Capacity Developement of Minimum Service Standards (MSS) Costing and Implementation

Transcription

1 Public Disclosure Authorized Public Disclosure Authorized Public Disclosure Authorized Public Disclosure Authorized Capacity Developement of Minimum Service Standards (MSS) Costing and Implementation Draft Final Report November 2011

2 FINAL REPORT ii

3 CAPACITY DEVELOPMENT OF MIMINUM SERVICE STANDARDS (MSS) COSTING AND IMPLEMENTATION Table of Content Chapter 1: Introduction Background The program Duration of the Program Expected Results... 2 Chapter 2: MSS Concepts and Policies in Indonesia Basic policy of MSS MSS Regulations of Line Ministries... 4 Chapter 3: Capacity Development of MSS Costing and Implementation Supporting national government on MSS development and implementation Evaluation the status of MSS formula and technical guidelines in all sectors Costing of MSS: Instrument testing using local data Produce an MSS costing manual for local governments Distribute and socialize the manual on MSS costing for selected sectors Monitor MSS implementation Develop a strategy for rewarding kabupaten/kota that has demonstrated consistent and exceptional results in MSS implementation Examination of the relationship between the implementation of MSS and the attainment of the MDGs Develop the capacity of the central and sub-national government personnel Supporting local government on MSS costing and implementation Self Assessment of MSS implementation and achievement in selected sectors by a sample of local governments Costing (the new) MSS Setting MSS targets and budgets i

4 FINAL REPORT MSS Targets and Costing as basic information of programming in Planning and Budgeting Documents Chapter 4: Challenges on MSS Implementation in Indonesia MSS technical and costing concept MSS technical guidelines and costing manuals MSS socialization and basic services awareness in local governments MSS baseline in local governments MSS costing funding MSS Information used as basic programming in the planning documents Chapter 5: Summary, Lesson Learned, and Recommendations Summary of program activities Lesson learned 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 Table 5: MSS Costing Socialization and Exercises Table 6: The relationship between the implementation of MSS and the attainment of the MDGs Table 7: MSS of Environmental Baseline Data of 2010 and target of 2011 Kabupaten Bantul Table 8: MSS Self Assessment Study in 6 regions Table 9 :MSS Baseline Data in Pilot Regions Table 10: Status of MSS Costing in Pilot Regions Table 11: MSS Costing of Health in Pilot Regions Table 12 : MSS Health costing per indicator per capita/object services in Pilot Regions ii

5 CAPACITY DEVELOPMENT OF MIMINUM SERVICE STANDARDS (MSS) COSTING AND IMPLEMENTATION Table 13: Status of MSS setting target in pilot regions Table 14: Setting Target of Education MSS of City of Mataram Table 15: Status of MSS information as Basic programming in Planning Document in Pilot Regions Table 16: Supporting national government on MSS development and implementation 55 Table 17: Supporting concepts and tools for MSS implementation in pilot regions Table 18: MSS implementation Status in Pilot Regions by the end of September Table 19: Workshop, training, and other training in the National and Local Governments iii

6 FINAL REPORT 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 The MSS implementation program of MoHA is supported and in collaboration with DSF for 4 main objectives 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. 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. iv

7 CAPACITY DEVELOPMENT OF MIMINUM SERVICE STANDARDS (MSS) COSTING AND IMPLEMENTATION 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 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 There are 5 events for national government agencies and 7 events delivered for non pilot regions beside many events delivered for pilot regions 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 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 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. v

8 FINAL REPORT Supporting local government on MSS costing and implementation All MSS concepts that developed in national level, are tested and implemented in pilot regions The MSS concepts and tools are implemented vary in pilot regions depend on their capacity and readiness 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. 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 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 vi

9 CAPACITY DEVELOPMENT OF MIMINUM SERVICE STANDARDS (MSS) COSTING AND IMPLEMENTATION MSS socialization conducted by DSF, MoHA and selected Line Ministries is followed by pilot regions for their other technical units and staffs 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 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 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. 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. vii

10 FINAL REPORT 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 socioeconomy 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 viii

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

12 FINAL REPORT planning and budgeting process. Commitment from leader of governments (province and districts) to implement MSS is the main reason for the succeed of the MSS implementation 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 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. x

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

14 FINAL REPORT 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 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 xii

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

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17 CAPACITY DEVELOPMENT OF MIMINUM SERVICE STANDARDS (MSS) COSTING AND IMPLEMENTATION 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) , 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. 1

18 CHAPTER 1 INTRODUCTION 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) 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 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 2

19 CAPACITY DEVELOPMENT OF MIMINUM SERVICE STANDARDS (MSS) COSTING AND IMPLEMENTATION 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. 3

20 CHAPTER 2 MSS CONCEPTS AND POLICIES IN INDONESIA 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 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 Technical Number MSS Issued Costing Manual Guidelines 1 Public Housing* Civil Record Social* Health Women Empowerment and Child Protection* Environment* 2010 draft 7 Family Planning and Welfare Family Manpower* Education 2010 (DG Decree) draft 10 Public Works and Spatial 2010 draft 11 Food Security* Art and Culture Communication and Informatics Transportation *) 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 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. 4

21 CAPACITY DEVELOPMENT OF MIMINUM SERVICE STANDARDS (MSS) COSTING AND IMPLEMENTATION Number Table 2: MSS s basic services, number of indicators, and target year MSS Basic services Number of indicators Number of indicator and sub indicator Target Year 1 Public Housing* Civil Record Social* Health Women Empowerment and Child Protection* Environment* Family Planning and Welfare Family Manpower* Education Public Works and Spatial Food Security* Art and Culture Communication and Informatics Transportation for Province* Transportation for Districts Total *) 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. 5

22 CHAPTER 2 MSS CONCEPTS AND POLICIES IN INDONESIA MSS Implementation Mechanism MSS Socializa*on MSS Baseline data MSS Se1ng Target MSS Cos-ng MSS informa-on into planning and budge-ng MSS Repor-ng Basic informa-on of MSS Understanding of MSS indicators and cos-ng Mapping and recording the current status of MSS indicators Verifica-on and valida-on of MSS baseline Se=ng target of MSS achievement plan for coming years Refer to MSS Na-onal Target achievement year Based on local and fiscal capacity Calculate the cost of each indicator ac-vi-es Calculate the projec-on cost of each indicator for coming years 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 Report the actual achievement of MSS implementa-on Report to Bupa-/Mayor Report to Province Report to MoHA and related line ministries 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. 6

23 CAPACITY DEVELOPMENT OF MIMINUM SERVICE STANDARDS (MSS) COSTING AND IMPLEMENTATION 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 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 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. 7

24 CHAPTER 3 CAPACITY DEVELOPMENT OF MSS COSTING AND IMPLEMENTATION 8 Table 3: Inputs/comments for MSS indicators, technical guidelines and costing manuals MSS Ministerial Decree on Indicators 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 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. Comment and evaluation Technical Guidelines 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. Unclear who will responsible of MSS indicator data and achievement collection in schools 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? 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 Costing Manual Need to review more detail variables and components of cost. Need more coordination in consolidate the cost of common indicators responsibility. There is no costing manual issued yet It hards to calculate the costing in schools and its integration into LG planning documents. No costing manual issued yet The costing component only consisted of material, equipment, and method. There is no information of

25 CAPACITY DEVELOPMENT OF MIMINUM SERVICE STANDARDS (MSS) COSTING AND IMPLEMENTATION MSS Ministerial Decree on Indicators indicators issued. Are they distinct by scale, types of training, or any others? 5 Public Housing The target year is too long. Need median step target year before to the final target year 6 Family Planning and Welfare Has same indicator (coverage of active Family Plan members) with MSS of Health with different target year 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. Comment and evaluation Technical Guidelines have a qualification for mediation, training, and supervise the firms or just an average capacity? Simple and clear criteria of comfort and secured house are needed Costing Manual man which are delivered the service related to the trainer, resource person, transportation cost, etc. Clear enough No costing manual is 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. 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 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) 10 Arts and Culture Unclear correlation between target quantity of indicator and value (100) of each indicator achievement 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? 12 Home Affairs Target year 2010, is passed already, while the technical guideline and costing manual are not developing No costing manual issued yet 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. No information No information No costing manual issued yet No technical guideline yet No costing manual issued yet No technical guideline yet No costing manual issued yet 9

26 CHAPTER 3 CAPACITY DEVELOPMENT OF MSS COSTING AND IMPLEMENTATION MSS 13 Women Empowerment yet. Ministerial Decree on Indicators Supporting indicators need to be defined clearly. 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%? Comment and evaluation Technical Guidelines Need information on more clear coordination between Police, Justice, Health and Foreign Affairs Level and name of work unit are varied between local government Costing Manual Need more clear information on budget coordination between Police, Justice, foreign affairs (APBN), Health (APBD) No technical guideline yet No costing manual issued yet 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. 10

27 CAPACITY DEVELOPMENT OF MIMINUM SERVICE STANDARDS (MSS) COSTING AND IMPLEMENTATION 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 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 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 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 11

28 CHAPTER 3 CAPACITY DEVELOPMENT OF MSS COSTING AND IMPLEMENTATION 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. 12 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 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.

29 CAPACITY DEVELOPMENT OF MIMINUM SERVICE STANDARDS (MSS) COSTING AND IMPLEMENTATION 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 Manpower Review of the initial costing manual Technical notes to Manpower MSS Costing Manual Review and discuss the draft final of Public Works and Spatial Communication and Informatics Costing Manual revision 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 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 Challenges and lesson learned: In the Final Draft. Waiting for Ministerial Decree Revised the previous costing manual (Ministry Decree Number 15/2010) into the revised one (Ministry Decree number 4/2011) Final Draft in the Bureuau of Law, Ministry of Public Works Final Draft in the MSS Team of Comminfo 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 13

30 CHAPTER 3 CAPACITY DEVELOPMENT OF MSS COSTING AND IMPLEMENTATION 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 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 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 In the socialization, DSF distributed MSS Compilation Book and CD of e-costing instrument to participants, both for pilot and non pilot regions. 14

31 CAPACITY DEVELOPMENT OF MIMINUM SERVICE STANDARDS (MSS) COSTING AND IMPLEMENTATION Table 5: MSS Costing Socialization and Exercises Beneficiaries Event Date Participants Pilot Regions Non Pilot Regions Line Ministries Others Road show and program preparation MSS socialization and costing concept and exercises for all work units of Manpower and Environments in the Province of Banten MSS socialization and costing concept of Health for all work units of districts in the Province of Kepri MSS socialization and costing concept and exercises for Bali, Riau, Semarang, Wakatobi, and Bulungan MSS Socialization and Costing for Manpower of all over Indonesia MSS socialization and costing concept and exercises in MoHA Training and Education LOGICA2-AUSAID program in NAD February 7 to March 15 April June 21 May, June, and July March 23 July October June Total participants of MSS Costing socialization and exercises Results: 5 province, 5 Kota, and 8 Kabupaten 8 Districts of Province of Banten Health Unit of Kepri and all districts in Kepri Province of Bali, Province of Riau, Kota Denpasar, Kabupaten Badung, all districts in Riau, Kota Semarang, Kabupaten Wakatobi, and Kabupaten Bulungan Manpower unit of all provinces in Indonesia and Ministry s staffs Bappeda and Finance Unit of all province in Indonesia Number of participant 335 person 41 person 24 person 210 persons 105 persons 30 persons July All Health Units in Aceh 24 persons 769 person 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. 15

32 CHAPTER 3 CAPACITY DEVELOPMENT OF MSS COSTING AND IMPLEMENTATION 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 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 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 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. 16

33 CAPACITY DEVELOPMENT OF MIMINUM SERVICE STANDARDS (MSS) COSTING AND IMPLEMENTATION 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 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: 17

34 CHAPTER 3 CAPACITY DEVELOPMENT OF MSS COSTING AND IMPLEMENTATION o o o o o Publicly announcing ranked performance Warnings from Governor/MoHA that the region is falling behind expected targets on way to MSS fulfillment) Direct orders to spend on specific lagging MSS efforts (as part of approval of draft budgets) Direct replacement of DPRD/Regional Head with appointee to manage the region temporarily, to redirect the spending intensively for one or more years 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. Challenges and Lesson Learned: 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 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. 18

35 CAPACITY DEVELOPMENT OF MIMINUM SERVICE STANDARDS (MSS) COSTING AND IMPLEMENTATION 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 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 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 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. 19

36 CHAPTER 3 CAPACITY DEVELOPMENT OF MSS COSTING AND IMPLEMENTATION 20

37 CAPACITY DEVELOPMENT OF MIMINUM SERVICE STANDARDS (MSS) COSTING AND IMPLEMENTATION Table 6: The relationship between the implementation of MSS and the attainment of the MDGs MDG Goals GOAL 1 ERADICATE EXTREME POVERTY AND HUNGER target 1.A Halve, between 1990 and 2015, the proportion of people whose income is less than USD 1 (PPP) a day target 1.B Achieve full and productive employment and decent work for all, including women and young people Main Indicators MSS MSS Indicators * 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 * 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 * Family Planning and Welfare Manpower * IK- 4 of Naker * IK- 5 of KBKS IK- 1 to 3 of Naker target 1.C Halve, between 1990 and 2015, the proportion of people who suffer from hunger GOAL 2 ACHIEVE UNIVERSAL PRIMARY EDUCATION Target 2A Ensure that, by 2015, children everywhere, boys and girls alike, will be able to complete a full course of primary schooling PROMOTE GENDER EQUALITY AND EMPOWER WOMEN GOAL 3 Target 3A Eliminate gender disparity in primary and secondary education, preferably by 2005, and in all levels of education no later than 2015 GOAL 4 REDUCE CHILD MORTALITY RATE Target 4A Reduce by two- thirds, between 1990 and 2015, the under- five mortality rate GOAL 5 IMPROVE MATERNAL HEALTH Target 5A Reduce by three- quarters, between 1990 and 2015, the Maternal Mortality Ratio Target 5B Achieve, by 2015, universal access to reproductive health * The prevalence of infants with low weight / malnutrition * Proportion of population with calorie intake below the minimum consumption level * Net Enrolment Ratio (NER) in primary education * Proportion of pupils starting grade 1 who complete primary school * Literacy rate of population aged year, women and men * Literacy ratio of women to men in the year age group * Share of women in wage employment in the nonagricultural sector * Proportion of seats held by women in national parliament * 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 * Maternal Mortality Ratio (per 100,000 live births) * Proportion of births attended by skilled health personnel (%) * Current contraceptive use among married women 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 * Food Security * Social Basic Education * Women Empowerment * Education * Health * Family Planning * Health * Family Planning Health Family Planning * Whole IK of Food Security * IK- 1, 5, 7, 8, 12 of Social IK- 29 and 30 of Basic Education No MSS indicator related * IE- 6 s10 of Health * IK- 4 KBKS: Coverage of BKB (Balita Family Development) members of the family planning 70% * IK 1 to 5 and 12 of Health * IK 1 to 3 of KBKS * IK 1 to 5 of Health * IK 2 and 3 of KBKS 21

38 CHAPTER 3 CAPACITY DEVELOPMENT OF MSS COSTING AND IMPLEMENTATION GOAL 6 COMBAT HIV/AIDS, MALARIA AND OTHER DISEASES Target 6A Have halted by 2015 and begun to reverse the * HIV/AIDS Prevalence among total population (%) spread of HIV/AIDS * Condom use at last high- risk sex * Proportion of population aged years with comprehensive correct knowledge of HIV/AIDS Target 6B Achieve, by 2010, universal access to treatment for Proportion of population with advanced HIV infection with HIV/AIDS for all those who need it. access to antiretroviral drugs Target 6C Have halted by 2015 and begun to reverse the incidence of HIV/AIDS, Malaria and other major diseases Target 6D Have halted by 2015 and begun to reverse the incidence of Malaria and other major diseases (Tuberculosis) * 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 * Incidence, prevalence and death rates associated with Tuberculosis * Proportion of Tuberculosis cases detected and cured under directly observed treatment short courses Health Health Health Health No MSS indicator related No MSS indicator related IK- 13c of Health IK- 13d of Health GOAL 7 ENSURE ENVIRONMENTAL SUSTAINABILITY Target 7A Integrating the principles of sustainable development in national policies and programs and reversing the loss of environmental resources Target 7B Reduce biodiversity loss, achieving, by 2010, a significant reduction in the rate of loss Target 7C Halve, by 2015, the proportion of people without sustainable access to safe drinking water and basic sanitation Target 7D By 2020, to have achieved a significant improvement in the lives of at least 100 million slum dwellers * 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 * Proportion of fish stocks within safe biological limits * The ratio of terrestrial areas protected to maintain biological diversity to total terrestrial area * The ratio of marine protected areas to total territorial marine area * 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 Proportion of urban population living in slums * Environment * Public Works Environment Environment Public Works Public Housing Public Works Social * All IK of Environment * IK 9 to 14 and 23 of Public Works * All IK of Environment * IK 1 and 4 of Environment * IK 1, 8, 9, 10 of Public Works * All IK of Public Housing * IK- 14 of Public Works 22

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

40 CHAPTER 3 CAPACITY DEVELOPMENT OF MSS COSTING AND IMPLEMENTATION under the frame of work program since February to September 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 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, 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, 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, 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 24

41 CAPACITY DEVELOPMENT OF MIMINUM SERVICE STANDARDS (MSS) COSTING AND IMPLEMENTATION Challenges and Lesson Learned: 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. 25

42 CHAPTER 3 CAPACITY DEVELOPMENT OF MSS COSTING AND IMPLEMENTATION 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 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. 26

43 CAPACITY DEVELOPMENT OF MIMINUM SERVICE STANDARDS (MSS) COSTING AND IMPLEMENTATION Table 7: MSS of Environmental Baseline Data of 2010 and target of 2011 Kabupaten Bantul MSS of Environmental Baseline Data of 2010 and target of Kabupaten Bantul NO MSS Indicators 4 Water pollution prevention services 5 Air pollution prevention services from the un move sources 6 Service status information land degradation and / or land for biomass production 2010 achievement and funding MSS Target Year Value % 39,000, % % 34,000, % ,464 26% 7,000, % 1,328 15,994 Plan of target and costing % 82,500,000 63% 27,500,000 59% 8,500,000 7 Follow up complaints from the public service as a result of alleged contamination and / or destruction of the environment % 17,087, % % 14,000,000 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 Total of MSS costing/funding 97,087, ,500,000 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 27

44 CHAPTER 3 CAPACITY DEVELOPMENT OF MSS COSTING AND IMPLEMENTATION 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 28

45 CAPACITY DEVELOPMENT OF MIMINUM SERVICE STANDARDS (MSS) COSTING AND IMPLEMENTATION 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). 29

46 CHAPTER 3 CAPACITY DEVELOPMENT OF MSS COSTING AND IMPLEMENTATION Table 9 :MSS Baseline Data in Pilot Regions Pilot regions Total MSS Health Educat Environ Man Public Public ion ment power Housing 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 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 12 of 13 MSS 18 of 18 4 of 4 8 of 8 1 of 3 7 of of 23 1 of 7 6 of 7 9 of 9 7 of 7 6 of 6 6 of 6 Kidul Province of 4 of 6 MSS 3 of 3 8 of 8 3 of 3 5 of 23 Banten Kota Tangerang 2 of 13 MSS 18 of 18 8 of 8 Kab. Tangerang 3 of 13 MSS 18 of 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 of 4 of 4 27 Kab. Lombok 2 of 13 MSS 18 of 18 4 of 4 Timur 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 of 4 of 4 2 of 8 4 of 4 9 of 9 27 Province of Kepri 2 of 6 MSS 3 of 3 8 of 8 Kota Tanjung 2 of 13 MSS 16 of 18 4 of 4 Pinang Kab. Bintan 4 of 13 MSS 18 of 18 4 of 4 4 of 8 9 of 9 13 of 13 4 of of 18 7 of 18 6 of 18 3 of 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 30

47 CAPACITY DEVELOPMENT OF MIMINUM SERVICE STANDARDS (MSS) COSTING AND IMPLEMENTATION Chart 1 Number of MSS Sector s Baselines managed in Pilot Province DIY Banten kalbar NTB Kepri 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. 31

48 CHAPTER 3 CAPACITY DEVELOPMENT OF MSS COSTING AND IMPLEMENTATION Chart 2 Number of MSS Sector s Baseline Manage in Districts Yogyakarta Sleman Bantul Gunung Kidul Kulonprogo Tangerang Kab Tangerang Pontianak Sanggau Mataram Lombok Timur T. Pinang Bintan 19 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 regions which implement MSS lth e a H 4 n c a tio u E d 16 t n e m n v iro n E 7 r e o w p n a M 6 g sin u o H 3 s rk o W lic b u P 10 p. E m e n m o W 6 rity e c u S d o F 4 l c ia S o 6 n la P ily m F a re ltu u C & rt A rd e c o R il iv C fo in m o m C 20 32