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Ex-post Evaluation

Asia

1. Outline of the Project

  • Country: Indonesia
  • Project title: The Project to Enhance Education and Training of Industrial Safety and Health
  • Issues/Sector: Vocational Training
  • Cooperation scheme: Project-type Technical Cooperation (formerly)
  • Division in charge: Social Development Cooperation Dept., First Technical Cooperation Division
  • Total cost: Approx. 900 million yen
  • Period of Cooperation (R/D): 15 November 1995 - 14 November 2000
  • Partner Country's Implementing Organization: Directorate General for Industrial Relations and Labor Standards, Ministry of Manpower,
  • Supporting Organization in Japan: Ministry of Health, Labor and Welfare (Former Ministry of Labor)
  • Related cooperation: None

1. Background of the Project

Indonesia achieved remarkable economic development during 1980s and 1990s. However, along with such rapid economic growth, the number of industrial accidents more than doubled between 1985 and 1991. Moreover, the 6th Five-year National Development Plan was started in 1991, which aimed for further industrial development, so increasing industrial accidents were expected to occur unless appropriate measures were taken. Based on such circumstances, in 1993, the Government of Indonesia requested to Japan for technical assistance aiming to strengthen safety and health education for industrial employers and workers.

2. Project Overview

The Project was conducted with the Ministry of Manpower as the counterpart agency and using the facilities of National Center of Ergonomics, Occupational Safety and Health and newly constructed facilities in its premises in the eastern part of Jakarta, aiming for technical transfer to enhance education and training of industrial safety and health for both industrial employers and workers.

(1) Overall Goal

To enhance the level of industrial safety and health education and training for workers and employers in Indonesia through improvements in awareness and skills

(2) Project Purpose

To conduct new or improved industrial safety and health education and training model courses for instructors, experts, workers, managers and employers

(3) Outputs
  • The Industrial Safety and Health Education and Training Center was established
  • Counterpart personnel who conduct industrial safety and health education and training courses are trained
(4) Inputs
Japanese side:
Long-term Expert9 Equipment299 Million Yen
Short-term Expert20 Local cost26 Million Yen
Trainees received18  
Indonesian side:
Counterpart33 Local Cost4,076 million Rupiah (approx. 44 million Yen)
Land and FacilitiesNew building of Industrial Safety and Health Education and Training Center

2. Evaluation team

Members of Evaluation Team
Consultant team of Institute of Research and Community Empowerment, Bandung Institute of Technology, entrusted by JICA Indonesia office
Period of Evaluation
10 March 2004~ 31 March 2004
Type of Evaluation:
Ex-post Evaluation

3. Results of Evaluation

3-1 Summary of Evaluation Results

(1) Impact

1) Institutional Impact

A new act on labor has been instituted on 25 March, 2003, i.e. the Act No 13/2003 on Manpower, which contains a Paragraph on Occupational Safety and Health (OSH), consisting of two Articles on the right of the labor to have protection on OSH aspect and on the compulsory responsibility of every company to implement OSH management system. Although this might not be direct outcome of the Project, the new Act has provided a significant legal framework and platform for all efforts toward improving OSH education and training.

2) Technological Impact

At the first year after the end of the Project, ie. 2001, the Center provided 13 courses which were in accordance to the number of modules and trainers prepared by the Project, and 235 participants (18 on the average) joined the courses. In 2002, 16 courses were held with 402 participants (averaging 25) and in 2003 with 17 courses and 885 participants (an average of 49). All these good results seem to have some impact for increased awareness and knowledge about OSH not only among the participants but also to their work places in their respective companies.

3) Other Impact

Data on the situation of occupational accident in Indonesia shows an improving trend since 2000, the year of the project completion. Although the number of occupational accident increased from 98,902 cases in 2000 to 105,846 cases in 2003, the percentage of accident case per worker decreased from 0.73 % in 2000 to 0.55 % in 2003, and the frequency rate (total cases divided by million man hours) is decreasing from 3.76 in 2000 to 2.82 in 2003. It is not clear whether these improvements are really due to direct result of the success of the Project, but in general we can assume that the Project contributes to the improvement of the environment and culture of OSH in the country.

(2) Sustainability

1) Institutional Sustainability

Due to the organizational change of the Ministry of Manpower and Transmigration in 2003, the concerned Directorate has been divided into Directorate of Occupational Safety Inspection (DOSI) and Directorate of Occupational Health Inspection (DOHI), and some of the trained counterpart personnel under the Project have been reassigned to the duty in the DOSI. This resulted in the reduction of personnel effective for running of the Center and thus reducing its capacity.

In terms of organizational setting, there is, up to now, no permanent organization established to accommodate the Center, resulting in the uncertainty of its future status and thus proper allocation of responsibility and resources for the institution. Currently, the technical operation and management of the Center is under the responsibility of the DOHI, and its staffs are assigned to carry out daily operation of the Center on a non-permanent basis. However, a proposal to put the Center as a permanent unit under the Secretariat of Directorate General of Industrial Relation and Labor Inspection Development has been submitted to the Minister and under the discussion.

2) Financial Sustainability

The Center has been so far able to generate some income from its operation, based on training fee from participants and also charges to various private OSH training institutions using its facilities. Still, due to unclear legal status of the institution, an integrated budgeting system for the Center is not available, resulting in the difficulty of planning and allocating of the resources for its operation, maintenance and development programs in a consolidated way. Despite these problems, potentially the Center can be developed and operated on at least a cost-recovery basis, or in the optimistic case, it can be run as an independent unit generating its own income and funding all its financial responsibility, with enough investment to be seen for OSH needs.

3) Technical Sustainability

In terms of technical sustainability, the Center has produced training modules relevant to the needs of OSH training programs in Indonesia, with high quality technical contents. They are used as references for various types of training and courses in the country. Counterpart training in Japan is assessed very effective, in particular due to its high content of practical works, which turns out to be very relevant to the Indonesian needs currently in the OSH education and training programs. Moreover, the Center has been able to produce more training courses and training materials since the project completion, which shows technical sustainability of the Project.

In terms of hardware, some delivered equipments for the Project have been used intensively and they need currently effective maintenance to keep them in the good operational state as well as for preserving its assets. Difficulty in allocating budget for maintenance results in the minimum maintenance work, and in particular some major and sophisticated equipment need to have spare parts replacement to keep them operational, which are quite costly and in some difficulty to find in the country. Some other equipment is out of service because of inability to provide enough resources for maintenance works. This suggests that one should have well thought of the situation after provision of the major equipment during their procurement process.

3-2. Factors promoting sustainability and impact

(1) Concerning to Planning Process

During the planning process, proper need assessment and identification of clear project goal and purpose are the main factors promoting the sustainability and impact.

(2) Factors relating to the Implementation Process

Involvement of various stakeholders in planning stage and political support by decision makers of Ministry of Manpower led to keep proper allocation of local budget to implementation and building facilities. During the implementation stage, constant involvement of various stakeholders and the political support within the Ministry were also the main contributing factors to sustain the project. The practical and needs-oriented training in Japan of the main counterparts certainly has brought high motivation to the project participants, and this has resulted in constant improvement of the project during and after the project cooperation period.

3-3. Factors inhibiting sustainability and impact

(1) Factors concerning to Planning

During planning process, factors inhibiting sustainability and impact includes the often changes of officials and staffs of related directorates of Ministry of Manpower involved in the project, in particular in the project management level. Absence of a clear strategy for the future development of the institution, and inability to predict potential major changes in the economic and political environment in Indonesia, will also inhibit the sustainability and the impact of the Project.

(2) Factors concerning to the Implementation Process

During implementation process, factors inhibiting sustainability and impact includes the often changes of the institutional organization and policy of the Ministry of Manpower, the slow decision process, in particular regarding the institutional and legal status of Center. The unavailability of permanent instructors for the Center is another inhibiting factor.

3-4. Overall Conclusion

It can be concluded that the Project has achieved the expected level of sustainability, at least in term of its outputs and performance, despite of the problem concerning the uncertainty of its legal status. The training facility and instructors developed during the project period have enhanced OSH training and education in the country, in particular in the Greater Jakarta and vicinity area. Major and other supporting equipments and facilities have been generally performing well, but in time they will need proper input and resources for maintaining its appropriate operation. The Project has a very significant potential role in enhancing OSH training and education in the country, considering legal requirements on OSH based on national regulations and acts.

3-5. Recommendations

For future sustainability of the Project, it is mainly important to :

  • Clearly establish legal and institutional status of the Center as a more permanent organization.
  • Allocate sufficient resources for the Center, in terms of budget, staffs and facilities, in order to maintain its performance as the Center of Excellence for OSH education and training at the national level
  • Prepare a strategic business plan of the Center to define its strategic and operational goals in the short- to long-run, and keep it as a basic document
  • Consider that coordinating with universities could be effective in such a field as curriculum development

3-6. Lessons Learned

Major lessons relevant to project formulation of similar project or for next stage of the project:

  • It is best to define in the beginning the legal status of new organization to establish for accommodating similar education and training development project. The status of the project after the end of cooperation period needs to be clarified and agreed among stakeholders early in the project formulation process.
  • When selecting equipments to be procured for the project, it is important to maximize local content, where spare parts and maintenance service are available locally.

3-7. Follow-up Situation

No particular follow-up assistance for the Project has been implemented by foreign donors. On the other hand, in December 2003, Ministry of Manpower prepared a proposal for follow-up project for the Center. It is expected that the proposal could be used for requesting of JICA's follow-up cooperation activities in JFY2004.

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