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, the
Indonesian Constitution recognizes the right to social security for all, and the responsibility of the State
in the development of social security. The upcoming National Social Security System (based on Law
40/2004) mandates the extension of social security coverage to the whole population in the field of
health, work injury, old age and death of the breadwinner. On the social assistance side, the
government, 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 Indonesias support to the Social Protection Floor (SPF) initiative. The
government of Indonesia has been involved in preparing the recommendation on SPF for the
International Labor Conference (ILC) 2012 which has resulted in the adoption of Recommendation 202
on the Social Protection Floor by all member countries.
As shown in the findings of the SPF assessment-based national dialogue, existing programs tend to be
scattered and not sufficiently coordinated, which contribute to curbing the impact of interventions. The
institutions 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 monitor
program and evaluate their impact accurately. There is also currently a missing link between social
protection programs and employment services which should be the way for more sustainable means of
poverty reduction strategy.
The Single Window Service pilot came out as a as recommendation of the SPF assessment-based
national dialogue, to provide the means for a coordinated and efficient approach to social protection
and employment programs at local level.
Several provinces are good candidates for the design and pilot-testing of the PEOPLE service. Among
others 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, while
prospects of similar activities in few other provinces are also being explored, based on interests
expressed by the provincial or district governments.
The Social Protection Floor assessment, providing baseline information and analysis of the existing social
protection and employment services at district level, is a quintessential part of designing the SWS.

1.1 RECENT TRANSI TI ON I N THE NATI ONAL SOCI AL SECURI TY SYSTEM
The existing social protection system principally comprises social security, social assistance (a public
welfare system that is tax-financed) as part of a broader antipoverty set of programs, and Government
subsidies. To date, existing schemes and programs tend to be fragmented and scattered under different
agencies and line ministries.
Efforts to reach a comprehensive and universal social protection system are marked by two important
milestones in Indonesia: the amendment of the 1945 Constitution regarding the extension of social
security to the entire population and the enactment of the National Social Security System Law (Sistem
Jaminan 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 a
dignified human being, and Article 34, Subsection 2, states: The state shall develop a social security
system for all the people and shall empower the vulnerable and poor people in accordance with human
dignity.
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 October
2004, is designed to create a social security system covering all Indonesian workers and their
dependents in both the formal and informal economy with five separate programs: Health insurance for
the whole population, Work injury insurance, Life insurance and Contributory old age savings benefits
for all workers, and Contributory pension for formal sector workers.
Though it has not reached implementation stage, it showcases the Governments commitment to social
protection 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 the
transformation of the existing four social security providers (PT Askes, PT Jamsotek, PT Taspen and PT
Asabri) into two providers i.e. health insurance provider by 2014 and labor social security provider by
2015. PT Askes will be transformed into BPJS-I or BPJS-Kesehatan (health insurance provider), providing
health insurance scheme for all citizens, starting in January 2014. PT Jamsostek will be transformed into
BPJS-II or BPJS-Ketenagakerjaan (labor social security provider) and will provide employment injury
insurance, 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 State
owned company designated to manage the social insurance fund for the private sector. PT Jamsostek
provides occupational injury, old age and death benefits programs which are combined in one package
of membership plus a health benefit programme in a separate package. According to Law No. 3/1992
and Government regulation No. 14/1993 on workers social security program, participation in
Jamsosteks occupational injury, old age and death benefits programs is compulsory, and participation in
Jamsosteks health insurance scheme is compulsory with exceptions if employers provide higher
benefits through alternative system (private insurance or in-house health services). Such obligation
applies 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 a
quarter (9,337,423) of the private sector workers, or 8 percent of the economically active population
listed 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 to
begin with. In 2011, the NTT branch of Jamsostek listed 20,429 workers from 1,247 enterprises as active
participants, while 37,560 workers from 1,591 enterprises in the database do not participate in the
programme.
With the exception of some food processing and non-metal mining industries, most enterprises listed
NTT 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 industry
establishments (with 20 workers or more) in the whole of NTT, employing a total of 1,402 workers (BPS
NTT, 2011).
During consultations, official at the Jamsostek branch and the office of Manpower explained that the
small size, combined with their low density and difficult geographic location of enterprises, poses a
particular 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 workers
and employers also pointed out the issue of the lack of formal contractual working agreement in such
enterprises, which hinders workers from obtaining rights of social protection.
PT Jamsosteks limited capacity in NTT is also an apparent issue, as has only an office at province level
with 20 staff covering services for the whole province.
In the upcoming National Social Security System (SJSN), PT Jamsostek will be transformed into BPJS-II or
BPJS-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 the
transfer should be completed by 2029.
With the extension of Jamsosteks coverage to the whole population, the question of Jamsosteks
capacity becomes ever more important. Jamsostek needs to come up with a mechanism to reach all
people.
Jamsostek social security for workers in the informal economy
Law No. 3/1992 on workers social security has limited social provisions for informal sector workers,
stipulating that social security programs for workers outside working relationship will be regulated
further by a Government regulation (article 4, point 2). The Ministry of Manpower and Transmigration
issued Minister Regulation No. 24/2006 on the Implementation Guidance of Social Security Program for
workers 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 by
Jamsostek. This scheme offers four benefits: health, work injury, death and old age. During the pilot
phase, the government pays full subsidy for the first 8 months of members contribution, and
subsequently 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 million
workers in the informal sector, the total number of members amounted to only approximately 400,000
by 2010. The turnover of members in this program is also very high. Members can sign up and leave the
program at any given time. Jamsostek annual report shows that in 2010, 142,065 new members
registered 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 started
commenced in May 2011. 1,050 informal workers participated in the pilot project and their contribution
was paid by the government for eight months. At the end of the eight-month pilot phase, only 50
workers decided to continue their membership in Jamsostek. All of the 50 workers who continue their
membership come from one workers organization in Kupang city. They are now in the regular Jamsostek
package.
Jamsostek concedes that the slow growth of the program is due to issues in both sides of supply and
demand. Administrative and human resource capacities of Jamsostek, along with the workers lack of
awareness, 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 is
posed by high workers mobility and diverse geographic location in the province. It has been costly for
Jamsostek 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 MoMT
for each district. Districts with the highest number of quota are Kupang city (kota kupang), Kupang
regency (kabupaten kupang), atambua and TTS.
Jamsostek social security for construction workers
Other than the above programmes, Jamsostek also provides occupational Injury and life Insurance for
Construction Workers. Based on MoMT decree No. 196/1999, all contractors and subcontractors
providing construction services must underwrite all their workers (contract/casual or seasonal) into the
Jamsostek special insurance for construction workers. This programme provides occupational injury and
death insurance for the period of their work contract. In 2010, 4,330,383 workers are registered in this
program nation-wide. Based on information from the NTT Jamsostek office, this category of
membership has not had significant 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 in the programme. During 2011, 1,120 were registered in the
programme.
PT Askes
PT Askes is currenly responsible for the provision of health insurance to civil servants, retired civil
servants, retired military and police personnel, veterans and their dependents based on Government
regulation No. 69/1991. Contribution to PT Askes program is borne jointly by workers and the
Government (stipulated in Government regulation No. 28/2003). PT Askes has office braches at district
level.
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), providing
health insurance scheme for all citizens starting in January 2014. As preparation for BPJS I operations, a
roadmap for the implementation of universal health insurance programme in Indonesia has been
produced 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 civil
servants (based on Government regulation No. 25/1981). In the future this function will be handed over
to 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 and
occupational injury insurance for the armed forces (based on Government regulation No. 67/1991). As
in the case of PT Taspen, PT Asabri will also be merged with BPJS II.

II. SPF Assessment in NTT and TTS district
2.1 OBJECTI VES OF THE ASSESSMENT
The assessment is intended to provide comprehensive description of existing social protection and
employment service programs in the target district(s), which serves as essential baseline information for
the 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 the
district(s). Information consists of, among others:
- The types of benefit provided
- Targeting mechanism and coverage
- Monitoring and evaluation mechanism
- Actors involved in the provision
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 SELECTI ON OF DI STRI CT
Selection 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 be
a rural area which represents many other areas in NTT, but at the same time has to be accessible from
the capital. Accessibility is important during the pilot phase because the activities needs to be visible and
easily 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 Timor
Tengah Selatan (TTS). As the assessment progresses, TTS was selected as the pilot district as Kabupaten
Kupang has just recently separated from Kota Kupang and is still occupied with the transition.

2.3 PROCESS AND METHODOLOGY OF THE ASSESSMENT
The assessment process consists of the following.
2.3.1 Literature Review
The 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 been
done between 2011 and early 2012.
2.3.2 Technical consultations
To obtain comprehensive information regarding social protection provisions and their issues in the
target area of the SWS piloting, technical consultations are conducted at national, provincial as well as
district level. District level consultations are conducted in two districts i.e. Timor Tengah Selatan and
Kabupaten Kupang. These districts are selected based on their poverty and social protection profile as
well 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 protection
programs from the national point of view.
Additional information collected from central government agencies will focus on the issue of
coordination, the current development of the implementation of the National Social Security System
Law and the social protection database at central level.
Also an important objective of national-level consultation is to introduce the concept of SWS and discuss
its relevance to Indonesian context. This activity is also useful to give initial identification of relevant
actors at local level and contact persons.
Technical consultations at provincial level
On account of the decentralisation, the district-level governments are given responsibility for all
government functions except for a few explicitly reserved for the center (i.e. foreign policy, defense and
security, justice, fiscal and monetary policy, religion and planning).
Law 22/1999 on Regional Governance devolved power from the centre to the districts, and the
provincial level government was no longer given an official oversight role. The provincial-level
government plays more of a coordinating function that an authoritative one.
Both provincial and district governments have their own social protection and employment-related
programs. Provincial programs are implemented with the funding, guidelines and supervision from the
province. District programs comes from the funding of district governments and implemented by district
authorities without intervention from provincial-level government. Planning and evaluation of the
programs 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 involved
in each program (including programs of the central, provincial or district government as well as
those 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
Introduction to the social protection floor and the SWS, get feedback on the relevance and
usefulness of the system given the local context.
Initial identification of how to include the programs in the PEOPLE Service mechanism in the
future

2.3.3 Mapping of actors
Programs and actors involved will be mapped. A preliminary list of programs and actors is available in
annex 1. This list will be completed along the process of assessment in the district. Some programs or
agencies may be added or deleted from the list depending what exists in the district(s). Programs may
differ 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 during
consultation 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 protection
provisions match the benchmarks set by the four guarantees of the social protection floor and to
support the identification of policy priorities to complete the Floor. The matrix analyses the present (and
future) social protection situation, identifies design gaps and implementation issues.


III Findings of the Assessment at Province and
District Level
3.1 EXI STI NG PROVI SI ONS

3.1.1 Health care all residents have access to a nationally defined set of affordable
essential health care services

National Programs for the Poor
Jamkesmas national health insurance programme for the poor and near poor
The Public Health Insurance (Jamkesmas) is a national government health insurance programme,
targeted to the poor and near poor population. The scheme provides beneficiaries with free health
services in Community Health Centres (Puskesmas) and 3
rd
class (basic level) wards in Government
hospitals and some designated private hospitals. Patients are referred by health centres to the hospital
when more advanced treatments are required. A fee-for-service claim system is applied to health
centres, replacing the previous capitation system. For hospitals, claiming system uses the Case Based
Group (CBG), which recently replaced the Diagnosis Related Group (DRG) system. Claims from health
centres are channelled through district health offices, while hospitals claim directly to the ministry.
At national level, the total budget for Jamkesmas in 2011 amounts to IDR 5.1 trillion (roughly equivalent
to 0.07 percent of the GDP and 20 percent of the central Government health budget), targeting of 76.4
million beneficiaries (Indonesian Financial Note and Revised Budget 2011; Ministry of Health 2009).
Though Jamkesmas covers a significant number of the poor and near poor to date, it still faces
considerable targeting issues. According to a study conducted by the World Bank (2011b), though health
insurance coverage among the poor has increased significantly since the introduction of Jamkesmas,
around half of the poor population is still without health insurance. On the other hand, 11.8 of the top 3
income deciles in the country are recorded to be covered by Jamkesmas.
The present Jamkesmas program does not have a comprehensive dataset of beneficiaries, incidence
rates and utilization rates, as well as a clear benefit package which can be guaranteed. Beneficiaries in
general do not know what they are entitled to, and this hinders them from appealing when the health
care services are not available or when they are refused access to treatment. As part of the groundwork
for the implementation of the universal coverage based on Law No. 40/2004 on the National Social
Security System, relevant agencies are in the process of improving the database, and designing possible
benefits packages. The National Social Security Council (DJSN) recently published the road map for
universal coverage implementation in 2011 (DJSN, 2011).
In NTT province, of around 4.7 million of the total population in 2011, Jamkesmas targets 2,798,871
people or around sixty percent of the population (NTT Provincial Health Office, 2011; Centre for
Health Financing and Health Insurance, Ministry of Health, 2010 data). At the district level, data in TTS
district health office shows a total number of 262,750 jamkesmas recipients in the district, also around
60% of the population (TTS District Health Office, 2011).All hospitals in the province including private
ones are registered in the Jamkesmas programme, thus every hospital accept patients with Jamkesmas
membership.
The total Jamkesmas budget allocated for NTT province in 2011 is IDR 157,745,097,000, consisting of IDR
36,945,097,000 for Puskesmas (health centres) and IDR 120,800,000,000 for hospitals. Budget
absorption 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 disbursement
were experienced in 2008 due to some management issues, but the problem was solved in the
subsequent years.
The provincial health office has no official data on the number of people utilising health care with
Jamkesmas insurance, but staff at the health insurance and financing division of the office stated that
they estimate that 15% of Jamkesmas holders would have been ill each year. More detailed information
on this has not been obtained.
Jampersal Universal Delivery Care
Jampersal is a universal delivery care program, which started in 2011, run under the same management
as that of Jamkesmas. The programme provides free delivery care, including pre-natal and post-natal
consultations, in health centers (Puskesmas) or 3rd class wards in hospitals. In 2012, when the
programme started, the programme prepared a budget to cover 2.5 million deliveries or around 60
percent of the total estimated deliveries (MOHs Kesehatan anak, 2011).
For services in health centres, the total delivery package cost is IDR 420,000, including IDR 350,000 for
delivery, 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 Jamkesmas
budget. In 2011 a budget of IDR 1.2 trillion was allocated for Jampersal nation-wide. Costs for special
delivery cases will be determined by the Indonesia Case Base Group (INA-CBGs) costing guideline (MOH
Decree No. 631/2011 regarding the Technical Guidelines of Jampersal) and will be charged to the same
Jamkesmas budget for hospital. In NTT province, the budget for Jampersal in health centres in 2011 is
IDR 20,540,606,273, on top of the IDR 36,945,097,000 budget allocation for Jamkesmas, while for
hospitals 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 to
Jampersal funds (based on interview with head of TTS Health Office. The program is considered to have
run well for those who have the information and access to health care providers, since it covers delivery
and care in designated health centres. The main challenge is for women in remote areas who often
cannot make it to the health centers in time for their pregnancy examination or delivery due to lack of
transportation. BOK (Health Operational Assistance) fund, which health centres receive from the
Ministry of Health, can be allocated for transporting patients and the district health office intends to
promote this solution to health care centres. Some areas have started, but many are still struggling with
transportation issues.
Childbirth-related treatments are seen to be an urgent matter as NTT is among the provinces with
highest 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 live
births at national level (Unicef, 2010) in the same year. Maternal mortality rate in the district is recorded
at 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 Poor
Many 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 by
Jamkesmas (because of inclusion errors, because they recently became poor or other reasons). The level
and type of protection vary from one province or even one district to the other. These programs are
generally known as Jamkesda (regional public health insurance), though some regions come up with
their own names for the program.
In NTT, most district governments (with the exception of Rotendau and TTU districts) organise Jamkesda
programs within their respective districts. Apart from that, the provincial government has a Health
Safety 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
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690.1
538.7
595.7
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Jamkesda programs in NTT exist at district level. With the exception of Rotendau and TTU districts, all
district governments have Jamkesda, providing insurance for poor residences that are not covered by
Jamkesmas. The types of treatments provided follow those of Jamkesmas programme, but restricted to
health 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 province
accounts to 546,431 people (interview with staff at provincial office). In TTS, district health office data
show 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 national
government, the targeting mechanism of Jamkesda is less uniformed. A Jamkesda recipient is typically a
person who obtains a letter from his/her respective head of village which states that he/she is poor. In
this 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 Net
programme 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 Personnel
Active and retired civil servants, retired military and police personnel, veterans and national patriots and
their dependents are covered by a compulsory health insurance scheme managed by PT Askes. The
membership 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 services
mechanism which is available all over Indonesia. Contributions are shared between civil servants and
the Government in its role of employer. The employees/civil servants contribute 2 percent of their
salaries and the Government matches it with the same amount. In 2009, total premium amounted to
IDR 7.9 trillion. Active military and police personnel are provided with in-house health care, through
special 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 (health
insurance provider), providing health insurance scheme for all citizens, starting in January 2014. 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. 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 insurance
programmes organised by PT Jamsostek, a State owned company designated to manage social security
funds for workers. Contribution to PT Jamsosteks health insurance is 6 percent of the wage for a worker
and his/her dependents (up to 4 family members) and 3 percent of the wage for workers with no
dependents.
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 they
provide other health care which is of higher levels of benefits/protection. Jamsosteks 2010 annual
report recorded 2,180,825 members (5.7 percent of formal sector workers, or 1.8 percent of the total
workforce), 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 6
percent of the population. This is a very small number given that one-third of the workforce is in the
formal 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 1,591
enterprises are not active in Jamsostek compulsory package programme. Given the opt-out option in
Jamsostek health insurance, membership in the particular programme is even lower. Based on the
Ministry of Healths 2010 database, the number of members of the Jamsostek health insurance
programme in NTT (including workers and their family members) accounts to 5,877 persons, a small
fraction 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 the
whole population
Health Insurance for Informal Sector Workers.
Jamsostek Pilot Program for Workers outside Working Relations (Jamsostek LHK)
The Jamsostek pilot program for informal economy workers, launched in 2006, includes health care
benefits. The program targets informal economy workers earning at least the minimum wage
(approximately IDR 1,000,000, but subject to variations across provinces). Contribution for health care
benefit is set at 3 percent of the income for workers without dependents and 6 percent of income for
workers with dependents.
The pilot program provides fully subsidized insurance for the first 8 months of membership, and
subsequently members are expected continue membership and pay for their contribution.
In NTT, the piloting commenced in May 2011 and has enrolled 1,050 informal workers. At the end of the
eight-month pilot phase, only 50 workers decided to continue their membership in Jamsostek. All 50
workers who continue their membership come from one workers organization in Kupang city. In TTS
district 308 informal workers were in the pilot program and so far none have been reported to re-
register after the pilot stage.
Universal basic Vaccinations for Under-fives
Basic Vaccinations are provided for free for all children of 0 to 5 years old. These vaccinations include
BCG, DPT1-3, HepB3, Polio and Measles. Coverage in some areas, however, is curbed by access to health
center or lack of awareness. Estimates by the UNICEF and WHO show that in 2009 vaccination coverage
is 93 percent for BCG, 89 percent for DPT1 and 82 percent DPT3, 82 percent for HepB3, 89 percent for
Polio3, and 82 percent for Measles (WHO and UNICEF, 2010).
In TTS, the coverage of universal vaccination in 2010 is as follow: 91,24% for BCG, 94,72% for DPT1,
92,24 % for DPT3, 96,74 % for Polio3, 99,63 % for measles and 92,24 % for HepB3 (TTS Health Profile
2010, Distrcit Health Office).

3.1.2 Children all children enjoy income security through transfers in cash or kind, at least
at the level of the nationally defined poverty line level, ensuring access to nutrition,
education and care.
Education programs
Most of the education programs in NTT, listed below, are funded by national budget. The provincial
government provides complementary programs such as the scholarship program for students with
special needs. The program is managed directly by the provincial education office and funds are
transferred from provincial office to the designated schools.
The TTS district education office has a small budget allocated for small programs. In 2011 the only
program solely funded by the district government is the support for early childhood education. It
provides assistance, in the form of facilities or additional teachers honorarium to early childhood
education schools. Teachers honorarium provided by the program is IDR 100,000 (around USD 11) per
month per teacher. As this amount is small (only around 10% of minimum wage) these centres usually
also raise money for teachers honorarium from the parents or the community. The requirement for
fund disbursement is that the schools provide a report regarding their activities.
School Operational Assistance (Bantuan Operasional SekolahBOS)
The School Operational Assistance (BOS) program provides block grants to schools with the objectives of
providing free basic education (from grades 1 to 9). Funds are transferred from the Ministry of
Education for (public and private) general schools, and the Ministry of Religious Affairs for (public and
private) religious schools. The amount of funds transferred is based on the number students in each
school. In 2010 the program covered 44.1 million students nationwide. The per capita grant accrued to
primary 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 while
schools in rural areas receive a per capita grant of IDR 397,000 per year for primary level and IDR
570,000 per year for junior secondary school students (Indonesian Financial Note and Revised Budget
2011). Starting in 2012 the fund transfers no longer go via the district education office but from the
ministry to the provincial office then directly to schools account.
Data collection on the number of students is conducted by means of a K7 (accountability report) form
collected from the school by the BOS manager at district level, which is verified and sent to the
provincial office who also verifies and send it to the ministry at national level. According to official at
district and provincial level so far there is no notable problem with targeting and fund disbursement. All
schools are covered and transfers are on time. 81,774 primary school students in TTS are registered as
beneficiaries of BOS.
The use of funds is limited to 13 items as stated in the BOS guideline. One of the items is provision of
scholarships to poor students.
Scholarship for the poor program (Beasiswa untuk Siswa MiskinBSM)
BSM is a scholarship program that targets poor students from primary to university levels. In 2010, the
national budget allocated for this program was IDR 2.7 trillion, covering 4.1 million students (Indonesian
Financial Note and Revised Budget 2011).
The number of beneficiaries is determined based on a quota set by the Ministry of Education. Selection
process is left to the school through the school committee, with a general guidance of prioritizing the
poorest students. At the national level, there is an agreement that the scholarship should prioritize
children whose families are in the conditional cash transfer program (PKH program, described below) as
they 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 any
assistance 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 from
their 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 of
recipient students at the central level. In some years (e.g. 2009 and 2010) not all students in the
proposed list are in the final list of beneficiaries. The district officials do not know how the final list is
made at the ministry.
Funds are transferred from the ministry directly to the students via post service. In the past the funds
were 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 all
subdistricts, 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 their
account 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: 14,600
students. However, it is difficult to obtain the total number recipients in junior secondary school (grade
7-9), since there are 3 stages of program transfer: 1
st
and 2
nd
transfer from the central (listed 1,600
students) and 3
rd
transfer from the province (listed 1,960 students). The district education office does
not 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 and
address) of students from both stage.
As the program does not follow its recipients, recipients in primary schools may or may not receive the
scholarship when they move to secondary school even though her/his economic condition remains the
same.
Conditional Cash Transfer Programs
Program Keluarga Harapan (PKH)
The PKH is a conditional cast transfer program primarily designed to improve maternal and neonatal
health as well as childrens education among poor households. Beneficiaries consist of households with
children younger than 15 years (or 15-18 years, but having not completed the 9
th
grade) and/or
pregnant or lactating women. Depending on the family structure and their obedience in fulfilling
educational and health requirements, households receive IDR 600,000 to 2,200,000 per year. Children
are seen as the group which benefits most from the program in terms of amount and duration of
transfers. Conditionalities of the cash transfer include: (1) Children are enrolled in school and attend at
least 85 percent of school days; (2) Pregnant and lactating mothers as well as infants of 0-6 years of age
regularly 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 the
central level.

Targeting is based on BPS poverty data (PPLS 2005). BPS sends the list to the MoSA, The Ministry makes
the list of beneficiaries and distribute the list to PKH operators in each district. The operators, with the
help of social workers, validate recipients data in the field. Data updating is done when the BPS updates
its PPLS data (2005, 2008, 2011). The PPLS 2011 so far has not been in use.
In 2007 when the program started, 19,000 households in 11 sub-districts were proposed based on BPS
data, 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 budget
of 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 socio
economic condition. The households are deemed unqualified are those whose members are not the
target group of PKH (pregnant, lactating, under-five, or in grade 1-9 of school). Households whose
economic level appear to be beyond the eligibility requirement (very poor) when visited, are not
disqualified as it might draw resistance. So far households only exit when they no longer have family
members who are within the target group classification.
Child Labour Reduction Program in Support of the PKH (Pengurangan Pekerja Anak untuk Mendukung
Program Keluarga HarapanPPA-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 of
PKH families who have dropped out of school and work. The children are brought to training shelters
where they are given motivational and academic trainings for one month, plus out of shelter
consultations by social workers, to prepare them to return to school. Priorities are given first to children
in the worst forms of child labour, second to child labour who are under 13 years, and third to child
labour between 13 to 18 years old.
The program is run by the Ministry of Manpower and Transmigration in coordination with the Ministry
of Education, the Ministry of Health, Ministry of Religious affairs, and non-governmental organizations
involved in the PKH program.
PPA-PKH started in 2008 with 4.853 target children in 48 districts in 7 provinces (including TTS in NTT). In
the first year the return to school rate of this target group was only 32% (MoMT, 2012), but the rate has
improved. In 2010 3.000 children 50 districts in 13 provinces were targeted, and 74% succeeded
returning to school (MoMT, 2012). In 2012 the program targets 10.750 children from 84 districts in 21
provinces.
In NTT this program has started running but coordination among agencies, which is key in achieving its
goals, 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 not
taken place. Officials stated are still waiting for the Education Office to follow up with school placement
or equivalency exams for these children. The target for TTS district in 2012 is 190 children, and the
process will be facilitated by 19 social workers.
Food Programs
School Feeding program (Program Makanan Tambahan Anak Sekolah--PMTAS)
The Ministry of Education, in coordination with six other ministries, launched the School Feeding
Program (Program Makanan Tambahan Anak Sekolah) in 2010. The program provides additional food for
kindergarten and elementary school students in 27 less developed districts in Indonesia. In 2010, the
program 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 cost
estimate 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 of
National Educations Policy Brief, 2011; Presidential Instruction No. 1/2010). Preparation of the food is
organised 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 the
2011 funds were only disbursed in August. To be able to utilise the funds within the available time, the
frequency of feeding was made every day. Even so, by the end of the year there were still unused funds
that 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 1
st
, 2012), PMTS budget for 2012 has not been
disbursed 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 In
response to this, The World Food Program (WFP) covered the gap by providing school feeding in the 20
uncovered schools in the district. In 2011 the PMTAS reaches all schools, but still not all students within
the schools. The schools decided to redistribute and use the funds to provide food for all students in the
school. The number of students in the PMTS budget for TTS province is 64,725, (compared to 81,774 of
all primary school students in TTS, as listed under the BOS program).
Staple Food Program (Rice for the PoorRaskin)
The Rice for the poor (Beras untuk orang MiskinRaskin) programme started in 1998 as a response to
the late 1990s crisis to prevent the possible drop of food intake among poor household. It provides
subsidized rice for poor households. In 2010, a budget of IDR 13.9 trillion (0.2 percent of the GDP) was
allocated to subsidize 2.93 million tons of rice, to be distributed to 17.5 million households (Indonesian
Financial 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 problems
emerge in the distribution of the rice from the primary distribution point to the beneficiaries and there
is a lack of dissemination of information and transparency; inaccurate targeting, amount, and
frequency of rice received by beneficiaries, as well as price of rice; high cost of program management,
ineffective monitoring and evaluation; and ineffective complaint mechanism.
3.1.3 Working age population all those in active age groups who cannot (due to
unemployment, underemployment or sickness) or should not (in case of maternity)
earn sufficient income in the labour market enjoy a minimum income security through
social 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 are
absent for up to 12 months because of sickness. Civil servants are entitled to similar provisions (up to 12
months of sickness leave) under government regulation No. 24/1976. Female employees should be
given 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 sector
workers, providing modest one-off cash benefits to members in case of sickness, work injury or death. In
case 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 IDR
30 million to the organization for 3 years and each member contributes IDR 5,000 per month to the
organization.
Askesos existed in TTS between 2007 and 2010, run by 3 organizations. Participants are mostly, mostly
moto-taxi drivers, small vegetable traders, and (productive) farmers. After the 3-year contract ended in
2010, 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 obtained
by the district social affairs office as this programme is managed from the ministry directly to the
foundations 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, participation
in 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 disease
arising out of employment, and travel accidents that occur while traveling to and from work following
the usual route. The contribution is fully paid by employers and ranges from 0.24 to 1.74 percent of
wages, depending on the level of risk and protection.
Jamsostek social security for construction workers
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 workers
were 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 had
significant 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 in
the programme.
Askesos Employment Injury benefit for informal sector workers
Under the Askesos program for informal sector workers, members receive IDR 300,000 (maximum one
claim per person and per benefit per year) in case of employment injury. The program existed in NTT
between 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 injury
benefits. During the pilot phase the government pays full subsidy for the first 8 months of members
contribution, and subsequently members are expected to continue their membership and pay their own
contribution. 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 the
eight-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 the
cause), the dependents of the deceased employee are provided with benefits which include a flat rate of
IDR 10 million, a funeral grant of IDR 2 million and monthly transfers of IDR 200,000 per month for 24
months. 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 a
deceased worker. The death benefit amounts IDR 400,000 if the member dies in the first year of the
membership, 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 about
continuation so far.
Death Grant in the Jamsostek Pilot project for informal workers
Jamsostek pilot program for informal economy workers includes death benefits. Contribution for death
benefit is set at 0.3 percent of the minimum wage.
Death grant in Jamsostek social security for construction workers
Other than occupational Injury benefit, the Jamsostek special program for construction workers also
provide death grant for. Survivors are entitled to the grant in case death of a worker during the period
of 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 of
participation 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 the
total workforce, are entitled to a termination pay once they have finished their probation period of four
months. 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 for
employment of less than 1 year, 2 months of wages for employment of between 1 and 2 years, 3
months 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 community
empowerment programs. It is a national program for community empowerment in poor districts and
sub-districts. The design of the PNPM is to give the control over planning, design, implementation and
monitoring of development projects to local communities. A large portion of the projects are in
infrastructure (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 the
construction 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 and
Economic Infrastructure. PNPM Penguatan is a community empowerment program for specific sectors
or areas. Included in this category are the PNPM-Rural Agribusiness Development, Direct Cash Transfer
for 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 provinces
respectively.
NTT has in total target 295 sub-districts with PNPM programs. Core PNPM (Rural or Urban PNPM) exists
is all PNPM areas. Other types, implemented in different areas, include:
PNPM Generasi (focusing in children health and education e.g providing transport cost for
maternity checks, school feeding etc) in Flores timur, Rote, Lembata, TTU, Rotendao, Manggarai
Timur, Mannggarai, Belu
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 designed
in 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. Other
activities include capacity development in education and health e.g. through trainings of cadres of
community 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 rural
infrastructure 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 out
additional infrastructure projects funded by the 2009 stimulus package (a measure to cushion the
economy against the recent global recession). Some projects are implemented by provincial public
works offices and some by district public works offices.
According to officials at the Public Works Division of the Provincial Bappeda, the village infrastructure
program has provided a lot of employment for local communities, but there is no data that summarizes
the number of workers or man days resulting from the projects (though it is possible to calculate). There
is 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 also
no reporting line.
Kube (Kelompok Usaha BersamaGroup 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 the
development of the groups:
KUBE Penumbuhan (KUBE Growth) is the first-stage intervention, where the grant is expected to
be used as a start-up capital.
In TTS, 180 groups in 4 sub-districts (South Amanuban, Noebana, Kolbano, Toianas) receive this
assistance.
KUBE Pengembangan (KUBE Development)is the second stage. After the completion of KUBE
pernumbuhan program, groups may send a proposal to get a second grant intended to
strengthens business growth.
In TTS, 35 groups in 3 sub-districts (7 villages) have progressed to the KUBE pengembangan
program.
KUBE Kemandirian (KUBE Self-Sufficiency)is the third stage of the assistance, granted when
the groups businesses are considered to have significant progress based on evaluation. Not yet
reached in TTS
The amount of grant is the same for each stage (IDR 30 million per group). Selection of the group is
based on the business plan proposed by the groups. Proposals are submitted to the central government
through district and provincial offices. Groups are assisted by facilitators. Each sub-district has a
facilitator, 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 are
mostly 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 the
Government (Central Bank of Indonesia, 2012). In 2011, a total of IDR 29 trillion has been lent to around
6 million businesses (statement of the Coordinating Ministry of Economy quoted by Antara State News
Agency, January 10th 2012).

Anggur Merah Village Livelihood Program by Provincial Government
Anggur Merah (anggaran untuk rakyat menuju sejahtera) or Village Welfare Program is a provincial
government program which allocates IDR 250 million (in 2011) for each target village to support
productive economic activities (e.g. group lending schemes, livestock, housing construction, depending
on local needs).
The program targets two villages in each sub-district per year, or 290 villages in 2012 around the
province. 32 villages in TTS district are beneficiaries of this program. One facilitator is assign for each
village.
Anggur Merah Village Livelihood Program by District Government
District Governments Anggur merah program replicates the provincial Anggur Merah program, usually
with smaller coverage. TTS District's Anggur merah program targets 4 villages in (4 sub-districts), which
have 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 Vocational
Education and Training (TVET) Centers known as Balai Latihan Kerja (BLK) and Kursus Latihan Kerja (KLK).
BLK is usually bigger than KLK. The BLK centers provide vocational training and job placement services to
formal and informal workers. Courses are provided free of charge, though a few BLK centers also
provide non-subsidized courses. The BLK centers exist in all provinces and in some districts. Some BLKs
are 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 and
underutilized. Most of the facilities are not functioning optimally and need serious revitalization
(Minister of Manpower, 2011). However, comprehensive data regarding general BLK capacity, funding
and 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 by
the 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 KLK
in Ende has 28 packages (funded by the national budget). These packages mostly consist of technical
trainings (automotive, carpentry, masonry) and food processing (marine products, agriculture products
etc depending on the area). Each package has 16-20 trainees.
Technical trainings require 160 contact hours (1 month) and processing trainings require 60-80 contact
hours (maximum 2 weeks). Training material in technical trainings are estimated to cost around IDR 8-10
million per student per package, while food processing requires only IDR 4-5 million because materials
are cheaper and can be obtained locally.
Trainings can be conducted in the three centers or brought to certain locations, subject to a need
assessment and requests from the regions. Mobile trainings are more expensive as it requires additional
cost for transporting the equipments. In some cases district governments co-share the transportation
costs. For trainings conducted in districts, fund from the center is transferred to, and managed by, the
district. The districts are supposed to submit activity report to the provincial office. However, these
reports 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 and
district budget. Most programs run based on availability of funds, and very few are provided on regular
basis.
The Office of Agriculture and Plantation, for instance, has a training program for farmer groups which
focuses on rice, maize, cassava and beans cultivation (as TTS main agricultural products). Trainings may
be provided in the district or in the province, as well as outside the province (e.g. sending farmer groups
to a national trainings or workshops). The number of trainings and trainees fluctuate by year, as they are
conditional to the availability of budget received by the district.
The Office of Animal Husbandry has several programs with the goal of improving the number and quality
of livestock in the area. The program includes provision of animal vaccination, distribution of livestock,
breeding, construction of water reservoir, and trainings.
These offices have their own network of extension officers who are tasked to provide the necessary
knowledge and assistance at community level. However, the capacity of these extension workers is still
limited and cannot cater to the demand. For instance, the Office of Animal Husbandry stated that they
can only provide vaccination for 80,000 animals, which is much below the number of animals needing
vaccination. The number of cattle alone has reached 167,834 in the district (Office of Animal
Husbandry). One extension officer for animal husbandry are placed in each sub-district, but three sub-
districts are still without such facility.
Recently the government of Indonesia issued a policy to take the function of these extension services to
the Agency for Food Security, which would provide comprehensive extension services to activities
related to food security (which comprises programs under the offices mentioned above). So far the
extension services of the Office of Agriculture have been handed over. The Office of Animal Husbandry,
on the other hand, claimed that they are still waiting to see how their part of the services will be merged
and coordinated under the Food Security Agency.

3.1.4 Elderly and persons with disabilities all residents in old age and all residents with
disabilities have income security at least at the level of the nationally defined poverty
line through pensions for old age and disability or transfers in kind

Income Security in Old Age
Pension and Old Age Savings Program for Civil Servants and Military Personnel
Retired civil servants and military personnel receive a monthly pension and a lump sum old age savings
benefit at retirement age. Civil servants pension and old age savings are managed by PT Taspen and
military personnels are managed by PT Asabri.
Old-age benefits for formal private sector employees
The Jamsostek Old Age Program (JHT) for private sector employees is a provident fund, where members
receive a lump sum benefit corresponding to the cumulated contributions and declared interest
refunded. The conditions for the withdrawal of the lump sum are: retirement at the age of 55 years;
total and permanent disability; death of the employee before retirement age; and unemployment in
case the employee has contributed for 5 years or more.
Jamsostek for informal economy workers
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 the
program 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 provides
cash transfer to vulnerable elderly (elderly who are unproductive and/or have no caregiver) called
Jaminan Sosial Lanjut Usia (JSLU). The amount of the minimum pension is IDR 300,000 per month which
is 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 by
the 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 million
vulnerable elderly. These are based on figures expressed by officials as quoted in the media, MOSAs
website and discussions
1
, while actual data or official estimation is not yet available. Added to the issue
of lack of data is the vague definition, hence targeting, of vulnerable elderly. Some criteria of vulnerable
elderly (such as being 60 years and older, poor, non-recipient of other programs) are mentioned in
MoSAs JSLU Guideline (2008), but clear targeting strategy is so far lacking. Target for each district is set
based on quota given by the MoSA.
JSLU started in TTS in 2008, with 62 beneficiaries (6 villages in 3 sub-districts). In 2009 the program
added 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 are
poor and not productive. However, the number of recipients is based on the quota given by the
ministry.
Targeting mechanism: The MoSa sets the number of quota from each district, and selection of
beneficiaries is the responsibility of the district office of social affairs. District office assigns each village
authorities to select beneficiaries. A list of names is proposed to the central and the ministry makes the
final list. In many cases, the number of approved beneficiaries is fewer than the proposed number. The
village not district authorities are not aware of how the final selection is made, since it is made at central
level and the central government does not have complete information on the actual condition of the
beneficiaries. The number of beneficiaries remains the same as there is a waiting list consisting of
elderly from the same village who did not get in to the quota. Whenever a beneficiary dies of moved to
another 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 Suara
Pembaruan News as at http://www.suarapembaruan.com/home/17-juta-lansia-terlantar-di-indonesia/7688 and
Antara news Agency at http://www.antaranews.com/berita/1268547583/anak-terlantar-ri-capai-5-4-juta
Overall the number of beneficiaries is considered very small compared to the actual number of target
beneficiaries 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 office
requested to the ministry a quota of 20 people per village, but in the end on average 10-12 people from
each village were granted entrance to the program.
Disbursement and reporting are currently done twice a year. As many recipient no longer have family, a
staff from the district office delivers the money to them. Monitoring is also done twice a year by the
district office, who reports their findings to the provincial and central government. Disbursement and
monitoring require staff to go to beneficiaries homes. The ministry requests that in 2012 disbursements
to be done monthly, but given the difficult terrain in the district, district officials expressed that they do
not 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 day
to these homes (Directorate General of Social Rehabilitation, Ministry of Social Affairs, 2010). This
amount of subsidy is considered very low even to cover the daily food expenditure. Some provinces also
have programs 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-off
cash transfer of 15 million to one group of 10 people. The program is intended to provide capital for
simple 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 to
pension 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 receive
benefits 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 a
total of 59 recipients JSPACA in the district, of the 150 proposed by the district.
The data of people with disability in the district is collected by the district social affairs staff based on
observation during field visits to the villages or based on reports from village officials. There is no
systematic data collection, and available data do not cover all areas. The available data shows a total of
3,669 people with disability. The data is broken down based on the types of disability (visual
impairment: 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 of
the disability. According to social affairs official in the district, priorities are given to people who are not
able 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 Security
System Law reach implementation stage, social security programs are targeted mainly to formal sector
workers i.e. civil servants (Askes, Taspen), military/police personnel (Asabri, Askes) and formal private
sector workers (Jamsostek). While informal economy workers account to around two third of the
workforce, programs targeted to them consist of only small and scattered schemes such as Jamsostek
LHK (workers outside working relations) and Askesos. Both programs have so far provided modest
protection and low coverage, and have shown little progress.
The Jamsostek program for workers outside working relations has not shown significant progress
beyond its piloting stage. In most cases, members do not continue their membership once the pilot
phase is over. Follow-up of the pilot is very week, and in many cases nonexistent. Workers lack
information/guidance on how to individually enroll after the subsidized program finished, and those
who do have the knowledge often find it troublesome to register and pay contribution when the service
is not easily accessible. On the other hand, Jamsostek has limited capacity to reach and provide services
to 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 their
membership, and they have a rather special situation: a workers association functioning as intermediary
organization to facilitate their membership.
The Askesos program has a low coverage (a very small fraction of the informal economy workers) and a
low level of protection (only a small one-off payment per member and per year). In TTS, continuation of
the program is unknown: the program ran between 2007 and 2010 under 3 local organisations, but has
not continued since 2010. Currently the organizations do not know whether there will be more Askesos
programs 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 its
obligatory 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 of
formal sector workers, or 1.8 percent of the total workforce), providing benefits to a total of 5,044,375
beneficiaries (2.1 percent of the population) (Jamsosteks 2010 annual report). 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 6 percent of the population. This
is 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 and
old age benefits.
Data limitation and targeting issues
A number of programs are faced with problems of data limitation, and among its consequences are
targeting issues. Programs that target certain groups of the population such as disabled people, children
with special need or vulnerable elderly require information about its target beneficiaries. There is so far
a lack of data that shows the actual number of these target groups. Moreover, in many cases there is
also 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 of
disability. 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 60
years and older, poor, non-recipient of other programs) (MoSA, 2008), but they remain vague and clear
targeting strategy is lacking.
Hence, programs such as JSPACA, JSLU and PPA-PKH rely on identification of beneficiaries by the district
office 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 the
total 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 the
program 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 in
coordination often curb the impact of these programs. Jamkesda program, which is designed to
complement Jamkesmas has a completely separate database and targeting mechanism from that of
Jamkesmas. Overlaps of targets have been found and crosschecking of recipients faces considerable
challenge.
Another example is the Askesos program, which is directly managed from the center. Selection of
organizations 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 ministry
nor the provincial office) about the activities of the Askesos Programs. No information goes through the
district office, and officials expressed that this hinders program synchronization.
The BSM and PKH program are both cash transfer programs with similar target recipients. They are
however managed separately with different targeting method. At the national level, there is an
agreement that the scholarship should prioritize children from PKH families, but at district level this is
not the case.
Synthetic Table
The following table shows the different programs with various management system, targeting method
and level of services.
Programs Source of funds
Line
ministry(ies)
Program
implementer Targeting
Unit of
beneficiaries
Lowest level of
service available
Jamkesmas Central Government MoH MoH Central PPLS data Individual
Puskesmas (mostly
at subdistrict level)
Jampersal Central Government MoH MoH Central PPLS data Individual
Puskesmas (mostly
at subdistrict level)
Jamkesda District Government MoH
District Health
Office
Community
targeting (mostly
village authorities) Individuals
Puskesmas (mostly
at subdistrict level)
JPKMM
Provincial
Government MoH
Provincial Health
Office
Community
targeting Individuals Provincial hospital
Askes
Contribution (civil
servants &
central/local
government)
MoH, MoSOE,
MoF
PT Askes, with
branches down to
district level
Membership upon
employment as civil
servant Individuals
Askes branch at
district level
Taspen
Contribution (civil
servants &
central/local
government) MoF PT Taspen
Membership upon
employment as civil
servant Individuals
Branches of PT
Taspen exist in 6
cities
Asabri
Contribution
(military/police
personnel &
government) MoD, MoF PT Asabri
Membership upon
employment in the
military Individuals
Branches of PT
Asabri exist in 12
cities
Jamsostek
Contribution of
workers & employers MoMT
PT Jamsostek, with
branches at
provincial level
Employer enroll
their employees Individuals
Regional branch of
PT Jamsostek at
provincial level
Jamsostek
LHK pilot
central government
(full subsidy) MoMT
PT Jamsostek, with
branches at
provincial level
Selection by District
Office of Manpower
transsoc Affairs Individuals
Regional branch of
PT Jamsostek at
provincial level
BOS central government MoE MoE central
Universal School
enrolment data
Individual
Students School
Scholarship
for Poor
Students central government MoE MoE central
Schools select
beneficiaries
Individual
Students School
PKH central government MoSA
PKH operator (with
workers down to
village level),
reporting to MoSA
PPLS national
poverty data Households
Village (social
workers workig for
PKH operator)
PPA-PKH central government
MoMT, MOE,
MoH, MoRA
So far mostly
District Office of
Manpowertranssoc
Selection by District
Office of Manpower
transsoc Affairs
Individual
children District
School
feeding central government MoE MoE central
All students in target
areas.
Individual
Students
Subdistrict (Technical
service center)
Raskin central government
Coordinating
Ministry of
Welfare Bulog PPLS poverty data Households
Rice dropped at
village level
Askesos central government MoSA Local foundations
Local foundations
identify participants Individuals
Local foundation
(usually at district
level)
Rural PNPM central government
MoHA,
Coordinating
Ministry of
Welfare
PNPM national
team with
facilitators at
subdistrict, district,
provincial and
national level
Based on
development plan
proposed by village Communities
Subdistrict
(facilitators at
subdistrict level)
Kube central government MoSA MoSA
groups' proposed
business plan groups
Subdistrict
(facilitators at
subdistrict level)
KUR
subsidized guarantee
scheme by central
government
Coordinating
Ministry of
Economy Banks
enterprises apply to
the banks enterprise
Banks (province or
district level)
Anggur
merah-
Province
Provincial
government
Bappeda
(Provincial
level) Provincial Bappeda
Bappeda identifies
target village Village Village
Anggur
Merah -
District District Government
Bappeda
(District level) District Bappeda
Bappeda identifies
target village Village Village
BLK&KLK Central government MoMT
(Training centres)
BLK/KLK
Quota of trainees
per district Individuals
3 training centres in
the province
JSLU Central government MoSA MoSA
District office selects
beneficiaries, based
on quota per
districts Individuals District
JSPACA Central government MoSA MoSA
District office selects
beneficiaries, based
on quota per
districts Individuals District


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 of
targets are likely to happen and crosschecking of recipients faces considerable challenge. In discussions
at provincial level, health officials concede that overlaps of beneficiaries exist. Some patients are likely
to be listed under both Jamkesmas and Jamkesda insurance, as long as their treatments are charged to
either 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 and
Jamkesda recipients is higher than the total population. Crosschecking is difficult and has not been
systematically 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 the
detailed figure is unknown as no systematic crosscheck is conducted. Tracing of recipients at sub-district
level 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 a
patient is found to have both Jamkesmas and Askes insurance, though it is less common (based on
interview 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 and
military 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. A
particularly 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 Askes
program, a change in the contribution mechanism will occur: Whereas Jamsostek health insurance
contribution is paid fully by the employer, the new health insurance will be shared by workers and
employers. 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 some
programs. The BSM program, for instance, is targeted to students from very poor households. Targets
are theoretically the same as PKH. There is also an inter-ministerial agreement at the central level that
student who receive BSM should be the same as PKH recipients. However, targeting of both programs is
separate: PKH targeting is based on national data while selection of BSM beneficiaries is done by the
school, based on the judgment of the school committee and the community. In practice schools or local
education offices may have different considerations, such as redistribution of resources to poor
students who do not get any assistance from the PKH program.
During a workshop attended by the different offices, the heads of Social &Manpower and Education
offices mentioned a program [name of program] of the Ministry of education which has transferred a
fund of IDR 2 billion to provide cash to 7,000 poor children. The money has not been disbursed because
there has been confusion over the target beneficiary of this program. The criteria of poor was not
specified by the program guideline that they receive, so both offices are hesitant to conduct targeting as
they are afraid of making a mistake. The money has not been utilized and enjoyed the beneficiaries due
to this confusion.
BSM Database is not organized optimally
The database of BSM recipients does not appear to be organized optimally. At the district office, the
number of recipients in primary school (grade 1-6) was readily available. However, it is difficult to obtain
the total number recipients in junior secondary school (grade 7-9), since there are 3 stages of program
transfer: 1
st
and 2
nd
transfer from the MoE and 3
rd
transfer from the province. Some students are listed
on both, but the numbers are different. The district education office does not have at hand the total
number of recipients. It is however still possible to trace the recipients as the office has the list (name
and address) of students from both transfer stages.
Another data-related issue is that the program does not follow its recipients. So recipients of the
scholarship in primary school may or may not receive the scholarship when they move to secondary
school even though her/his economic condition remains the same.
In many instance distance and communication/transportation issue also poses an obstacles in NTT.
Some schools in TTS were late in receiving instruction, hence also late in submitting the proposed list to
the district education office.
Targeting of this program also lacks clarity. The number of beneficiaries is determined based on the
availability of funds that the provinces receive from the Ministry of Education, and selection of
beneficiaries is often left to the local education office or headmasters of the schools. At the national
level, there is an agreement that the scholarship should prioritize children whose families are in the
conditional cash transfer program (PKH program, described below) as they 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 any assistance from the PKH program.
Under coverage of school feeding program
Though the School feeding program targets all kindergarten and primary school students, it still faces
under coverage. In 2010, not all schools were covered, and in the schools that are covered, not all
students are covered. In 2011 the program reached all schools, but not all students within the schools as
the budget is allocated for 64,725, compared to 81,774 of all primary school students (based on BOS
data).
Late disbursement of school feeding funds
The school feeding program also encountered issues of late disbursement of funds, which lead to low
utilisation due to limited number of days to use. In TTS the 2011 funds were only disbursed in August. To
be able to utilise the funds within the available time, the frequency of feeding was made every day. Even
so, schools were only able to provide the meals for maximum 87 days and some funds had to be
returned to the state budget. At the time of interview in TTS (May 1st, 2012), PMTS budget for 2012 has
not been disbursed and the district has not received information when it will be disbursed.
3.2.4 Income Security for Working Age and Employment Programs
Lack of linkages between employment programs and social security programs
For better impact of programs, there needs to be linkages between employment programs and social
security programs. Income security benefits needs to be connected with measures to increase
employability, facilitate job creation or return to employment so recipients can move up to better
employment and participate in contributory social security schemes.
Employment opportunity programs also need to put workers social security as one of their priotiries.
For instance PNPM has no information whether the workers and contractors participate in social
security programs (e.g. Askesos or Jamsostek for construction workers) during their contract, and it has
no means of checking and enforcing them to do so. Social protection and employment opportunity need
to go hand in hand.
Relevant to this is the need to link trainings with public works programs in order to ensure sustainability.
Trainings are mostly provided in ad hoc manner
Various trainings related to income-generating activities are provided by various agencies and line
ministries (e.g. Offices of agriculture and plantation, Animal Husbandry, Fishery, etc) . However, these
trainings are usually provided on ad-hoc basis, contingent to availability of funds and inventions of
programs. These trainings lack follow-up consultations and refresher trainings, which are necessary to
ensure trainees skill improvement and utilization of such skills.
Lack of employment data in PUs Rural Infrastructure Program
There is not data that summarizes the number of workers or man days resulting from the projects, and
there is also 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 no reporting line.
3.2.5 Issues in Income Security the Elderly and for People with Disability
Limited coverage and low protection for the majority
In the current system, civil servants and military & police personnel are the only group with
comprehensive pension and old age benefits. Formal workers in the private sector have an old age
savings scheme providing lump sum benefit, which level of protection is much lower than that of a
pension scheme. For informal sector workers, there is practically no old age benefit scheme running at
the moment.
Other than the low protection provided by lump sum benefit, evasion is also a major issue among formal
sector workers. Only around a quarter of formal sector workers are currently active members of
Jamsostek JHT program.
Limited coverage of JSLU and JSPACA
The severe disability benefit (JSPACA) and vulnerable elderly benefit (JSLU) cover only a small number of
people who are in the most severe circumstances. And among them, only a small proportion is
effectively covered. Under the lead of TNP2K, the government is exploring to extend the coverage of
JSPACA and JSLU to more beneficiaries. Targeting of beneficiaries is a major issue that needs special
attention.

3.3 RECOMMENDATI ON ON DESI GNI NG AND PI LOT TESTI NG THE
SI NGLE WI NDOW SERVI CE
Based on the issues identified, stakeholders agree that accessibility, targeting and coordination across
programs should be prioritized in order to maximize the impact of social protection programs in region.
Through various discussions and consultations, the Single Window Service at local level is seen as a
mechanism that can facilitate improvements in these issues.
The system, to be placed at existing structure (e.g. at sub-district level), provides information about
existing programs to the community, conducts vulnerability and skills assessment of community
members, facilitates registration to suitable social protection programs as well as skills development or
employment programs, hosts and updates database for the respective area, and uses such data to
facilitate monitoring and impact evaluation.
This mechanism is to be designed and pilot-tested, the process of which should involve all relevant
agencies at district level (and consulting with agencies at central and provincial level). The process
should include:
Formation of a consultation group at district level, consisting of representatives of relevant
district offices, to conduct discussion on
o Issues of social protection programs
o The relevance of the Single Window Service to overcome the issues
o Options of the formation, structure and function of the SWS
Workshops at district level to present the tentative design options and agree on the design
options
Workshops at provincial and national level on the design
Commitment of relevant offices at district level and issuance of necessary local decree (if
applicable) for the formation and the piloting of the SWS




Annex 1
Preliminary indication of programs and actors involved: (to be updated)
Program Actors
District Province National
Health Jamkesmas, Jampersal Dist. Health office Prov. Health office MoH
Askes PT Askes PT Askes
Jamsostek Health PT Jamsostek PT Jamsostek
Jamkesda Dist. Health office,
PT Askes
Prov. Health office,
PT Askes



Children BOS, BSM, PMTAS, Dist. Edu Office Prov. Edu Office MoE
PKH Dist. Social Affairs Prov. Social Affairs MoSA
Raskin Bulog
Vaccination Dist. Health office Prov. Health office MoH



Soc Sec for
Working Age
Jamsostek
Injury&death
PT Jamsostek PT Jamsostek
Askesos Dist. Social Affairs Prov. Social Affairs


Elderly JSLU Dist. Social Affairs Prov. Social Affairs MoSA
Taspen PT Taspen
Jamsostek old age PT Jamsostek PT Jamsostek
Elderly homes Dist. Social Affairs Prov. Social Affairs MoSA

Disabled JSPACA Dist. Social Affairs Prov. Social Affairs MoSA
Rehabilitation centres


Employment
Programs
PNPM Rural TKPKD BPMD (Bdn Pemberd
Mas Desa)
MoHA-PMD,
WB PSF
BLK Manpower Office Manpower Office MoMT
KUR Banks (?) Banks (?) Banks (MoE?)

PKK trainings PKK
Agriculture
Animal husbandry
Coordination/
database
Design, database, and
M&E of anti poverty
programs
TKPKD District TKPKD Province TNP2K
Design,
set up and supervision
DJSN
of BPJS I&II
Development Planning Bappeda Bappeda Bappenas (Soc Prot
Dir)
Data collection BPS BPS BPS

Beneficiaries,
Worker &
Employer
Chamber of Commerse
Employers Association
Beneficiaries (sample)
Head of subdistrict/
village (sample)



Bibliography SWS NTT

Indonesian Financial Note and Revised Budget 2011; Ministry of Health 2009
World Bank (2011b)
(Centre for Health Financing and Health Insurance, Ministry of Health, 2010 data)

Dewan Jaminan Sosial Nasional, 2011, ROADMAP PENCAPAIAN KEPESERTAAN
MENYELURUH (UNIVERSAL COVERAGE ) PROGRAM JAMINAN KESEHATAN DI INDONESIA

Ministry of Manpower Kemnakertrans Targetkan Tarik 10.750 Pekerja Anak di 21 Provinsi tahun 2012
14 February 2012. Available at http://menteri.depnakertrans.go.id/?show=news&news_id=812
NTT Provincial Health Office, 2011, LAPORAN SEKSI ASURANSI KESEHATAN DAN JP2KM
DI PROVINSI NUSA TENGGARA TIMUR TAHUN 2010
NTT Provincial Health Office, 2012, Hasil Pelaksanaan Program Jamkesmas, Jampersal dan
BOK tahun 2011 dan Temuan Hasil Audit BPKP, power point presentation
TTS District Health Office, 2011, TTS District Health Profile 2011.
(MOH Decree No. 631/2011 regarding the Technical Guidelines of Jampersal)
MOHs Kesehatan anak, 2012,
http://www.kesehatananak.depkes.go.id/index.php?option=com_content&view=article&id
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