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HABITATINTL.

Vol.

12, No. 3, pp. 65-90.1988

Printed in Great Britain.

0197-3975188 3.00 + 0.00

Pergamon Press plc

Urban Transport and Manpower

Development and Training Needs of

Four Asian Cities: A Case Study of

Bandung, Medan, Semarang ahd

Surabaya, Indonesia*

HARRY T. DIMITRIOUt

Centre for Urban Studies and Urban Planning University of Hong Kong

and Principal Consultant to Training and Development Consultants TDC S.A.

Lausanne Switzerland

SUMMARY

Mounting international evidence suggests that an important determinant of the

success of large scale urban development projects is the effectiveness of the

institutional framework and capacity of government (and its agencies at all

levels) to implement project proposals. In this regard, the limited professional

and management expertise in transport identified by the Manpower Develop-

ment and Training Study of the First Regional Cities Urban Transport Project in

Indonesia proved critical. The identified staff shortages (particularly among the

city authorities) were so acute, as to be in the author’s view almost as important

as the Project’s engineering and financial findings.

INTRODUCTION

Urbanisation trends

Indonesia is the fifth most populous nation in the world, with a current

population in the region of 165 million. Estimates indicate that approximately 33

million, or approximately 22% of the country’s total population live in urban

areas. By the year 2000 the urban population will rise to 72 million or 34% of the

national projected population of 214 million.

Almost half (48%) of the urban population resides in the 9 urban areas with

near/over 500,000 persons in size (see Table 1). These cities are growing at a

somewhat faster rate (4.1% annually 1971-1981) than the remaining smaller

settlements (3.5% annually) which are anticipated to absorb the majority of the

urban population growth over the next two decades.

*While the proposals outlined here are not those ultimately adopted in the implementation of the Project.

they constitute the basis upon which implementation has gone ahead. The author wishes to acknowledge the

permission given by the Directorate General of Highways (Bina Marga). Ministry of Public Works.

Government of Indonesia for the use of material quoted in this paper.

tThis study was undertaken when the author was a consultant on sub-contract to INDEC Associates of

Indonesia and Rennie Park and Associates GmbH, Switzerland.

*Address for correspondence: Centre of Urban Studies and Urban Planning, University of Hong Kong.

Pokfulam Road, Hong Kong.



Urban Tr ansport and M anpower Development

67

construction and maintenance of the national road network, as well as setting

national guidelines for urban infrastructure needs; while the Ministry of

Communications is responsible for planning all other transport modes and for

the regulation and control of all land-based transport, including public transport.

Responding to growing problems of urban movement, both the Directorate of

Highways in the Ministry of Public Works and the Directorate of Land Transport

of the Ministry of Communications, have set up urban directorates.

Other national agencies significantly involved in urban transport are the

National Police Force of the Ministry of Defence (for traffic enforcement), the

Ministry of Finance and Home Affairs (for the administration of grants and

other funding assistance to local governments) and the National Planning

Agency - BAPPENAS (for planning and programming aspects of national

agency investments in urban transport).

At the local level (see Fig. l), whilst there are minor variations in the

institutional framework for urban transport, the Municipal Public Works

Department [DPU(K)] is the city agency responsible for the design, construction

and maintenance of secondary and local urban road networks. The local Traffic

Police branch of the national police force is responsible for on-road traffic

control and regulation, while the provincial arm of the Ministry of Com-

munications Directorate of Land Transport (LLAJR) is responsible for the

operation and maintenance of traffic signals, public transport operations and off

road vehicle inspection. The Municipal City Planning Department (DTK) is

responsible for urban road planning, and the Municipal Development Planning

Agency (BAPPEDA II) is responsible for sectoral city investment programmes.

In some cities, a City Parking Unit exists in the form of a corporation, handling

all parking operations.

BACKGROUND TO PROJECT STUDY

Project history

The First Regional Cities Urban Transport Project in Indonesia developed

from

discussions held with government agencies as part of World Bank Mission

visits

- 1nstruct10n

-

Momtor and co-ordmatlon

.......... Guldance/adwce

--- - Report /liaison

KAPOLDA KANWIdDLLAJR KANWILI DPUP

Mayor

I I

L____,.. -_-__

Fig. 1. Provi ncial and cit y agency parti cipati on in Regional Cit ies Urban Transport Project.

(Source: I ND EC Associat es-Renni e Park GmbH . 1986a.J



68

Harry T Dimitriou

during 1981-1983. These missions assisted in identifying and preparing a

proposed urban transport project for Jakarta but were later expanded into

examining ways and means by which the fundamental urban transport

infrastructure problems of other major cities could be resolved. The discussions

initially centred around major urban road investments but were later broadened

to include a wider range of institutional and training considerations.

The Regional Cities Urban Transport Project in the first instance, was limited

to the four largest cities in the nation outside Jakarta - i.e. Bandung, Medan,

Semarang, and Surabaya, with subsequent studies to follow. The project cities

have an aggregate population of over 6 million, which is about 20% of the total

urban population of the nation.

Three of the cities are located in Java (the most densely populated of the

Indonesia islands) and the fourth, Medan in Sumatra (see Fig. 2). Bandung (1.5

million) is the capital of West Java and a major centre for higher education and

industry. Medan (1.4 million) is the capital of North Sumatra and an important

port and centre for oil and gas exploration. Semarang (1.03 million) is the capital

of Central Java and an important harbour. Surabaya (2.1 million) is the capital of

East Java and is a major national port.

Project objectives and components

The principal stated objectives of the First Regional Cities Urban Transport

Project include (IBRD, 1986):

(a) the implementation of a high priority programme of measures aimed at

improving traffic and transport infrastructure conditions in the project cities;

(b) the development of city professional and technical capabilities in the

planning, design, implementation, and maintenance of transport facilities

and services;

(c) the development of central government agency skills in: (i) providing tech-

nical assistance to cities in planning, designing, implementing, and operating

and maintaining their urban transport facilities and services, (ii) developing

national policy guidelines and technical standards for urban transport, and

(iii) preparing and appraising future urban transport projects; and

(d) the establishment of a process of co-ordinating the planning and program-

ming of central and local government agency investments in urban transport

infrastructure and services, so as to develop rolling multi-year compre-

hensive urban transport investment programmes in the nation’s principal

cities.

To date, urban transport problems in Indonesia have been addressed principally

by direct central government planning and investments with minimal city

involvement. The cities have not up until now, been encouraged to assume more

responsibility in the planning, financing and implementation of their own urban

transport facilities and services, on account of their known limited manpower

and financial resources.

The First Regional Cities Project, which is the first World Bank financed

urban transport project in Indonesia, seeks to alter the current situation by

substantially enhancing city capabilities and responsibilities; an approach which

is consistent with central government’s current objective of devolving more

development responsibilities to local governmental entities.

The Project scale (dramatically reduced from its initially discussed size of

US 220 million, to in the region of US SO million) is to address affordable

priority areas of the current backlog of road infrastructure, traffic engineering,

road maintenance needs, as well as related institutional strengthening require-

ments of urban transport. The Project is to be implemented over a 6 year

duration, with the training programme proposed for an initial period of 2 years.



Urban Transport and M anpower Development

69

6

I



70

physical components;

Harry T. Dimi t r iou

MANPOWER DEVELOPMENT AND TRAINING STUDY FINDINGS

Study method of approach

Given the broad scope of the Project and its complex institutional and technical

composition, the first task of the Manpower Development and Training Study

Team was to comprehend the Project and differentiate amongst its various parts

so as to ensure that the training proposals recommended were reflective of the

Project’s component activities.

In so doing, six major areas of manpower development and training concern

were noted (see Fig. 3):

(a) specific Project-related training for the implementation of the Project’s

FinoncvA management and control servicing

urban tronrport sub-sector

Urban tronsport sub-sector

Sub-sector institutional support

J

L

r

:

f I 1 Specific project related tmining for the implementation

of the project’s physical components

(2 ) Specrfrc project-related training fcr the rmplementation

of the project’sncn-physical compcnents

( 3 1 Specific project-related trolnlng n financial management

ond control servicmg he urbon transport sub-sector

( 4 ) General project-related tmining asprepomtion for

subsequent phases of the project and similar projects

-

(

5

)

General project-related training, providing urban

transport sub-sector institutional supportor the

project

-

(

6

)

Geneml institution-burlding training for the urban

transport sub-sector as a whole

Note : Shaded areas represent project-related manpower development and training areas

Fig. 3. Scope of study method of approach. Source: I ND EC Associat es - Rennie Park GmbH ,

1986a.




7

(b) specific Project-related training for the implementation of the Project’s non-

physical components;

(c) specific Project-related training in financial management and control

servicing the urban transport sub-sector;

(d) general Project-related training as preparation for subsequent phases of the

Project and similar projects;

(e) general Project-related training providing the urban transport sub-sector

with institutional support for the Project, and

(f) general institution-building training for the urban transport sub-sector as a

whole.

The overall method of approach employed (see Fig. 4) examined three aspects,

namely:

(a) the current need for city agency manpower development and training in

urban transport, and a projection of these requirements as perceived by the

agencies involved;

(b) the identification, design and formulation of Project-related manpower

development and training programme needs; and

(c) the shortfall between the training required by the Project and those training

opportunities available at existing public sector training centres in

Indonesia.

Owing to the substantial backlog of identified sub-sector training requirements

and the limited resources at hand with which to respond - the study ultimately

addressed the needs of (a) and (b) above, alone.

Cit y agency manpow er resource analysi s

An important finding of this part of the investigation was that the quantitative

and qualitative levels of agency staff shortages in transport of the cities under

study were in many instances found to be so great as to be believed to pose

considerable adverse impacts on the implementation of the RCUT Project if left

unattended.

The above conclusion was derived from an analysis (see Figs 5-7) of:

(a) measurable city development characteristics against current city agency

manpower inventories (see Table 2);

(b) existing city agency personnel grade/rank, formal education, age and

working experience details,

against current Government of Indonesia

employment conditions and agency formation regulations;

(c) both (a) and (b) above, to arrive at a final assessment of present city agency

manpower requirements for both specific personnel categories and totals,

and

(d) current individual city agency division responsibilities and manpower

resources in the field of urban transport, with an assessment of training

received by agency personnel over the last 5 years.

The findings of the above (see Table 3) indicated that:

(a) to enable BAPPEDA II senior and middle management levels in the four

cities to more effectively participate in the Project, selected personnel

required technical reorientation training in the field of urban transport;

(b) the DPU(K) gencies in the cities under study have substantial and critical

shortages of technician staff at a scale .that warrants an immediate tailor-

made training response;

(c) DT(K) agencies in these same settlements have a similar shortage of

technician staff and would therefore benefit from being included in the

DPU(K) technician training programme;

(d) selected, senior and middle management DT(K) staff would also greatly



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78

Harry T Dimitriou

benefit from technical re-orientation training in the urban transport field (of

the kind recommended for BAPPEDA II personnel); and

(e) Parking Unit operational staff of the cities under study are in particular need

of a supervised programme of “on-the-job” training.

Public training centre resource analysis

A review of selected public sector training centre resources in Java and Sumatra

revealed that:

(a) experience in aspects of urban transport training is very limited, with the

exception of long courses conducted by the Institute Technology Bandung

and the Institute Technology Surabaya, as well as the Ministry of

Communications Road Traffic and Transportation College;

(b) classroom and residential accommodation of most training centres is

adequate, particularly in the case of those operated by the Ministry of Public

Works, if one takes into account the extensive building programmes

currently underway in some such centres;

(c) full-time trainer resources to be non-existent in all but a few training centres

(excluding the universities), with part-time trainers specialised in aspects of

urban transport being scarce;

(d) more use needs to be made of experienced academic and government staff

on a part-time basis for Project-related training;

(e) a “training the trainers programme” for urban transport is urgently required;

(f) the type of laboratory and workshop training facilities required in urban

transport is in short supply;

(g) there is a widespread need for computerised hardware and software for the

management, operations and control of public-sector training, and

(h) Bandung is the only city of the four under study that has a Municipal

Training Centre.

PROPOSED PROJECT RELATED TRAINING PROGRAMME

Objectives

of

proposed t raining

The objectives of the training which emerged from the analysis of city agency

manpower resources and Project training needs included:

(a) to familiarise senior and middle management personnel with the concepts,

terminologies, techniques and issues of the Project;

(b) to provide an inter-agency and multi-disciplinary appreciation of the

management and technical tasks of the Project;

(c) to help further enhance and strengthen the city authorities’ financial-

management and technical capabilities, to evaluate and undertake the

various activities involved in the Project; and

(d) to furnish involved agencies and personnel with full supporting docu-

mentation of the training provided, so that it may be of value to subsequent

training efforts during operational aspects of Project implementation.

Phasi ng of proposed t rai ni ng

To achieve the above objectives (and simultaneously remain compatible with the

objectives of the Project) the training is proposed in two phases (see Fig. 6):

(a) Phase one: Project Launch Training - offered during Project Preparation;

and

(b) Phase two: Project Implementation Training - to be conducted during the

execution of the Project.



Urban Tr ansport and M anpower Development

79

t

Phase I Project launch tralnlng

:: Phase 2. Project Imp@mentatlon m1nn-q

-+

V

V

-

9 months 3 months

5 years

Project launch workshops ~

- ond courses and tralmng

Preparottc8-7 Project Implementation

V -- for project -)- tralntng

*

W

materlal preporotlon

Implement&on

tralnlng

I

I

I

I

Fig. 6. Schedul e of proj ect-r elat ed tr ain ing input s: proj ect l aunch tr ain ing and proj ect

impl ementat io n tr ain ing. Source: IN DEC Associat es - Rennie Park GmbH , 1986a.

Table 4. Characteristics of project launch t raini ng

Agencies to be

trained

Location of proposed aaency/trainme

Jakarta Bandung Medan Se g

Number of

Surabaya

Yoyakarta Overseas Jakarta Bandung

Technical committee J -

to PMU

Local steering

committees (LSC)

J V’

City project

co-ordinating offices

(CPCO)

J J

City agencies

- BAPPEDA

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- Parking unit

- Keuangan

- Traffic police

City agencies

(Financial mgt

course)

- BAPPEDA II

- DPU (K)

- Keuangan

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(Project mgt

course II)

- BAPPEDA II

- DPU (K)

-

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8

Harry T Dimitriou

Each phase is intended to address different priority audiences and emphasise

various aspects of the Project (see Table 4). The two phases require different

levels of teaching resources and equipment, and employ different time-scales to

achieve their objectives.

Project Launch Training is intended to lay the foundations for the much longer

and more comprehensive second phase training. It is also the period during

which the basis for a Management Information System (MIS) is to be set up, with

a view to later monitoring and evaluating the performance of training efforts.

ourse design principles

The principles employed in the identification and design of the proposed training

included:

Training areas

Concepts

Agency personnel

Level of traming

and

Medan Semarang Surahaya Senior mgt Mlddle mgt

Junior mgt Techmcian terminology Issues Techniques

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(4

(b)

Urban Transport and l~anpo~,er Development 81

that the most effective Project-related manpower development and training

programme is one which shares the same objectives as the Project it is

intended to serve, and reflects its constituent component parts;

that to ensure the training offered by a Project-related training programme

is most relevant, selected key Project staff should participate in the related

training programme curriculum development, as well as in the monitoring

and evaluation of Project-related training efforts.

Taking into account the above principles, the recommended training is to

employ frameworks which reflect the main areas and activities of the Project.

These are designed in a manner whereby, they accommodate both tailor-made

and standard teaching vehicles to meet different agency training needs. The

frameworks are based on variations of a common matrix for different agency

mixes - with details of the Project audiences and technical areas of training

concern on the vertical axis, and the proposed training vehicles on the horizontal

axis (see Fig. 7).

Training vehicles and techniques

It is anticipated that numerous teaching vehicles will be employed, all of which

may be categorised under one of two types, namely:

(4

04

“off-the-job” training -

i.e.

efforts conducted away from an on-going work

situation, usually requiring specialist training staff offering instruction in

classroom/conference room situations; and

“on-the-job” training - i.e. efforts undertaken in a work situation and

environment whilst executing a job, with the instruction commonly provided

by more senior personnel or expatriate specialist staff, who have longer

experience of particular tasks.

The first of the above may in turn be sub-divided among those which are

conducted:

(a) by the proposed Project Management Unit (PMU) Training Advisory

Team, with contributions from technical assistance personnel;

(b) jointly by the proposed PMU Training Advisory Team, in association with

resources from an Indonesian public sector training institute or agency;

212. Fm-lcdlc/~lar /

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Fig. 7. UTP proj ect-r elat ed t rai ni ng framew ork . Source: INDEC Associat es - Renni e Park

GmbH, I986a.



82

Harry T. Dimi t r iou

(c) by an Indonesian public sector training institute or agency alone, and

(d) by an overseas training institute or agency.

“Off-the-job” training vehicles proposed for the Project include:

(a) Dissemination Workshops - such activities are intended to disseminate

critical concepts, terms, issues and techniques employed by the Project to

key participants involved in its development and work. These events need to

be highly structured and to take place over a period of one to three days,

either as one-off events or as part of a regular programme of Workshops.

(b) Training Courses - these are formal efforts at technology-transfer for staff

engaged in the Project and are of three kinds, namely:

- periodic/ad

hoc

training courses,

- periodic/regular training courses, and

-

continuous/regular training courses.

Such activities rely upon a pre-designed curriculum for a given instruction

period, focusing upon specific activities.

The “on-the-job” training vehicles proposed require the participation of the

Project Management Unit and City Project Office Staff (based upon an input of

15% of the overall Project technical consultancy assistance in man-months).

“On-the-job” training vehicles proposed include:

(a) On-Site Training - this entails the technology-transfer (usually of tech-

niques) of how to implement job tasks while they are being performed. Such

instruction is commonly (although not exclusively), provided on the site of a

construction project. The venue for this kind of training is dependent upon

where project implementation takes place, or where similar projects which

can provide relevant training experiences are located. On-site training may

be offered on a periodic

ad-hoc

basis or as a regular activity, and is best

provided to small groups; and

(b) Off-Site Training - this involves similar principles and trainer/trainee ratios

of instruction as in the case of on-site training. However, rather than be

located on a construction site or in the field, it takes place in a project office.

Off-site training can be of an

ad-hoc

periodic kind, or be offered on a

regular, periodic basis.

Organisati on and assi gnment of t rai ni ng

During the identification of the proposed areas for training, it was felt important

to differentiate between sector institution-building requirements (largely be-

lieved to be beyond the resources available for the Project), and the specific

training needs of the Project itself.

The assignment of the proposed Project-related training to various agencies

was based upon a thorough examination of various institutional agency

responsibilities. The proposals which emerged are categorised in accordance

with the audiences they are designed to serve, namely:

(a) Special Agency Training -

i .e.

for agencies specifically set up for the

Project.

(b) Inter-Agency Training -

i .e.

for agencies of central, regional, and

municipal governments involved in the Project or concerned with the urban

transport sub-sector of the cities under study; and

(c) City-Agency Training -

i .e.

for all municipal agencies involved in the

Project in the cities under study.

Phase 1 of Project-related training is to be primarily directed to the first of these

audiences, on the presumption that once the senior and middle personnel

involved in the pioneering work of the Project come to share a common

understanding of the Project’s concepts, terms and techniques, they are better



Urban Transport and M anpower Development 83

placed to provide the direction to the remaining Project Staff. Phase 2 of the

training is aimed at a larger training audience involved in the Project.

The following time budgets were recommended for the various training

activities:

(a) l-3 days for workshops;

(b) 2 weeks per short course module

(c) maximum of 3 modules per short course (i.e. a maximum short course

duration of 6 weeks)

(d) between 2 and 9 months for short courses in Indonesian Public Sector

Training Centres, and

(e) between 9 and 24 months for long term education/training courses, both in

Indonesia and overseas.

Ar eas of proposed t rai ni ng

The technical areas of concern of the proposed Project-related training,

(orientated toward two levels of public officials - senior and middle manage-

ment staff, and junior management and/or technician staff), cover:

(a) Comprehensive Urban Transport Planning, Management and Design which

includes: urban transport policy and planning, highway infrastructure policy

and planning, urban transport programming and management, parking

policy and management, highway programming and management, highway

and traffic engineering design, and use of computers in above;

(b) Urban Transport Pre-Project Implementation, which includes: urban

transport project appraisal, highway infrastructure appraisal, urban traffic

management and control, land acquisition, equipment procurement, and use

of computers in above;

(c) Urban Transport Project Implementation, which includes: highway infra-

structure periodic and routine maintenance, highway construction super-

vision, highway infrastructure construction and supervision, highway infra-

structure project management operations and control, traffic enforcement

and control, project financial management and control, and use of

computers in above.

The features of the above training are summarised in Tables 5-10.

INSTITUTIONAL AND MANAGEMENT CONTEXT OF PROPOSED TRAINING

The responsibilities of the proposed Training Advisory Team within the Project

Management Unit are to include: (a) the preparation of training curriculum and

materials; (b) conducting training programmes; (c) overseeing of training

activities; and (d) monitoring of training efforts; of those Project-realted training

activities for which the Unit will be either soley responsible or jointly responsible

with public sector training centres.

The latter activities are to be executed with a view to building up (and then

leaving behind) a capacity to run numerous later courses in urban transport. It is

envisaged that the Training Advisory Team will report (through the Project

Management Unit and the Project Training Committee) to the Ministry of

Finance’s Institute for Urban Policy Analysis (IUPA) Working Group on

Training. In so doing, it is hoped to initiate steps towards the integration (where

possible) of Project training efforts with others in the urban sector.

The focus of much of the local Regional Cities Urban Transport Project

training is proposed ultimately to be channelled through newly established

Municipal Training Centres, commencing with the appointment of City Training



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90

Harry T Dimitriou

Liaison Officers who are expected to operate within a wider framework of

integrated urban infrastructure development training (IUIDP),2 (see Fig. 8).

Finally, the establishment of a management information system (MIS) is

advocated, with the purpose of monitoring the performance of the overall

Project Manpower Development and Training Programme, and its individual

activities. It is recommended that data banks should be particularly set up to

provide better access to information concerning: (a) manpower resource details

of city agencies in the urban transport sub-sector; (b) public centre resources for

training in urban transport, and (c) training materials and curricula in aspects (a)

of urban transport concern.

REFERENCES

IBRD, Regional Cities Urban Transport Project, “Aide Memoire”,

Findings of World Bank Mission,

Washington DC, 1986.

INDEC & Associates-Rennie Park GmbH, “Recommended Programme for Project-Related Manpower

Development and Training”, Final Report of Preparation Study for the Regional Cities Urban Transportation

Project, Jakarta, 1986a.

INDEC & Associates-Rennie Park GmbH, “Institutional Diagnostic Analysis”, Final Report of Preparation

Study for the Regional Cities Urban Transport Project, Jakarta, 1986b.

Training and Development Consultants (TDC) S.A. and INDEC & Associates, “Pilot Study of Policy and

Design Guidelines for Urban Road Transport in IUIDP”, Working Paper No. 2, Phase One Report, Annex 1,

Directorate Generals of Cipta Karya and Bina Marga, Ministry of Public Works, Government of Indonesia and

UNDPIUNCHS.

‘The Integrated Urban Infrastructure Development Programme (IUIDP) represents an approach to urban

development chosen by the Government of Indonesia which seeks to respond to the critical problems of urban

expansion in a context of limited public sector resources by: making optimum use of existing resources; co-

ordinating and integrating potential development resources; achieving affective integration of urban

development programmes; and taking measures to increase locally generated revenues to recover costs (TDC

comparison of transportation

Documents