Perilaku manusia terhadap hewan

8/10/2019 Perilaku manusia terhadap hewan

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Social Protection and Employment security Assessment in NTT As Baseline Information for the Design of the Single Window Service

I. Introduction

Indonesia is moving towards an integrated social protection system. Since its amendment in 2002, theIndonesian Constitution recognizes the right to social security for all, and the responsibility of the Statein the development of social security. The upcoming National Social Security System (based on Law40/2004) mandates the extension of social security coverage to the whole population in the field ofhealth, work injury, old age and death of the breadwinner. On the social assistance side, thegovernment, through the National Team for Poverty Alleviation, recently developed an integrated

database (based on PPLS 11 survey data) to assist antipoverty programs.

In line with this direction is Indonesia s support to the Social Protection Floor (SPF) initiative. Thegovernment of Indonesia has been involved in preparing the recommendation on SPF for theInternational Labor Conference (ILC) 2012 which has resulted in the adoption of Recommendation 202on the Social Protection Floor by all member countries.

As shown in the findings of the SPF assessment-based national dialogue, existing programs tend to bescattered and not sufficiently coordinated, which contribute to curbing the impact of interventions. Theinstitutions in charge of different social protection programs need to coordinate among each other,between central and local program implementers. In many cases programs are shown to have high

targeting issues, and implementers do not have at hand the necessary information systems to monitorprogram and evaluate their impact accurately. There is also currently a missing link between socialprotection programs and employment services which should be the way for more sustainable means ofpoverty reduction strategy.

The Single Window Service pilot came out as a as recommendation of the SPF assessment-basednational dialogue, to provide the means for a coordinated and efficient approach to social protectionand employment programs at local level.

Several provinces are good candidates for the design and pilot-testing of the PEOPLE service. Amongothers are NTT, East Java and Maluku. In NTT the idea received particular attention from the provincial

government, workers and employers. NTT is selected as the first province to host the piloting, whileprospects of similar activities in few other provinces are also being explored, based on interestsexpressed by the provincial or district governments.

The Social Protection Floor assessment, providing baseline information and analysis of the existing socialprotection and employment services at district level, is a quintessential part of designing the SWS.


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1.1 RECENT TRANSITION IN THE N ATIONAL SOCIAL SECURITYSYSTEM The existing social protection system principally comprises social security, social assistance (a publicwelfare system that is tax-financed) as part of a broader antipoverty set of programs, and Governmentsubsidies. To date, existing schemes and programs tend to be fragmented and scattered under differentagencies and line ministries.

Efforts to reach a comprehensive and universal social protection system are marked by two importantmilestones in Indonesia: the amendment of the 1945 Constitution regarding the extension of socialsecurity to the entire population and the enactment of the National Social Security System Law (SistemJaminan Sosial Nasional/SJSN law).

In 2002, the Government of Indonesia amended the Constitution regarding social security. Article 28 H,Subsection 3, states: Every person shall have the right to social security in order to develop oneself as adignified human being, and Article 34, Subsection 2, states: The state shall develop a social securitysystem for all the people and shall empower the vulnerable and poor people in accordance with humandignity.

1.1.1 SJSN Law (No. 40/2004) and BPJS Law (No.24/2011)The National Social Security System Law (Sistem Jaminan Sosial Nasional/SJSN), enacted on 19 October2004, is designed to create a social security system covering all Indonesian workers and theirdependents in both the formal and informal economy with five separate programs: Health insurance forthe whole population, Work injury insurance, Life insurance and Contributory old age savings benefitsfor all workers, and Contributory pension for formal sector workers.

Though it has not reached implementation stage, it showcases the Governments commitm ent to socialprotection to all. The latest development towards the implementation of National Social Security System

is the enactment of Law no. 24/2011 on Social Security Providers (BPJS) which mandates thetransformation of the existing four social security providers (PT Askes, PT Jamsotek, PT Taspen and PTAsabri) into two providers i.e. health insurance provider by 2014 and labor social security provider by2015. PT Askes will be transformed into BPJS-I or BPJS-Kesehatan (health insurance provider), providinghealth insurance scheme for all citizens, starting in January 2014. PT Jamsostek will be transformed intoBPJS-II or BPJS-Ketenagakerjaan (labor social security provider) and will provide employment injuryinsurance, old-age savings, pension and death benefits.

1.1.2 Overview of Current Social Security Providers

PT Jamsostek

Jamsostek for formal sector workers

Workers social security, particularly that of the formal private sector, is organized PT Jamsostek, a Stateowned company designated to manage the social insurance fund for the private sector. PT Jamsostekprovides occupational injury, old age and death benefits programs which are combined in one packageof membership plus a health benefit programme in a separate package. According to Law No. 3/1992


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and Government regulation No. 14/1993 on workers social security program, participation inJamsosteks occupational injury, old age and death benefits programs is compulsory, and participation inJamsosteks health insurance scheme is compulsory with ex ceptions if employers provide higherbenefits through alternative system (private insurance or in-house health services). Such obligationapplies to enterprises employing workers with working relationship, particularly those employing ten

or more persons or paying a total monthly payroll of IDR 1 million or more.

Despite compulsory membership, Jamsosteks coverage at national level is considerably low with aquarter (9,337,423) of the private sector workers, or 8 percent of the economically active populationlisted as active members in the occupational injury, old age and death benefits package programs(Jamsostek 2010 annual report). Membership in the health benefit program is even lover.

The issue of under coverage is also found in NTT, added to the fact that NTT has a small formal sector tobegin with. In 2011, the NTT branch of Jamsostek listed 20,429 workers from 1,247 enterprises as activeparticipants, while 37,560 workers from 1,591 enterprises in the database do not participate in theprogramme.

With the exception of some food processing and non-metal mining industries, most enterprises listedNTT are within the small and micro enterprises category (with less than 20 workers), mostly shops.According the NTT in Figure statistical report, in 2010 there were 28 middle and large scale industryestablishments (with 20 workers or more) in the whole of NTT, employing a total of 1,402 workers (BPSNTT, 2011).

During consultations, official at the Jamsostek branch and the office of Manpower explained that thesmall size, combined with their low density and difficult geographic location of enterprises, poses aparticular challenge for monitoring and enforcement. Added to this is the ongoing problem of limited

capacity of labour inspectors provided by the Ministry of Manpower. Representatives of both workersand employers also pointed out the issue of the lack of formal contractual working agreement in suchenterprises, which hinders workers from obtaining rights of social protection.

PT Jamsosteks limited c apacity in NTT is also an apparent issue, as has only an office at province levelwith 20 staff covering services for the whole province.

In the upcoming National Social Security System (SJSN), PT Jamsostek will be transformed into BPJS-II orBPJS-Ketenagakerjaan (labor social security provider) and will provide employment injury insurance, old-age savings, pension and death benefits. BPJS II is targeted to start operation by July 2015 at the latest.The other two present providers, PT Taspen and PT Asabri, are instructed by the BPJS law to design a

roadmap for their progressive transfer to BPJS-II. This roadmap needs to be ready by 2014, while thetransfer should be completed by 2029.

With the extension of Jamsosteks coverage to the whole population, the question of Jamsostekscapacity becomes ever more important. Jamsostek needs to come up with a mechanism to reach allpeople.

Jamsostek social security for workers in the informal economy


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Law No. 3/1992 on workers social security has limited social provi sions for informal sector workers,stipulating that social security programs for workers outside working relationship will be regulatedfurther by a Government regulation (article 4, point 2). The Ministry of Manpower and Transmigrationissued Minister Regulation No. 24/2006 on the Implementation Guidance of Social Security Program forworkers outside working relationship. Based on this regulation, a pilot project was established to expand

social security coverage to informal economy workers through a voluntary scheme that is managed byJamsostek. This scheme offers four benefits: health, work injury, death and old age. During the pilotphase, the government pays full subsidy for the first 8 months of members contribution, andsubsequently members are expected to continue their membership and pay for their own contribution.

The progress in expanding coverage through the pilot project has been slow. Of around 70 millionworkers in the informal sector, the total number of members amounted to only approximately 400,000by 2010. The turnover of members in this program is also very high. Members can sign up and leave theprogram at any given time. Jamsostek annual report shows that in 2010, 142,065 new membersregistered under the program. During consultations, Jamsostek and MoMT officials both at national and

provincial levels agree that the pilot project lack continuation. In NTT, the pilot project startedcommenced in May 2011. 1,050 informal workers participated in the pilot project and their contributionwas paid by the government for eight months. At the end of the eight-month pilot phase, only 50workers decided to continue their membership in Jamsostek. All of the 50 workers who continue theirmembership come from one workers organization in Kupang city. They are now in the regular Jamsostekpackage.

Jamsostek concedes that the slow growth of the program is due to issues in both sides of supply anddemand. Administrative and human resource capacities of Jamsostek, along with the workers lack ofawareness, have kept the participation rate at a low level (Jamsostek, 2010). The characteristics of the jobs in the informal economy also make registration, compliance with payment of contributions and

record keeping very challenging for the Jamsostek staff. In NTT in particular, additional challenge isposed by high workers mobility and diverse geographic location in the province. It has been costly forJamsostek to reach and keep trace of their target beneficiaries in the districts. For the pilot project,targeting of beneficiaries is conducted by district manpower office based on quota given by the MoMTfor each district. Districts with the highest number of quota are Kupang city (kota kupang), Kupangregency (kabupaten kupang), atambua and TTS.

Jamsostek social security for construction workers

Other than the above programmes, Jamsostek also provides occupational Injury and life Insurance forConstruction Workers. Based on MoMT decree No. 196/1999, all contractors and subcontractorsproviding construction services must underwrite all their workers (contract/casual or seasonal) into theJamsostek special insurance for construction workers. This programme provides occupational injury anddeath insurance for the period of their work contract. In 2010, 4,330,383 workers are registered in thisprogram nation-wide. Based on information from the NTT Jamsostek office, this category ofmembership has not had significant problems and the programme runs relatively smoothly. Bigconstruction projects, many of which are funded by the state budget or the local government budget


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enroll all their contract workers in the programme. During 2011, 1,120 were registered in theprogramme.

PT Askes

PT Askes is currenly responsible for the provision of health insurance to civil servants, retired civilservants, retired military and police personnel, veterans and their dependents based on Governmentregulation No. 69/1991. Contribution to PT Askes program is borne jointly by workers and theGovernment (stipulated in Government regulation No. 28/2003). PT Askes has office braches at districtlevel.

The enactment of the law no. 24/2011 on Social Security Providers (Badan Penyelenggara Jaminan Sosial BPJS) will transforms PT Askes into BPJS-I or BPJS-Kesehatan (health insurance provider), providinghealth insurance scheme for all citizens starting in January 2014. As preparation for BPJS I operations, aroadmap for the implementation of universal health insurance programme in Indonesia has beenproduced and detailed packages if the insurance schemes are being developed.

PT Taspen

PT Taspen is to date responsible for the management of pension and old age savings fund for civilservants (based on Government regulation No. 25/1981). In the future this function will be handed overto BPJS II, and the transition shall be completed by 2029

PT Asabri

PT Asabri provides similar lump sum retirement benefits and pensions, as well as death andoccupational injury insurance for the armed forces (based on Government regulation No. 67/1991). Asin the case of PT Taspen, PT Asabri will also be merged with BPJS II.

II. SPF Assessment in NTT and TTS district

2.1 O BJECTIVES OF THE ASSESSMENT The assessment is intended to provide comprehensive description of existing social protection andemployment service programs in the target district(s), which serves as essential baseline information forthe design of the people service.

Using the social protection floor framework, the assessment has the objectives to:

Describe and map the existing social protection schemes and employment-related services in thedistrict(s). Information consists of, among others:- The types of benefit provided- Targeting mechanism and coverage- Monitoring and evaluation mechanism- Actors involved in the provision


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Identify major gaps and implementation issues of the programs. Identify possible linkages between employment and social protection Provide preliminary recommendations for the design of the PEOPLE service (e.g. choice of the

target districts, main institutions to be involved, combined services to be proposed, etc.).

2.2 SELECTION OF DISTRICTSelection of the district for the piloting is based on considerations of characteristic, geography, access,representativeness etc as well as based consultation at the provincial level. The pilot district needs to bea rural area which represents many other areas in NTT, but at the same time has to be accessible fromthe capital. Accessibility is important during the pilot phase because the activities needs to be visible andeasily monitored by the relevant stakeholders at district, provincial and national level.

In the beginning of the assessment, focus was given to two districts: Kabupaten Kupang and TimorTengah Selatan (TTS). As the assessment progresses, TTS was selected as the pilot district as KabupatenKupang has just recently separated from Kota Kupang and is still occupied with the transition.

2.3 P ROCESS AND M ETHODOLOGY OF THE ASSESSMENT The assessment process consists of the following.

2.3.1 Literature ReviewThe first step of the stocktaking exercise consisted of a literature review of studies, reports, laws,regulations and statistical data on social protection and employment programs.

The assessment also incorporates some findings of the SPF assessment at national level that has beendone between 2011 and early 2012.

2.3.2 Technical consultationsTo obtain comprehensive information regarding social protection provisions and their issues in thetarget area of the SWS piloting, technical consultations are conducted at national, provincial as well asdistrict level. District level consultations are conducted in two districts i.e. Timor Tengah Selatan andKabupaten Kupang. These districts are selected based on their poverty and social protection profile aswell as their geographical situation and accessibility as feasible pilot areas.

Technical consultations at national level

The information collected at the national level will be complementary to the SPF assessment report

conducted at the national level, which has a comprehensive description and analysis of social protectionprograms from the national point of view.

Additional information collected from central government agencies will focus on the issue ofcoordination, the current development of the implementation of the National Social Security SystemLaw and the social protection database at central level.


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Also an important objective of national-level consultation is to introduce the concept of SWS and discussits relevance to Indonesian context. This activity is also useful to give initial identification of relevantactors at local level and contact persons.

Technical consultations at provincial level

On account of the decentralisation, the district-level governments are given responsibility for allgovernment functions except for a few explicitly reserved for the center (i.e. foreign policy, defense andsecurity, justice, fiscal and monetary policy, religion and planning).

Law 22/1999 on Regional Governance devolved power from the centre to the districts, and theprovincial level government was no longer given an official oversight role. The provincial-levelgovernment plays more of a coordinating function that an authoritative one.

Both provincial and district governments have their own social protection and employment-relatedprograms. Provincial programs are implemented with the funding, guidelines and supervision from theprovince. District programs comes from the funding of district governments and implemented by districtauthorities without intervention from provincial-level government. Planning and evaluation of theprograms are informed (rather than reported) to the provincial government through the Musrenbang(explain...).

At provincial level, consultations are focused on obtaining:

Overview of social protection and employment situation in the districts in NTT Information on provincial government programs Issues faced in the implementation, evaluation and coordination of programs in the province Identification of potential districts for piloting Issues of coordination between provincial and district programs as well as between different

programs in the province District-Province relation in terms of program implementation, and monitoring and reporting

mechanism.

Technical consultations at district level

The bulk of the inquiries take place at district level. Consultations at this level are to come up with:

Exhaustive list of social protection and employment programs in the district, agencies involvedin each program (including programs of the central, provincial or district government as well asthose provided by development partners or the private sector).

The services and benefits provided in these schemes Coverage of the program Indication of actual demand for the program (whether the supply meets the demand, and by

how much) Implementation issues and challenges at local level Existing coordination, data collection and monitoring system, and their challenges


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Introduction to the social protection floor and the SWS, get feedback on the relevance andusefulness of the system given the local context.

Initial identification of how to include the programs in the PEOPLE Service mechanism in thefuture

2.3.3 Mapping of actorsPrograms and actors involved will be mapped. A preliminary list of programs and actors is available inannex 1. This list will be completed along the process of assessment in the district. Some programs oragencies may be added or deleted from the list depending what exists in the district(s). Programs maydiffer between districts as local programs vary and not all national programs are available in all districts.The list of actors is used to base the interview guidelines, which contain points of inquiries duringconsultation with each actor.

2.3.4 Tools used in the assessment:

Social Protection Floor Matrix

The SPF matrix is a tool to analyze to what extend existing and future (in the strategy) social protectionprovisions match the benchmarks set by the four guarantees of the social protection floor and tosupport the identification of policy priorities to complete the Floor. The matrix analyses the present (andfuture) social protection situation, identifies design gaps and implementation issues.


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district health office shows a total number of 262,750 jamkesmas recipients in the district, also around60% of the population (TTS District Health Office, 2011).All hospitals in the province including privateones are registered in the Jamkesmas programme, thus every hospital accept patients with Jamkesmasmembership.

The total Jamkesmas budget allocated for NTT province in 2011 is IDR 157,745,097,000, consisting of IDR36,945,097,000 for Puskesmas (health centres) and IDR 120,800,000,000 for hospitals. Budgetabsorption at health centre level is around 62 percent, while that at hospital level is nearly 100 percent(NTT Provincial Health Office, 2012). According to the provincial health office, delays of disbursementwere experienced in 2008 due to some management issues, but the problem was solved in thesubsequent years.

The provincial health office has no official data on the number of people utilising health care withJamkesmas insurance, but staff at the health insurance and financing division of the office stated thatthey estimate that 15% of Jamkesmas holders would have been ill each year. More detailed informationon this has not been obtained.

Jampersal Universal Delivery Care

Jampersal is a universal delivery care program, which started in 2011, run under the same managementas that of Jamkesmas. The programme provides free delivery care, including pre-natal and post-natalconsultations, in health centers (Puskesmas) or 3rd class wards in hospitals. In 2012, when theprogramme started, the programme prepared a budget to cover 2.5 million deliveries or around 60percent of the total estimated deliveries (MOHs Kese hatan anak, 2011).

For services in health centres, the total delivery package cost is IDR 420,000, including IDR 350,000 fordelivery, IDR 40,000 for 4 anti-natal care services and IDR 30,000 for 3 post-natal care services. For this,a separate additional budget is disbursed to health centres (puskesmas) aside from the Jamkesmasbudget. In 2011 a budget of IDR 1.2 trillion was allocated for Jampersal nation-wide. Costs for specialdelivery cases will be determined by the Indonesia Case Base Group (INA-CBGs) costing guideline (MOHDecree No. 631/2011 regarding the Technical Guidelines of Jampersal) and will be charged to the sameJamkesmas budget for hospital. In NTT province, the budget for Jampersal in health centres in 2011 isIDR 20,540,606,273, on top of the IDR 36,945,097,000 budget allocation for Jamkesmas, while forhospitals the Jampersal budget is included in the IDR 120.800.000.000 Jamkesmas budget for hospitals.Absorption of Health Centres Jampersal budget in NTT province is reported at 53.3 percent in 2011(NTT Provincial Health Office, 2012).

In 2011, of the 11,500 of estimated number or delivery in TTS, around 7,000 deliveries were claimed toJampersal funds (based on interview with head of TTS Health Office. The program is considered to haverun well for those who have the information and access to health care providers, since it covers deliveryand care in designated health centres. The main challenge is for women in remote areas who oftencannot make it to the health centers in time for their pregnancy examination or delivery due to lack oftransportation. BOK (Health Operational Assistance) fund, which health centres receive from theMinistry of Health, can be allocated for transporting patients and the district health office intends to


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promote this solution to health care centres. Some areas have started, but many are still struggling withtransportation issues.

Childbirth-related treatments are seen to be an urgent matter as NTT is among the provinces withhighest maternal mortality and infant mortality rate. The numbers are particularly striking in some

districts. The TTS district health office recorded 272 per 1,000 live births (TTS District Health Office,2011), much higher compare to 57 deaths per 1,000 live births at NTT province and 34 per 1,000 livebirths at national level (Unicef, 2010) in the same year. Maternal mortality rate in the district is recordedat 595.7 per 100.000 live births in 2010 (TTS District Health Office, 2011). As shown in the graph below ,figures of maternal mortality have not seen significant decrease in the last 5 years.

Source: TTS District Health Office, 2011, TTS District Health Profile 2011 p.20.

District and Provincial Programs for the PoorMany provincial and district governments allocate funds to health insurance programs for the poor,usually targeting people who are identified by the local authorities as poor but are not covered byJamkesmas (because of inclusion errors, because they recently became poor or other reasons). The leveland type of protection vary from one province or even one district to the other. These programs aregenerally known as Jamkesda (regional public health insurance), though some regions come up withtheir own names for the program.

In NTT, most district governments (with the exception of Rotendau and TTU districts) organise Jamkesdaprograms within their respective districts. Apart from that, the provincial government has a HealthSafety Net programme called the Pengamanan Pelaksanaan Jaminan Kesehatan Masyakarakat Miskin (JPKMM), which cover essential treatments for poor residents who are without insurance.

Jamkesda district health insurance for the poor

627.1

502.7

690.1

538.7595.7

0

100

200

300

400

500

600

700

800

2006 2007 2008 2009 2010

M a t e r n a l M o r t a l i t y p e r - 1 0 0 . 0 0 0 L B


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Jamkesda programs in NTT exist at district level. With the exception of Rotendau and TTU districts, alldistrict governments have Jamkesda, providing insurance for poor residences that are not covered byJamkesmas. The types of treatments provided follow those of Jamkesmas programme, but restricted tohealth services within NTT (while Jamkesmas membership can be used allover the country).

Data at the provincial health office show the combined coverage of Jamkesda programs in the provinceaccounts to 546,431 people (interview with staff at provincial office). In TTS, district health office datashow 14,080 recipients of Jamkesda recipients (interview with staff at district office).

While targeting of Jamkesmas is conducted in centralised and systematic manner by the nationalgovernment, the targeting mechanism of Jamkesda is less uniformed. A Jamkesda recipient is typically aperson who obtains a letter from his/her respective head of village which states that he/she is poor. Inthis regard, eligibility (the criteria of being poor) may vary widely.

JPKMM Health Safety Net Program by Provincial Government

Jaminan Pengamanan Kesehatan Masyakarakat Miskin (JPKMM) in NTT is a Health Safety Netprogramme managed by the province government. The program allocated funds to cover essential

treatments for poor residents that are not covered by Jamkesmas or Jamkesda. Part of the rationale of

the health safety net programme, according to the work plan document, is the presence of people who

are uncovered by Jamkesda/Jamkesmas due mobility (people who migrate or living around borders

districts, thus not listed in the district programmes) (NTT Provincial Health Office, 2011, p.28).

The program aims to provide:

Essential treatments required by uninsured poor patients who are referred to the provincial

hospital (Prof. DR. W. Z.Yohannes hospital).

Health care for uninsured poor patients in border areas between districts, particularly in

childbirth and emergency cases (items of and cost of services follow Jamkesmas technical

guidelines).

Health-related services that are not covered by Jamkesmas budget such as transporting corpses

and other related services

The 2011 provincial government budget allocated for the programme accounts to IDR 2,406,694,317

Health insurance for Civil Servants and Military PersonnelActive and retired civil servants, retired military and police personnel, veterans and national patriots andtheir dependents are covered by a compulsory health insurance scheme managed by PT Askes. Themembership of this scheme in 2010 totaled 16,559,025 people or around 7 percent of the population(PT Askes 2010 Annual report). Members obtain benefits through a structured health servicesmechanism which is available all over Indonesia. Contributions are shared between civil servants andthe Government in its role of employer. The employees/civil servants contribute 2 percent of their


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salaries and the Government matches it with the same amount. In 2009, total premium amounted toIDR 7.9 trillion. Active military and police personnel are provided with in-house health care, throughspecial military hospitals. Askes coverage in NTT province amounts to 367,131 members in 2011.

As mandated by the BPJS law, PT Askes will be transformed into BPJS-I or BPJS-Kesehatan (healthinsurance provider), providing health insurance scheme for all citizens, starting in January 2014. One ofPT Askes biggest challenges now is to expand its capacity to reach and provide services to the wholepopulation, and to bring together the different health insurance programs which are currently runningseparately. A particularly challenging part of the population is the non-poor informal sector workers.

Health insurance for Formal Sector Workers

Health insurance for private sector workers and their family members is included in the social insuranceprogrammes organised by PT Jamsostek, a State owned company designated to manage social securityfunds for workers. Contribution to PT Jamsosteks health insurance is 6 percent of the wage for a workerand his/her dependents (up to 4 family members) and 3 percent of the wage for workers with nodependents.

Formal sector workers are obliged to participate in the Jamsostek Programme. For health insurance(JPK) in particular, employers may opt out from the health insurance under the condition that theyprovide other health care which is of higher levels of benefits/protection. Jamsosteks 2010 annualreport recorded 2,180,825 members (5.7 percent of formal sector workers, or 1.8 percent of the totalworkforce), providing benefits to a total of 5,044,375 beneficiaries (2.1 percent of the population).Based on the Ministry of Healths database, the combined coverage of Jamsostek health insurance,employers-provided health insurance/health care, private and other health insurances amounts to 6percent of the population. This is a very small number given that one-third of the workforce is in theformal sector, which shows the weak enforcement of the Workers Social Security Law (Law No.

3/1992).Accordingly, within the small number of formal sector workers in NTT, Jamsostek coverage in NTT is low.20,429 workers from 1,247 enterprises are listed as active participants while 37,560 workers from 1,591enterprises are not active in Jamsostek compulsory package programme. Given the opt-out option inJamsostek health insurance, membership in the particular programme is even lower. Based on theMinistry of Health s 2010 database, the number of members of the Jamsostek health insuranceprogramme in NTT (including workers and their family members) accounts to 5,877 persons, a smallfraction of the 4.7 million population.

According to the recently passed Social Security Provider (BPJS) law No. 40/2004, as part of the path

towards universal health care, the management of social health insurance will handed over to PT. Askes,which is transforming to a non-profit public company mandated to manage health insurance for thewhole population

Health Insurance for Informal Sector Workers.

Jamsostek Pilot Program for Workers outside Working Relations (Jamsostek LHK)


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also raise money for teachers honorarium from the parents or the community. The requirement forfund disbursement is that the schools provide a report regarding their activities.

School Operational Assistance (Bantuan Operasional Sekolah BOS)

The School Operational Assistance (BOS) program provides block grants to schools with the objectives ofproviding free basic education (from grades 1 to 9). Funds are transferred from the Ministry ofEducation for (public and private) general schools, and the Ministry of Religious Affairs for (public andprivate) religious schools. The amount of funds transferred is based on the number students in eachschool. In 2010 the program covered 44.1 million students nationwide. The per capita grant accrued toprimary school (Sekolah Dasar -- SD) students amounts to IDR 400,000 per year for primary school (SD)students and IDR 575,000 per year for junior secondary school (SMP) students in urban areas whileschools in rural areas receive a per capita grant of IDR 397,000 per year for primary level and IDR570,000 per year for junior secondary school students (Indonesian Financial Note and Revised Budget2011). Starting in 2012 the fund transfers no longer go via the district education office but from theministry to t he provincial office then directly to schools account.

Data collection on the number of students is conducted by means of a K7 (accountability report) formcollected from the school by the BOS manager at district level, which is verified and sent to theprovincial office who also verifies and send it to the ministry at national level. According to official atdistrict and provincial level so far there is no notable problem with targeting and fund disbursement. Allschools are covered and transfers are on time. 81,774 primary school students in TTS are registered asbeneficiaries of BOS.

The use of funds is limited to 13 items as stated in the BOS guideline. One of the items is provision ofscholarships to poor students.

Scholarship for the poor program (Beasiswa untuk Siswa Miskin BSM)

BSM is a scholarship program that targets poor students from primary to university levels. In 2010, thenational budget allocated for this program was IDR 2.7 trillion, covering 4.1 million students (IndonesianFinancial Note and Revised Budget 2011).

The number of beneficiaries is determined based on a quota set by the Ministry of Education. Selectionprocess is left to the school through the school committee, with a general guidance of prioritizing thepoorest students. At the national level, there is an agreement that the scholarship should prioritizechildren whose families are in the conditional cash transfer program (PKH program, described below) asthey are from very poor families. However, in practice schools or local education offices may have

different considerations, such as redistribution of resources to poor students who do not get anyassistance from the PKH program. So selection criteria may vary from school to school.

After selection at school level, the school submits the data of students (with attachments of letters fromtheir village authorities and headmaster that certify the students as poor) to district education office,which forwards it to provincial office and on to the ministry. The ministry decides the final list ofrecipient students at the central level. In some years (e.g. 2009 and 2010) not all students in the


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proposed list are in the final list of beneficiaries. The district officials do not know how the final list ismade at the ministry.

Funds are transferred from the ministry directly to the students via post service. In the past the fundswere transferred to banks accounts of the students but in TTS not all students have access to the bank,

so sometimes it has to be transferred to the teachers/headmasters. The post office has access to allsubdistricts, so it is considered more feasible to send via post service.

Administration problem was experienced in 2011, where recipients did not get the transfer to theiraccount due to problems with the data. District officials do not known exactly what went wrong.

At the district office, the number of recipients in primary school (grade 1-6) was readily available: 14,600students. However, it is difficult to obtain the total number recipients in junior secondary school (grade7-9), since there are 3 stages of program transfer: 1 st and 2 nd transfer from the central (listed 1,600students) and 3 rd transfer from the province (listed 1,960 students). The district education office doesnot have at hand the total number of recipients and how many students received all transfers and how

many do not. It is however still possible to trace the recipients as the office has the list (name andaddress) of students from both stage.

As the program does not follow its recipients, recipients in primary schools may or may not receive thescholarship when they move to secondary school even though her/his economic condition remains thesame.

Conditional Cash Transfer Programs

Program Keluarga Harapan (PKH)

The PKH is a conditional cast transfer program primarily designed to improve maternal and neonatalhealth as well as childrens education among poor households. Beneficiaries consist of households withchildren younger than 15 years (or 15-18 years, but having not completed the 9 th grade) and/orpregnant or lactating women. Depending on the family structure and their obedience in fulfillingeducational and health requirements, households receive IDR 600,000 to 2,200,000 per year. Childrenare seen as the group which benefits most from the program in terms of amount and duration oftransfers. Conditionalities of the cash transfer include: (1) Children are enrolled in school and attend atleast 85 percent of school days; (2) Pregnant and lactating mothers as well as infants of 0-6 years of ageregularly visit health facilities for health checks.

The PKH is run by the central government (MoSA), through operators distributed in each target districts.Funding, targeting, transfer of money to beneficiaries, and selection of social workers are decided at thecentral level.

Targeting is based on BPS poverty data (PPLS 2005). BPS sends the list to the MoSA, The Ministry makesthe list of beneficiaries and distribute the list to PKH operators in each district. The operators, with thehelp of social workers, validate recipients data in the field. Data updating is done when the BPS updatesits PPLS data (2005, 2008, 2011). The PPLS 2011 so far has not been in use.


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In 2007 when the program started, 19,000 households in 11 sub-districts were proposed based on BPSdata, and 17,589 households qualified in the verification. Since 2009 the program expanded to 13 sub-districts (113 villages). The total number of recipient household in 2012 is 17,689, with allocated budgetof IDR 25 billion. The program employs a total of 81 social workers, working in 131 villages in the district.

The operator concedes that social workers focus on verifying households demography than their socioeconomic condition. The households are deemed unqualified are those whose members are not thetarget group of PKH (pregnant, lactating, under-five, or in grade 1-9 of school). Households whoseeconomic level appear to be beyond the eligibility requirement (very poor) when visited, are notdisqualified as it might draw resistance. So far households only exit when they no longer have familymembers who are within the target group classification.

Child Labour Reduction Program in Support of the PKH (Pengurangan Pekerja Anak untuk MendukungProgram Keluarga Harapan PPA-PKH)

The Child Labour Reduction Program In support to the PKH program (PPA-PKH) aims at reducing child

labour among PKH target household by preparing the return to school through transitions for children ofPKH families who have dropped out of school and work. The children are brought to training shelterswhere they are given motivational and academic trainings for one month, plus out of shelterconsultations by social workers, to prepare them to return to school. Priorities are given first to childrenin the worst forms of child labour, second to child labour who are under 13 years, and third to childlabour between 13 to 18 years old.

The program is run by the Ministry of Manpower and Transmigration in coordination with the Ministryof Education, the Ministry of Health, Ministry of Religious affairs, and non-governmental organizationsinvolved in the PKH program.

PPA-PKH started in 2008 with 4.853 target children in 48 districts in 7 provinces (including TTS in NTT). Inthe first year the return to school rate of this target group was only 32% (MoMT, 2012), but the rate hasimproved. In 2010 3.000 children 50 districts in 13 provinces were targeted, and 74% succeededreturning to school (MoMT, 2012). In 2012 the program targets 10.750 children from 84 districts in 21provinces.

In NTT this program has started running but coordination among agencies, which is key in achieving itsgoals, is still lacking. The office of Social and Manpower Affairs is taking the lead in implementation,mainly in targeting and provision of shelter and consultation. However, steps beyond this point have nottaken place. Officials stated are still waiting for the Education Office to follow up with school placementor equivalency exams for these children. The target for TTS district in 2012 is 190 children, and theprocess will be facilitated by 19 social workers.

Food Programs

School Feeding program (Program Makanan Tambahan Anak Sekolah--PMTAS)


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The Ministry of Education, in coordination with six other ministries, launched the School FeedingProgram (Program Makanan Tambahan Anak Sekolah) in 2010. The program provides additional food forkindergarten and elementary school students in 27 less developed districts in Indonesia. In 2010, theprogram targeted around 1.4 million kindergarten and elementary students in general public schools(managed by the Ministry of Education) as well as Islamic schools (managed by the Ministry of Religious

Affairs). Students receive three meals every week. A budget of IDR 218 billion is allocated (the costestimate of one meal is IDR 2,600 in the eastern parts of Indonesia and IDR 2,250 in the western parts).The program prescribes that the food provided to students must be obtained locally (Ministry ofNational Educations Policy Brief, 2011; Presidential Instruction No. 1/2010). Preparation of the food isorganised by volunteers from local women association (PKK) and/or parents.

Though the school feeding is scheduled for three times per week, (108 feeding over one year), in TTS the2011 funds were only disbursed in August. To be able to utilise the funds within the available time, thefrequency of feeding was made every day. Even so, by the end of the year there were still unused fundsthat had to be returned to the state budget. Schools were able to provide the meals for 87 days at most.

By the time the interview was conducted in TTS (May 1st

, 2012), PMTS budget for 2012 has not beendisbursed and the district has not received information when it will be disbursed.

The PMTS program is meant to cover all students in kindergarten and primary schools in the district.However the number of beneficiaries budgeted is below the number of students in the area. In 2010,not all schools were covered, and in the schools that are covered, not all students are covered. In Inresponse to this, The World Food Program (WFP) covered the gap by providing school feeding in the 20uncovered schools in the district. In 2011 the PMTAS reaches all schools, but still not all students withinthe schools. The schools decided to redistribute and use the funds to provide food for all students in theschool. The number of students in the PMTS budget for TTS province is 64,725, (compared to 81,774 ofall primary school students in TTS, as listed under the BOS program).

Staple Food Program (Rice for the Poor Raskin)

The Rice for the poor (Beras untuk orang Miskin Raskin) programme started in 1998 as a response tothe late 1990s crisis to prevent the possible drop of food intake among poor household. It providessubsidized rice for poor households. In 2010, a budget of IDR 13.9 trillion (0.2 percent of the GDP) wasallocated to subsidize 2.93 million tons of rice, to be distributed to 17.5 million households (IndonesianFinancial Note and Revised Budget, 2011).

The program, however, faces major targeting and efficiency issues. Though intended only for the poor,the number of households purchasing the subsidized rice has been more than the targeted number.

Hastuti et al (2009) assessed the effectiveness of the Raskin program and found that many problemsemerge in the distribution of the rice from the primary distribution point to the beneficiaries and thereis a lack of dissemination of information and transparency; inaccurate targeting, amount, andfrequency of rice received by beneficiaries, as well as price of rice; high cost of program management,ineffective monitoring and evaluation; and ineffective complaint mechanism.


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3.1.3 Working age population all those in active age groups who cannot (due tounemployment, underemployment or sickness) or should not (in case of maternity)earn sufficient income in the labour market enjoy a minimum income security throughsocial transfer in cash or in kind schemes or employment guarantee schemes

Income Security in case of sickness and maternity

Sickness benefit and maternity benefit for formal sector workers

Labour Law No. 13/2003 dictates that employers pay full salary to their employees in case they areabsent for up to 12 months because of sickness. Civil servants are entitled to similar provisions (up to 12months of sickness leave) under government regulation No. 24/1976. Female employees should begiven 3 months of paid leave during childbirth.

Sickness benefit for workers in the informal sector under the Askesos (Social Welfare Insurance) program

The Askesos (Social Welfare Insurance) program is an income replacement scheme for informal sectorworkers, providing modest one-off cash benefits to members in case of sickness, work injury or death. Incase of sickness, workers receive IDR 300,000 (maximum one claim per person and per benefit per year).

Funds are managed by local organizations that are selected by the Ministry. The Ministry provides IDR30 million to the organization for 3 years and each member contributes IDR 5,000 per month to theorganization.

Askesos existed in TTS between 2007 and 2010, run by 3 organizations. Participants are mostly, mostlymoto-taxi drivers, small vegetable traders, and (productive) farmers. After the 3-year contract ended in2010, they have not heard whether there would be an extension of the program or not.

One of the major issues pointed out by district officials is that the lack of program information obtainedby the district social affairs office as this programme is managed from the ministry directly to thefoundations without coordination with the district office.

Income Security in case of Employment Injury

Jamsostek Employment Injury Benefit for formal sector workers

According to the Government regulation No. 14/1993 on workers social security program, participationin Jamsosteks occupational injury, old age and death benefits programs is compulsory for all formal

private sector employees. Employment injury insurance covers accident at work, occupational diseasearising out of employment, and travel accidents that occur while traveling to and from work followingthe usual route. The contribution is fully paid by employers and ranges from 0.24 to 1.74 percent ofwages, depending on the level of risk and protection.

Jamsostek social security for construction workers


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Especially for construction workers, Jamsostek provides occupational Injury and life Insurance package.Workers are protected for the period of their work contract. During 2011, 1,120 construction workerswere registered in the programme in NTT. At national level 4,330,383 workers were registered in 2010.Based on information from the NTT Jamsostek office, this category of membership has not hadsignificant problems and the programme runs relatively smoothly. Big construction projects, many of

which are funded by the state budget or the local government budget enroll all their contract workers inthe programme.

Askesos Employment Injury benefit for informal sector workers

Under the Askesos program for informal sector workers, members receive IDR 300,000 (maximum oneclaim per person and per benefit per year) in case of employment injury. The program existed in NTTbetween 2007 and 2010 but prospect of continuation in unknown.

Jamsostek Pilot Program for informal sector

Jamsostek pilot program for informal economy workers, piloted since 2006, includes occupational injurybenefits. During the pilot phase the government pays full subsidy for the first 8 months o f memberscontribution, and subsequently members are expected to continue their membership and pay their owncontribution. Contribution for occupational injury benefit is set at 1 percent of the income.

In NTT, the piloting commenced in May 2011 and enrolled 1,050 informal workers. At the end of theeight-month pilot phase, only 50 out of 1,050 workers continued their membership in Jamsostek.

Income Security in case of Death of the Breadwinner (Survivors Benefits)

Death Grant for formal sector workers in the Jamsostek Program

Based on Government regulation No. 14/1993, in case of death during active employment (whatever thecause), the dependents of the deceased employee are provided with benefits which include a flat rate ofIDR 10 million, a funeral grant of IDR 2 million and monthly transfers of IDR 200,000 per month for 24months. Contribution to the death grant amounts to 0.3 percent of wages, paid solely by the employer.

Askesos Death grant for formal sector workers

The Askesos (Social Welfare Insurance) program includes a death benefit paid to the family of adeceased worker. The death benefit amounts IDR 400,000 if the member dies in the first year of themembership, IDR 600,000 if in the second year of membership or IDR 800,000 if death occurs in the

third year of membership. The program existed between 2007 and 2010 but no information aboutcontinuation so far.

Death Grant in the Jamsostek Pilot project for informal workers

Jamsostek pilot program for informal economy workers includes death benefits. Contribution for deathbenefit is set at 0.3 percent of the minimum wage.


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Death grant in Jamsostek social security for construction workers

Other than occupational Injury benefit, the Jamsostek special program for construction workers alsoprovide death grant for. Survivors are entitled to the grant in case death of a worker during the periodof their work contract. 1,120 construction workers in NTT were registered in the programme in 2011.Based on information from the Jamsostek, the program appears to run smoothly in terms ofparticipation and administration.

Income Security in case of Unemployment and Underemployment

Severance payment for formal sector workers

According to the Labour Law No. 13/2003, all private formal sector employees, about one third of thetotal workforce, are entitled to a termination pay once they have finished their probation period of fourmonths. Upon termination of employment, the employer is obliged to provide severance pay and long-service pay in a lump sum. According to the law, the amount should be 1 month of wages foremployment of less than 1 year, 2 months of wages for employment of between 1 and 2 years, 3months of wages for employment of 2 to 3 years, and so on to a maximum of 8 years of employment. z

The Community Empowerment Program (Program Nasional Pemberdayaan Masyarakat-PNPM)

The National Community Empowerment Program (Program Nasional Pemberdayaan Masyarakat --PNPM) was launched in 2006 as an umbrella program for the previously scattered communityempowerment programs. It is a national program for community empowerment in poor districts andsub-districts. The design of the PNPM is to give the control over planning, design, implementation andmonitoring of development projects to local communities. A large portion of the projects are ininfrastructure (road, irrigation etc), along with non-physical projects such as credit for women, health

and education campaign etc. In infrastructure projects, local communities are also involved in theconstruction works, the wage for which is also decided together.

The PNPM consists of two subprograms: Core PNPM (PNPM inti) and PNPM Penguatan. Core PNPM(PNPM inti) is an area-based community empowerment program. It includes PNPM-Rural, PNPM-Urban,PNPM for Disadvantaged and Specific Regions, PNPM-Rural Infrastructure, and PNPM-Social andEconomic Infrastructure. PNPM Penguatan is a community empowerment program for specific sectorsor areas. Included in this category are the PNPM-Rural Agribusiness Development, Direct Cash Transferfor Agricultural Investment and other supporting programs (PNPM General Guideline, 2007).

PNPM is implemented with the assistance of facilitators at Kecamatan level. PNPM-Urban and PNPM-Rural have national coverage, covering selected sub-districts in 32 provinces and 33 provincesrespectively.

NTT has in total target 295 sub-districts with PNPM programs. Core PNPM (Rural or Urban PNPM) existsis all PNPM areas. Other types, implemented in different areas, include:

PNPM Generasi (focusing in children health and education e.g providing transport cost formaternity checks, school feeding etc ) in Flores timur, Rote, Lembata, TTU, Rotendao, ManggaraiTimur, Mannggarai, Belu


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Post-crisis PNPM in Belu Border Area PNPM in TTU, Belu, Kab Kupang PNPM Integrasi (Support program for the integration of PNPM with district programs) recently

started in Sumba Barat Daya, Belu, Ngada Ngedekeo. Currently most PNPM programs are designedin separation with other government programs. PNPM Integrasi aims at integrating the planning

processes.TTS has to date only the core PNPM: Rural PNPM implemented in 31 sub-districts ( how many villages? ),and Urban PNPM in 1 sub-district. The biggest portion of the projects is infrastructure development(road, irrigation etc). About a quarter of the fund is allocated for women group lending schemes. Otheractivities include capacity development in education and health e.g. through trainings of cadres ofcommunity health posts and/or health & education campaign etc.

Ministry of Public Works Infrastructure Projects

The ministry has infrastructure development programs across the country, including the ruralinfrastructure program. It builds bridges, irrigation, roads, and other village infrastructure, and one of its

mandates is to prioritize the use of local labour. Workers are paid minimum wage (IDR 30,000 per day).

On top of the regular infrastructure program, the Ministry of Public Works recently carried outadditional infrastructure projects funded by the 2009 stimulus package (a measure to cushion theeconomy against the recent global recession). Some projects are implemented by provincial publicworks offices and some by district public works offices.

According to officials at the Public Works Division of the Provincial Bappeda, the village infrastructureprogram has provided a lot of employment for local communities, but there is no data that summarizesthe number of workers or man days resulting from the projects (though it is possible to calculate). Thereis also an apparent issue of lack of data synchronization of projects carried out under the provincial

office and those under district offices. As there is no chain of command between the two, there is alsono reporting line.

Kube (Kelompok Usaha Bersama Group Entrepreneurship Program)

Kube is a national government program whose activities are facilitated by the district social affairs office.The program provides grants of IDR 30 million to groups of 10 people, to be used as business capital.

There are three types of Kube programs, which come in stages, subject to evaluation of thedevelopment of the groups:

KUBE Penumbuhan (KUBE Growth) is the first-stage intervention, where the grant is expected tobe used as a start-up capital.In TTS, 180 groups in 4 sub-districts (South Amanuban, Noebana, Kolbano, Toianas) receive thisassistance.

KUBE Pengembangan (KUBE Development) is the second stage. After the completion of KUBEpernumbuhan program, groups may send a proposal to get a second grant intended tostrengthens business growth.


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In TTS, 35 groups in 3 sub-districts (7 villages) have progressed to the KUBE pengembanganprogram.

KUBE Kemandirian (KUBE Self-Sufficiency) is the third stage of the assistance, granted whenthe groups businesses are co nsidered to have significant progress based on evaluation. Not yetreached in TTS

The amount of grant is the same for each stage (IDR 30 million per group). Selection of the group isbased on the business plan proposed by the groups. Proposals are submitted to the central governmentthrough district and provincial offices. Groups are assisted by facilitators. Each sub-district has afacilitator, and there is 1 coordinating facilitator at district level.

KUR Micro credit program

The Governments micro credit program is intended to provide the poor and micro enterprises (who aremostly not bankable due to the lack of collaterals) with access to affordable credit. Kredit Usaha Rakyat KUR(Credit for the people) is a program in which 6 participating commercial banks provide loans to

micro enterprises and cooperatives with a guarantee scheme of which 70 percent is subsidized by theGovernment (Central Bank of Indonesia, 2012). In 2011, a total of IDR 29 trillion has been lent to around6 million businesses (statement of the Coordinating Ministry of Economy quoted by Antara State NewsAgency, January 10th 2012).

Anggur Merah Village Livelihood Program by Provincial Government

Anggur Merah (anggaran untuk rakyat menuju sejahtera) or Village Welfare Program is a provincialgovernment program which allocates IDR 250 million (in 2011) for each target village to supportproductive economic activities (e.g. group lending schemes, livestock, housing construction, dependingon local needs).

The program targets two villages in each sub-district per year, or 290 villages in 2012 around theprovince. 32 villages in TTS district are beneficiaries of this program. One facilitator is assign for eachvillage.

Anggur Merah Village Livelihood Program by District Government

District Governments Anggur merah program replicates the provincial Anggur Merah program, usuallywith smaller coverage. TTS District's Anggur merah program targets 4 villages in (4 sub-districts), whichhave not been covered by Provincial Anggur Merah Program.

Training Programs

Technical and Vocational Education and Training Center (BLK and KLK) under the MoMT

The Ministry of Manpower and Transmigration (MoMT) oversees the Technical and VocationalEducation and Training (TVET) Centers known as Balai Latihan Kerja (BLK) and Kursus Latihan Kerja (KLK).


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BLK is usually bigger than KLK. The BLK centers provide vocational training and job placement services toformal and informal workers. Courses are provided free of charge, though a few BLK centers alsoprovide non-subsidized courses. The BLK centers exist in all provinces and in some districts. Some BLKsare managed by the central government, some by provincial governments and district governments.

Many BLK centers, especially those currently managed by local Governments, are under-staffed andunderutilized. Most of the facilities are not functioning optimally and need serious revitalization(Minister of Manpower, 2011). However, comprehensive data regarding general BLK capacity, fundingand performance are difficult to acquire at the central level.

NTT has 1 BLK in Kota Kupang (for timor, alor, rote and sabu islands) and 2 KLKs each in Sumba Timur(for Sumba island) and Ende (for Ende Island). Activities in these training centres are mostly funded bythe national budget, with some co-sharing from provincial budget.

In 2012 the BLK in Kota Kupang has 35 training packages, KLK in Sumba Timur has 25 packages and KLKin Ende has 28 packages (funded by the national budget). These packages mostly consist of technicaltrainings (automotive, carpentry, masonry) and food processing (marine products, agriculture productsetc depending on the area). Each package has 16-20 trainees.

Technical trainings require 160 contact hours (1 month) and processing trainings require 60-80 contacthours (maximum 2 weeks). Training material in technical trainings are estimated to cost around IDR 8-10million per student per package, while food processing requires only IDR 4-5 million because materialsare cheaper and can be obtained locally.

Trainings can be conducted in the three centers or brought to certain locations, subject to a needassessment and requests from the regions. Mobile trainings are more expensive as it requires additionalcost for transporting the equipments. In some cases district governments co-share the transportationcosts. For trainings conducted in districts, fund from the center is transferred to, and managed by, thedistrict. The districts are supposed to submit activity report to the provincial office. However, thesereports are not always received by provincial office.

Various Trainings (in agriculture & plantation, fishery, animal husbandry etc) by the Office of Agriculture and Plantation, Office of Animal Husbandry, Office of Fishery, Office of Forestry.

Several line ministries have various livelihood and income generation programs for rural communities.These programs comprise trainings, grants or credit for business capital (in cash or in kind such as seeds,livestock or irrigation) etc.

The major programs are funded from the national budget, with some additions from provincial anddistrict budget. Most programs run based on availability of funds, and very few are provided on regularbasis.

The Office of Agriculture and Plantation, for instance, has a training program for farmer groups whichfocuses on rice, maize, cassava and beans cultivation (as TTS main agricultural products). Trainings maybe provided in the district or in the province, as well as outside the province (e.g. sending farmer groups


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The Jamsostek pilot program for informal economy workers also includes an old age savings scheme.This scheme, however, is not part of the subsidized programs in the piloting. As membership of theprogram beyond the piloting stage is close to none, so is membership in the old age scheme.

As mandated by the BPJS law No. 24/2011, this function will be handed over to BPJS-II or BPJS-

Ketenagakerjaan (labor social security provider) which will provide employment injury insurance, old-age savings, pension and death benefits to all workers.

JSLU (Jaminan Sosial Lanjut Usia) Pension for Vulnerable Elderly

The Ministry of Social Affairs is managing a non-contributory minimum pension program which providescash transfer to vulnerable elderly (elderly who are unproductive and/or have no caregiver) calledJaminan Sosial Lanjut Usia (JSLU). The amount of the minimum pension is IDR 300,000 per month whichis on average above the poverty line. Under the program, according to Presidential Instruction no.3/2010, 13,250 vulnerable elderly were targeted in 2011. The number of beneficiaries is determined bythe amount of funds available at the central level. This coverage is still very low compared to available

estimates of the actual population of these two groups. Estimations suggest around 1.7 millionvulnerable elderly. These are based on figures expressed by offici als as quoted in the media, MOSAswebsite and discussions 1, while actual data or official estimation is not yet available. Added to the issueof lack of data is the vague definition, hence targeting, of vulnerable elderly. Some criteria of vulnerableelderly (such as being 60 years and older, poor, non-recipient of other programs) are mentioned inMoSAs JSLU Guideline (2008), but clear targeting strategy is so far lacking. Target for each district is setbased on quota given by the MoSA.

JSLU started in TTS in 2008, with 62 beneficiaries (6 villages in 3 sub-districts). In 2009 the programadded 26 beneficiaries in one sub-district. In 2012, another 25 people from 2 sub-districts were added,

making a total of 113 recipients in 6 sub-districts. The program targets 70 year-olds or older who arepoor and not productive. However, the number of recipients is based on the quota given by theministry.

Targeting mechanism: The MoSa sets the number of quota from each district, and selection ofbeneficiaries is the responsibility of the district office of social affairs. District office assigns each villageauthorities to select beneficiaries. A list of names is proposed to the central and the ministry makes thefinal list. In many cases, the number of approved beneficiaries is fewer than the proposed number. Thevillage not district authorities are not aware of how the final selection is made, since it is made at centrallevel and the central government does not have complete information on the actual condition of thebeneficiaries. The number of beneficiaries remains the same as there is a waiting list consisting ofelderly from the same village who did not get in to the quota. Whenever a beneficiary dies of moved toanother district, someone from the waiting list would replace her/his position as program recipient.

1 E.g. see Minister of Healths decision no. 06B/2010; The Minister of Social Affairs statement as quoted by SuaraPembaruan News as at http://www.suarapembaruan.com/home/17-juta-lansia-terlantar-di-indonesia/7688 andAntara news Agency at http://www.antaranews.com/berita/1268547583/anak-terlantar-ri-capai-5-4-juta
http://www.suarapembaruan.com/home/17-juta-lansia-terlantar-di-indonesia/7688http://www.suarapembaruan.com/home/17-juta-lansia-terlantar-di-indonesia/7688http://www.suarapembaruan.com/home/17-juta-lansia-terlantar-di-indonesia/7688http://www.antaranews.com/berita/1268547583/anak-terlantar-ri-capai-5-4-jutahttp://www.antaranews.com/berita/1268547583/anak-terlantar-ri-capai-5-4-jutahttp://www.antaranews.com/berita/1268547583/anak-terlantar-ri-capai-5-4-jutahttp://www.antaranews.com/berita/1268547583/anak-terlantar-ri-capai-5-4-jutahttp://www.suarapembaruan.com/home/17-juta-lansia-terlantar-di-indonesia/7688


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Overall the number of beneficiaries is considered very small compared to the actual number of targetbeneficiaries in the area. According to a staff at the district office for social affairs, there are around 50-70 elderly in each village who should be qualified for the state assistance. Of those, the district officerequested to the ministry a quota of 20 people per village, but in the end on average 10-12 people fromeach village were granted entrance to the program.

Disbursement and reporting are currently done twice a year. As many recipient no longer have family, astaff from the district office delivers the money to them. Monitoring is also done twice a year by thedistrict office, who reports their findings to the provincial and central government. Disbursement andmonitoring require staff to go to beneficiaries homes. The ministry requests that in 2012 disbursementsto be done monthly, but given the difficult terrain in the district, district officials expressed that they donot have enough capacity for monthly visits.

Elderly Home subsidy

The Ministry of Social Affairs also provides subsidies to old peoples homes ( Panti Sosial Tresna Wredha )

(MoSAs JSLU guideline, 2008). The program transfers IDR 3, 000 (around USD 0.35) per person per dayto these homes (Directorate General of Social Rehabilitation, Ministry of Social Affairs, 2010). Thisamount of subsidy is considered very low even to cover the daily food expenditure. Some provinces alsohave progr ams to provide subsidies or pay the full cost of the old peoples homes.

Kube LU (Group Entrepreneurship Program for Elderly)

Kube LU is a program targets at elderly (60 year or older) who are still productive. It provides a one-offcash transfer of 15 million to one group of 10 people. The program is intended to provide capital forsimple income generating activities such as livestock. The program started in 2011, with 3 groups so far.

Income Security in case of Disability

Disability Benefits for Civil Servants and Military Personnel

In case of permanent disability, civil servants are entitled to their pension and old age savings prior topension age. PT Asabri provides disability benefits for military personnel.

Disability Benefits for Private sector Workers

For formal private sector workers, in case of disability caused by occupational injury, they receivebenefits based on the clauses of Jamsosteks occupational injury plus their old age savings benefits. For

other causes, only the old age savings benefits are received.

JSPACA Cash Transfers for People with Severe Disability

JSPACA provides cash transfer of IDR 300,000 per month for people with severe disability. There are atotal of 59 recipients JSPACA in the district, of the 150 proposed by the district.


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The data of people with disability in the district is collected by the district social affairs staff based onobservation during field visits to the villages or based on reports from village officials. There is nosystematic data collection, and available data do not cover all areas. The available data shows a total of3,669 people with disability. The data is broken down based on the types of disability (visualimpairment: 514, physical impairment: 1,1754, mental impairment: 553, speech impairment: 296,

hearing impairment: 730, multiple disability: 730, ex leprosy: 85) but there is no indication of severity ofthe disability. According to social affairs official in the district, priorities are given to people who are notable to do daily activities without the help or others.

3.2 GAPS AND ISSUES

3.2.1 Common Gaps and issue

A number of common issues across programs, benefits and implementing agencies have been identified.These issues will be listed in this section while issues specific to each guarantees will follow.

Almost no protection for non-poor informal sector workers

Workers in the informal sector are the group with the least protection. Before the new Social SecuritySystem Law reach implementation stage, social security programs are targeted mainly to formal sectorworkers i.e. civil servants (Askes, Taspen), military/police personnel (Asabri, Askes) and formal privatesector workers (Jamsostek). While informal economy workers account to around two third of theworkforce, programs targeted to them consist of only small and scattered schemes such as JamsostekLHK (workers outside working relations) and Askesos. Both programs have so far provided modestprotection and low coverage, and have shown little progress.

The Jamsostek program for workers outside working relations has not shown significant progressbeyond its piloting stage. In most cases, members do not continue their membership once the pilotphase is over. Follow-up of the pilot is very week, and in many cases nonexistent. Workers lackinformation/guidance on how to individually enroll after the subsidized program finished, and thosewho do have the knowledge often find it troublesome to register and pay contribution when the serviceis not easily accessible. On the other hand, Jamsostek has limited capacity to reach and provide servicesto the widespread individual workers, especially those in distant places like many areas in NTT.

In the whole NTT, less than 5 percent of participating workers in the pilot project continued theirmembership, and they have a rather special situation: a workers association functioning as intermediaryorganization to facilitate their membership.

The Askesos program has a low coverage (a very small fraction of the informal economy workers) and alow level of protection (only a small one-off payment per member and per year). In TTS, continuation ofthe program is unknown: the program ran between 2007 and 2010 under 3 local organisations, but has


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not continued since 2010. Currently the organizations do not know whether there will be more Askesosprograms in the future or not.

High evasion in the formal sector

In the private sector, the gap of coverage due to social evasion is of particular concern. Despite itsobligatory nature, Jamsostek membership among formal sector workers is still low.

In2010, members in their Health Care Benefit (JPK) program reached 2,180,825 workers (5.7 percent offormal sector workers, or 1.8 percent of the total workforce), providing benefits to a total of 5,044,375beneficiaries (2.1 percent of the population) (Jamsosteks 2010 annual report). Based on the Ministry ofHealths database, the combined coverage of Jamsostek health insurance, employers -provided healthinsurance/health care, private and other health insurances amounts to 6 percent of the population. Thisis a very small number given that one-third of the workforce is in the formal sector. In the same year,only 9,337,423 are active members of the Jamsostek program, which provides work injury, death andold age benefits.

Data limitation and targeting issues

A number of programs are faced with problems of data limitation, and among its consequences aretargeting issues. Programs that target certain groups of the population such as disabled people, childrenwith special need or vulnerable elderly require information about its target beneficiaries. There is so fara lack of data that shows the actual number of these target groups. Moreover, in many cases there isalso a lack of clear definition of the target group.

For JSPACA and other programs for disability, for instance, there is not yet a uniformed classification ofdisability. Different ministries have different definitions. BPS' data of disabled people do not contain

classification (types, severity, multiple disabilities etc) which is necessary for targeting.

Some of JSLUs criteria of vulnerable elderly are mentioned in MoSAs JSLU Guideline (such as being 60years and older, poor, non-recipient of other programs) (MoSA, 2008), but they remain vague and cleartargeting strategy is lacking.

Hence, programs such as JSPACA, JSLU and PPA-PKH rely on identification of beneficiaries by the districtoffice of social affairs and social workers, who has limited capacity to conduct systematic data collection.

Issue of database is also found in BSM program. The District Education Office finds it difficult to get thetotal number of recipients, as different stage of transfers have different number of recipients, and it is

difficult to know whether recipients in the different transfers are the same or different. Hence theprogram does not follow its recipients and program evaluation cannot be conducted optimally.

Coordination and overlaps among programs

Many social protection programs are meant to complement one another. However, problems incoordination often curb the impact of these programs. Jamkesda program, which is designed tocomplement Jamkesmas has a completely separate database and targeting mechanism from that of


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Jamkesmas. Overlaps of targets have been found and crosschecking of recipients faces considerablechallenge.

Another example is the Askesos program, which is directly managed from the center. Selection oforganizations and transfer or funds to the organizations are done by the ministry. Officials at the district

social affairs office complained during the interview that they were not informed (either by the ministrynor the provincial office) about the activities of the Askesos Programs. No information goes through thedistrict office, and officials expressed that this hinders program synchronization.

The BSM and PKH program are both cash transfer programs with similar target recipients. They arehowever managed separately with different targeting method. At the national level, there is anagreement that the scholarship should prioritize children from PKH families, but at district level this isnot the case.

Synthetic TableThe following table shows the different programs with various management system, targeting methodand level of services.

Programs Source of fundsLineministry(ies)

Programimplementer Targeting

Unit ofbeneficiaries

Lowest level ofservice available

Jamkesmas Central Government MoH MoH Central PPLS data IndividualPuskesmas (mostlyat subdistrict level)

Jampersal Central Government MoH MoH Central PPLS data IndividualPuskesmas (mostlyat subdistrict level)

Jamkesda District Government MoH

District Health

Office

Communitytargeting (mostly

village authorities) Individuals

Puskesmas (mostly

at subdistrict level)

JPKMMProvincialGovernment MoH

Provincial HealthOffice

Communitytargeting Individuals Provincial hospital

Askes

Contribution (civilservants &central/localgovernment)

MoH, MoSOE,MoF

PT Askes, withbranches down todistrict level

Membership uponemployment as civilservant Individuals

Askes branch atdistrict level

Taspen

Contribution (civilservants &central/localgovernment) MoF PT Taspen

Membership uponemployment as civilservant Individuals

Branches of PTTaspen exist in 6cities

Asabri

Contribution

(military/policepersonnel &government) MoD, MoF PT Asabri

Membership uponemployment in themilitary Individuals

Branches of PTAsabri exist in 12cities

JamsostekContribution ofworkers & employers MoMT

PT Jamsostek, withbranches atprovincial level

Employer enrolltheir employees Individuals

Regional branch ofPT Jamsostek atprovincial level

JamsostekLHK pilot

central government(full subsidy) MoMT

PT Jamsostek, withbranches atprovincial level

Selection by DistrictOffice of Manpowertranssoc Affairs Individuals

Regional branch ofPT Jamsostek atprovincial level


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BOS central government MoE MoE centralUniversal Schoolenrolment data

IndividualStudents School

Scholarshipfor PoorStudents central government MoE MoE central

Schools selectbeneficiaries

IndividualStudents School

PKH central government MoSA

PKH operator (withworkers down tovillage level),reporting to MoSA

PPLS nationalpoverty data Households

Village (socialworkers workig forPKH operator)

PPA-PKH central governmentMoMT, MOE,MoH, MoRA

So far mostlyDistrict Office ofManpowertranssoc

Selection by DistrictOffice of Manpowertranssoc Affairs

Individualchildren District

Schoolfeeding central government MoE MoE central

All students in targetareas.

IndividualStudents

Subdistrict (Techniservice center)

Raskin central government

CoordinatingMinistry ofWelfare Bulog PPLS poverty data Households

Rice dropped atvillage level

Askesos central government MoSA Local foundationsLocal foundationsidentify participants Individuals

Local foundation(usually at districtlevel)

Rural PNPM central government

MoHA,CoordinatingMinistry ofWelfare

PNPM nationalteam withfacilitators atsubdistrict, district,provincial andnational level

Based ondevelopment planproposed by village Communities

Subdistrict(facilitators atsubdistrict level)

Kube central government MoSA MoSAgroups' proposedbusiness plan groups

Subdistrict(facilitators atsubdistrict level)

KUR

subsidized guaranteescheme by centralgovernment

CoordinatingMinistry ofEconomy Banks

enterprises apply tothe banks enterprise

Banks (province ordistrict level)

Anggurmerah-Province

Provincialgovernment

Bappeda(Provinciallevel) Provincial Bappeda

Bappeda identifiestarget village Village Village

AnggurMerah -District District Government

Bappeda(District level) District Bappeda

Bappeda identifiestarget village Village Village

BLK&KLK Central government MoMT(Training centres)BLK/KLK

Quota of traineesper district Individuals

3 training centres ithe province

JSLU Central government MoSA MoSA

District office selects

beneficiaries, basedon quota perdistricts Individuals District

JSPACA Central government MoSA MoSA

District office selectsbeneficiaries, basedon quota perdistricts Individuals District


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3.2.2 Issues in Health

Targeting errors and overlaps of beneficiaries

As database system and targeting mechanism of Jamkesmas and Jamkesda are separate, overlaps oftargets are likely to happen and crosschecking of recipients faces considerable challenge. In discussionsat provincial level, health officials concede that overlaps of beneficiaries exist. Some patients are likelyto be listed under both Jamkesmas and Jamkesda insurance, as long as their treatments are charged toeither one of the insurances, since the priority now is that all poor people receive health care coverage.An official also stated that it is also likely to find an area where the combined number of Jamkesmas andJamkesda recipients is higher than the total population. Crosschecking is difficult and has not beensystematically conducted. In an interview at Kecamatan (sub-district) level in Amanuban Tengah,officials stated that they have found people with both Jamkesda and Jamkemas membership, but thedetailed figure is unknown as no systematic crosscheck is conducted. Tracing of recipients at sub-districtlevel is still possible since every health centres have lists of both Jamkesmas and Jamkesda recipients.However, the lists are mostly available in separate hard-copy files. There were even cases where apatient is found to have both Jamkesmas and Askes insurance, though it is less common (based oninterview with staff of PT Askes at district level).

PT Askes challenges in expanding coverage

The transformation of PT Askes to BPJS I entail the expansion of coverage from only civil servants andmilitary personnel to the whole population, hence the corresponding expansion of capacity for services.

Through consultations, staff of PT Askes at province and district level expressed that one of PT Askes

biggest challenges now is to expand its capacity to reach and provide services to the whole population,and to bring together the different health insurance programs which are currently running separately. Aparticularly challenging part of the population is the non-poor informal sector workers.

Particularly for the formal private sector workers, who will be transferred from Jamsostek to Askesprogram, a change in the contribution mechanism will occur: Whereas Jamsostek health insurancecontribution is paid fully by the employer, the new health insurance will be shared by workers andemployers. This requires awareness raising among workers to avoid rejection from workers.

3.2.3 Issues in Income Security for Children

Targeting issues and overlaps of beneficiaries

Unclear targeting mechanism and lack of coordination or overlaps in beneficiaries are found in someprograms. The BSM program, for instance, is targeted to students from very poor households. Targetsare theoretically the same as PKH. There is also an inter-ministerial agreement at the central level thatstudent who receive BSM should be the same as PKH recipients. However, targeting of both programs isseparate: PKH targeting is based on national data while selection of BSM beneficiaries is done by the


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school, based on the judgment of the school committee and the community. In practice schools or localeducation offices may have different considerations, such as redistribution of resources to poorstudents who do not get any assistance from the PKH program.

During a workshop attended by the different offices, the heads of Social &Manpower and Educationoffices mentioned a program [name of program] of the Ministry of education which has transferred afund of IDR 2 billion to provide cash to 7,000 poor children. The money has not been disbursed becausethere has been confusion over the target beneficiary of this program. The criteria of poor was notspecified by the program guideline that they receive, so both offices are hesitant to conduct targeting asthey are afraid of making a mistake. The money has not been utilized and enjoyed the beneficiaries dueto this confusion.

BSM Database is not organized optimally

The database of BSM recipients does not appear to be organized optimally. At the district office, thenumber o

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