT.

Data Gathering – National Level

The scope of the capacity assessment and the TNA are not limited to the regional and district levels, it also requires gathering evidence at national level. We have held initial scoping meetings with some program staff in MoSA and JSK during the fieldwork phase and we will need to develop these further with a series of semi-structured interviews, with groups of staff as well as individuals in order to ensure as full coverage as possible. This activity will be replicated with central PFM management team/unit. We will also need to examine in more detail, documentary evidence of functions, activities and results of the central program teams, MoSA central services support and BADIKLIT in its provision of training for the programs. These informant groups will likely include, but not be limited to, those responsible for:

• HR

Recruitment

Training and development

Reward

HRIS/IT

• The Unified Database

UDB training

• JSK functional teams:

Validation and Termination

Beneficiaries

Social Assistance

Resources

• BPNT regional units

Region 1



Region 2

Region 3

More widely, we will need to seek interviews with representatives of the HIMBARA Banks and other payment agents to understand the issues involved in operating the payment elements of the PKH, and e-warong and participating Banks for the BPNT. It may also be useful to meet with other stakeholders such as community bodies if active and development partners (Figure 3 Institutional Framework). These interviews will add some detail to our understanding of the delivery of both programs and will provide a further perspective on the perceived performance and capacity of the systems.

Survey

The field visits and in-depth interviews will be complemented by a short TNA questionnaire which we propose to issue to all JSK and BPNT staff members, and a sample of Coordinators, Supervisors and Facilitators, Korteks and TKSK to gain more broadly-based information about gender, workloads, qualifications and experience.

Practically, we will need to discuss the logistics of distributing this survey instrument through normal government channels of communication with MoSA. We anticipate that this survey can run consecutively with other data gathering activity during Q1-2020 and could be completed within a four-week period. An alternative would be substituting telephone interviews for the questionnaire.

3.2.2 Communication and Advocacy

Building on the insights that have been gathered, further review and analysis of PKH and BPNT communication practices and activities will be conducted particularly to assess 5 areas discussed above, which include:

1. Communication Management:

a. Mapping human resources in the area of communication and advocacy. This would include number and level of competence of the staff at the DG of Linjamsos, the Directorate of JSK, and DG of PFM. The assessment will also lead to relationship gap analysis and capacity building needed.

b. Identify and assess communications platforms used by PKH & BPNT implementers, including their utilization to facilitate learning and coaching

c. Identify and asses collateral material used by implementers, such as booklet, leaflet, pocket book, guideline, papers, etc relevant to the communication and promotion of PKH and BPNT.

2. Communication Strategy:

a. Review the existing communications strategy developed by THP, which includes mapping of priorities based on current needs, the pressing issues, existing channels and skill-sets available at the MoSA, and by taking into account the political cloud of the new Cabinet. The assessment will draw gaps and opportunities between available data, communications channels, and skillsets owned by related MoSA staff.

b. Assess news coverage, social media exposure and web page of the PKH and BPNT, by examination of their quality, effectiveness and ease of access.

3. Knowledge Management: asses available data in the e-PKH dashboard to be further analyzed and developed into message and narrative for various purposes.



4. Advocacy: assess topic priority for strategic advocacy by the MoSA and key stakeholders to address, to meet the interests of PKH and BPNT.

5. Communications-related component on Complaint Handling Mechanism (CHM): assess the current status of implementation of the PKH complain handling mechanism and its effectiveness (supported by the World Bank), particularly on the information dissemination of CHM channels and the availability of FAQ in PKH. The CHM at BPNT will also be assessed to identify the gap and improvement needed.

The assessment will be conducted through several methods;

1. Literature reviews

Reading and assessing available written/printed materials, including but not limited to the already available PKH Communication Strategy, any PKH/BPNT booklet, leaflet, pocket book, guideline, papers, organization chart, etc relevant to the operationalization and promotion of PKH and BPNT used as reference by the MoSA staffs, facilitators, partners and even beneficiaries. Important points, level of effectiveness and gaps are drawn from the review of these materials.

2. Desk-based research

Online exploration for information, data and facts related to the operationalization and promotion of PKH and BPNT. Updates, cases and development of trend, could be drawn from this online research. This include support to translate e-PKH data into narratives, Satria Linjamsos to learn story updates from the facilitators and PKH Contact Center (hotline service) to learn feedback from beneficiaries.

3. Media and social media content analysis

Collection of PKH and BPNT-related news published in the media. The media

monitoring period can be agreed during the review and assessment period. News

clippings will be read and assessed to learn PKH and BPNT key messages/key

words, resource persons, tonality, contradictory, context, etc. This will suggest

the quality of news coverage resulted from PKH and BPNT initiatives, against

their quantity.

Regarding social media content analysis, our review will cover 3 (three)

platforms; Twitter, Facebook and Instagram. Twitter and Instagram will be

assessed based on the hashtags used, and Facebook will be assessed using its

keywords. Our analysis is expected to discover at least the following features; the

most effective platform used by the MoSA, top post that attracts the most interest,

most engaging person(s) involved in PKH/BPNT message, trend of positive or

negative conversation, and the peak of engagement during one

campaign/conversation.

4. Insights gathering through direct interviews, focus-group discussions, workshops, meetings and exchange of verbal information and undocumented insights with related actors/parties involved in PKH and BPNT programs. Could be conducted one-on-one, or in groups/quick surveys.

The Communications Team will join the scheduled inception mission with other BISA team members, in December 2019. During this period, results of these assessments will be used to inform the development of PKH and BPNT strategic communications and advocacy plan.



3.3 Phase III: Strategy development


These findings will inform the Assessment Report, and when this submission is approved, the data will be used to:

• Develop specific options to create identified capacity based on addressing skill gaps in the existing PKH and BPNT workforces, and skill shortages where these skills are not present in the labor pool and therefore not available for recruitment.

• Develop similar options to cover HRD functions and processes, in conjunction with ongoing projects under the remit of Output 2, as well as non-skills-based factors that impact PKH and BPNT delivery

• Finalize the metrics that will be used as current and future capacity indicators e.g. activity cycle times, retention, compliance with processes,

• Migrate model Competency Framework used in the diagnostic phase to a MoSA Social Protection Competency framework

• Incorporate WB workload analysis and structural recommendations where appropriate

• If necessary, revise Job Descriptions for PKH/JSK and BPNT staff using competencies and training plans

• Develop the MoSA HRD strategies for both programs which will directly feed into the design of a MoSA social protection Training Framework, new and revised modules, and materials, together with appropriate training delivery methods. These common training approaches are aligned with standardizing skill levels by qualifications to mandatory certification level

• Develop BADIKLIT capacity building plans to ensure sustainable training support for cash transfer skills to meet current and future demand

3.3.2 Communication & advocacy

The strategy development will involve the staff of DG Linjamsos, DG PFM and the relevant Directorates, under consultation with the DGs, Directors and Output 2 lead/consultants as and where applicable. The strategy and work plan of activities will be prepared to serve different objectives. It should also take into account the target audiences based on their occupational roles and social segments (internal program implementer/facilitator, partners and stakeholders, beneficiaries, and general public).

In considering the existing organizational structure and distribution of job posts, the strategy will include recommendations about human resources qualifications, quantity, job descriptions, scopes of work of the staff to implement the communication strategy. Empowerment and involvement of the PKH network (local government, partners, HIMBARA, key opinion leaders, influencers) as an extended communicator, will be integrated into the strategy as well.

Options and recommendations related to the use of web-based media, social media and mobile applications will be included to improve communications with different audiences, and to reduce relationships gaps due to distance and other factors. Guidelines and standard operational procedures in implementing the communications and advocacy strategy will also be developed in this phase II.

When necessary, the strategy and action plans will consider the following aspects:



• Adopting human-centered design by involving perspectives of program implementers and beneficiaries, via possible engagement activities like informant interviews, group discussions, quick surveys and the like, in all steps of advocacy and communications as part of the problem-solving and design process. It would emphasize the power of advocacy and communications as a way to help the audience and beneficiaries reach their goals.

• Behavior-change communications methodologies can be applied to educate the broader community on consumption pattern, specifically regarding the spend of social assistance fund. As addressed by the Director of JSK, PKH has entered an advance phase that require higher attention to the empowerment of beneficiaries on the importance of nutrition, health and education, as key factors to lead the next generation stepping out from poverty.

• To be gender sensitive to ensure that the information is designed to be available and accessible by any gender, as communication channels are used differently by male and female.

• The communication materials, especially the audio-visual materials, will be made sensitive to people with disability. One of which is the use of close caption in audio-visual materials. In addition to that, color or font used are made easy to be viewed by people with impaired vision.

• The strategy, plan, and all materials will be developed in Bahasa Indonesia. The English translation will be provided when necessary.

We suggest pre-testing some materials via activities during the development of communications and advocacy strategy. The pre-test will help inform the overall assignment on whether the implementation of the plan is possible, will be reaching the right target audiences, whether the messaging is relevant and resonates with recipients, and whether the strategy delivers the desired impacts. At the same time, the pre-test activities will present a ‘quick win’ to meet MoSA expectations.

Such pre-test activities may, but not limited to, as follows:

• Assist the Sub-Directorate of VT to generate data from e-PKH. The data will then be used to produce knowledge/information on PKH’s implementations, results and impacts, to best positioned PKH as the Government’s flagship program to alleviate poverty.

• Do webinar use trial (Facebook/Youtube live) to facilitate capacity building programs or a simple coordination with program implementers/facilitators at the provincial or district level.

• Capacity building/try-out on digital media content development and social media listening.

Approximately similar approach and features will be described in the communication and advocacy strategy of BPNT.



3.4 Phase IV: Strategy implementation


In principle, we will engage closely with Directorate of JSK, DG PFM, BADIKLIT and other MoSA training providers to develop a training implementation plan to support the regular PKH and PKH AKSES and BPNT workforce.

Some key aspects to be considered in the design of this plan include:

• A robust training framework to provide suitable support to a more “professional” social protection workforce.

• Incorporating the special skills to match the special circumstances of those in need in Akses areas, the elderly and PWD.

• Support to BADIKLIT and management teams in instructional design of new and revised training modules using e-learning, paper-based distance learning and face-to-face training materials and delivery methods best suited to the learning objectives.

• Identification and recording of target individuals and groups.

• A process to monitor and coach line managers in adoption and reinforcement of newly acquired skills, along the lines illustrated in Figure 7 below.

• A “review and reinforcement” phase to assess the change in capacity of target groups over the first year after the TNA and training delivery, based on performance indicators and management surveys. This periodic review will indicate whether training content, delivery and plans should be adjusted in any way.

• Design and delivery of coaching support to targeted staff.

• Regular monitoring and analysis of HRIS data to ensure compliance with training processes and activity levels.

• If active, HRIS data can be used to generate results of learning outputs.

Figure 7. Line Management Reinforcement of Training Process

Source: OPML



3.4.2 Communication & advocacy

The implementation of a communications and advocacy strategy will be led by the DG of Linjamsos, Directorate of JSK, and the DG of PFM, with the support and technical assistance from TA. Such support and assistance will include but not limited to:

• Provide advice, resources and technical assistance in the implementation of communication and advocacy strategy as needed and agreed by ADB and the DG of Linjamsos, DG of PFM and relevant directorates in accordance to the agreed strategy and work plan.

• Provide capacity building in implementing of the strategy. This would include soft-skills trainings such as, but not limited to, different options of communicating social assistance programs in the era of industry 4.0, smart media monitoring and social listening, social media planning and management, technical skills in writing, technical skills in video production, technical skills in graphic designing, technical skills in data reading and analysis, production of infographic and narrative building, public speaking (spokespersons training), how to work with the media, the core basic of the overall approach known as, Social Mobilization and Behavior Change Communications (SBCC) that could be taught in a workshop for the core communications staff leads, etc.

• Capacity building may be delivered in the form of workshop/in-class training, continued with 2-3 months on-the-job training/coaching, to ensure the capacity of the MoSA staff are improved and sustained.

• The capacity building will include pre- and post-testing, to provide feedback to the training participants. Such testing is also useful to inform the MoSA about the quality and effectiveness of the training programs.

• Workshops, meetings and the use of communications platforms such as WhatsApp Group, Satria Linjamsos, and webinar platforms shall be used to improve internal communications and coordination amongst relevant MoSA staff and facilitators.

• Development of complete communication guideline, for both the conventional use of media and new digital media.

• Development of communications materials which will be produced in Bahasa Indonesia and distributed via appropriate channels to relevant stakeholders and targeted audience.

• In addition, internal advocacy within the MoSA will also be enforced to encourage the institutionalization of communications and advocacy components in the team, by advocating for the allocation of sufficient resources (human resources and budget) to continue implementing the communications and advocacy strategy.

3.5 Phase V: Project Completion and Reporting

Throughout the period of assignment, we will prepare several reports, including assessment report, strategy implementation report, communication materials, as well as policy briefs to provide analytical works of this assignment based on certain topics. A full list of project deliverables is provided in Section 4.5.



4 Project Management

4.1 Project management approach

We recognize there are many routes that can lead to achieving the intended outputs and outcome of the BISA program. While this inception report provides a roadmap for how OPML team intends to deliver Output 1 and Output 3, we accept that there might be times where it’s recommendable to take a different path or deviate slightly off course in order to achieve other objectives, such as building trust and rapport with the GoI counterparts. As an experienced provider of TA to governments across the world, we see building strong trust as a key pre-requisite of delivering explicit project objectives. Therefore, we intend to manage this project in a way that will allows us capturing opportunities for building trust, hence take a flexible, demand-driven project implementation approach.

Such flexible approach is based on the following principles:

• Strong leadership of the locally based Team Leader, who can be available to the ABD management team and the GoI counterparts to consult on the approach, activities, and timings;

• Clear shared vision between OPML, ADB and GOI of what the end-of-project success will look like;

• Mutually agreed roadmap of how the project will be delivered;

• Transparent and consultative project resourcing aiming to optimize spending while recognizing inherent trade-offs when adding or scaling up some activities, which necessitate reductions elsewhere.

• Short and regular feedback loops for the ADB team and GoI counterparts to provide their views on specific activities, applied methodologies and overall management approach and implementation.

4.2 Stakeholders engagement

The main guiding principle of working together with ADB is close communication and feedback loops that allow ADB to be informed about and comment on any new development in this assignment. From the start date of this assignment, ADB has created a WhatsApp group for easier communication, coordination, sharing progress, etc.

As with ADB, another key guiding principle for the implementation of this assignment is to communicate and coordinate with MoSA. In this regard, we acknowledge that working with the government will require us to be responsive and flexible. With so many activities that need to be carried out by the government in the implementation of PKH and BPNT, we understand that our assistance will be needed to expedite these activities. We will ensure that the assistance we provide is carried out with the spirit of building MoSA staff capacity, by implementing it together with them and not for them.

In addition to the above, OPML team will also need to work very closely with individual consultants implementing Output 2. While these individual consultants have started work earlier, some activities are likely to continue in parallel, and our aim will be creating synergies and building on common data needs and analysis. We are pleased that our diagnostic framework covers the same areas as reported in Output 2, so findings can be consolidated wherever possible.



4.3 Changing in team composition

In the course of the last one month from the start date of this assignment, MoSA has requested some changes to OPML team composition to reflect their changing needs. We have reviewed the changes both internally and with the ADB when deciding to accommodate them as outlined below:

1. To remove E-Learning position; currently the World Bank is assisting MoSA in designing and enhancing the E-Learning of PKH so that ADB assistance on this is limited or no longer needed. We agreed to completely remove the International E-Learning Specialist from the roster, however we will keep the National E-Learning Specialist, but with her role shifting if needed;

2. To remove National Social Welfare and Protection Specialist; the government explained that the expertise they need is someone with a social work background, which can help strengthen the empowerment aspect of PKH implementation. We agreed to remove this position and add specialist with background experience in social work (see also below);

3. To add two Social Work Specialists; as above, the government expressed that OPML needs to include two consultants with social work background. We have identified candidates for this, and one has been selected to be on board once approval from ADB is obtained. This will inform the profile and type of qualifications for the second specialist. Based on this, we will find another consultant to work together with other team members to support MoSA.

4. To add a Statistician/Data Analyst; after more than 10 years of its implementation, PKH has an abundant data but utilization of this data is still limited. MoSA requested that OPML needs to add one Statistician/Data Analyst in the team to provide capacity building for MoSA to improve utilization of data.

5. To add another Communication Specialist; MoSA has received support from the Ministry of Communication who assigned a government public relation (THP) consultant to help MoSA develop a communication strategy. To ensure that this strategy can be implemented, MoSA requested OPML to include this THP in the roster.

We have also prioritized our effort to find suitable replacement for previous National Capacity Building Specialist, who unfortunately resigned in early November. There will be two consultants to fill this position. The rationale is that two consultants can focus better on capacity building of JSK and PFM rather than one consultant covering both. The two CB specialists will work together with Social Work Specialist to discuss and provide social-work-related content in improving the capacity of PKH and BPNT implementers.

With the above changes, the composition of the OPML team is as depicted in the table below.

Table 6. Current team composition

Position Name

International Consultant

Institutional Capacity Building Specialist Marian Guest

Communication and Advocacy Specialist Karen Boothe Acharya

Social Welfare and Social Protection Specialist Maham Farhat

National Consultant

Team Leader / Project Manager Revita Wahyudi



Position Name

Institutional Capacity Building Specialist Rahmi Yunita

TBC

Communication and Advocacy Specialist Dyah (Sari) Soegondo

Communication Specialist Citra Lestari

Ria Desy Saputra

Social Work Specialist TBC

Statistician/Data Analyst Bakti Alamsyah

E-learning Specialist Rusnita Saleh

Social Media and Application Specialist Reza Adrianus

Training Facilitator Andri Yusuf

Marsia Dewi Ridiasa

Once we mobilize our full team in January, we will need office space for extra people to ensure close coordination and consultation with JSK and PFM. Ideally, we will need around 6 spaces preferably in the PFM office in order that further understanding of BPNT can be achieved. This request will be included also in the ADB Aide Memoire.

4.4 Risk management

During the implementation of the project, several assumptions hold that particularly could affect timelines or quality. Table 7 below outlines some of the anticipated risks identified and associated mitigation measures. The risk matrix will become a living document throughout the assignment, which we will update as necessary. We only wish to have a short risks matrix table to ensure that only the main risks are monitored which we feel is a more manageable approach.

Table 7. Risks and mitigation measures

Anticipated risks Details Mitigation measures

Low level of engagement from government counterparts

Much of the success of the activities in this assignment rely on a good level of GoI engagement, which cannot be guaranteed at the outset. Moreover, the real value of the assignment lies in the degree to which GoI value and use the outputs.

Government involvement in each stage is important to ensure buy-in.

Regular stakeholder meetings need to be held to update each other and agree on actions that need to be taken in the project

Additional request that might not be in line with intended outputs and outcomes of this assignment

We have received several requests from the government for inputs that are different from what was stated in the TOR – this is not abnormal, however, given the slight delay in firm recruitment and shifting government priorities

Close coordination with ADB to ensure that the request can still be accommodated as part of the effort to build trust and strong relationship with the GoI, and the intended output will not suffer. The total level of effort remains fixed so we will discuss the scope of work periodically with ADB to



Anticipated risks Details Mitigation measures

ensure the project delivers to time and budget.

Staff turnover at MoSA and OPML

Change of personnel can occur during the project for various reasons

Good documentation of all decisions, regular feedback, and good knowledge management within the project

Duplication of effort between OP1/OP3 and OP2

There is a high possibility for duplication of effort because the programs to be supported by OP1/OP3 and OP2 are the same and some expertise in both teams are also the same

Coordination and agreement on who will do what needs to be discussed properly before, during and after key outputs

Inappropriate timing/resourcing of the project after expanding the scope to include BPNT

The GoI have expressed their wish to include BPNT program as part of the capacity building efforts under OPML project. The original OPML budgeting did not factor in such expanded scope, as such there is a risk of spreading resources thin across the activities or under-resourcing some activities or overspending against the budget.

Close collaboration with ADB and GOI to ensure optimal allocation and spend of the available resources, including transparent discussion about trade-offs when deciding on activities.

4.5 Updated workplan

Based on updated approaches discussed in previous section, we have updated our work plan as depicted in Table 8 below.



Table 8. Updated workplan

2019 2021

Q4 W1 W2 W3 W4 W1 W2 W3 W4 W1 W2 W3 W4 W1 W2 W3 W4 W1 W2 W3 W4 W1 W2 W3 W4 Q3 Q4 Q1

Inception phase

Clarification on scope of work

Initial assessment and discussion with stakeholders

Field visit to selected PKH/BPNT location

Updating the workplan and methodology

Review and assessment phase

a. Output 1 - Capacity Building

Assess organisation mandate, result, strategy and structure (CD framework)

Identify social protection skill profile

Participative review of competency framework and job description

Training need analysis

Review of existing training and modules

b. Output 3 - Communication and Advocary

Mapping human resource for communication and advocacy

Identify and assess communication platforms

Identify and assess communication material

Review existing communication strategy

Assess news coverage and social media exposure

Assess available data in the e-PKH dashboard

Assess topic priority for strategic advocacy

Assess the communication-related component on the existing CHM

Strategy development phase

a. Output 1 - Capacity Building

Develop specific options to address skill gaps

Develop metric and capacity indicators

Develop revised job descriptions

Develop HRD strategies

Develop social protection capacity building plan and training framework

b. Output 3 - Communication and Advocary

Recommendation on HR and job desc to implement comms strategy

Options for utilization of media, social media and other comms platform

Develop communication materials

Pre-testing the communication materials

Strategy implementation phase

Project completion and reporting

Review the strategy implementation and refine as needed

Prepare the agreed knowledge products

Regular meeting and consultation with ADB and MoSA

June 2020Phase and Activity

2020January 2020 February 2020 March 2020 April 2020 May 2020



Based on the above workplan, our deliverables and its deadlines will be as follows. Considering the changes and new developments discussed above, the deadlines of deliverables that we indicate here are different from the agreed dates in OPML existing contract.

Table 9. Deliverables

D# Deliverables per project phases Deadline

Phase I: Inception Phase

D1 Draft Inception Report 25 November 2019

D2 Final Inception Report 27 December 2019

Phase II: Review and Assessment Phase

D3 Draft Assessment Report that consists of assessment on two outputs in this assignment

14 February 2020 for OP3

20 March for OP1*

D4 Final Assessment Report; a revised version after receiving comments/feedback from ADB to the draft above

28 February 2020 for OP3

3 April for OP1*

Phase III: Strategy Development Phase

D5 Draft Strategy and Plan on capacity improvement and communication strategy enhancement

17 April 2020 for OP3

15 May for OP1*

D6 Final Strategy and Plan; a revised version after receiving comments/feedback from ADB to the draft above

1 May 2020 for OP3

29 May 2020 for OP1*

Phase IV: Strategy Implementation Phase

D7 Report on training/workshop implementation (for at least two trainings/workshops as part of strategy implementation)

31 July 2020

D8 Strategy Implementation 30 October 2020

Phase V: Project Completion

D9 Draft Final Report 11 January 2021

D10 Final Report 8 March 2021

Note: * CB team is expected to be on board by mid-January so deliverables of OP1 will be slightly delayed for about a month.



Bibliography

ADB (2016), ‘Capacity development in ADB operations: Review of the medium-term framework and action plan for capacity development’; Philippines

BISA Output 2 (2019), Assessment of HR for PKH and BPNT; Jakarta

BISA Output 2 (2019), Assessment of PKH and BPNT Capacity Development; Jakarta

BISA Output 2 (2019), Business Process Review of BPNT, PKH AKSES, and PKH with Elderly and PwD component; Jakarta

BISA Output 2 (2019), Tailored recommendations for operational management of SA programs (PKH & BPNT) based on international best practices; Jakarta

Kemensos (2018), Panduan Teknis Pelaksanaan Pertemuan Peningkatan Kemampuan Keluarga (P2K2).

Kemensos (2018), Pengetahuan dan Kebijakan PKH 2018, powerpoint presentation; Jakarta

Kemensos (2018), Petunjuk Teknis Mekanisme Penyaluran Bantuan Pangan Non Tunai (BPNT); Jakarta

Kemensos (2019), Kebijakan Pelaksanaan PKH Tahun 2019, powerpoint presentation; Jakarta

Kemensos (2019), Pedoman Pelaksanaan Program Keluarga Harapan 2019; Jakarta

Kemensos (2019), Strategi Komunikasi Program Keluarga Harapan; Jakarta

MicroSave Consulting (2019) ‘BPNT Operations Assessment’; Jakarta.

MicroSave Consulting (2019) Report on Operations Assessment and Impact Evaluation of Program Keluarga Harapan (PKH); Jakarta

MicroSave Consulting (2019) Report on Findings of Impact Evaluation of Program Keluarga Harapan (PKH); Jakarta

Pablo Ibarrarin, Nadin Medellin (2017), How Conditional Cash Transfers Work: Good Practices after 20 Years of Implementation.

Peraturan Menteri Sosial (2015), Organisasi dan Tata Kerja Kementrian Sosial; Jakarta

Tim Pengendali Pelaksanaan Penyaluran Bansos Non Tunai (2017), Pedoman Umum Bantuan Pangan Non Tunai; Jakarta

TNP2K (2015), Indonesia’s Unified Database for Social Protection Programmes – Management Standards; Jakarta

UNDP (2007), ‘Capacity Assessment Methodology: User’s Guide’,

World Bank (2011), Main Findings from the Impact Evaluation of Indonesia’s Pilot Household Conditional Cash Transfer Program; Jakarta

World Bank (2017) ‘Toward a Comprehensive, Integrated, and Effective Social Assistance System in Indonesia’; Jakarta.



Annex A Terms of reference



Annex B List of meetings

Date Details

Thursday, 17 October 2019

At ADB office

Kick-off meeting with ADB

Monday, 21 October 2019,

at the Ministry of Social Affairs

PKH Communication Strategy Meeting conducted by the Directorate General (DG) of Social Security and Protection (Perlindungan Jaminan Sosial/Linjamsos).

Monday, 28 October 2019,

at Borobudur Hotel

BISA Dissemination workshop

The meeting was participated by BAPPENAS, MoSA, ADB IRM and ADB consultants

Tuesday, 5 November 2019,


Meeting and consultation with Director of JSK and Head of Sub-Directorate of Social Assistance, more comprehensive information gathering about the organisation’s structure, scope of works and responsibilities, the nature of PKH program, challenges and opportunities within the context of communication and advocacy.

Wednesday, 6 November 2019,


Consultation with the Directorate of JSK, including Sub-Directorate of Human Resources, Sub-Directorate of Validation and Termination (VT) (incl. e-PKH), and Sub-Directorate of PKH Beneficiaries (PKH participants).

Thursday, 7 November 2019,


Discussion with former Government Public Relations Support (Tenaga Humas Pemerintah/THP) being deployed in DG of Linjamsos, to understand about her roles and responsibilities in the past years.

Tuesday, 12 November 2019

Discussion with former THP to gather further information about the already developed DG Linjamsos’ communication strategy plan.

Wednesday, 13 November 2019,


Meeting with Section Head of OHH Department at DG Linjamsos to understand OHH division of works and chain of coordination with other directorates under DG Linjamsos.

Consultation with Head of Sub-Directorate of Social Assistance (Bantuan Sosial) and staff to understand top priorities regarding PKH data analysis and use.

Consultation with e-PKH team member.



Compiling e-PKH data from Sub-dit VT

Friday, 22 November 2019


Discussion with Director of JSK on TORs for social work specialist, code of ethic timeline and OPML plan for a field visit



Discussion with Sub-directorate Resources on PKH current recruitment, issues, initial training, etc.



Date Details

Monday, 2 December 2019


Discussion with Sub-directorate of Social Assistance, Area 3, PFM on current development of BPNT implementation, Korteks recruitment and training

Wednesday, 4 December 2019


Discussion with Sub-directorate of Social Assistance, Area 1, PFM on Area 1 organigram, coordination issues in BPNT implementation.

Thursday, 5 December 2019


Discussion with MoSA Public Relation on media coverage of PKH and BPNT, Public Relation organigram, its job description, PR activities.

Friday, 6 December 2019


Discussion with Sub-directorate of Beneficiaries, JSK on complain handling mechanism, capacity of sub-directorate

Friday, 6 December 2019


Discussion with Sub-directorate of Resources, JSK on capacity issues in the sub-directorate, expert staff roles, facilitator performance appraisal

Tuesday – Saturday, 10-14 December 2019

East Java

South Sumatera

OPML field visits to four districts in two provinces to meet with:

• Social Affairs Office at district level (Dinas Sosial)

• Supervisors, Coordinators and Facilitators of PKH and Korteks and TKSK of BPNT

• Visit to e-warong

• Observe FDS activities

Wednesday, 18 December 2019


Central Jakarta

Discussion with BADIKLIT on FDS training programs, BPNT training opportunity, organization structure of BADIKLIT and its roles

Field visit to Central Jakarta

Thursday, 19 December 2019

Pusdatin office in Cawang

Discussion with PUSDATIN on SIKS-NG, updating database for social welfare, Pusdatin focus areas

Monday, 23 December 2019


Discussion with Planning Bureau of MoSA on current study of PKH graduation, social entrepreneurship, ADB assistance to MoSA on social assistance/protection programs, new policies on social protection.