capacity developement of minimum service standards …documents.worldbank.org/curated/en/... ·...

November 2011

Capacity Developement ofMinimum Service Standards (MSS)Costing and ImplementationDraft Final Report

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FINAL REPORT

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CAPACITY DEVELOPMENT OF MIMINUM SERVICE STANDARDS (MSS) COSTING AND IMPLEMENTATION

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Table of Content

Chapter 1: Introduction ..................................................................................................... 1

1.1. Background ......................................................................................................... 1

1.2. The program ....................................................................................................... 2

1.3. Duration of the Program ........................................................................................ 2

1.4. Expected Results ................................................................................................ 2

Chapter 2: MSS Concepts and Policies in Indonesia ....................................................... 3

2.1. Basic policy of MSS ............................................................................................ 3

2.2. MSS Regulations of Line Ministries .................................................................... 4

Chapter 3: Capacity Development of MSS Costing and Implementation ......................... 7

3.1. Supporting national government on MSS development and implementation ..... 7

3.1.1. Evaluation the status of MSS formula and technical guidelines in all sectors ...................................................................................................... 7

3.1.2. Costing of MSS: Instrument testing using local data .............................. 11

3.1.3. Produce an MSS costing manual for local governments ........................ 12

3.1.4. Distribute and ‘socialize’ the manual on MSS costing for selected sectors ................................................................................................................ 14

3.1.5. Monitor MSS implementation .................................................................. 16

3.1.6. Develop a strategy for rewarding kabupaten/kota that has demonstrated consistent and exceptional results in MSS implementation .................... 17

3.1.7. Examination of the relationship between the implementation of MSS and the attainment of the MDGs .................................................................... 18

3.1.8. Develop the capacity of the central and sub-national government personnel ................................................................................................ 23

3.2. Supporting local government on MSS costing and implementation .................. 26

3.2.1. Self Assessment of MSS implementation and achievement in selected sectors by a sample of local governments .............................................................. 26

3.2.2. Costing (the new) MSS .............................................................................. 34

3.2.3. Setting MSS targets and budgets ............................................................... 41

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3.2.4. MSS Targets and Costing as basic information of programming in Planning and Budgeting Documents ...................................................................................... 45

Chapter 4: Challenges on MSS Implementation in Indonesia ........................................ 53

4.1. MSS technical and costing concept .................................................................. 53

4.2. MSS technical guidelines and costing manuals ................................................ 53

4.3. MSS socialization and basic services awareness in local governments ........... 53

4.4. MSS baseline in local governments .................................................................. 53

4.5. MSS costing funding ......................................................................................... 53

4.6. MSS Information used as basic programming in the planning documents ....... 54

Chapter 5: Summary, Lesson Learned, and Recommendations ................................... 55

5.1. Summary of program activities ............................................................................ 55

5.2. Lesson learned .................................................................................................... 63

5.3. Recommendations ................................................. Error! Bookmark not defined.

List of Tables Table 1: MSS Issued and Guidelines ............................................................................... 4

Table 2: MSS’s basic services, number of indicators, and target year ............................ 5

Table 3: Inputs/comments for MSS indicators, technical guidelines and costing manuals ......................................................................................................................................... 8

Table 4: Status of MSS Costing Manual Supported by DSF .......................................... 13

Table 5: MSS Costing Socialization and Exercises ....................................................... 15

Table 6: The relationship between the implementation of MSS and the attainment of the MDGs ............................................................................................................................. 21

Table 7: MSS of Environmental Baseline Data of 2010 and target of 2011 – Kabupaten Bantul ............................................................................................................................. 27

Table 8: MSS Self Assessment Study in 6 regions ........................................................ 27

Table 9 :MSS Baseline Data in Pilot Regions ................................................................ 30

Table 10: Status of MSS Costing in Pilot Regions ......................................................... 35

Table 11: MSS Costing of Health in Pilot Regions ........................................................ 38

Table 12 : MSS Health costing per indicator per capita/object services in Pilot Regions ....................................................................................................................................... 39


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Table 13: Status of MSS setting target in pilot regions .................................................. 42

Table 14: Setting Target of Education MSS of City of Mataram .................................... 43

Table 15: Status of MSS information as Basic programming in Planning Document in Pilot Regions .................................................................................................................. 46

Table 16: Supporting national government on MSS development and implementation 55

Table 17: Supporting concepts and tools for MSS implementation in pilot regions ....... 56

Table 18: MSS implementation Status in Pilot Regions by the end of September 2011 57

Table 19: Workshop, training, and other training in the National and Local Governments ....................................................................................................................................... 61

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Executive Summary

MSS implementation based on Government Regulation number 65 year 2005

MSS prepared by the Government through the Line Ministries, and implemented by local governments. It is mandated by the regulation number 65 of 2005 concerning Guidelines for Preparation and Implementation of Minimum Service Standard followed by Minister of Home Affairs No. 6 of 2007 on Technical Guidelines for Preparation and Determination of Minimum Service Standards, Regulation of the Minister of Home Affairs No. 79 of 2007 on Guidelines for Planning achievement of the Minimum Service Standards.

MSS has issued for 15 sectors

Until now, MSS has been compiled and published for 15 sectors: Health, Environment, Government Affairs of the Interior, Social Housing, Women Empowerment and Child Protection, Education, Public Works, Food Security, Employment, Family Planning and Welfare, Communication and Information, Arts, Transport and Capital Investment. Some of the 15 areas have been followed by financial planning activities of the MSS Technical Instructions.

MSS implementation also supported by other regulation as like MoHA Regulation number 54, year 2010 on planning mechanism and others

Implementation of Minimum Service Standards that are part of the improvement of public services has been clearly stated in Government Regulation No. 20 of 2004 on the Government Work Plan, Government Regulation No. 58 Year 2005 on Regional Financial Management, as well as in MoHA Regulation. No 54 of 2010 on Procedures for Formulation of the Regional Planning Document. MSS implementation agenda as an integral part in the process ofplanning, budgeting, budget implementation, reporting and accountability. MSS, on its application is expected to be implemented in phases taking into account the needs, priorities and local financial capacity, institutional and personnel areas .

The MSS implementation program of MoHA is supported and in collaboration with DSF for 4 main objectives

Government in the development of local capacity in the application of MSS, the Ministry of Home Affairs (MoHA) in collaboration with the Decentralization Support Facility (DSF), to assist and facilitate implementation of MSS in the program of Capacity Development for Costing and Implementation of MSS.. The program has supported the Government and the Pilot Regions with the following objectives: (i) Strengthening the capacity of the MoHA to facilitate selected ministries in MSS Costing (ii) improved capacity of Government and he Province in facilitating the implementation of MSS in District/Municipality; (iii) Improved capacity of selected local governments in the implementation of MSS in certain sectors; (iv) Analysed linking of MSS and MDGs indicator.


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The pilot regions are in the 5 provinces, 5 Municipalities, and 8 Districts

This program has been implemented in 18 pilot areas covering 5 provinces, namely Province DI Yogyakarta (Districts of Bantul , Sleman, Kulonprogo, Gunung Kidul, and the Municipalities of Yogyakarta); Province Banten (District and Municipality of Tangerang); Province NTB (District East Lombok and Municipality of Mataram); Province West Kalimanta (Sanggau District and Municipality of Pontianak); and the Province Riau Islands (Bintan District and the Municipality of Tanjung Pinang). In this program, activities conducted are socialization,training and technical assistance to the implementation of financial planning, MSS integration into the regional development planning documents (and budgeting) from January to September 2011. In supporting this above activities, concepts, methods and instruments were developed.

Implementation and Training Activities The training activities is started with the program orientation until the MSS monitoring and evaluation in pilot local government and national government agencies

As of the end of November 2012, workshops and training have been implemented in pilot local governments and also in national government agencies related. As shown in Table 19 in chapter 5, the event consisting of MSS Socialization and Program Introduction, MSS Costing concept and application, Training of Trainer on MSS E-costing, MSS Database Management, MSS Target Setting, MSS correlation with MDG, MSS programming in the planning process, Mid Term Evaluation, Regional Closing, until the National Workshop. The whole events in total involving 3.464 participants from national government, local government’s pilot, non pilot local governments, local NGO, and some donors representatives.

There are 5 events for national government agencies and 7 events delivered for non pilot regions beside many events delivered for pilot regions

There are 5 events for national government counterparts refer to the MSS development and implementation issues which including 146 participants. There are also 7 events of MSS delivered to non pilot regions which include 284 participants. The others are delivered for local government pilot both in the fields and Jakarta, including workshop of MSS issues for Local Council (DPRD) in the Province of DIY, Kota Yogyakarta, and Kabupaten Bantul within the program period. The information of the workshop and training as shown in table 16, is excluding the event of technical assistances, which are delivered by DSF Regional Coordinators directly, in the local governments pilot.

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Supporting local government on MSS costing and implementation

All MSS concepts that developed in national level, are tested and implemented in pilot regions

The second activity is supporting local government on MSS costing and implementation, especially the pilot regions of the program. As a result of development of concept, tools, and mechanism of MSS in the national government, those products are used and tested in the pilot regions in implement the MSS, especially their selected MSS in this program. It explained in the table 17 in Chapter 5 about what are the concepts and tools used, when they are finalized, where and when it tested and implemented in pilot regions, and when the final status of those concepts and tools which available and can be replicate for other local governments.

The MSS concepts and tools are implemented vary in pilot regions depend on their capacity and readiness

Some of the concepts and tools are implemented in all pilot regions on selected sector of MSS limitedly, as like MSS e-costing instrument, MSS Capacity Development Need Assessment (CDNA), and setting target. The concept and tools, as like the Steps of MSS programming in the planning process; the MSS monitoring and evaluation; and the MSS correlation with MDG; are implemented in selected regions on selected sectors. The Draft strategy of MSS result incentive for capacity building is still not reviewed in the national level, so it is not delivered to pilot regions. MSS website has developed since August 2011, and started to use by the pilot and non pilot regions because it contains MSS e-costing application, technical discussion and assistance on MSS implementation, also has the newest MSS regulation that issued by MoHA and related line ministries. This website will take over by MoHA as the end of DSF MSS program by the end of 2011.

Results and status of activities implementation

As of the end of September 2011, the status of implementation of the MSS in the pilot area as in Table 18 in chapter 5.

Pilot regions are select and implement their main MSS sectors under full assistancy from DSF team

Under the DSF-MoHA program, the pilot regions have selected their main MSS sectors to be assisted by DSF Team for the implementation. The process starting from the program and MSS socialization, including how the process for implement MSS. Then training and technical assistances delivered for MSS baseline management, MSS setting target, MSS Costing, MSS programming in the planning and budgeting document preparations, and MSS correlation with MDG Goals


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MSS socialization conducted by DSF, MoHA and selected Line Ministries is followed by pilot regions for their other technical units and staffs

As shown in Table 4 above, the flow of MSS implementation started from MSS socialization, then MSS baseline data management, until the MSS programming in the planning document preparation. The MSS socialization is doing by pilot regions after the Road Show event that delivered by DSF. Pilot regions did the socialization to the work units. Most of them socialized the MSS information to all work units, except Kabupaten Lombok Timur, Province of Kepri, Kota Tanjung Pinang, and Kabupaten Bintan that only did it for the selected work units, especially which are related to the MSS program with DSF-Otda only.

The result of MSS baseline data management are varying in the pilot regions. The most complete are in Province of DIY and Kabupaten Bantul

MSS Baseline data management is also varied between pilot regions. As informed in chapter 3, only Province of DIY and Kabupaten Bantul which are manage all sectors of MSS in their jurisdictions, while other pilot regions are varied from 2 MSS sectors to 12. MSS Setting Target is done especially for the selected MSS that agreed in this program, while MSS Costing is done for selected MSS sectors more than the number of MSS on Setting Target, because some of the MSS Costing are only not continued with the MSS Costing estimation.

MSS programming is most done in Work Unit’s annual plan and some in their strategic Plan. Kota Mataram has programming it on their Medium Term Plan, while Banten and Tangerang are in their annual plan

MSS programming in the planning documents has done mostly in the Renja SKPD or work unit Annual Plan, and some pilot regions have done also for Renstra SKPD (Work Unit Strategic Plan) for Sleman, Bantul, and Mataram. Furthermore, some pilot regions has also programmed their MSS sectors in the Local Government Annual Planning (Banten, Tangerang City and Kabupaten, and City of Mataram). Kota Mataram and Province of Banten have also drafted MSS programming in their Medium Term Plan or RPJMD.

In overall, pilot regions have a method, mechanism, and experience on how to implement MSS fully as part of their basic service programs and indicators. They are a step ahead than other local government in Indonesia although there are still some revision and justification needed on policy, strategy, and operational issues for the better implementation of MSS completely.

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5.1. Lesson learned

Within the MSS program implementation, both in National Government and Pilot Regions, there are some lesson that learned for a better MSS implementation in the future. Following the MSS process of implementation, the lesson learned are described as below; The mind set of MSS implementation is not as the first priority in local governments MSS setting target must based on the MSS baseline data and other supporting macro socio-economy parameter and database

1. The mind set of local government that MSS is a new program, and need additional funding to implement it. MSS is only a measurement or indicator of basic services delivery which can be achieved gradually and most of them has already been implemented and reported formally by local government. Actually, there is no need special or additional funding for MSS, as basic services program must be first prioritize for funding and allocation. DSF team has explained about this important undersntading to all pilot regions. Unfortunately, due to time time limit defined by central government, and different status for current achievement of all MSS indicators varied, therefore Central Government should be able to ensure the achievement of MSS by local government according to time bound of MSS has to be attained national government.

2. MSS Baseline data as the most important thing for MSS implementation, because it affects the next step of MSS implementation as like setting target, costing, and programming in the planning and budgeting process. Without a good, complete, and accurate MSS baseline data, the next process of MSS will become not fluent. To have a good MSS baseline data, regulation of MSS indicators must already have been done by local government, the know-how to get and formulate the MSS indicators, and formalize it as performance indicators of a work unit and national as general. DSF team has provided the MSS indicator Compilation Book to pilot regions, and together with Bappeda and Head of Work Unit socialize and assisted the MSS baseline data management to technical staff in manage their MSS baseline data.

3. In parallel with the MSS baseline data, the MSS target must

be set based on the MSS baseline and need the estimation variable of each MSS indicator. The practice of the current


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MSS Costing process is simplified by MSS e-costing instrument, although the result is still need verification and adjustment process for final results Local government need to use and implement the MoHA regulation on planning mechanism (Kepmendagri 54/2010) which is accommodate MSS as one of the performance indicators

setting target only on percentage increased from the previous performance without considering the potential object of what will receive or affect the basic services. DSF has delivered and trained the MSS Setting Target Tool, and it has used by pilot regions in setting their MSS target as medium term performance indicator of basic services and as based of MSS Costing Estimation, and for programming information in the planning and budgeting process.

4. MSS Costing has not yet implemented in the beginning of pilot

regions, although the Manual of MSS Costing is already issued by some line ministries. The complicated method and mechanism if compared with the conventional costing method (preparation, implementation, reporting, and evaluation) made them not using the formal manual. The MSS e-costing instrument, which is developed by DSF that refer to the MSS Costing manual, is simplified the input of database of MSS and provided “menu” on how it can entry and process the MSS costing data and information. It also creates reporting needed for local government. The MSS Costing process is run by all pilot regions of their selected MSS sectors. The results are vary as reporting in chapter 3, but now they are doing the MSS Costing base on the MSS Costing manual from line ministries, which is simplified in the MSS e-costing instrument. Some step and still needed as shown in the Chart 4, in chapter 3.

5. To programming MSS as basic services in the planning and

budgeting process formally, local government need to implement their planning process under the Kepmendagri 54/2010 first, which accomodate the MSS as one of the indicators for local government performance and target. It hards to insert MSS indicator in the local government planning document if they aren’t implemented that Kepmendagri. From all 18 pilot regions, only 3 of them has implemented their planning process under Kepmendagri 54/2010. They are Kota Mataram, Kabupaten Tangerang, and Province of Banten and DIY. DSF has facilitate pilot regions to know the mechanism of Kepmendagri 54/2010 on planning which is accommodating MSS as one of the performance indicators. DSF also has create steps, on how MSS can be integrated or can be programming as basic services program and activities, in the

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Commitment from leader of governments (province and districts) to implement MSS is the main reason for the succeed of the MSS implementation

planning and budgeting process.

6. Commitment of the MSS implementation is the important thing, especially from the local leader and stakeholders. The commitment is vary on each pilot regions. There was a good response at the socialization and program introduction which is continued for the whole program implementation. There was also good response in the beginning, but then no action in the implementation. There was also no good response in the beginning, but then with the good communication and facilitation from DSF, they show their commitment to the middle and the end of the program. Whatever the commitment from pilot regions, DSF team still continue and cooperate to run the program with appropriate approach maximally. The effect of commitment can be seen at the Result of the Program both in National Level and Pilot Regions.

5.2. Recommendations Based on the program implementation, results, challenges, and lesson learned of the MSS implementation both in National and sub-national Government pilots, the recommendations are:

1. On the Regional Closing Program, pilot regions has prepared their strategies and work plans of MSS implementation in the absence of DSF Team for year 2012 and ahead. Technical assistant, supervision, and monitoring is needed from each provincial for Kota and Kabupaten related, and from Ministry of Home Affairs and Line Ministries for pilot provinces.

2. Concepts, tools, and mechanism that created in the program, need to be optimized after tested in the pilot regions. MoHA suggested to continue the development and application of those concepts, tools, and mechanisms for MSS implementation.

3. MSS e-costing instrument has developed by DSF based on the general concept of MSS Costing Manual from Ministry of Health and other ministries. The application has applied in the pilot regions, in some other provinces and districts, in Indonesia as exercises. The application will transfer to MoHA for further development.


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4. DSF has developed a MSS Website that contains of MSS regulations of line ministries, software of MSS e-costing application and templates of some MSS sectors, samples and results of MSS costing of pilot regions, and other issues in discussion of MSS implementation, and good practices of MSS implementation. This website also will transfer to MOHA to be integrated and manage in the MoHA website, especially which related with the Local Autonomy issue.

5. It considered having a MSS implementation in one province, one Kota, and one Kabupaten completely as a good sample for other local government and laboratory for the MSS development.

6. Capacity Building program is suggest to do for further better MSS implementation in the Central Government, Local Government, and Private Institution or Consultant.

7. Capacity Building and Institutionalization of Planning Financing MSS 7.1. The Central Government

a. Clarity of roles and responsibilities of facilitation financial planning issues, monitoring and evaluation mechanisms, and incentive mechanism between relevant government agencies

b. More than 6 technical ministries need to develop financial planning manual MSS (technical manual) for the region and SKPD, while the six ministries that have been arranged MSS are still to review and evaluate the effectiveness of their financial planning manual based on the implementation in some areas.

c. It is necessary monitoring and thorough evaluation of the implementation and achievement of MSS and well-coordinated inter Ministry of Home Affairs, include Bappenas, Ministry of Finance and Line Ministries as well as Provincial and District themselves.

d. Ensuring central government to support sub national government in attainment of MSS as central government defined the time limit, especially for those regions with lack of capacity in financial, personnel, support infrastructure. Incentive should be considered to meet the gap.

e. Discuss among MoHA, MoHA and Bappenas type of incentives appropriate for the most needed sub national government and provide rewards for those regions attained the MSS consistently and continuesly as appreciation and apply sanctions for regions do not achieved MSS purposely.

f. Optimalize the development partner supported regions to pay attention to the implementation of MSS.

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7.2. Sub National Government a. SKPD and local governments should improve and update their data

management systems, especially in basic services (MSS) b. SKPD requires technical assistance in the process of calculation of its

MSS financing c. The provincial government encourages to provide incentives for

achievement of MSS in the District and the Municipality. d. Local governments and SKPD is necessary to implement the system of

rewards and sanctions on financing calculation results of the implementation of MSS.

7.3. Technical Assistant /Cosultant support for the MSS Implementation a. Consultant of development partners working in the regions on improving

public services, planning and budgeting should pay attention to the implementation of MSS

b. Sources involved in the process of implementation of MSS in the region should have a comprehensive knowledge and experience about NSPK, Mandatory affairs, Basic Services, and indicators of MSS, knowledge of local finance, MSS Financing Planning, and Regional Planning.

c. It need consultant to facilitate the implementation of MSS e-costing, MSS implementation and monitoring and evaluation results


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Chapter 1

Introduction

1.1. Background

Minimum Service Standards in Indonesia is a measurement for evaluation of the local government performance in the implementation of obligatory functions related to basic services. The combination of obligatory functions, accompanied by MSS, aim to provide access for citizens at the minimum level of quality at a given time (MoHA Regulation 79/2007). The frameworks of MSS were developed started in early 2000 in respon then Law 32/2004 been intensively developed in Indonesia following the issuance of Law 32/2004 which stated in Articles 11 and 12 that while measuring the performance of obligatory functions government will refer to a minimum service standard (MSS). These provisions are elaborated in Government regulation No. 65/2005, which is defines MSS as a measurement of a type and quality of basic public service that all citizens have the right to receive.

MSS is formulated by central government and is implemented by local governments. The role of central government in the formulation of MSS is designed to ensure a minimum level of service quality throughout the country. To date, 15 sets of MSS have issued. The sectors are Health, Education, Environment, Manpower, Public Housing, Civil Record, Women Empowerment and Child Protection, Social, Art and Culture, Public Works and Spatial, Food Security, and Communication and Informatics, Transportation and Capital Investment.

There is a need to assist, monitor, and accelerate MSS implementation in Indonesia, in view of the National Development Mid Term Plan (RPJM) 2010-2014, to have the MSS operational. Annual plans to make progress have been prepared (e.g., Action Plan to Accelerate Development of 2011 of the Directorate General of Regional Autonomy Ministry of Home Affairs). These annual plans indicate sector priorities for operating MSS – there are 5 sectors in this respect: Health, Environment, Social Affairs, BKKBN, and Women's Empowerment.

DSF has been requested by the Ministry of Home Affairs (MoHA), to support the costing and implementation on minimum service standards and thus ensure improved and equitable level of basic public service delivery throughout the country. The DSF support will focus on selected pilot regions, providing inputs that can be used for nation-wide application.

CHAPTER 1 INTRODUCTION

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1.2. The program

The program is a Government of Indonesia (Directorate General Bangda, MoHA) initiative, supported in its implementation by DSF/World Bank. With a view to improving the accessibility and quality of basic public services, the program supports the implementation of the minimum service standards by building government capacity to cost and implement MSS in the regions.

The objectives of the program are to:

a. Strengthen MoHA capacity to work with other ministries, to cost MSS for selected sectors

b. Improve central and provincial government support to district/city for MSS implementation

c. Develop local government capacity for implementing MSS for selected sectors d. Analyze factors underlying the successful implementation of MSS and possible

relationships with the achievement of the MDGs Participation in the program was determined in response to local government’s Application Letter indicating interest in the program, and attendance at the launching on December 2010 in Bogor. The pilot regions of this program are 5 provinces (Banten, DIY, NTB, West Kalimantan, and Kepri), 5 Cities (Tangerang, Yogyakarta, Mataram, Pontianak, and Tanjung Pinang) and 8 Districts (Tangerang, Sleman, Bantul, Gunung Kidul, Kulonprogo, Lombok Timur, Sanggau, and Bintan). .

1.3. Duration of the Program

The program implementation from January until September 2011, this was extended until November 2011 for the Regional Workshop and National Workshop.

1.4. Expected Results

By the end of September 2011, the program is expected to provide the following deliverables;

• The latest status and evaluation of MSS concepts and policies • Supporting concepts and tools development for MSS implementation • The latest status of MSS implementation in Indonesia, especially in pilot regions • Challenges and recommendation of MSS implementation in Indonesia


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Chapter 2

MSS Concepts and Policies in Indonesia

2.1. Basic policy of MSS

Law 22 on Regional Government, which assigned obligatory functions in eleven sectors to local governments. The functions devolved were health, education and culture, public works, agriculture, transportation, industry and trade, investment, environment, cooperatives and manpower. The Law was followed by the issuance of Government regulation 25/2000, which assigned functions only to the central and provincial governments allowing districts and cities to assume those not listed in the regulation. In this regulation, minimum services are associated to the implementation the obligatory functions.

The revised law on Regional Government (Law No.32/2004) for the first time formally states in Articles 11 and 12 is measuring the performance of obligatory functions government will refer to the minimum service standards (MSS). The follow up Government regulation No. 65/2005, which defines MSS as a standard minimum measurement of a type and quality of basic public service that all citizens have the right to receive.

Ministry of Home Affairs followed the government regulation number 65 year 2005 with the other regulations. The following regulations are, MoHA Regulation number 6 year 2007 about Preparation and Determination of Minimum Service Standards, the Decree of the Minister of Home Affairs on the establishment of Consultation Team of Minimum Service Standards Development, and the Regulation of Minister of Home Affairs number 79 year 2007 about Preparation Guidelines of Minimum Service Standards Achievement Planning.

There are some Decrees and Regulations from Ministry of Home Affairs on supporting Minimum Service Standards. They are MoHA Regulation Number 54 Year 2010 Concerning Implementation of Regulation No. 8 Year 2008 on stage, Preparation Procedures, Control and Implementation Evaluation of Regional Development Plan, which clearly stated in inserted slot of MSS as one of the key performance indicator in the planning process for local governments. Furthermore, Ministry of Home Affairs issued Circular Letter Number 100/SJ/2011 About Acceleration of Minimum Service Standards Implementation in the Region. The latest is MoHA Regulation number 21 Year 2011, the Second Amendment to the Minister of Home Affairs Regulation No.13 Year 2006 on Guidelines for Budget Preparation, which inform the possibility for the province to allocate fund and budget to their districts in focus of MSS implementation acceleration.

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From the Law, Government Regulation, Presidential Decree, until the Ministry of Home Affairs Regulation and Circulation Letter is showing that Government of Indonesia intensely serious in bringing and directing the MSS as basic services delivery measurement quality in Local Governments both in provinces and Districts in Indonesia.

2.2. MSS Regulations of Line Ministries

Based on Regulation of Minister of Home Affairs number 79/2007 about Preparation Guidelines of Minimum Service Standards and Planning Achievement, related ministries and National Agencies issued MSS under the coordination from MoHA and DPOD (Local Autonomy Development Comittee) team as below;

Table 1: MSS Issued and Guidelines

Number MSS Issued Technical Guidelines

Costing Manual

1 Public Housing* 2008 √ √

2 Civil Record 2008 √ �

3 Social* 2008 √ √

4 Health 2008 √ √

5 Women Empowerment and Child Protection* 2009 √ √

6 Environment* 2010 √ draft

7 Family Planning and Welfare Family 2010 √ √

8 Manpower* 2010 √ √

9 Education 2010 (DG Decree) draft

10 Public Works and Spatial 2010 √ draft

11 Food Security* 2010 √ √

12 Art and Culture 2010 �

13 Communication and Informatics 2010 �

14 Transportation 2011 - -

*) Implement both in provincial and Kabupaten/Kota

From the table 1 shows there 14 MSS issued already until the August 2011, 4 MSS were issued in 2008, 1 in 2009, 8 in 2010, and 1 in 2011. Most of MSS are already completed by technical guidelines except the last 3 MSS (Art, Communication and Informatics, and Transportation), while only 6 MSS has issued their Costing Manuals and the other still are in drafts.


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Table 2: MSS’s basic services, number of indicators, and target year

Number MSS Basic

services Number of indicators

Number of indicator and sub indicator

Target Year

1 Public Housing* 2 3 3 2025

2 Civil Record 3 6 6 2011

3 Social* 4 14 14 2015

4 Health 4 18 23 2015

5 Women Empowerment and Child Protection*

5 8 23 2014

6 Environment* 7 7 7 2013

7 Family Planning and Welfare Family 3 9 9 2014

8 Manpower* 5 8 8 2016

9 Education 2 27 39 2014

10 Public Works and Spatial 8 23 23 2014

11 Food Security* 4 7 11 2015

12 Art and Culture 2 7 7 2014

13 Communication and Informatics 2 2 6 2014

14 Transportation for Province* 4 13 13 2014

Transportation for Districts 4 14 22 2014

Total 55 166 214

*) Implement both in provincial and Kabupaten/Kota

Number of MSS basic services, indicators, and sub indicators:

In average, MSS vary from 2 to 8 types of basic services, and from 2 to 27 indicators. The MSS indicators are more than that because of in some MSS the indicators are divided again into two or three sub indicators. Local Governments, in overall, will implement the 14 MSS with 55 basic services and 166 MSS indicators with 214 total included sub indicators.

As shown in Table 2, Public Housing has the smallest indicators (3) of their 2 basic services, while, in the other hand, Education although only for 2 basic services, but has the highest amount of indicators and sub indicators (39).

MSS process implementation:

To implement the MSS fully, local government both provincial and districts must prepare their baseline data first, and then estimate their target for the coming years following the national target, costing the target of MSS indicator achievement plan into their planning and budgeting document for implementation, reporting, and evaluation.

CHAPTER 2 MSS CONCEPTS AND POLICIES IN INDONESIA

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MSS Implementation Mechanism

The socialization of MSS to local governments, especially local government staffs, is almost extremely limited, so they have no information and give no priority to the MSS implementation in local governments. There only Health, Education, and Environment in limited have socialized their MSS concept and technical guidelines to local governments. As an effect of limited information of MSS, the MSS baselinedata are not yet established, so there is no MSS setting target either in local governments. Costing of MSS indicator target achievement based on the Costing Manual which are issued by 6 ministries (see table 1) is not yet implemented except they just calculate them by the ordinary costing of related activity and program to MSS on their planning proposal document (RKA-SKPD). In the integrating MSS target achievement and costing in the planning document, only limited local governments have fully implemented their planning document preparation based on Permendagri 54/2010 about new planning guidelines and mechanism that involving MSS as one of the planning indicators. MSS national target year:

The target year of each MSS is varied also from 2011 for Civil Records until 2025 for Public Housing. The average target years for 2014 following the end of current Presidential period. Refer to the only 6 of 14 MSS has their Costing Manuals; limited socialization of MSS directly for local governments; and the lack of baseline data; it is still needed strong commitment from national and local government in implement and achieve the target planned in the coming years.

MSS Socializa*on

Basic informa-on of

MSS

Understanding of MSS

indicators and cos-ng

MSS Baseline data

Mapping and recording the current status

of MSS indicators

Verifica-on and valida-on

of MSS baseline

MSS Se1ng Target

Se=ng target of MSS

achievement plan for

coming years

Refer to MSS Na-onal Target

achievement year

Based on local and fiscal capacity

MSS Cos-ng

Calculate the cost of each indicator ac-vi-es

Calculate the projec-on cost

of each indicator for coming years

MSS informa-on into planning and budge-ng

MSS se=ng target and cos-ng

projec-on as base of MSS basic services programming

Based on Permendagri 54/2010

As part of planning and budge-ng process

MSS Repor-ng

Report the actual achievement of

MSS implementa-on

Report to Bupa-/Mayor

Report to Province

Report to MoHA and related line ministries


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Chapter 3

Capacity Development of MSS Costing and Implementation

In assisting the capacity development on MSS Costing and Implementation for national and local government partners, two main activities have undertaken by DSF Team; supporting national government on MSS development and implementation, and supporting local government on MSS costing and implementation.

3.1. Supporting national government on MSS development and implementation

Tasks and activities conducted by the DSF Team in supporting national government on MSS development and implementation are;

• Evaluated of the status of MSS formulation and technical guidelines in all sectors • Tested the Costing of Environment MSS instrument, using local data in DIY and

other pilot regions • Assisted Ministry of Environment, Public Works, and Communication and

Information in produce an MSS costing manual for local governments. • Distributed and ‘socialized’ the manual on MSS costing for selected sectors • Monitored MSS implementation by developing and testing MSS Monitoring and

Evaluation Tool • Developed a strategy for rewarding district/city that have demonstrated

consistent and exceptional results in MSS implementation • Examined the relationship between the implementation of MSS and the

attainment of the MDGs • Developed the capacity of central and sub-national government personnel

through training and exercises of the MSS concept and implementation issues

3.1.1. Evaluation the status of MSS formula and technical guidelines in all sectors

As informed in chapter 2, there are 14 set of MSS issued, to be fulfilled by governments of the province, district and city. The evaluation of the status of MSS conducted by DSF is based on the findings in pilot regions of the MSS indicators, technical guidance, and costing manual. For the evaluation of the status of the technical guidance and costing, the focus is on the sectors that DSF facilitated in the pilot regions.

CHAPTER 3 CAPACITY DEVELOPMENT OF MSS COSTING AND IMPLEMENTATION

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Table 3: Inputs/comments for MSS indicators, technical guidelines and costing manuals

MSS

Comment and evaluation

Ministerial Decree on Indicators

Technical Guidelines Costing Manual

1 Health • Has same indicator with KB&KS (coverage of active Family Plan members) with different target year

• Some indicators has target year of 2010 for 100% achievement while it cannot achieved perfectly by LG

Unclear perception in indicator 14 (health coverage for the poor) and 15 (Health referral service for the poor) that has the same meaning of the numerator and the same denominator.

• Need to review more detail variables and components of cost.

• Need more coordination in consolidate the cost of common indicators responsibility.

2 Education • The level of MSS indicators is in the input and process than output or even outcome.

• This MSS is defining the meaning of “minimum” as derivation of SNP (national education technical standards), rather than in minimum basic services standards.

• There is no numerator and denominator of indicators

• Some of the target amount is not defined yet.

Unclear who will responsible of MSS indicator data and achievement collection in schools

• There is no costing manual issued yet

• It hards to calculate the costing in schools and its integration into LG planning documents.

3 Environment Clear enough • It needs clear information for districts which have no industry and or biomass production, are they counted 0 or 100% achievement?

• Need clarification of the “management of the public claim on environment problems” that handled. In what level the complain handling can be accepted as indicator achievement?

• No costing manual issued yet

4 Manpower Unclear jurisdiction, which are for provincial and districts with the same MSS

There is no information on delivery their services. Are the local government staffs must

The costing component only consisted of material, equipment, and method. There is no information of


9

MSS




indicators issued. Are they distinct by scale, types of training, or any others?

have a qualification for mediation, training, and supervise the firms or just an average capacity?

“man” which are delivered the service related to the trainer, resource person, transportation cost, etc.

5 Public Housing The target year is too long. Need median step target year before to the final target year

Simple and clear criteria of “comfort and secured” house are needed

6 Family Planning and Welfare

Has same indicator (coverage of active Family Plan members) with MSS of Health with different target year

Clear enough • No costing manual is issued yet

7 Public Works Target year 2014 is to optimize if generalize to all LGs, according to the MSS technical and costing guideline is not issued yet.

• No technical guideline issued yet.

• Need additional guidance of some sub indicators as like road networking, drive safely, mobility, road column of speed indicator, etc.

• No costing manual issued yet

8 Social Clear enough No definition of some term as like PMKS, KUBE, level services of the province and districts for natural diseases, minimum of social aid, etc

Costing component mostly consists of honoraria, transportation cost, and meeting’s cost. There is no costing component of material and equipment cost in delivery the services.

9 Food Security Clear enough Unclear jurisdiction in data indicator between provincial and districts of Food Stock Security (indicator 1 of the province and indicator 6 of Districts)

No information

10 Arts and Culture Unclear correlation between target quantity of indicator and value (100) of each indicator achievement

No information • No costing manual issued yet

11 Communication and Informatics

There is no composition of which mass media can be used. Is it 1 or combination of type of mass media for indicator 1?

No technical guideline yet • No costing manual issued yet

12 Home Affairs Target year 2010, is passed already, while the technical guideline and costing manual are not developing



10

MSS




yet.

13 Women Empowerment

Supporting indicators need to be defined clearly.

• Need information on more clear coordination between Police, Justice, Health and Foreign Affairs

• Level and name of work unit are varied between local government

Need more clear information on budget coordination between Police, Justice, foreign affairs (APBN), Health (APBD)

14 Transportation How the performance of local government that has no river or lake, and inter islands transportation? Can they reporting their achievement as 0% or 100%?


Source: Review from MSS decree, technical and costing manual, and input from DSF Regional Coordinators and local government staffs

Evaluation of MSS in general:

• Although MSS is developed for basic services from the obligatory functions, it must selectively define which sectors primarily as MSS that must deliver and implement by local governments, while the other can be optional or become second priority.

• The 14 MSS with 55 basic services and 152 indicators are still too much for local governments. It needs policy and strategy which MSS are minimum must implement by local governments.

Evaluation on MSS indicators

• MSS indicator normally set based on functions and information that implemented and manage by local government minimally, but there are still some MSS indicators are not implemented fully in some local governments.1

• MSS indicator must be clear and understandable by local government. The technical guidelines must be easy reading and simple.

• MSS indicator must be managed by the regular budget than propose the new or addition budget

• Number of MSS indicators must be figure the main basic services than detail basic services of local government

1 Some basic services in Environment, especially the management of air pollution of industry is limited on industrial area.


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Applicability of MSS baseline and implementation

• The MSS data baseline must be clear and manageable by single or at least under coordinated unit in local government

• The MSS baseline need to be formalized in the local government annual based information as like “Daerah Dalam Angka” or Annual Statistical Data

• MSS database must be verified by the local government itself, province, and related line ministries.

• MSS baseline data must be supported by technical information and evidence, not only number of achievements.

• MSS baseline can be used for future years setting target based on the macro data information of MSS variables

Revision and Development of Technical Guidelines and Costing Manuals

• Based on the implementation experience in the local governments, the issued MSS need to be reviewed on their MSS indicators and their technical guidelines to be more clear, simple, and understandable.

• The costing concept needs to be customized for all MSS for easiness and consistency in funding of MSS as basic services, in planning and budgeting documents

3.1.2. Costing of MSS: Instrument testing using local data

The Costing process of MSS has test as a part of the Health MSS program in Yogya in 2010.2 Additionally, DSF assisted the testing of MSS for the Environment sector (focused on MSS costing) that was being done in the province of DIY and District Kulonprogo in February and March. The costing process of MSS of environment used the e-costing instrument version 1.2. Province of DIY tested the costing of the provincial MSS indicators (the first 3) and Kabupaten Kulonprogo tested the costing of the districts’s MSS indicators (the last 4).

As a result, there are some comments and revision needed in the Environment MSS Technical Guidance and Costing Manual from Environment Office of DIY in discussion with Ministry of Environment that facilitated by DSF in Yogya on March 2011.

Feedback has been provided to the Ministry of Environment that facilitated by DSF in Yogya on March 2011, who is now expected to revise and finalized their draft into Ministerial Decree on MSS costing.

Notes of the result of e-Costing practice Environment MSS at DIY:

1) There is still an unnecessary variable included in the activity, such as data collection by Echelon

2 See the Report of MSS Costing Test in Health Unit of Kota Yogyakarta


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IV personnel; this should be enough to be done by Echelon II and III only. BLH of DIY responded that sometime Echelon IV is involved in the activity, since he/she has function on that issue. KLH understood and agreed that such variable (involvement of Echelon IV) is accepted with that reason.

2) Sampling criteria and procedure should follow the manual. Sampling for air quality is in 3 monitoring locations (traffic dense, housing, and industry areas) and 2 times per year. BLH DIY asking about the standard procedure of sampling should be provided in this MSS case, especially about how many people required in the sampling and what qualifications. KLH said that it has not been covered in the Technical Guidance, but they will consider it.

3) The cost for distribution of information of the examination results has not yet included. BLH DIY responded that the information on the water and air quality is provided through the six monthly bulletin of LH DIY. There is also other mean, which is through government web site, but it was not running yet. Then it was discussed about how to cost the intended information which is integrated with many other things of environment affair.

4) Additional cost which should be provided in the MSS is the cost for MSS reporting, this could be included in the secretariat budget.

Challenges and lesson learned:

• Ministry of Environment needs to socialized their MSS not only the indicators itself, but also the strategy of how in collecting the database and information and the strategy of costing the target achievement of the MSS indicators. DSF has assisted the socialization by Regional Coordinators and facilitated staff from Ministry of Environment to go on deeply in technical and management of the implementation of the MSS. As a result, there are some input and comment that need to followed up by Ministry of Environment.

• Ministry of Environment has received these inputs and will accommodate in their Costing Manual.

• DSF will develop the e-costing instrument more flexible although still based on the complete steps and mechanism of data entry as MSS of Health has. It considered preparing a “generic e-costing instrument” with a more simple method and operational of data entry. The instrument has finished and test on April 2011 in region partners.

3.1.3. Produce an MSS costing manual for local governments

DSF team by the end of September, has assisted the MSS costing manual of Environment and Public Works while also give comment and input of Manpower Costing Manual, and assist the preparation and finalization of Communication and Informatics technical guidelines and costing manual.

MSS Costing manual of Environment now is in the final draft and under the evaluation by the Bureau of Law Ministry of Environment for Ministerial Decree issuance.


13

MSS Costing manual of Public Works now is in the final drafting for 23 indicators by the Public Works MSS technical team. DSF has reviewed it refer to their request. Now the final draft still reviewed by the Bureau of Law of Public Works Ministry.

MSS Costing manual of Manpower has revised based on comment and input from DSF, in Ministry of Manpower and Transmigration Regulation number 14/IV/2011 on MSS Costing Manual revision.

MSS Technical Guideline and Costing Manual of Communication and Informatics now is in the draft final based on a series of discussion and workshop with DSF as their request when in MSS Coordination Meeting event in Jakarta and other chances through DG of Local Autonomy, MoHA. The last discussion in Bogor on September 9, 2011 as a base of final drafting in Communication and Informatics Team.

Below is the status of DSF assistance to ministries in finalize their MSS costing manuals.

Table 4: Status of MSS Costing Manual Supported by DSF MSS DSF technical assistance Status

Environment • Pilot tested in the Province of DIY and Kabupaten Kulonprogo

• Series of discussion and input for MSS Costing Manual improvement with Environment MSS team

• E-costing software for MSS Environment

In the Final Draft. Waiting for Ministerial Decree

Manpower • Review of the initial costing manual • Technical notes to Manpower MSS

Costing Manual • Review and discuss the draft final of

Costing Manual revision

Revised the previous costing manual (Ministry Decree Number 15/2010) into the revised one (Ministry Decree number 4/2011)

Public Works and Spatial

• Review on the MSS indicator and Technical Guideline

• Inform and discuss the MSS Costing Concept with the Public Works MSS team

• Propose a sample of MSS Costing for 1 basic services (Directorate of Slum Area)

• Review and discuss the draft MSS Costing Manual

• Review and discuss the final draft of MSS Costing Manual

Final Draft in the Bureuau of Law, Ministry of Public Works

Communication and Informatics

• Review on the MSS indicators and Technical Guideline

• Inform and discuss the MSS Costing Concept with Comminfo MSS team

• First drafting the MSS Costing Manual

Final Draft in the MSS Team of Comminfo

Challenges and lesson learned:

• The variety of MSS indicators between line ministries still can be formalized in the standard and general costing method. There are some reluctant on using


14

this costing method (Communication and Informatics) that let local government decide their own costing methods. DSF has convince them that the guidance still needed from National Government for customize and uniformity of MSS costing concept and method, and let local government use their own price standard and information needed.

• Although the technical guidelines of MSS already issued, it needs additional information that needed by local government staffs in identify and collecting the MSS baseline (case of MSS of Public Works). Ministry of Public Works needs to attach some technical standards and ratio of public works issues in the technical guideline.

• The costing manual needs to discuss not only by Planning Bureau of Ministry, but also with other related DG and directorates of their specific and technical issues. DSF facilitates DG Otda to play their roles for this reason.

3.1.4. Distribute and ‘socialize’ the manual on MSS costing for selected sectors

DSF Team, Ditjen Otda, and related ministries have done some activities in socialize the manual on MSS costing for selected sectors;

• Road Show to 5 pilot province (including 13 Kota and Kabupaten) in MSS costing socialization and program preparation on February to March 2011

• Contribute in the Manpower MSS National Workshop in MSS Costing Concept and e-costing instrument on March 23, 2011

• Contribute in the MSS Socialization, costing concept, and e-costing instrument of Manpower and Environment in the Province of Banten for all their districts, April 2011

• Contribute in the finance and disseminating Book of 13 MSS to all local government in the Local Autonomy National Workshop in April 2011, June 2011 and other DSF and DG Otda formal events.

• A MSS Costing concept and e-costing training in provinces Bali and Riau, in collaboration with Ditjen Otda on May 2011; MSS implementation evaluation in Yogya in June 2011; MSS costing concept and e-costing training in Semarang and Wakatobi in July 2011.

• As a resource person or trainer, in the Badiklat MoHA for MSS costing concept and e-costing instrument, June 2011

• MSS costing concept and exercise for Manpower Ministry’s national and sub national team in Jakarta, July, August, and September 2011.

In the socialization, DSF distributed MSS Compilation Book and CD of e-costing instrument to participants, both for pilot and non pilot regions.


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Table 5: MSS Costing Socialization and Exercises

Beneficiaries Event Date Participants Number of participant

Pilot Regions Road show and program preparation

February 7 to March 15

5 province, 5 Kota, and 8 Kabupaten

335 person

Non Pilot Regions

MSS socialization and costing concept and exercises for all work units of Manpower and Environments in the Province of Banten

April 8 Districts of Province of Banten

41 person

MSS socialization and costing concept of Health for all work units of districts in the Province of Kepri

June 21 Health Unit of Kepri and all districts in Kepri

24 person

MSS socialization and costing concept and exercises for Bali, Riau, Semarang, Wakatobi, and Bulungan

May, June, and July

Province of Bali, Province of Riau, Kota Denpasar, Kabupaten Badung, all districts in Riau, Kota Semarang, Kabupaten Wakatobi, and Kabupaten Bulungan

210 persons

Line Ministries MSS Socialization and Costing for Manpower of all over Indonesia

March 23 July October

Manpower unit of all provinces in Indonesia and Ministry’s staffs

105 persons

Others MSS socialization and costing concept and exercises in MoHA Training and Education

June Bappeda and Finance Unit of all province in Indonesia

30 persons

LOGICA2-AUSAID program in NAD

July All Health Units in Aceh 24 persons

Total participants of MSS Costing socialization and exercises 769 person

Results:

• MSS Costing manual socialization of selected sectors has delivered for pilot regions and following with their work programs in MSS costing and implementation with DSF-Otda.

• MSS Costing manual socialization and exercises of selected sectors has delivered in non pilot regions, MoHA institutions, and selected line ministries.

Challenges and Lesson learned:

• Most of The participants (SKPD of local governments) have no information of MSS indicators and technical guidelines, including related MSS costing manuals, and almost there is no MSS information or socialization specifically from related line ministries to local governments.

• Under DSF socialization and facilitation in the MSS program, pilot regions are more aware and make a connection between MSS and their routine programs and activities. Stakeholders (work units, NGO, local university, and local council) also involved and participated actively in the socialization and follow up of the MSS implementation.


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• Although DSF and MoHA have delivered and gave some practice on MSS implementation in the socialization events, it needs further follow up on supervise and continue the results of MSS costing socialization and exercises in non pilot regions. MoHA, local governments, and related line ministries must plan the follow up action to ensure the implementation of MSS in this area.

3.1.5. Monitor MSS implementation

In improving central and provincial government support to Kabupaten/Kota implementation, DSF team has developed the MSS monitoring and evaluation tool. The tool divides into two, first is the General Monitoring and Evaluation Tool, and the second is Technical Monitoring and Information Tool. The general monitoring and evaluation tool is used to monitor the baseline achievement of MSS implementation in local government comparing to the national target achievement and year. The technical monitoring and evaluation tools is used to monitor, verify, and takes feedback of the MSS implementation itself from the local government and their stakeholders.

The first one already sent and used by MoHA, and directly used in collecting initial information of MSS status to all provinces in June as a complement of their material in the MSS monitoring and evaluation coordination meeting in Jakarta on June 2011. In the event, some provinces already submitted their database to MoHA for further evaluation. This tool has used by the Province of Banten in monitor and evaluate the MSS status and implementation of their Kota and Kabupaten, while the status result of MSS also used by the Province of Banten for their Medium Term Plan (RPJMD) of 2012-2017 preparation.

The technical monitoring and evaluation tool now has finalized and need to be discussed with DG Otda and related ministries. In September, it trial runs to the province of DIY, Kota Yogyakarta, and 4 Kabupaten in DIY, especially the monitoring and evaluation concept of MSS of Environment.

In june, MoHA made monitoring of MSS implementation in DIY province and 5 Kota and Kabupatens in DIY, while also do the mid term evaluation of the MSS program in DIY. Province and 5 districts in DIY have informed their progress also their constraint in the MSS implementation. They feel lucky that assisted and facilitated by DSF in the MSS implementation, although in very limited time, but it can open their view and capacity for the MSS implementation from the beginning completely. They will extent the MSS implementation to the other sectors beside the pilot sectors of DSF facilitation and program.


17

Challenges and Lesson Learned:

In implementing general monitoring and evaluation of MSS in local government, it refers on the availability of MSS baseline and its integration into planning documents. It can be realized in the DSF pilot regions, but still doubtful in the non pilot regions refer to the experience in the pilot regions in the beginning of the program. Under DSF program, the MSS baseline is started to manage by pilot regions also their MSS status and relationship in the planning document. It took some extra and intensive effort to realize it in the pilot regions under DSF facilitation. MoHA (DG Otda) can have information and monitoring the status of MSS implementation in the pilot regions and evaluate them, but it is still hard for the non pilot regions except for only limited sector of MSS as like Health, KBKS, and Education for baseline data and MSS status of implementation.

3.1.6. Develop a strategy for rewarding kabupaten/kota that has demonstrated consistent and exceptional results in MSS implementation

DSF has drafted the concept note on incentive for MSS implementation under the current condition and related regulations. The concept notes suggested on some strategy on policy, both in national and local government. Below is the main issues of incentive strategy for rewarding MSS implementation in local governments.

Concept Note on Incentive for MSS implementation Incentive given to local government, especially for Kota and Kabupaten related to their performance in implement basic services or MSS. The political dynamics, accountability relationships and management systems within the regions will bear the primary responsibility for achieving the MSS. Moreover, vertical accountability also needs to be exerted as the national level has also a residual responsibility for ensuring national achievements in basic service provision – even when the functions are devolved to regional government. With an understanding of MSS gaps as a result of monitoring and evaluation, it makes sense then for Bantuan Provinsi for Kabupaten/Kota to be directed to supplement other sources of funding to close the MSS gaps in guarantee their province can achieve the national target of related MSS. Central incentives for MSS application; • Returning to the original intent of MSS, means the need to revisit which MSS are the “true” basic

services delivery of local government • Simplifying the many centrally promoted initiatives on service standards (MSS, PSS, SOP, “NSPK”,

NSE, ISO) into single or consolidated indicator term • Rewarding the tracking and reporting of MSS achievement • Increasing capacity development (CD) on the application of MSS from central government institution • Shifting the discourse on the DAU and incorporating MSS as fiscal needs expenditure norms. Part

of DAU must explained and clearly split for the basic service delivery in salary as like in health and education than for total apparatus salary.

• Redesigning the DAK and delegating its allocation to the Governor, an idea to treat DAK as like Bantuan Province for fill the gap of basic service delivery in Districts than only for infrastructures.

• Making on-lending and on-granting of donor funds easier • Inviting donors to reward output achievement: Output Based Aid • Making a stronger connection between service provision and local taxes • Administrative sanctions for non-compliance with MSS. Sanctions could be applied or developed,

including:


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o Publicly announcing ranked performance o Warnings from Governor/MoHA that the region is falling behind expected targets on way to

MSS fulfillment) o Direct orders to spend on specific lagging MSS efforts (as part of approval of draft budgets) o Direct replacement of DPRD/Regional Head with appointee to manage the region temporarily,

to redirect the spending intensively for one or more years o Dissolution of region/incorporation into more viable region

This concept has delivered to counterpart, but it is not discussed yet due to the tight schedule of the program and the finalization of the revision of Autonomy Law and Finance Sources Balancing, between National and Local Government on the national level.


Based on the experience of the program in pilot regions, there are much reasons and reluctance of MSS implementation because of the budget constraint to fulfill the target achievement. Local government felt that this is the new program and they cannot fulfil the target year of MSS because of their budget limitation. DSF has justified their perception about MSS implementation as their current and routine activities and no need additional budget as a new program. What they need to do is calculate the gap of their MSS baseline and the target intended refer to their fiscal capacity. They also need to make basic services program (MSS) as first priority for planning and budgeting than the other programs, because the basic services as the main and reason of the work unit are established.

A more intensive dialogue is needed among national and regional stakeholders, on the merits of the incentives describes in this paper, as a precursor to a deeper analysis and use of incentives model. The other thing is, the possibility to promote this concept into the National Allocation Fund for Local Government (DAU and DAK), as a guarantee that basic services will be delivered in the same minimal standard in all over the area, in Indonesia.

3.1.7. Examination of the relationship between the implementation of MSS and the attainment of the MDGs

Based on the MDG Goals’ achievement in 2010 and the supporting program by Bappenas in local government, the relationship of MSS and MDG Goals concept has drafted by the DSF team on April 2011, as shown in Table 6 below.

There are some issues of the relationship of MSS achievement and MDG Goals;

1. Of the 8 MDG Goals, there only 7 can be analyzed with MSS sectors. The goal number 8 has no relationship with any MSS sectors or the basic services in local governments.


19

2. Most of MSS have no direct relationship with the MDG goals, except one for MDG Goal number 5B of main indicator “unmeet need of family planning” that precisely as indicator number 2 and 3 of MSS of Family Planning and Welfare.

3. There is no MSS indicator which is related to MDG goals for goal number 3A, 6A and 6B, and 8.

4. It is also hards for local government in measure how far the MSS achievement can give a positive contribution to the achievement of MDG goals between the other programs, while there is no measurement of achievement in other programs related.

A relationship between MSS and MDG has informed and trained to Province of Banten and for Kota and Kabupaten Tangerang on April and May. But, in the implementation, there is still no result from pilot regions in considering the correlation between MDG Goals and MSS achievement of 2010.

Below is the table of the relationship between the MDG Goals and the MSS sectors, while the detail MSS supporting relationship with the MDG Goals is in attachment 3.3

3 The relationship between MDG Goals and MSS implementation achievement is showed by every main indicators of MDG. See the detail MSS indicator related in the attachment 3.


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Table 6: The relationship between the implementation of MSS and the attainment of the MDGs

Main Indicators MSS MSS IndicatorsGOAL 1 ERADICATE EXTREME POVERTY AND HUNGERtarget 1.A Halve, between 1990 and 2015, the proportion of

people whose income is less than USD 1 (PPP) a day* Proportion of population with incomes of less than 1 USD per capita per day * The ratio of poverty gap * Share of poorest quintile in national consumption

* Manpower* Family Planning and Welfare

* IK-‐4 of Naker * IK-‐5 of KBKS

target 1.B Achieve full and productive employment and decent work for all, including women and young people

* Growth rate of GDP per worker * The ratio of employment to population aged 15 years and over * The proportion of workers who seek their own and non family workers to total employment

Manpower IK-‐1 to 3 of Naker

target 1.C Halve, between 1990 and 2015, the proportion of people who suffer from hunger

* The prevalence of infants with low weight / malnutrition * Proportion of population with calorie intake below the minimum consumption level

* Food Security* Social

* Whole IK of Food Security * IK-‐1, 5, 7, 8, 12 of Social

GOAL 2 ACHIEVE UNIVERSAL PRIMARY EDUCATIONTarget 2A Ensure that, by 2015, children everywhere, boys

and girls alike, will be able to complete a full course of primary schooling

* Net Enrolment Ratio (NER) in primary education* Proportion of pupils starting grade 1 who completeprimary school* Literacy rate of population aged 15-‐24 year, women and men

Basic Education IK-‐29 and 30 of Basic Education

GOAL 3PROMOTE GENDER EQUALITY AND EMPOWER WOMEN

Target 3A Eliminate gender disparity in primary and secondary education, preferably by 2005, and in all levels of education no later than 2015

* Literacy ratio of women to men in the 15-‐24 year agegroup* Share of women in wage employment in the nonagricultural sector* Proportion of seats held by women in national parliament

* Women Empowerment* Education

No MSS indicator related

GOAL 4 REDUCE CHILD MORTALITY RATETarget 4A Reduce by two-‐thirds, between 1990 and 2015, the

under-‐five mortality rate* Under-‐five mortality rate per 1,000 live births* Infant mortality rate per 1,000 live births* Neonatal mortality rate per 1,000 live births* Proportion of one-‐year-‐old children immunized against measles

* Health* Family Planning

* IE-‐6 s10 of Health * IK-‐4 KBKS: Coverage of BKB (Balita Family Development) members of the family planning 70%

GOAL 5 IMPROVE MATERNAL HEALTHTarget 5A Reduce by three-‐quarters, between 1990 and 2015,

the Maternal Mortality Ratio* Maternal Mortality Ratio (per 100,000 live births)* Proportion of births attended by skilled health personnel (%)

* Health* Family Planning

* IK 1 to 5 and 12 of Health * IK 1 to 3 of KBKS

Target 5B Achieve, by 2015, universal access to reproductive health

* Current contraceptive use among married women 15-‐49 years old, modern method* Adolescent birth rate (per 1000 women aged 15-‐19)* Antenatal care coverage (at least one visit and at least four visits)* Unmet need for family planning

HealthFamily Planning

* IK 1 to 5 of Health * IK 2 and 3 of KBKS

MDG Goals


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GOAL 6 COMBAT HIV/AIDS, MALARIA AND OTHER DISEASES

Target 6A Have halted by 2015 and begun to reverse the spread of HIV/AIDS

* HIV/AIDS Prevalence among total population (%)* Condom use at last high-‐risk sex* Proportion of population aged 15-‐24 years withcomprehensive correct knowledge of HIV/AIDS

Health No MSS indicator related

Target 6B Achieve, by 2010, universal access to treatment for HIV/AIDS for all those who need it.

Proportion of population with advanced HIV infection with access to antiretroviral drugs

Health No MSS indicator related

Target 6C Have halted by 2015 and begun to reverse the incidence of HIV/AIDS, Malaria and other major diseases

* Incidence and death rates associated with Malaria (per 1,000)* Incidence rate associated with Malaria (per 1,000)* Proportion of children under 5 sleeping under insecticide treated bednets* Proportion of children under 5 with fever who are treated with appropriate anti-‐malarial drugs

Health IK-‐13c of Health

Target 6D Have halted by 2015 and begun to reverse the incidence of Malaria and other major diseases (Tuberculosis)

* Incidence, prevalence and death rates associated with Tuberculosis* Proportion of Tuberculosis cases detected and cured under directly observed treatment short courses

Health IK-‐13d of Health

GOAL 7 ENSURE ENVIRONMENTAL SUSTAINABILITYTarget 7A Integrating the principles of sustainable

development in national policies and programs and reversing the loss of environmental resources

* The ratio of actual forest cover to total land area based on the review of satellite imagery and aerial photographic surveys* Carbon dioxide (CO2) emissions* Total consumption of ozone depleting substances (ODS) in metric tons

* Environment* Public Works

* All IK of Environment * IK 9 to 14 and 23 of Public Works

Target 7B Reduce biodiversity loss, achieving, by 2010, a significant reduction in the rate of loss

* Proportion of fish stocks within safe biological limits* The ratio of terrestrial areas protected to maintainbiological diversity to total terrestrial area* The ratio of marine protected areas to total territorial marine area

Environment * All IK of Environment

Target 7C Halve, by 2015, the proportion of people without sustainable access to safe drinking water and basic sanitation

* Proportion of households with sustainable access to an improved water source, urban and rural* Proportion of households with sustainable access to basic sanitation, urban and rural

EnvironmentPublic Works

* IK 1 and 4 of Environment * IK 1, 8, 9, 10 of Public Works

Target 7D By 2020, to have achieved a significant improvement in the lives of at least 100 million slum dwellers

Proportion of urban population living in slums Public HousingPublic WorksSocial

* All IK of Public Housing * IK-‐14 of Public Works


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Challenges and Lesson learned:

• MDG Goals is a part of national indicator achievement where MSS is part of the MDG program related to the basic services support of the goals

• Local government now is preparing RAD (Rencana Aksi Daerah or Local Government Action Plan) of MDG implementation in local government, which is directing from Bappenas. This RAD is must be part also in local government planning and budgeting that expressed in the development program and activities.

• DSF already mapped and informed the relationship between MSS and MDG Goals in all pilot regions. Until the end of the program, none pilot region has finalized their MDG RAD as their outcome as achievement to be connected or related with the MSS output of 2010 as one of the outputs. Hope it can be apply for year 2012.

• MSS that integrated in the program and activities of local government, can be measured its correlation and contribution into MDG Goals, as part of the related MDG program in the local government planning and budgeting.

3.1.8. Develop the capacity of the central and sub-national government personnel

The DSF team in implementing the MSS program both in national and local government always tries to involve national and provincial team and improve their capacity through monitoring and training. By the end of September 2011, some workshop and training has delivered and done for national and provincial team;

Program introduction and consolidation, between Ditjen Otda and DSF team in January 21, 2011. In this event, DSF team presented the program and work plan of the program to DG Otda team for both program at the national level and local level (pilot regions). There were some commitment for the first 2 months activities of the program between DSF team and DG Otda team. 4

Consolidation between DSF team in provinces (Regional Coordinator) with provincial MSS team (Bappeda and Bureau Organization) of MSS program implementation in period February to May. The consolidation made by the DSF team, especially the Regional Coordinators with Pilot regions team before and especially after the Road Show of DSF program introduction and MSS socialization in every region.

Workshop and technical assistances of MSS indicator, costing concept, and e-costing instrument training for the province of Yogya, NTB, Kalbar, Banten, and Kepri. The workshop and technical assistances of MSS indicators, costing concept, e-costing instrument training, setting target, and basic programming in the planning and budgeting process has delivered and assisted by DSF team to pilot provinces

4 See the report of the Internal Meeting with DG Otda team on January 21, 2011


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under the frame of work program since February to September 2011. The result of the workshop and technical assistances can be seen on Final Report of each pilot provinces.5

DSF facilitation on Kepmendagri 54/2010 about local government planning process and mechanism and the relationship with MSS integration for the province of DIY in February and for the province of Banten in April 2011. In updating the planning process and its relation with MSS implementation, DSF facilitate pilot regions in the MSS programming concept in the planning process under MoHA Decree number 54 year 2010, to show that MSS is not a new program, but involve in the planning process.6

MSS e-costing instrument training for MoHA (Otda, Bangda, and BAKD) on May 9, 2011. This training has delivered in Bogor and participated by the management and staff of DG Otda, representative from DG Bangda and DG of Regional Finance of MoHA. Some donors also sent their staff as participant. Beside deliver MSS Costing concept and instrument training, DSF also reported the program progress by May 8, 2011 to MoHA counterparts. DSF also has delivered the MSS costing instrument training to local government staffs (Bappeda and Public Works) in the MoHA Training and Education event in Jakarta as regular training material of Public Finance and Management for local government staffs. The trainning’s material, has given formally to MoHA, for the next batch of MoHA Training and Education events.

MSS e-costing ToT training for MoHA team (Otda, Bangda, and BAKD) on June 1, 2011. This training has delivered in MoHA office with the same participants with the MSS costing and exercise training before, and add with technical staffs who will responsible for the MSS costing instrument maintenance and development. By this training, MoHA now can give socialization and training of MSS costing without DSF staff assistance.

MSS e-costing ToT training for Manpower team (National Office and Provincial Offices) on July 5 and 6, 2011. The MSS team of Ministry of Manpower and Transmigration is intensively asked DSF to assist them in the socialization and implementation of their MSS. DSF has deliver the MSS e-costing instrument ToT training for Manpower staffs in their national office and staff of Manpower from selected provinces on their national workshop of MSS and costing event on July 5 and 6, 2011 in Jakarta.

5 See the Final Report of Pilot Provinces in the attachment. 6 In the Kepmendagri 54/2010, there are slots of MSS in every planning periods as one of the performance indicator of basic services


25


Although MSS has develop since 5 years ago, a complete and comprehensive knowledge of MSS for implementation is almost not known by national and provincial staffs. Furthermore, MSS Costing and MSS programming in the planning process are still the new knowledge for them refer to the MSS Costing Manuals that issued by line ministries related and the MoHA decree number 54 year 2010 of the planning process and mechanism. The current requirement, MSS implementation and MSS costing must be knowed and supervised by the national and provincial staffs in order of their function as supervisory and assistance of MSS implementation in provinces for national staff of MoHA and related ministries, and for Kabupaten and Kota for provincial staffs.

DSF as an executor of the MSS’s implementation program in the pilot regions, has delivered training and exercises for the MSS implementation, especially for the MSS Costing, for national (MoHA and line ministries) and provincial staffs. DSF has also delivered the MSS Costing instrument application ToT to the national and provincial staffs, to ensure that the e-costing application can be managed in the absence of DSF Team. As a result, MoHA team has delivered the MSS socialization and MSS Costing trainning and exercise to the some province and district by themselves without assistance from DSF anymore. Province of Banten and DIY have also delivered their trainings for districts with minimal assistance from DSF, while MSS team of Ministry of Manpower and Transmigration has prepared their workshop and training schedules after got training and ToT from DSF, especially on MSS Costing.

Lesson Learned of this process, are:

1. MSS is looked as a new concept that hard to implement by both national and local government because of they have enough information on how to implement it completely. Through the socialization and training by DSF directly, and indirectly, they are now know the whole process of MSS implementation, and the requirement how to implement it.

2. DG Otda of MoHA has involved in the MSS preparation and issuance with related line ministries, but they are not involved yet in the technical issue on MSS costing and programming in the planning process. By the training that delivered by DSF, they are now more confident to supervise, monitor, and evaluate the MSS implementation in the local government in general in the local governments using the tool of MSS costing, MSS programming in the planning process, and MSS monitoring and evaluation tools.


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3.2. Supporting local government on MSS costing and implementation

In supporting local government (partners) on MSS costing and implementation, there are some activities have delivered and done by the DSF team and MoHA. They are;

• Do the self assessment of MSS implementation and achievement in selected sectors by a sample of local governments

• Costing (the new) MSS • Setting MSS target and budget • MSS Targets and Costing as basic information of programming in Planning and

Budgeting Documents

3.2.1. Self Assessment of MSS implementation and achievement in selected sectors by a sample of local governments

In collecting MSS baseline data of MSS implementation and achievement in selected sectors in pilot regions, DSF develop and disseminate a MSS baseline data form and the form of MSS Need Assessment to know the expectation of basic service delivery by government from their stakeholders. 7

Form of MSS Baseline Data is consisted of:

• Name of Local Government and the related Work Unit • Name of MSS, Basic Services, and Indicator • Legal basis of MSS from National Government and Local Government (if any) • MSS baselinedata of 2010, which detail in the numerator and denominator of

indicator • Budget used of each indicator achievement of 2010 • MSS indicator target of 2011 which detail in the numerator and denominator • Budgeting Plan of each indicator achievement plan of 2011 • Question on MSS database management • Question on challenges in MSS implementation • Question on MSS integration into planning document status This forms must be answered and developed per indicator of MSS. In case of MSS of Health, there are 18 forms must be fill and submit by Work Unit of Health. From the filled forms, DSF team had compiled the MSS baseline data of each MSS and analyzed the initial condition of MSS implementation before the program started on the capacity development of MSS costing and implementation in pilot regions. Below is the sample of MSS baseline data collected of MSS of Environment of Kabupaten Bantul.

7 The MSS Assessment Form is created to see the previous and current condition of MSS impllementation by sector and by indicator. The MSS Need Assessment is created to collect input and information of the stakeholders response on the basic service delivery from government. See the MSS Assessment form and MSS Need Assessment (CDNA) in the attachment.


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Table 7: MSS of Environmental Baseline Data of 2010 and target of 2011 – Kabupaten Bantul

Source: MSS assessment of BPLHD of Kabupaten Bantul, 2011

The self assessment tool has finalized in May, and it already implemented in August and September for selected sectors by the sample of local governments, in specific basic services of selected MSS. The self or need assessment of MSS is delivered by do the Focus Group Discussion (FGD) to get input, response, and expectation from the stakeholder of the specific basic services for the target setting of MSS indicator based on fiscal capacity and the possibility of other sources funding.

Main Component of MSS Self Assessment Form

Chapter 1: General Condition of MSS implementation Capacity Development Chapter 2: Implementation of MSS Capacity Development of SKPD in achieve MSS

Target Chapter 3: The need of SKPD Capacity Development in preparing basic services in

the MSS target achievement Chapter 4: The need of stakeholders (DPRD and NGO) Capacity Development in

supervise and participate the improvement of basic services and MSS target achievement.

Below in the table 8 is the MSS self assessment study in 6 regions for selected basic services.

Table 8: MSS Self Assessment Study in 6 regions Regions MSS Basic Services

DIY Health of Yogyakarta Environment of Kabupaten Sleman

Health service for mother and child Water pollution prevention services

Banten Manpower of Province Banten The size of the registered job seekers who are placed

MSS of Environmental Baseline Data of 2010 and target of 2011 -‐ Kabupaten Bantul

Year Value4 5

7 83 5

8 8

340 9,464

1,328 15,994

22 12

22 17

Total of MSS costing/funding 97,087,000 132,500,000

71% 14,000,000

7Follow up complaints from the public service as a result of alleged contamination and / or destruction of the environment

100% 17,087,000 2013 90%

59% 8,500,0006 Service status information land

degradation and / or land for biomass production

26% 7,000,000 2013 100%

63% 27,500,0005 Air pollution prevention

services from the un move sources

38% 34,000,000 2013 100%

63% 82,500,000100%

NO MSS Indicators 2010 achievement and funding

MSS Target

4 Water pollution prevention services

57% 39,000,000 2013

Plan of target and costing2011


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Regions MSS Basic Services

NTB Education of Kota Mataram Ratio of students to classroom Kalbar Health of Kota Pontianak Health service for pregnant mother: K-4 visit Kepri Environment of Kota Tanjung

Pinang 3 of 4 basic services of Environment MSS

Result of MSS Need Assessment:

• MSS Need Assessment is delivered through FGD on Capacity Development Need Assessment in each region represented in 1 (one) local government and focus on 1 (one) or more basic services (see table 8).

• Increased awareness of stakeholders on the importance of basic services and its capacity development (see sample of CDNA of Environment of Kota Tanjung Pinang)

Self Assessment of MSS Basic Services of Environment: As a first step of MSS implementation process, need assessment of basic services of Environment is needed to know the current condition, problems, target, and capacity building needed for improvement and to achieve the target with coordination and collaboration with related stakeholders. Need Assessment of MSS basic services of Environment sector in Water Pollution Prevention Services in Kota Tanjung Pinang has conducted with their stakeholders (executive team, local council, Walhi-NGO, related society, and local university). The main results (see attachment) are:

• The current condition of basic services for water pollution prevention related to the MSS of Environment is still low. They have not much information of MSS, never measure the indicator and results, no database management, no coordination and data collection and implementation of MSS, and still not connecting correlation of MSS results with MDG. But they have budget and capacity for capacity building in implementation of basic services, working with service providers in implement it, have monitoring and evaluation method for the implementation of this basic services, and realize that MSS indicator of this basic service is related and fit with their program and activities.

• Refer to the need of capacity development on this basic services to achieve the MSS indicator target, they have; policy, budget, coordination, service providers, method and mechanism, merit and reward system with stakeholders; but they still have no idea in measure the achievement of capacity building related to the basic services of water pollution preventive.

• The need of capacity building described into (1) gap and main problems are in budget and human resources quantity and quality, (2) increasing of service delivery is in tool and equipment needed in the laboratory in water pollution measurement, (3) human resource capacity development by more specific and technical training of water pollution prevention services, (4) need more budget allocation for capacity building.

• General comment of FGD: o The need for improvement in the service of a minimum standard so that people can accept the

impact of the 3 (three) indicators that have been implemented by the Kota Tanjung Pinang refer to stakeholders participation.

o The cooperation and coordination between part of stakeholders is good enough in the FGD o Participants' understanding of major issues is still lacking but the striving toward a better

direction, especially for the MSS service improvement of Kota Tanjung Pinang o Sometimes in providing an objective assessment is still felt lacking, it hopes getting better in

the future o Consensus building in the FGD is fine already


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Through the MSS Baseline Data and MSS Need Assessment, and the technical assistances by DSF Team to local government’s work units, the status of MSS baseline in pilot regions by the end of September are:

• Not all pilot regions manage MSS Baseline of all sectors, except the Province of DIY, Kabupaten Bantul and Kota Tangerang. The others are varying from 1 of 13 MSS sectors (Kota Tanjung Pinang), 1 of 6 MSS sectors (province of Kalbar) until almost complete 11 of 13 MSS sectors (Kabupaten Gunung Kidul).

• From 6 MSS obligatory for provinces, only DIY has collected all MSS, while the other varying from 1 to four MSS sectors only.

• Some of the MSS baseline data are also not completed because of some reasons. (See challenges of MSS database collection and management).


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Table 9 :MSS Baseline Data in Pilot Regions

Pilot regions Total MSS Health Education

Environment

Man power

Public Housing

Public Work Women Food Social KBKS Art Civil Comminfo

Province DIY 6 of 6 MSS 3 of 3 7 of 8 1 of 3 8 of 8 3 of 4 7 of 7 Kota Yogya 10 of 13 MSS 18 of 18 4 of 4 7 of 8 15 of 23 5 of 7 6 of 7 8 of 9 7 of 7 6 of 6 6 of 6 Kab. Sleman 4 of 13 MSS 18 of 18 4 of 4 8 of 8 9 of 9 Kab. Kulonprogo 2 of 13 MSS 18 of 18 4 of 4 Kab. Bantul 13 of 13 MSS 18 of 18 27 of

27 4 of 4 8 of 8 3 of 3 23 of

23 8 of 8 7 of 7 7 of 7 9 of 9 7 of 7 6 of 6 6 of 6

Kab. Gunung Kidul

12 of 13 MSS 18 of 18 4 of 4 8 of 8 1 of 3 7 of 23 23 of 23 1 of 7 6 of 7 9 of 9 7 of 7 6 of 6 6 of 6

Province of Banten

4 of 6 MSS 3 of 3 8 of 8 3 of 3 5 of 23

Kota Tangerang 2 of 13 MSS 18 of 18 8 of 8 Kab. Tangerang 3 of 13 MSS 18 of 18 27 of

27 8 of 8

Province of NTB 3 of 6 MSS 3 of 3 3 of 3 4 of 4 Kota Mataram 3 of 6 MSS 18 of 18 27 of

27 4 of 4

Kab. Lombok Timur

2 of 13 MSS 18 of 18 4 of 4

Province of Kalbar 1 of 6 MSS 3 of 3 Kota Pontianak 5 of 13 MSS 18 of 18 1 of 4 3 of 3 12 of

23 1 of 8

Kab. Sanggau 6 of 13 MSS 18 of 18 14 of 27

4 of 4 2 of 8 4 of 4 9 of 9

Province of Kepri 2 of 6 MSS 3 of 3 8 of 8 Kota Tanjung Pinang

2 of 13 MSS 16 of 18 4 of 4

Kab. Bintan 4 of 13 MSS 18 of 18 4 of 4 4 of 8 9 of 9 13 of 13 4 of 13 16 of 18 7 of 18 6 of 18 3 of 13 10 of 18 6 of 18 4 of 18 6 of 13 3 of 13 3 of

13 3 of 13

Source: Compilation of MSS baseline data of pilot regions


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Chart 1

MSS Baseline in pilot provinces is fully collected in 6 sectors in DIY, 4 in Banten (minus Food Security and Social), 1 in Kalbar (Environment), 3 in NTB (Environment, Manpower, and Public Housing), and 2 in Kepri (Environment and Women Empowerment). There is a misunderstanding in Banten, because they only followed the number of provincial MSS refer to the MoHA Circulation Letter number 100/2011 that only informed 4 MSS in provincial. They plan to collect the rest.

As shown in chart 2 below, the MSS baseline management in pilot districts and municipalities are vary also. From all 13 issued in 2010 (addition 1 MSS of Transportation just issued in August 2011 not involved), only Kabupaten Bantul has collected all indicators, while Kabupaten Gunung Kidul has collected for 12 MSS and Kota Yogyakarta has 10 of the total 13 MSS. The other pilot Kabupaten and Kota are varying from 2 MSS only (Kulonprogo, Tangerang, Lombok Timur, and Tanjung Pinang as their selected MSS of this program) until 6 MSS in Kabupaten Sanggau.

6

4

1

3

2

0

1

2

3

4

5

6

DIY Banten kalbar NTB Kepri

Number of MSS Sector’s Baselines managed in Pilot Province


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Chart 2

As a selection, MSS of Environment has chosen by 5 provinces and 11 districts because of the MSS is applied in both and has fewer and easier database of indicators. MSS of Health is also choosed by all pilot districts (13) because of the MSS has early started and socialized since 2009, also relatively established in local governments. The other as like MSS of Women Empowerment is choosed by 10 local governments although still hard to fulfill the indicators, and some others as like shown in Chart 3 below.

Chart 3

Number of MSS Sector’s Baseline Manage in Districts

-‐1

1

3

5

7

9

11

13

Yogyakarta

Slem

an

Bantul

Gunu

ng Kidul

Kulonp

rogo

Tangerang

Kab Tangerang

Pontianak

Sanggau

Mataram

Lombo

k Timur

T. Pinang

Bintan

10

4

1312

2 23

56

32 2

4

19

Number of regions which implement MSS

0

2

4

6

8

10

12

14

16

Health

Education

Environment

Manpower

Housing

Public Works

Women Emp.

Food Security

Social

Fammily Plan

Art & Culture

Civil Record

Comminfo

13

4

16

7 63

10

64

63 3 3

20


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Baseline data of MSS: Case in DIY

Specific meetings to further discuss the MSS indicators were done in Gunungkidul and Kota Yogyakarta for public work sector and integrated services to victims of violence and in province DIY for social, manpower, public housing, and food security. In general, all SKPDs have known the MSS indicators, however many of them need further clarification on the operational definition and variable (denominator and numerator) of the indicators. Furthermore in the MSS baseline formulation, the crucial problem faced by many SKPDs is about data, as stated in the following expression: - they haven’t collected the data yet since they do not know that the data is required - they don’t have capacity to collect the data (skill/knowledge and budget) - the data is spread out in several institution and don’t have capacity to collect them Besides, there is common question among SKPDs why the Steps of Activity stated in the Technical Guidelines of MSS have no activities which will contribute to the indicators fulfillment, such as in MSS of Social, Public Housing, Manpower, and Food Security.

In regard to the function devolution, MSS has indeed tried to make it by defining what basic services to be hold by region (province and Kab/Kota) in each function (urusan) and further they (basic services) are elaborated into activities or “langkah-langkah kegiatan”. However, if we read carefully what the activities stated in the ministry regulation, we will find that some of them are not supporting the indicator target fulfillment, or they don’t make senses. Regions said that the expected programs for those certain indicators are still belonging to Government (National). The activities of MSS public housing, food security, and social sectors are some examples of this case.

Challenges of MSS Database process:

• The limited information of MSS socialization from national government technically to local governments. They are still confused in the numerator and denominator of indicators (Health, Education, Women Empowerment, and Public Housing) and unclear obligation between provincial and districts (Manpower and Women Empowerment).

• Some of the MSS issued on the end of 2010 (Public Works, Arts and Culture, Communication and Informatics, Food Security), and some are not completed with Technical Guidance (Education, Food Security, Art and Culture, Civil Record, and Communication and Informatics)

• Unclear coordination from local government to SKPD as responsible units in MSS database collection, and coordination between work units in the local government and with other institutions outside of local government.

• Some data is not available in local governments if it too qualitative or need additional activity in collecting. Furthermore, there is no budget for database collection.


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• For example, in MSS of Public Housing; Coverage indicators of the availability of housing for the house habitable. Criteria habitable house includes:

• Under the structure / foundation, • The structure of the middle / columns and beams (beam), and • Upper structure.

In Kabupaten/Kota, technical data like this in general does not exist, even if there are only a few model houses, not the entire scope of kabupaten/kota

• Some work unit or SKPD related just established and or just split or merged with other. For instance, the Women Empowerment Office that just established or still merged with Health or Family Planning offices; Public Housing that still under Public Works, etc.

• Low commitment of local government in MSS implementation cause not as urgent as other public service indicators as like IKU, IKK, or MDG.

Lesson learned of the MSS baseline data process:

At the beginning of the program, MSS baseline is not a priority in local government although they claimed they already implement selected MSS as like Health, Education, and Environment. The MSS baseline is complete enough for MSS of Health because they used to collect it since year 2010. When DSF came and asked their MSS baseline, most of the local governments and their work units have no idea to give their quantitative data than qualitative. It shows that they are not managing their MSS baseline well, even for the MSS setting target, nor programming them in the planning and budgeting process.

By using MSS Baseline Data Forms, MSS Need Assessment Capacity Development, from DSF and copying the MSS indicators of all issued MSS, local government partners and related work units are realized on how to collect and manage the MSS baseline data for base step to the MSS implementation process. The result is vary8 between local government that depend on their commitment, and capability in collecting MSS baseline data and implementing the MSS itself, as a part of basic service delivery in the governance mechanism.

3.2.2. Costing (the new) MSS

Costing the new MSS means, that the costing process of MSS indicator referring on the costing manual that issued by related ministries, is never done before by local governments. For MSS Costing of Health, although it issued by 2009, but it only tested at the end of 2010 in Yogya. In costing the new MSS refer to the each

8 See the MSS Baseline Data Result in Table 9.


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costing manual by related ministries, DSF team has trained pilot regions the MSS costing concept and e-costing instrument in practice costing their MSS. In delivering the MSS Costing and exercise, DSF team also offers the available template of MSS beside the MSS selected by each local government partners as like Social, Food Security, and Family Planning and Welfare to participants. In the 2 days training, the direct output, at least they already entry one indicator of each MSS, and reporting the result of costing and projection. Each DSF Regional Coordinators following the costing process through technical assistances to each related SKPD to finalize their MSS costing process. By the end of September 2011, the MSS costing process in pilot regions as in table 10 below.

Table 10: Status of MSS Costing in Pilot Regions No. PROVINCE MSS SECTORS COSTING

1 DIY

- Province Environment Done*)9 -Kota Yogyakarta Health Done Women Empowerment 2 of 8 indicators - Bantul Environment Done

Health Done

- Sleman Women Empowerment Done Health Done - Gunung Kidul Health Done Women Empowerment 1 of 8 indicators

- Kulonprogo Environment Done

Health Done 2 Banten

-‐ Province Environment Done Manpower 3 of 8 indicators -‐ Kota Tangerang Manpower Done

Health Done

-‐ Kabupaten Tangerang Manpower 3 of 8 indicators Health Done

3 NTB -‐ Province Environment 2 of 3 indicators

Food Security 3 of 4 indicators Public Housing Done - Kota Mataram Education Done for the first 1410 Health Done Environment Done

-‐ Kab. Lombok Timur Education 5 of 27 indicators

Health 4 of 18 indicators

9 Done in the MSS costing process, but need to be verified later by technical and finance team of each Unit. This happen to all MSS costing results in plit regions 10 MSS Education costing of kota Mataram is done for the first 14 indicators as their obligation refer to the Ministry of Education’s Decree of MSS. The rest or the last 13 as obligation of Schools and under the supervision of Ministry of National Education directly.


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Environment 3 of 4 indicators Manpower 2 of 8 indicators

4 Kalimantan Barat

- Province Environment Done

- Kota Pontianak Health Done Environment Done - Kab. Sanggau Environment Done

Women Empowerment Done

Food Security Done

Health 4 of 18 indicators Education 3 of 27 indicators

5 Province Kepulauan Riau

Province Environment Done Women Empowerment None

Kota Tanjung Pinang Health 3 of 18 indicators

Environment Done

- Kabupaten Bintan Environment Done

Health Done

Women Empowerment 1 of 8 indicators

Family Planning and Welfare 3 of 9 indicators

In the Table above, it found;

Kota Yogyakarta, Kabupaten Bantul, Sleman, Kulonprogo, Kota Mataram, and Kabupaten Bintan have finalized their MSS of Health Costing process for all indicators (18 of 18), while the others which select MSS of Health, are varied their costing process from 4 to 17 of 18 indicators. Especially of DIY where MSS of Health as a MSS Champion, Kota Yogya followed by other districts in DIY except Kabupaten Gunung Kidul only 17 of 18 indicators because of the one left service is not obtained by the Kabupaten.

MSS costing of Environment is already finalized 9 of 12 pilot regions who select it. With the minim number of indicators (3 for provincial and 4 for kabupaten/kota), and closely related to their programs in planning and budgeting, make the costing process of MSS of Environment is faster and easier than other MSS sectors. Although a little bit faster and easier, there are some inputs of costing manual to State Ministry of Environment for their consideration for improvement (see 2.3 – MSS pilot test costing in other sector – Environment).

MSS costing process of Manpower as MSS Champion of Banten is not final by this month. The progress is only in the Province of Banten (3 of 8 indicators) while in Kota and Kabupaten Tangerang still no progress since the last training (1 of 8 indicators). It happens because there is a technical error in the program. DSF


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Regional Coordinator of Banten makes this case as a crash program to finalize it by the end of September.

MSS Costing of Women Empowerment has finalized in Kabupaten Sleman and Kabupaten Sanggau, while in Kepri as their MSS Champion has very low progress. This happened because of low capacity of database, human resources, and coordination between related work units in Kepri. DSF Regional Coordinator of Kepri has shifted this focus MSS into Health sector.

MSS Costing of Education which becomes MSS Champion of NTB has finalized in Kota Mataram (27 of 27 indicators) although the technical guidance and costing manual are not issued yet formally by Ministry of National Education. In Kabupaten Lombok Timur, the progress is still low (5 of 27). The other area that also selects MSS of education is Kabupaten Sanggau (3 of 27).

From the table 11 below of the MSS costing of Health in 6 (six) districts, there is vary of MSS costing per indicator of each district.

• There is no district has costed their MSS indicators completely because of some reasons11. Kabupaten Bintan has completed 17 of 18 indicators, while Kota Pontianak is completing only 10 of 18 indicators.

• Kabupaten Tangerang has the highest costing of MSS Health than other districts12, and Kota Pontianak is the lowest costing although cannot be compared because of only 10 of 18 indicators costing informed.

• Kabupaten Tangerang also has the highest costing in almost all indicators because of the number of villages, population, and case of DBD, TB and other diseases.

• Kota Yogyakarta has the highest costing for the obstetric complication handling and health facility services for the poor.

11 Some indicators of Health’ MSS because of they have no budget or already allocated for Puskesmas directly, some already allocated directly from Central Government, and some because of there is no case so far for mass desease as like TB or DBD. 12 It calculated for all potential people who asked for health service while Kabupaten Tangerang has high population of child and maternity.


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Table 11: MSS Costing of Health in Pilot Regions

The table 12 below shows the comparison of cost per unit of each MSS indicator of Health in the pilot region districts. This information as a development data costing by indicator divided by number of object serviced. From the table, it shows that (again) it varies of costing per object per indicator of each district.

Yogya Mataram PontianakGunung Kidul

Kab. Tangerang

Kab. Bintan

1Coverage health service for pregnant women -‐ K4

118,244,500 89,803,000 488,008,500 274,383,200 4,497,765,600 585,493,000

2 Coverage of Obstetric complications are dealt with

1,030,640,000 73,565,000 123,305,000 34,188,000 688,640,000 134,631,250

3 Coverage of Linakes - - 103,640,000 40,050,000 641,013,300 1,385,335,000

4 Coverage of Nifas services - - 11,040,000 10,980,000 1,359,100 65,668,818

5 Coverage of Neonatal with complications treated

93,100,000 27,782,310 69,750,000 20,800,000 28.800.00032,962,500

6 Coverage of baby's visit 27,000,000 70,988,040 32,075,000 - 100,558,800 160,125,000

7 Coverage of UCI villages - 47,700,000 - 515,150,000 133,187,111,000 60,330,000

8 Coverage of under 5 years children health services - - 60,200,000 111,651,900 147,344,688

9 Coverage of complementary ASI feeding of children age 6-‐24 Months

65,984,050 81,666,000 172,603,000

344,500,000 4,270,424,000 357,145,000

10 Coverage Toddler Malnutrition who received treatment

332,763,250 50,950,000 40,000,000 - 65,080,000 193,073,000

11 Coverage of health services of elementary school students and alike

- 104,930,000 - 199,744,000 799,243,000

107,950,000

12 The scope Active Participants of KB - 67,900,500 138,180,000 39,670,750 187,900,000 236,962,500

13 The scope of discovery and handling of patient:

- - - - --

Acute Flacid Paraysis (AFP) rate per 100.000 of population under 15 years

- 309,812,800 - 1,325,000 254,400,000 5,100,000

Patients invention of PneumoniaToddlers - 26,124,000 - 6,590,000 445,972,828 243,571,000

The discovery of new TB BTA positive patients -21,777,000

-88,550,000 742,186,000

328,940,000

Sufferer DBD treated - 2,241,046,000 - 316,857,500 25,974,898,700 379,040,000

The discovery of Diarrhea Sufferers - 45,321,000 - 222,343,000 85,304,000

14 Poor health care coverage 5,210,115,000 1,517,232,050 - - 2,737,354,400 550,666,250

15 Referral health care coverage of the poor 24,217,722,275 1,684,992,000 - - - 2,830,596,000

16 Coverage Level 1 emergency services that must be addressed

1,212,770,000 - - 30,900,000 --

17 Coverage village with outbreaks experienced 72,583,000 10,450,000 - -18,363,640,056

36,810,000

18 The scope Active Standby Village 120,932,250 277,990,000 - 100,365,000 2,316,380,000 20,790,000

Total MSS Costing 27,291,739,325 6,750,029,700 1,238,801,500 2,024,053,450 195,607,921,684 7,947,838,006

Total Direct Cost of Health Unit

Total Budget of Health Unit

No MSS IndicatorsMSS Costing of 2012


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Table 12 : MSS Health costing per indicator per capita/object services in Pilot Regions

The other sectors MSS Costing results can be seen in the attachment.


Pilot regions in the beginning have no idea on how to costing their MSS indicator target before the MSS Costing manual issued by related ministries. They used to use the “project approach” in calculate the cost of each MSS indicator financing that include direct and indirect cost within the costing calculation. When the Costing Manual issued by related ministries, they still have no idea how to calculate the cost of MSS indicator target because of the guideline is too detail and takes time if operated manually.

Yogya Mataram PontianakGunung Kidul

Kab. Tangerang

Kab. Bintan

1Coverage health service for pregnant women -‐ K4 23,181 -‐ 38,657 30,750 87,483 122,232

2 Coverage of Obstetric complications are dealt with 1,447,528 -‐ 211,501 22,085 456,053 256,440

3 Coverage of Linakes -‐ -‐ 8,715 4,459 13,449 285,1074 Coverage of Nifas services -‐ -‐ 1,070 1,271 28 14,2795 Coverage of Neonatal with complications treated 183,268 -‐ 130,618 58,592 53,137 93,378

6 Coverage of baby's visit 6,573 -‐ 2,000 32,5667 Coverage of UCI villages -‐ 1,163,415 -‐ 3,577,431 569,175,688 1,340,667

8 Coverage of under 5 years children health services -‐ -‐ -‐ -‐ 666 103,255

9 Coverage of complementary ASI feeding of children age 6-‐24 Months 123,566 -‐ 7,845,591 748,913 1,568,279 -

10 Coverage Toddler Malnutrition who received treatment 1,869,456 -‐ 1,333,333 -‐ 30,046 1,163,090

11 Coverage of health services of elementary school students and alike -‐ 13,799 -‐ 33,430 11,763 15,138

12 The scope Active Participants of KB -‐ -‐ -‐ -‐ 695 5,47513 The scope of discovery and handling of

patient: -‐ -‐ -‐ -‐ -‐ -‐Acute Flacid Paraysis (AFP) rate per 100.000 of population under 15 years -‐ -‐ -‐ -‐ -‐ 5,100,000Patients invention of PneumoniaToddlers -‐ -‐ -‐ 17,811 3,690,470The discovery of new TB BTA positive patients

-‐ -‐ -‐ 623,592 379,829 2,530,308Sufferer DBD treated -‐ -‐ -‐ 323,985 189,520,000The discovery of Diarrhea Sufferers -‐ -‐ -‐ 25,842

14 Poor health care coverage 108,703 20,991 -‐ 12,569 3,576 1,668,686

15 Referral health care coverage of the poor 113,330 23,312 -‐ -‐ -‐ 2,452,85616 Coverage Level 1 emergency services that

must be addressed 3,133,773 -‐ -‐ 12,569 -‐ -‐17 Coverage village with outbreaks experienced

1,612,956 209,000 -‐ -‐ 592,375,486 13,563

18 The scope Active Standby Village 2,687,383 5,559,800 2,005 1,393,958 53,869,302 716,897

Costing per capita/object services in 2012No MSS Indicators


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MSS costing based on MSS costing manual is a new thing for work unit of local governments with activity steps, variable and expenditure types, and formula of costing by activity steps than using the “traditional costing” for preparing budget activity.

DSF, with the previous experience in costing the MSS of Health for Kota Yogyakarta of their 2010 target, has prepared and develop a simple MSS costing application to ease the local government staffs in calculate their MSS costing. It first created for MSS of Health (E-costing version 1.0 and 1.1), then develop for MSS of Environment (e-costing version 1.2), and the generic e-costing for all sectors of MSS (e-costing version 1.3 and 1.4). The MSS e-costing instrument, at the end of the program, has finalized and included the MDG data and issues, and completed with other features for multi user application.

Although MSS costing is more complex for local government staffs, by using MSS software application (e-costing), pilot region staffs, especially from the selected MSS in the program, are enthusiast to calculate MSS costing of their own MSS indicators. Although takes more time and efforts, but they are satisfied with the result that is more logic and realistic without any other indirect expenditure with the activities.

Some lesson learned from the process of the MSS Costing in pilot regions:

• MSS baseline data must prepare and available first as a base of MSS costing process beside some other information as like unit prices, MDG information and data, and other information related.

• MSS costing process not only as an obligation of staff, but also for finance unit of work unit/SKPD and management to verify and decide the component of MSS costing to be calculated.

• There must be a coordinator of MSS costing calculation process, if the MSS indicator also as responsible of other work units as like MSS of Women Empowerment and Child Protection that as an obligation of Health, Police, District Attorney, and Special Unit of Women Empowerment in the district. Coordination must be set by the Mayor or Bupati an assign one work unit as main coordinator of the MSS indicator achievement and costing process.

• MSS costing also needs rational and reasonable MSS indicator setting target, to calculate the cost of coming years, as part of the MSS costing report to the next process of the MSS programming, in the planning and budgeting.

• Learning from this program in the pilot regions, there are some steps need to pass to get a better result of MSS costing which using an e-costing instrument as chart 4 below.


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Chart 4

MSS e-‐costing process

Finalization of MSS costing

Verify the report result

Reporting

Entry projection variable and target

Insert costing data per indicator

Insert correlation between MSS Baseline data with MDG

Insert MSS and MDG baseline data

Entry template , step of activity, variable and component of cost

Install software

Case of MSS Costing in the City of Pontianak:

Calculation of MSS Costing in the Health Department of Pontianak was not the same results when compared with the calculations have been performed using previously known methods. The result of MSS costing is much larger than the amount of the requirement calculations performed and included in the Health Renja 2012. This happens because of in the preparation of Renja, type of activity selected is not entirely as a cost. There are some activities that are not needed and some are not using a unit cost. Activities that do not use the cost in terms of the activities that are considered routine by the City Health Office, such as the manufacture of bags Labor. In general (in other MSS) scale figures (costs) required for the implementation of the MSS in each SKPD turned out to have a relatively smaller portion compared to the amount of Total Direct Expenditures related SKPD. This gives an indication that, perception that MSS would increase the burden, it was not proven (because MSS-related programs in one SKPD are the programs that already exist before). Only in outlining the program into the type of activity, need to be more systemized.

3.2.3. Setting MSS targets and budgets

In setting MSS target, pilot regions used to set it manually based on the initial year achievement. They used to set the target using percentage increase or percentage target refer to the previous performance. DSF has developed MSS target setting concept and a tool to make them easier in setting their target based on their MSS


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baseline data, than before13. Regional Coordinators has implemented it some for their selected MSS in July and August, while the other still use the conventional setting target method by percentage of previous performance. Below is the status of MSS setting target of selected sectors in pilot regions.

Table 13: Status of MSS setting target in pilot regions MSS DIY NTB Kalbar Banten Kepri

Health Yogyakarta: Done Sleman: - Gunungkidul: - Bantul: - Kulonprogo: -

Mataram: Done

Pontianak: Done Kabupaten Tangerang: - Kota Tangerang: Done

Bintan: Done

Education Mataram:Done for 14 indicators

Sanggau: -

Women Empowerment

Sleman: Done Gunung Kidul: - Yogyakarta: -

Sanggau: - Province Kepri: -

Environment DIY: Done Bantul: Done Kulonprogo: -

NTB: Done Mataram: Done Lombok Timur: -

Kalbar: Done Pontianak: - Sanggau: -

Banten: - Kepri: - Tanjung Pinang: Done Bintan: -

Public Housing NTB: Done Pontianak: - Food Security NTB: Done Sanggau: Done Manpower Lombok Timur: - Sanggau: Done Banten: -

Kota Tangerang: Done Kab. Tangerang: -

MSS Setting target in pilot regions under this program is starting to use for 6 selected MSS, namely Health, Education, Women Empowerment, Environment, Public Housing, Manpower, and additional for Food Security.

The tested and implemented results of MSS Setting Target Tool are;

• In Health, target setting tested and implemented in Yogyakarta, Mataram, Pontianak, Tangerang and Bintan. It is 5 of 13 pilot regions. MSS setting target in Health is using the setting target tool which is the variable of estimation already informed in the MSS Costing Manual of Health.

• In Education, target setting tested and implemented only in Mataram of all 3 pilot regions. The setting target only implemented for the first 14 MSS indicators as part of SKPD or work unit of Education, while the rest as responsible of schools under the direction from Ministry of National Education.

• In Women Empowerment, target setting just tested in Sleman of 5 pilot regions. Sleman still using the conventional setting target for their next 2 years estimation.

13 MSS Setting target is based on the baseline data and the estimation variable used for setting the target. See the MSS Setting Target Tool in the attachment


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• In Environment, target setting is tested and implemented in 6 of 9 pilot regions. Under to mostly fixed denominator of MSS indicator baseline, these setting targets are not too difficult for MSS of Environment.

• In Public Housing only in NTB Province, while it isn’t in Sanggau. NTB has used the MSS setting target tool under their MSS baseline and variable of estimation of each MSS indicator.

• In Manpower, MSS Setting Target is tested and implemented in Sanggau and City of Tangerang of 4 pilot regions. Both, Sanggau and City of Tangerang still use the conventional MSS setting target by estimate the percentage of achievement of the next 3 years.

Below in table 14 is the sample of MSS setting target of Education in Kota Mataram.

Table 14: Setting Target of Education MSS of City of Mataram

On the sample of MSS setting target of Education in Kota Mataram above, it shows that;

• For the case, number of schools (basic and junior high schools) in Kota Mataram, the indicator 1 (ratio of schools needed in 32 km for the amount of students per school) has reached the target (176/176=100%). The indicator 2 (number of schools that have 32 students per classroom of the total schools) has reached 51%

Variabel estimasi

Nilai variabel

A0/B0 A0 B0 xxxxxxxxxxxx x%

B1 B2 B3 B4 T1 T2 T3 T4 A1 A2 A3 A4

I SPM DINAS

IK -‐ 01

Tersedia satuan pendidikan dalam jarak yang terjangkau dengan berjalan kaki yaitu maksimal 3 km untuk SD/MI dan dalam jarak yang 6 km untuk SMP/MTs dari kelompok permukiman permanen di daerah terpencil;

Tersedia satuan pendidikan dalam jarak yang terjangkau dengan berjalan kaki yaitu maksimal 3 km untuk SD/MI dari kelompok permukiman permanen di daerah terpencil;

100% 176 176

Tingkat pertumbuhan jumlah sekolah SD/MI

0.0% 176 176 176 176 100% 100% 100% 100% 176 176 176 176

Tersedia satuan pendidikan dalam jarak yang terjangkau dengan berjalan kaki yaitu maksimal 6 km untuk SMP/MTs dari kelompok permukiman permanen di daerah terpencil;

32% 57 176

Tingkat pertumbuhan jumlah sekolah SMP/MTs

0.0% 176 176 176 176 32% 40% 50% 60% 56 70 88 106

IK -‐ 02Jumlah peserta didik dalam setiap rombongan belajar untuk SD/MI tidak melebihi 32 orang dan untuk SMP/MTs tidak melebihi 36, dan

Jumlah peserta didik dalam setiap rombongan belajar untuk SD/MI tidak melebihi 32 orang

51% 90 176


0.0% 176 176 176 176 53% 85% 100% 100% 93 150 176 176

Setiap rombongan belajar SD/MI tersedia 1 (satu) ruang kelas yang dilengkapi dengan meja dan kursi yang cukup untuk peserta didik dan guru serta papan tulis.

98% 173 176


0.0% 176 176 176 176 99% 99% 100% 100% 173 173 176 176

Jumlah peserta didik dalam setiap rombongan belajar untuk SMP/MTs tidak melebihi 36

86% 49 57


1.0% 58 58 59 59 91% 96% 100% 100% 52 56 59 59

Setiap rombongan belajar SMP/MTs tersedia 1 (satu) ruang kelas yang dilengkapai dengan meja dan kursi yang cukup untuk peserta didik dan guru serta papan tulis.

98% 56 57


1.0% 58 58 59 59 98% 98% 100% 100% 56 57 59 59

Estimasi target layanan

An = Tn X BnBn = B0 X (1+ r )nIndikator SPM

Data dasar Estimasi obyek pelayanan Target

Tn


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(90 of 176) in 2010, and with a growth rate of 1% a year, it estimates can be reached the national target of indicator in year +3.

• It is not all estimation variables define as a growth rate from year to year, but also can be as a trend (positive or negative) of performance, to show the better condition expected for the future years.

• Once the target achieved, they just try to maintain it, and the estimation variable becomes to zero (o).


In setting the MSS indicator target, most of local governments still not familiar with the estimation parameter although some of them already informed in the costing manual of some MSS from line ministries. It seemed in their planning documents that the target only in percentage without informing the number of object they served, compare with the general condition of the objects themselves, as the numerator and denominator of MSS indicator.

DSF has developed the MSS setting tool to make pilot regions easier in setting their MSS indicator targets. The tool must be base on MSS baseline data and estimation variable. Using estimation formula of numerator (current performance of MSS indicator) and denominator as potential object serviced, the tool will produce the MSS setting target for the coming years. The other policy needed from local government is their target of achievement for the coming years based on the current performance. This policy also refers to the fulfillment of MSS national target achievement.

This tool is sharpen the MSS setting target of local government than just a percentage target based on current performance. It is reasonable to placed target in percentage, but for the purpose of costing of MSS indicator, the information of the object to be served is important. Through times it with the costing per capita/object of the current of MSS costing result, work units can calculate the budget needed for the future years after considering the macroeconomic condition as like inflation, migration, etc.

Some local governments still afraid to put the MSS Indicator’s target because they are afraid that could be as their “promises” of performance for the next years. In performance based planning and budgeting, performance indicator as the main point as in case of MSS setting target. DSF has explained the MSS setting target as a performance indicator for the coming years, still can be revised based on their management and fiscal capacity, before it formally set and approved in the APBD as budget document.

Because only limited pilot regions can estimate their medium term target, as a consequence, they cannot estimate their costing for the next 3 to 4 years ahead.


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Case of MSS Setting Target:

In setting their MSS target for the coming years, SKPD of Education Kota Mataram made a meeting with Bappeda, Education Comittee of Kota Mataram as stakeholder representative, and local council member on Education comission. Facilitated by DSF Regional Coordinator for NTB, the MSS setting tool is introduced first, and then continued by the process of MSS setting target of Education by the team.

In the presentation of MSS baseline of Education, there were a hot discussion on how far the performance of Kota Mataram compared to the national target, especially for the indicator number 2 of 32 student per class. Actually it hard for Kota Mataram in fulfill this requirement because of the demand for Primary School in Kota Mataram is grow high from year to year not only from citizen of Kota Mataram, but also from outside.

Under the facilitation from DSF, Kota Mataram can set their MSS indicator target for Education sector, especially for the first 14 indicators. They are satisfied with the tool and the result which they say more simple, reasonable, and accurate than conventional method. The team will do the same thing each year to justify and revise their MSS setting target based on condition and fiscal capacity of Kota Mataram for Education sector.

3.2.4. MSS Targets and Costing as basic information of programming in Planning and Budgeting Documents

Some of the pilot regions already used their MSS indicators and costing as basic information of programming in the planning documents as like Kota Mataram, Province of Banten, Kota and Kabupaten Tangerang refer to the Kepmendagri 54/2010. Some also indirectly has integrating their MSS indicators and costing in their planning document that set before 2010 (RPJMD, Renstra SKPD) by using the previous regulation on planning that not specifically obligate to integrate MSS indicators there (Kalbar, and Kepri).

DSF team based on recently MSS information and Kepmendagri 54/2010 has developed the concept and step of MSS integration into planning document. The concept and steps already trained to pilot regions and delivered in the technical assistances by each Regional Coordinator for the local government counterpart.

MSS targets and costing as basic information for programming in planning documents plan status in the pilot regions as below;


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Table 15: Status of MSS information as Basic programming in Planning Document in Pilot Regions

Pilot regions Plan Status by September 30 Province DIY Renja SKPD:

Environment and Women Empowerment Initial Draft of RKPD

Renja SKPD: Environment, Social, and Manpower

Kota Yogya Renja SKPD: Health and Women Empowerment

Renja SKPD: Health

Kab. Sleman Renja SKPD: Health and Women Empowerment Renstra SKPD: Health and Women Empowerment

Renja SKPD: Health and Women Empowerment Renstra SKPD: Health and Women Empowerment

Kab. Kulonprogo

Renja SKPD: Health and Environment Draft final of RKPDthe Initial draft of RPJMD

Renja SKPD: Health and Environment

Kab. Bantul Renja SKPD: Health and Environment Renstra SKPD: Health and Environment

Renja SKPD: Health and Environment Renstra SKPD: Health and Environment

Kab. Gunung Kidul


Renja SKPD: Health

Province of Banten

Renja SKPD: Manpower and Environment Draft final of RKPD

Renja SKPD: Manpower and Environment Draft final of RKPD Draft final RPJMD

Kota Tangerang Renja SKPD: Manpower and Health Draft final of RKPD

Renja and Renstra SKPD: Manpower and Health Draft final of RKPD

Kab. Tangerang Renja SKPD: Manpower and Health Draft final of RKPD

Renja SKPD: Manpower and Health Draft final of RKPD

Province of NTB Renja SKPD: Environment and Public Housing Renstra SKPD: Environment and Public Housing

Renja SKPD: Food Security

Kota Mataram Renja SKPD: Education and Health Renstra SKPD: Education and Health Draft final of RKPD Draft final of RPJMD

Renja SKPD: Education and Health Renstra SKPD: Education and Health Draft final of RKPD Draft final of RPJMD

Kab. Lombok Timur

Renja SKPD: Education, environment, Public Housing Renstra SKPD: Education, environment, Public Housing Draft final of RKPD

Renja SKPD: Health

Province of Kalbar

Renja SKPD: Environment


Kota Pontianak Renja SKPD: Public Housing and Environment

Renja and Renstra SKPD: Health

Kab. Sanggau Renja SKPD: Renja SKPD:


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Pilot regions Plan Status by September 30 Women Empowerment and Health Draft Final of RKPD

Food Security and Health

Province of Kepri

Renja SKPD: Women Empowerment and Environment


Kota Tanjung Pinang

Renja SKPD: Women Empowerment and Health


Kab. Bintan Renja SKPD: Women Empowerment and Health


From the table above, it shows the results of MSS information as basic programming in a planning document as planned before in the work plan of each pilot regions are shifting from the original into the other MSS sectors as like Health and environment. It happens because of some of the Renja of selected MSS sectors are not specifically related to the MSS indicators both in the program or activity levels. In some pilot regions as like in DIY they can inform MSS of Social is already used in the Renja, and MSS of Food Security also informed in NTB and Kalbar.

Below is the sample of MSS programming in the Renja SKPD (Work Unit Action Plan) of Manpower in the City of Tangerang. The second column shows the program of the work unit, and the third column shows the MSS indicator of Manpower as part of the work unit’s program and their target achievement of indicators. It then described into cost component of each activity of MSS indicator in the column 6 as a result of MSS costing, while the MSS target estimated or setting target is informed in the column 8 in the form.


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NAMA SKPD :………………………………………DINAS KETENAGAKERJAAN

B.Pegawai B. Barang & Jasa B. Modal Total

3 4 5 6 7 8 9Urusan Ketenagakerjaan

Besaran Tenaga Kerja yang mendapatkan pelatihan berbasis kompetensi dari 35 % pada 2012 menjadi 75 % pada 2016

33% 45%

Besaran Tenaga Kerja yang mendapatkan pelatihan berbasis masyarakat dari 20 % pada 2012 menjadi 60 % pada 2016

50% 30%

Besaran Tenaga Kerja yang mendapatkan pelatihan berbasis kewirausahan dari 20 % pada 2012 menjadi 60 % pada 2016

40% 30%

Pengadaan bahan dan materi pendidikan dan keterampilan kerja

UPTD BLK/Kota Tangerang

8.500.000 1.884.813.000 1.893.313.000

Pengadaan Peralatan Pendidikan dan Keterampilan Kerja UPTD BLK/Kota Tangerang

14.200.000 1.500.000 8.865.775.000 8.881.475.000

Rehabilitasi sedang berat sarana dan prasarana BLK UPTD BLK/Kota Tangerang

39.203.383 500.000 373.440.240 413.143.623

Pendidikan dan pelatihan keterampilan bagi pencari kerja

UPTD BLK/Kota Tangerang

5.597.070.000 1.781.570.000 7.378.640.000

Pemeliharaan rutin/berkala sarana dan prasarana BLK UPTD BLK/Kota Tangerang

3.600.000 23.896.200 27.496.200

Besaran pencari kerja yang terdaftar yang ditempatkan, 30 % pada 2012 menjadi 70 % pada 2016

44% 70%

Penyusunan Informasi Bursa Tenaga Kerja Kota Tangerang 176.000.000 8.030.000 184.030.000 Penyebarluasan Informasi Bursa Tenaga Kerja Kota Tangerang 52.725.000 221.617.500 274.342.500 Bimbingan Teknis Analisis Jabatan Kota Tangerang 141.500.000 228.500.000 370.000.000

Pembinaan Lembaga Penyalur Jasa TKI Kota Tangerang 32.100.000 69.000.000 101.100.000

Penyiapan tenaga kerja siap pakai Kota Tangerang 303.890.000 324.499.500 628.389.500

Besaran Kasus yang diselesaikan dengan Perjanjian Bersama (PB) sebesar 10 % pada 2012 menjadi 50 % pada 2016

25% 50%

Besaran Pekerja/Buruh yang menjadi peserta program Jamsostek sebesar 10 % pada 2012 menjadi 50 % pada 2016

10% 50%

Besaran Pemeriksaan Perusahaan sebesar 20 % pada 2012 menjadi 45 % pada 2016 39% 45%

Besaran Pengujian Peralatan di Perusahaan sebesar 10 % pada 2012 menjadi 50 % pada 2016

29% 50%

Fasilitasi Penyelesaian prosedur penyelesaian perselisihan hubungan industrial

Kota Tangerang 237.600.000 21.550.000 259.150.000

Fasilitasi penyelesaian prosedur pemberian perlindungan hukum dan jamsostek

Kota Tangerang 449.900.000 244.915.000 694.815.000

Sosialisasi berbagai peraturan pelaksanaan tentang ketenagakerjaan

Kota Tangerang 202.500.000 158.260.000 360.760.000,00

Peningkatan pengawasan, perlindungan dan penegakan hukum terhadap keselamatan dan kesehatan kerja

Kota Tangerang 1.093.400.000 28.130.500 1.121.530.500

PROGRAM DAN KEGIATAN SKPD TAHUN 2012

Kode

Urusan/bidang urusan pemerintahan daerah dan program/kegiatan

Indikator kinerja program/kegiatan Rencana tahun 2012

Catatan penting

Prakiraan maju rencana tahun 2013Lokasi target capaian

kinerjaKebutuhan dana indikatif

Program Perlindungan dan Pengembangan lembaga ketenagakerjaan

target capaian kinerja Kebutuhan dana indikatif

1 2

Program Peningkatan Kualitas dan Produktivitas Tenaga Kerja

Program Peningkatan Kesempatan Kerja


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Challenges and lesson learned of MSS information as basic programming in planning documents:

Not all MSS indicators can be related directly into the program and activities in the planning and budgeting documents. The MSS indicators sometimes are in the program level (Environment, Food Security); some are in the activity level (Health, Manpower); some are in the sub activity level (Health, Public Housing); and some only in input level of activity (Education). It needs extra effort in mapping the MSS indicators into planning and budgeting documents.

The new regulation on Local Government Planning, mechanism, and evaluation (Permendagri 54/2010) that specifically inserted MSS as one of main indicators of planning is not fully understood and adopted by pilot regions. DSF has tried to facilitate it indirectly by informing the main concept of the regulation especially in correlation with the process of MSS integration into planning document, but still need intensive facilitation from DG Bangda of MoHA for them for full application. In the MSS area, DSF has formulated the steps on how programming and integrating the result of MSS baseline, setting target, and costing into the planning and budgeting process14.

Because of limited baseline data, minim of local human resources, and not good cooperation of work units, some targets of MSS information as basic programming in the planning document is change and shift, as like Public Housing in Kota Pontianak, Women Empowerment in Kepri, Education in Lombok Timur, and Manpower in Kabupaten Tangerang. In the other hand, some new targets of other MSS are appeared as like Health in Tanjung Pinang, Bintan, and Lombok Timur; Food Security in NTB and Sanggau, and Social in DIY.

The lesson learned of this MSS programming process in the planning are;

• Local government need to implement their planning process under the Kepmendagri 54/2010 first, which accomodate the MSS as one of the indicators for local government performance and target. It hards to insert MSS indicator in the local government planning document if they aren’t implementing that Kepmendagri.

• MSS programming in the planning process, make sure that local government (through the related work units) has identify their MSS baseline, setting the target, and the costing refer to the technical and costing manual from related line ministries.

14 DSF has formulated on how the steps in programming MSS into the planning and budgeting process. Started with the mapping the MSS indicator with the program and activities in the planning, steps are described and explained clearly for work unit or SKPD and Bappeda to integrate them as like the other non MSS program and activities. See the step of MSS programming in the planning process in the attachment.


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The case of MSS target setting and costing projection as basic service programming in the planning process, in the City of Yogyakarta.

The city of Yogyakarta fairly intensively in conducting reform in governance, as evidenced by numerous awards in public service was achieved within a period of five years. Spirit to become "better" attitude is reflected from its agents in the course of DSF support is fairly short. Is "small team" in the Planning and Program Bappeda city of Yogyakarta, the main partners DSF, which has conducted a number of steps to improve the quality of local planning to be more based on performance through the integration of a number of measurable indicators of development such as the MSS and the MDGs.

• The first step is to conduct Socialization Permendagri No. 54 In 2010, the latest regulations in the preparation of regional planning documents, to all SKPD with emphasis on the integration of SPM.

• The next step up the Circular Letter signed by the Secretary regarding the procedure for the preparation of the 2012 follow Renja SKPD based on Permendagri 54/2010 format.

• For the integration efforts of MSS, 'small team' prepare checklist every step of the activity of 12 (twelve) MSS as a tool for reviewing Renja SKPD

• Implement mentoring per SKPD to ensure that Renja SKPD have included indicators of SPM

Work of the "small team" is a prefix that is good for the reform in terms of format and substance of regional planning in the city of Yogyakarta. Some are born an encouraging output of the process, such as:

• Plan of action (POA) is a health center contains activities that measures indicators of activities to meet the MSS Health

• Renja Department of Industry, Trade, Cooperatives, and Agriculture has changed dramatically because it eliminates a number of activities that are considered "favorites" with activities that accommodate the MSS indicator of Food Security

• Inclusion of Government Regulation no. 65 of 2005 as one of the basic law of the preparation of Public Policy Budget (KUA) Yogyakarta and Temporary Budget Priorities and Ceiling(PPAS) of Fiscal Year 2012

MSS Story Line:15

Story Line of MSS linkage with the achievement of the MDGs, the case: Maternal and Child Health Minimum Service Standards is a reference for the government in the implementation of compulsory basic service of local affairs. Implementation of basic services with reference to MSS as well are expected to contribute positively in achieving development goals, such as those formulated as the Millennium Development Goals, or MDGs. Through a simple study examined linkages attainment of basic services in health, Maternal and Child Health is measured by indicators of MSS No. 1 to 11 with the MDG indicators, the maternal mortality rate (MMR) and infant mortality rate (IMR). From the results of logic chain is assumed that the performance indicators of MSS is a direct

15 MSS Story Line describes the story of basic services in a sector, the current condition, expectation from stakeholders, its relation with MSS and MDG, and program to be implemented for the next.


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outcome or benefit from programs of primary health efforts undertaken by the Department of Health and achievements of MMR and IMR is the impact or indirect benefit. The following figure illustrates the logic chain of results. Achievement MSS indicators of Mother and Child Health (KIA) showed a stable trend and up and down, but it still is above or meet the target MSS of AKI and AKB as an indicator in 2010 tended to increase, although still below the national target is still relatively good. In statistical data both indicators show that the performance of MSS is not always a positive contribution to the achievement of the MDGs indicators. Simply, this is possible due to the attribution gap, such as socio-cultural aspects inherent in the individual which is a factor beyond the control of health programs. Clearer information about this study can be seen in a separate report on Maternal Child Story Line of Yogyakarta.


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Chapter 4

Challenges on MSS Implementation in Indonesia

4.1. MSS technical and costing concept

Based on the DSF experience in the pilot area, the socialization of MSS technical and costing concept manuals to SKPD, it is still needed to deliver by the relevant ministries. DSF team can provide a general understanding of MSS, but the understanding and technical issues of MSS are still needed socialization and discussion from the related ministries.

4.2. MSS technical guidelines and costing manuals

Based on the results of the implementation of the MSS technical assistance in the pilot area, there are some notes on the indicators of MSS and Financing Guidelines issued by the Ministry related because there are gaps in its application, in the local governments. DSF has compiled a separate report on the review of content and format of some of MSS which have been published.

4.3. MSS socialization and basic services awareness in local governments

Several pilot local governments still have not demonstrated a strong commitment associated with the implementation of the MSS in the region, especially the compilation of basic data, budget allocation, and programming in planning documents. It needs directives and policies from the central government and provincial to make it more to be aware by local governments.

4.4. MSS baseline in local governments

Compilation of MSS basic data has not been fully implemented in some pilot areas; there is even reluctance in some areas to display the basic data, and prefer display performance percentage only than MSS baseline data.

4.5. MSS costing funding

Under an understanding that the MSS is a new concept and program in the local governments led to no or lack of funding allocations for MSS implementation. In practice, the MSS budget postscript is a function of basic services is still relatively small (<10%) compared to the total direct expenditure of SKPD and even total spending SKPD.

CHAPTER 4 CHALLENGES ON MSS IMPLEMENTATION IN INDONESIA

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4.6. MSS Information used as basic programming in the planning documents

The uneven application of Permendagri 54/2010, a not yet well-organized of good MSS data base, and an un-valid MSS costing process have made worsened the process of MSS information used as basic programming in the planning documents. Further cycle of elections in the region also affects the process of drafting or revision of Local Government Medium Term Plan (RPJMD) and Strategic Plan of SKPD in the pilot area.


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Chapter 5

Summary, Lesson Learned, and Recommendations

5.1. Summary of program activities

There are 2 main tasks of this program. First is supporting national government on MSS development and implementation, and the second is Supporting local government on MSS costing and implementation.

Supporting national government on MSS development and implementation

DSF has supporting national government, on MSS development and implementation since the first internal meeting, with DG of Local Autonomy team in January, until the last training and evaluation of MSS implementation in DIY, on September 2011. The outputs are varied in review and report analysis, software application, technical assistance to line ministries, MSS Tools and Mechanism, and many others as shown in Table 16 below.

Table 16: Supporting national government on MSS development and implementation Task and activity Output/product Status

Evaluate the status of MSS formulation and technical guidelines in all sectors

Report analysis Done in March 2011

Test the Costing of Environment MSS instrument, using local data in DIY and other pilot regions

Input for MSS Costing of Environment and MSS E-costing ver 1.2

March 2011 and April 2011

Assist Ministry of Environment, Public Works, and Communication and Information in producing an MSS costing manual for local government

Technical assistance of MSS costing manual preparation and revision for • Ministry of Environment • Ministry of Manpower

• Ministry of Public Works • Ministry of Communication and

Informatics

• Draft Final by July 2011 • Manpower Ministry Decree

number 4/2011 • Draft final by Sept 2011 • First draft by August 2011

Distribute and ‘socialize’ the manual on MSS costing for selected sectors

• Series of socialization and training of MSS costing

• Produce and distribute MSS Compilation Book

Delivered and distributed since January to September 2011

Monitor MSS implementation by developing and testing MSS Monitoring and Evaluation Tool

MSS Monitoring and Evaluation Tool (General and Technical)

July and September 2011 Tested in Banten on August for general monev, and in DIY for technical monev

Develop a strategy for rewarding district/city that have demonstrated consistent and exceptional results in MSS implementation

Final draft of a strategy for rewarding district/city that have demonstrated consistent and exceptional results in MSS implementation

July 2011 Still need to discuss with national counterpart

Examine the relationship between the implementation of MSS and the attainment

Report on the relationship between the implementation of MSS and the

Draft final on August 2011

CHAPTER 5 SUMMARY, LESSON LEARNED, AND RECOMMENDATIONS

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Task and activity Output/product Status of the MDGs attainment of the MDGs Developed the capacity of central and sub-national government personnel through training and exercises of the MSS concept and implementation issues

Series of training and exercises for central and sub national government personnel

Delivered since January to September 2011

Almost all DSF activities in the national government in the development of MSS are delivered and done, except the (1) strategy for rewarding district/city that have demonstrated consistent and exceptional results in MSS implementation and the (2) Report on the relationship between the implementation of MSS and the attainment of the MDGs are not discussed yet with the national counterpart. Those concepts were delivered to MoHA, and hoping that they will be discussed internally in national government as inputs and contributions for the development of MSS implementation in Indonesia further.

Supporting local government on MSS costing and implementation

The second activity is supporting local government on MSS costing and implementation, especially the pilot regions of the program. As a result of development of concept, tools, and mechanism of MSS in the national government, those products are used and tested in the pilot regions in implement the MSS, especially their selected MSS in this program. It explained in the table 17 about what are the concepts and tools used, when they are finalized, where and when it tested and implemented in pilot regions, and when the final status of those concepts and tools which available and can be replicate for other local governments.

Table 17: Supporting concepts and tools for MSS implementation in pilot regions

Concept and tools Final Drafting Try out in pilot regions Final Status Capacity Development Need Assessment

June 2011 July, August, and September 2011 in 6 pilot regions of 5 provinces

End of September 2011

Setting Target May 2011 July and August in 17 regions of 7 MSS June 2011

MSS E-costing instrument Version 1.1 to 1.5 since January to September 2011

All pilot regions for 8 MSS Version 1.5 in September 2011

Steps of MSS integration into planning

June 2011 Pilot regions in DIY, Banten, NTB End of September 2011

MSS Monitoring and evaluation Tool

June and August 2011 Province of Banten for general monev, and Province of DIY for MSS of Environment

August 2011

MSS correlation with MDG Goals

August 2011 Kabupaten Bantul and Kota Yogyakarta for Health


Draft strategy of MSS result’s incentive for capacity building

June 2011 None June 2011

MSS Website August 2011 MSS information and costing results of pilot regions



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Some of the concepts and tools are implemented in all pilot regions on selected sector of MSS limitedly, as like MSS e-costing instrument, MSS Capacity Development Need Assessment (CDNA), and setting target. The concept and tools, as like the Steps of MSS programming in the planning process; the MSS monitoring and evaluation; and the MSS correlation with MDG; are implemented in selected regions on selected sectors. The Draft strategy of MSS result incentive for capacity building is still not reviewed in the national level, so it is not delivered to pilot regions. MSS website has developed since August 2011, and started to use by the pilot and non pilot regions because it contains MSS e-costing application, technical discussion and assistance on MSS implementation, also has the newest MSS regulation that issued by MoHA and related line ministries. This website will take over by MoHA as the end of DSF MSS program by the end of 2011.

Status of MSS implementation in Pilot Regions

By End of September 2011, the status of the program as a result of the technical assistance and using concept and tools from DSF team in the pilot regions as in Table 18 below.

Table 18: MSS implementation Status in Pilot Regions by the end of September 2011

Pilot Regions MSS Socialization

Baseline of MSS

MSS Setting target MSS costing

MSS information as basic services programming in

Planning Document preparation

Province of DIY All of SKPD 6 of 6 MSS of Environment

MSS of Environment Renja SKPD: Environment, Social, and Manpower

City of Yogya All of SKPD 10 of 13 MSS of Health MSS of Health and Women Empowerment

Renja SKPD: Health

Kab. Sleman All of SKPD 4 of 13 MSS of Women Empowerment

MSS of Health and Women Empowerment


Kab. Kulonprogo All of SKPD 2 of 13 MSS of Health MSS of Health and Environment


Kab. Bantul All of SKPD 13 of 13 MSS of Health and Environment

MSS of Health and Environment

Renja SKPD: Health and Environment Renstra SKPD: Health and Environment

Kab. Gunung Kidul

All of SKPD 12 of 13 MSS of Health MSS Health and Women Empowerment

Renja SKPD: Health

Province of Banten

All of SKPD 4 of 6 MSS of Manpower and Environment

MSS of Environment and Manpower

Renja SKPD: Manpower and Environment Draft final of RKPD


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Pilot Regions MSS Socialization

Baseline of MSS

MSS Setting target MSS costing

MSS information as basic services programming in

Planning Document preparation

Draft final of RPJMD City of Tangerang

All of SKPD 3 of 13 MSS of Manpower and Health

MSS of Manpower and MSS of Health

Renja and Renstra SKPD: Manpower and Health Draft final RKPD

Kab. Tangerang All of SKPD 3 of 13 MSS of Health MSS of Manpower and MSS of Health

Renja SKPD: Manpower and Health Draft final RKPD

Province of NTB All of SKPD 3 of 6 MSS of Environment, Food Security, and Public Housing

MSS of Environment, Food Security, Public Housing

Renja SKPD: Food Security

City of Mataram All of SKPD 3 of 13 MSS of Education, Health, and Environment

MSS of Education, Health, and Environment

Renja SKPD: Education and Health Renstra SKPD: Education and Health Draft final RKPD Draft final RPJMD

Kab. Lombok Timur

5 SKPD 2 of 13 ---- MSS of Education, Health, Manpower, and Environment

Renja SKPD: Health

Province of Kalbar

All of SKPD 1 of 13 MSS of Environment

MSS of Environment Renja SKPD: Environment

City of Pontianak All of SKPD 5 of 13 MSS of Health MSS of Health and Environment

Renja and Renstra SKPD: Health

Kab. Sanggau All of SKPD 6 of 13 MSS of Manpower

MSS of Health, Education, Manpower, Environment, and Food Security

Renja SKPD: Food Security and Health

Province of Kepri

3 SKPD 2 of 6 MSS of Environment

MSS of Environment Renja SKPD: Environment

City of Tanjung Pinang

6 SKPD 2 of 13 MSS of Environment

MSS of Environment and Health


Kab. Bintan 6 SKPD 4 of 13 MSS of Health MSS of Health, Family Plan and welfare, and Environment


Under the DSF-MoHA program, the pilot regions have select their main MSS sectors to be assisted by DSF Team for the implementation. The process starting from the program and MSS socialization, including how the process for implement MSS. Then training and technical assistances delivered for MSS baseline management, MSS setting target, MSS Costing, MSS programming in the planning and budgeting document preparations, and MSS correlation with MDG Goals.

As shown in Table 18 above, the flow of MSS implementation started from MSS socialization, then MSS baseline data management, until the MSS programming in


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the planning document preparation. The MSS socialization is doing by pilot regions after the Road Show event that delivered by DSF. Pilot regions did the socialization to the work units. Most of them socialized the MSS information to all work units, except Kabupaten Lombok Timur, Province of Kepri, Kota Tanjung Pinang, and Kabupaten Bintan that only did it for the selected work units, especially which are related to the MSS program with DSF-Otda only.

MSS Baseline data management is also varied between pilot regions. As informed in chapter 3, only Province of DIY and Kabupaten Bantul which are manage all sectors of MSS in their jurisdictions, while other pilot regions are varied from 2 MSS sectors to 12.

MSS Setting Target is done especially for the selected MSS that agreed in this program, while MSS Costing is done for selected MSS sectors more than the number of MSS on Setting Target, because some of the MSS Costing are only not continued with the MSS Costing estimation.

MSS programming in the planning documents has done mostly in the Renja SKPD or work unit Annual Plan, and some pilot regions have done also for Renstra SKPD (Work Unit Strategic Plan) for Sleman, Bantul, and Mataram. Furthermore, some pilot regions has also programmed their MSS sectors in the Local Government Annual Planning (Banten, Tangerang City and Kabupaten, and City of Mataram). Kota Mataram and Province of Banten have also drafted MSS programming in their Medium Term Plan or RPJMD.

In overall, pilot regions have a method, mechanism, and experience on how to implement MSS fully as part of their basic service programs and indicators. They are a step ahead than other local government in Indonesia although there are still some revision and justification needed on policy, strategy, and operational issues for the better implementation of MSS completely.

Workshop, training, and other training in the National and Local Governments

By the end of September 2011, DSF team and National Counterparts has delivered workshops, trainings, and technical trainings for the National Agency and Local Governments pilot and non pilot since January 2011.

As shown in Table 19 below, the event consisting of MSS Socialization and Program Introduction, MSS Costing concept and application, Training of Trainer on MSS E-costing, MSS Database Management, MSS Target Setting, MSS correlation with MDG, MSS programming in the planning process, Mid Term Evaluation, Regional Closing, until the National Workshop. The whole events in total involving 3.464 participants from national government, local governments pilot, non pilot local governments, local NGO, and some donors representatives.


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If separated, there are 5 events for national government counterparts refer to the MSS development and implementation issues which including 146 participants. There are also 7 events of MSS delivered to non pilot regions which including 284 participants. The others are delivered for local government pilot both in the fields and Jakarta, including workshop of MSS issues for Local Council (DPRD) in the Province of DIY, Kota Yogyakarta, and Kabupaten Bantul within the program period.

The information of the workshop and training as shown in table 19, is excluding the event of technical assistances, which are delivered by DSF Regional Coordinators directly, in the local governments pilot.


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Table 19: Workshop, training, and other training in the National and Local Governments

Activity for MSS Implementation

Number of Events, Dates and Location

Ministries/Regions involved Institutions involved

Number of socialized/ trainned/ participants the events

1 workshop @ 1 day, Januari 2011, Jakarta

Ministry of Home AffairsDirectorate of Local Government Affairs I and II, D.G. of Regional Autonomy

30

5 workshops @ 2 days: Feb-‐March 2011, Yogyakarta, Mataram, Pontianak, Kepri, Tangerang

18 regions consist of : 5 Provinces (NTB, Banten, West Kalimantan, DIY, Riau Islands); 8 Districts (Lombok Timur, Tangerang, Sanggau, Sleman, Bantul, Kulon Progo, Gunung Kidul); 5 Municipalities (Mataram, Tangerang, Pontianak, Yogyakarta, Tanjung Pinang).

All Provincial and District/City Dinas related to MSS, DPRD, Province Bureau of Organization, Bappeda, Bureau Finance, Bureau Local Government,

329

15 workshops @ 1 day: March-‐July in 15 pilot regions1 workshop @ 1 day: April 2011, Serang

15 pilot regions, in all five pilot province, among others: 1 province (Banten); 4 Districts (Serang, Tangerang, Pandeglang, Lebak); 4 Municipalities (Tangerang, Tangerang Selatan, Cilegon, Serang) for MSS Costing Socialization of Manpower and Environment in collaboration with Ditjen Otda and Province of Banten

Bappeda Province and District/City, Organizational Bureau/Division, work units related with MSS implementation, Regional Environmental Office; Regional Manpower Office, Directorate of Local Government Affairs I

394

2 trainings @ 1 day, June in Bogor, July in Jakarta

Ministry of Home Affairs Badiklat of MoHA

Director UPD I, Head of Sub Directorate UPD I and II, and Head of Section and staff, DG. of Regional Autonomy, Directorate of Regional Finance, DG of Regional Finance; Directorate of Planning Facilitation, DG. of Regional Development

73

15 training and practices (1 and 2 days): March-‐July, in each province, district, city in provinces Banten, DIY, NTB, West Kalimantan, and Kepri

18 regions pilot regions: 5 provinces, 8 districts and 5 municipalities (as above)

Bappeda Province and District/City, Organizational Bureau/Division, Regional Environmental Office; Regional Manpower Office, Food Security, Education, Health, Women Empowerment, Public Housing, Directorate of Local Government Affairs I and II

434

1 training @ 2 days, June, Banda Aceh

5 districts of Nangroe Aceh Darussalam (Pidie Jaya, Bireun, Aceh Tengah, Aceh Tamiang, Aceh Barat Daya) in collaboration with AUSAID-‐Logica2

Health Local Offices (Dinas Kesehatan), DPRD, Bappeda

24

5 trainings @ 2 days, June-‐July, Denpasar, Pekan Baru, Badung, Wakatobi, Bulungan

15 regions consist of : 2 provinces (Bali and Riau); 13 Districts (Badung, Kep. Meranti, Kuansing, Lampar, Inderagiri Hulu, Inderagiri Hilir, Rokan Hulu, Rokan Hilir, Siak, Bengkalis, Pelawan, Wakatobi, Bulungan); and 2 Municipalities (Pekanbaru and Dumai); in collaboration with Ditjen Otda;

all 15 Regional Offices Bappeda, Work Units of Health, Environment, Public Housing, Women Empowerment, Manpower, and Food Security

210

2 training @ 1 day; June 1 in Jakarta

Ministry of Home Affairs Directorate of Local Government Affairs I and II, D.G. of Regional Autonomy

433 trainings @ 2 days: April-‐July in Sleman, Bantul, Kulonprogo, and Pontianak

4 regions pilot: 3 districts (Sleman, Bantul, Kulonprogo); 1 municipality (Pontianak)

Bappeda, Organization Unit of Secretariat, Work Units of Health, Environment, and MSS Technical Team 92

Database management

13 trainings @ 1 day; Jan-‐July in Banten, DIY, Kepri, and NTB

13 regions pilot: 3 Provinces (Banten, DIY, Kepri); 3 Municipalities (Tangerang, Yogya, Pontianak); 7 Districts (Tangerang, Sleman, Kulonprogo, Bantul, Gunung Kidul, Bintan)

Bappeda, Organization Unit of Secretariat, Work Units of Health, Environment, Manpower, Education, Women empowerment, Public Works, Agriculture, Social and others related

435

Target Setting9 trainings @ 1 day: May-‐August in region Banten, Kalbar, NTB

11 regions pilot: 3 provinces (Banten, NTB, and Kalbar); 5 districts (Gunung Kidul, Sleman, Kulonprogo, Lombok Timur, and Tangerang); 3 Municipality (Tangerang, Mataram, Pontianak)

Bappeda, Organization Unit of Secretariat, Work Units of Health, Environment, Manpower, Education, Women empowerment,, Agriculture, Social

274

MSS basic program for planning

10 trainings @ 1 day; April-‐August in Tangerang, Yogyakarta, Mataram, and Pontianak

12 regions pilot: 2 provinces (DIY and Banten); 6 districts (Tangerang, Sleman, Gunung Kidul, Kulonprogo, Bantul, Lombok Timur); 4 Municipality (Yogyakarta, Tangerang, Mataram, Pontianak)

Bappeda of Province and Kabupaten/Kota, Bureau/Division of Organization, Work unit of related to champion and selected MSS 355

Costing

ToT of E-‐costing

MSS Socialization and Project Concept

Explanation


62

Activity for MSS Implementation

Number of Events, Dates and Location

Ministries/Regions involved Institutions involved

Number of socialized/ trainned/ participants the events

MDG 3 trainings @ 1 day: April-‐July in Tangerang, Serang, Bantul, and Kulonprogo

5 regions pilot: 1 province (Banten); 1 district (Tangerang);3 Municipality (Tangerang, Bantul, and Kulonprogo)

Bappeda of Province and Kabupaten/Kota, Bureau/Division of Organization, Work unit of Health, Education, Manpower, Public Works, and KBKS)

84

Monitoring and evaluation

2 trainings @ 1day; August -‐September in Serang and Yogyakarta

7 region pilot: 2 provinces (Banten and DIY); 1 Municipality (Yogyakarta); 4 districts (Sleman, Bantul, Gunung Kidul, Kulonprogo)

Bureau Organization of Banten province, DIY province; Bappeda of DIY, Organization division of Yogyakarta, Work Unit of Environment from Yogyakarta, Sleman, Bantul, Gunung Kidul, and Kulonprogo

40

Local Council 3 trainings @ 1 day: April-‐July in Tangerang, Serang, Bantul, and Kulonprogo

Province of DIY, Kota Yogyakarta, and Kabupaten Kulonprogo

Member of local council (budget commission)

68

Mid term evaluation 1workshop @ 2 days, June 2011, Yogyakarya

Province of DIY, Kota Yogyakarta, Kab. Gunung Kidul, Sleman, bantul, Kulonprogo

Bappeda of province, Kota, and kabupaten; related work unit with MSS implementation 150

Regional Closing 5 workshops @ 1 day, October 2011, Tangerang, Tanjung Pinang, Pontianak, Mataram, Yogyakarta.

18 regions consist of : 5 Provinces (NTB, Banten, West Kalimantan, DIY, Riau Islands); 8 Districts (Lombok Timur, Tangerang, Sanggau, Sleman, Bantul, Kulon Progo, Gunung Kidul); 5 Municipalities (Mataram, Tangerang, Pontianak, Yogyakarta, Tanjung Pinang).

Health Local Office, Environment Local Office, BP2KB, BPMP, Social Local Office, Organization Bureau, Directorate of Local Government Affairs I and II (DG of Regional Autonomy -‐ MoHA), Disdukcapil, Regional Development Agency (Bappeda), Disnakertrans, Legal Bureau, Forestry Local Office, Regional Secretariat, Education Local office, Badan PP dan PA, Universities, Population and Administration Local Offices, Food Security Local Office, AIPD -‐ AusAID.

292

National Workshop 1 workshop @ 1 day: December in Jakarta

All stakeholders Organization Bureau -‐ (DIY, DKI, Kulon Progo,); Province Gov't -‐ DKI, World Bank, Kinerja -‐ USAID, AIPD -‐ AUSAID, DECGG -‐ GIZ, PGSP -‐ UNDP, Basics -‐ CIDA, Health Local Office-‐ Bintan, Tangerang, Pontianak, Manpower and Transmigration local officesRegional Development Agency (Bappeda) -‐ Districts/ Municipalities/Provinces (Gunung Kidul, DIY, Sanggau, Sleman, Kulon Progo, Mataram, Banten); Regional Secretariat -‐ Districts/Municipalities/Provinces (Bintan, Tanjung Pinang), Regional Environmental Office.Ministry of Health, Ministry of Enviroment, Directorate of Local Government Affairs I and II (DG of Regional Autonomy -‐ MoHA), DG of Public Affairs, Secretariat General of Ministry of Home Affairs, DG of Regional Finance, DG of Regional Development,BPKP, Ministry of Finance, Ministry of Transportation, Ministry of Manpower and Transmigration, Ministry of Information, Ministry of Forestry, Ministry of Public Works, Ministry of Social Affairs, KPPPA/Ministry for Women Empowerment and Child Protection

137

Total participants 3.464


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5.2. Lesson Learned

Within the MSS program implementation, both in National Government and Pilot Regions, there are some lesson that learned for a better MSS implementation in the future. Following the MSS process of implementation, the lesson learned are described as below;

1. The mind set of local government that MSS is a new program, and need additional funding to implement it. Actually MSS is only a measurement or indicator of basic services delivery which can be achieved gradually and most of them has already been implemented and reported formally by local government. Actually, there is no need special or additional funding for MSS, as basic services program must be first prioritize for funding and allocation. DSF team has explained about this important undersntading to all pilot regions. Unfortunately, due to time time limit defined by central government, and different status for current achievement of all MSS indicators varied, therefore Central Government should be able to ensure the achievement of MSS by local government according to time bound of MSS has to be attained national government.

2. MSS Baseline data as the most important thing for MSS implementation,

because it affects the next step of MSS implementation as like setting target, costing, and programming in the planning and budgeting process. Without a good, complete, and accurate MSS baseline data, the next process of MSS will become not fluent. To have a good MSS baseline data, regulation of MSS indicators must already have been done by local government, the know-how to get and formulate the MSS indicators, and formalize it as performance indicators of a work unit and national as general. DSF team has provided the MSS indicator Compilation Book to pilot regions, and together with Bappeda and Head of Work Unit socialize and assisted the MSS baseline data management to technical staff in manage their MSS baseline data.

3. In parallel with the MSS baseline data, the MSS target must be set based on the MSS baseline and need the estimation variable of each MSS indicator. The practice of the current setting target only on percentage increased from the previous performance without considering the potential object of what will receive or affect the basic services. DSF has delivered and trained the MSS Setting Target Tool, and it has used by pilot regions in setting their MSS target as medium term performance indicator of basic services and as based of MSS Costing Estimation, and for programming information in the planning and budgeting process.

4. MSS Costing has not yet implemented in the beginning of pilot regions, although


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the Manual of MSS Costing is already issued by some line ministries. The complicated method and mechanism if compared with the conventional costing method (preparation, implementation, reporting, and evaluation) made them not using the formal manual. The MSS e-costing instrument, which is developed by DSF that refer to the MSS Costing manual, is simplified the input of database of MSS and provided “menu” on how it can entry and process the MSS costing data and information. It also creates reporting needed for local government. The MSS Costing process is run by all pilot regions of their selected MSS sectors. The results are vary as reporting in chapter 3, but now they are doing the MSS Costing base on the MSS Costing manual from line ministries, which is simplified in the MSS e-costing instrument. Some step and still needed as shown in the Chart 4, in chapter 3.

5. To programming MSS as basic services in the planning and budgeting process formally, local government need to implement their planning process under the Kepmendagri 54/2010 first, which accomodate the MSS as one of the indicators for local government performance and target. It hards to insert MSS indicator in the local government planning document if they aren’t implemented that Kepmendagri. From all 18 pilot regions, only 3 of them has implemented their planning process under Kepmendagri 54/2010. They are Kota Mataram, Kabupaten Tangerang, and Province of Banten and DIY. DSF has facilitate pilot regions to know the mechanism of Kepmendagri 54/2010 on planning which is accommodating MSS as one of the performance indicators. DSF also has create steps, on how MSS can be integrated or can be programming as basic services program and activities, in the planning and budgeting process.

6. Commitment of the MSS implementation is the important thing, especially from the local leader and stakeholders. The commitment is vary on each pilot regions. There was a good response at the socialization and program introduction which is continued for the whole program implementation. There was also good response in the beginning, but then no action in the implementation. There was also no good response in the beginning, but then with the good communication and facilitation from DSF, they show their commitment to the middle and the end of the program. Whatever the commitment from pilot regions, DSF team still continue and cooperate to run the program with appropriate approach maximally. The effect of commitment can be seen at the Result of the Program both in National Level and Pilot Regions.

5.3. Recommendations Based on the program implementation, results, challenges, and lesson learned of the MSS implementation both in National and sub-national Government pilots,


65

the recommendations are:

1. On the Regional Closing Program, pilot regions has prepared their strategies and work plans of MSS implementation in the absence of DSF Team for year 2012 and ahead. Technical assistant, supervision, and monitoring is needed from each provincial for Kota and Kabupaten related, and from Ministry of Home Affairs and Line Ministries for pilot provinces.

2. Concepts, tools, and mechanism that created in the program, need to be optimized after tested in the pilot regions. MoHA suggested to continue the development and application of those concepts, tools, and mechanisms for MSS implementation.

3. MSS e-costing instrument has developed by DSF based on the general concept of MSS Costing Manual from Ministry of Health and other ministries. The application has applied in the pilot regions, in some other provinces and districts, in Indonesia as exercises. The application will transfer to MoHA for further development.

4. DSF has developed a MSS Website that contains of MSS regulations of line ministries, software of MSS e-costing application and templates of some MSS sectors, samples and results of MSS costing of pilot regions, and other issues in discussion of MSS implementation, and good practices of MSS implementation. This website also will transfer to MOHA to be integrated and manage in the MoHA website, especially which related with the Local Autonomy issue.

5. It considered having a MSS implementation in one province, one Kota, and one Kabupaten completely as a good sample for other local government and laboratory for the MSS development.

6. Capacity Building program is suggest to do for further better MSS implementation in the Central Government, Local Government, and Private Institution or Consultant.

7. Capacity Building and Institutionalization of Planning Financing MSS 7.1. The Central Government

a. Clarity of roles and responsibilities of facilitation financial planning issues, monitoring and evaluation mechanisms, and incentive mechanism between relevant government agencies

b. More than 6 technical ministries need to develop financial planning manual MSS (technical manual) for the region and SKPD, while the six ministries that have been arranged MSS are still to review and evaluate the effectiveness of their financial planning manual based on the implementation in some areas.

c. It is necessary monitoring and thorough evaluation of the implementation and achievement of MSS and well-coordinated inter Ministry of Home


66

Affairs, include Bappenas, Ministry of Finance and Line Ministries as well as Provincial and District themselves.

d. Ensuring central government to support sub national government in attainment of MSS as central government defined the time limit, especially for those regions with lack of capacity in financial, personnel, support infrastructure. Incentive should be considered to meet the gap.

e. Discuss among MoHA, MoHA and Bappenas type of incentives appropriate for the most needed sub national government and provide rewards for those regions attained the MSS consistently and continuesly as appreciation and apply sanctions for regions do not achieved MSS purposely.

f. Optimalize the development partner supported regions to pay attention to the implementation of MSS.

7.2. Sub National Government a. SKPD and local governments should improve and update their data

management systems, especially in basic services (MSS) b. SKPD requires technical assistance in the process of calculation of its

MSS financing c. The provincial government encourages to provide incentives for

achievement of MSS in the District and the Municipality. d. Local governments and SKPD is necessary to implement the system of

rewards and sanctions on financing calculation results of the implementation of MSS.

7.3. Technical Assistant /Cosultant support for the MSS Implementation a. Consultant of development partners working in the regions on improving

public services, planning and budgeting should pay attention to the implementation of MSS

b. Sources involved in the process of implementation of MSS in the region should have a comprehensive knowledge and experience about NSPK, Mandatory affairs, Basic Services, and indicators of MSS, knowledge of local finance, MSS Financing Planning, and Regional Planning.

c. It need consultant to facilitate the implementation of MSS e-costing, MSS implementation and monitoring and evaluation results


67