World Bank Document filehids document has a resticd d _bon ad may be used by recpient only in the pedonnanoe of their ... PLKB : Family Planning Field Worker PPKBD : ...

Document of

The World Bank

FOR OFFICIAL USE ONLY

Report No. 12310

PROJECT COUPLEIIOW REPORT

IDONESIA

FOURTH POPUIATION PROJECT(WMR 2529-TnD)

SEPTEMBER 14, 1993

MICROGRAPHICS

Report No: 12310Type: PCR

Population and Human Resources DivisionCountry Department IIIEast Asia and Pacific Regional Office

hids document has a resticd d _bon ad may be used by recpient only in the pedonnanoe oftheir offia dus. Its contents may _t oewise be dklosed witout World Bson a

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CURRENCY EQUIALENTS

Name of Currency: RupiahAt appraisal (1085): USS = Rupiah 1,100

1986/87: US$1 = Rupiah 1,1001987/88: US$1 - Rupiah 1,6441988/89: US$1 = Rupiab 1,6861989/90: US$1 = Rupi&b 1,7701990191: US$1 = Rupiah 1,8431991/92: US$1 = Rupiah 2,020

FlSCAL YEARApril 1 - March 31

ABBREVIATIONSAVA : Audio Visual AidsBAPPENAS : National Development Planning AgencyBKKBN : National Family Planning Coordinating BoardC : Citizen Band Radio3EPKES : Ministry of HealthFKIP School of EducationFSU : Florida State UniversityGOI : Government of the Republic of IndonesiaIBRD : International Bank for Reconstruction and DevelopmentICB : International Competitive BidingIDP International Program of Australian Universities and

CollegesMEC Information, education and CommunicationIKIP : Institute for EducationIaJD : Intra-Uterine DeviceKLH : Ministry of Population and EnvironmentLCB : Local Competitive BiddingMIU : Mobile Information UnitMOEC : Ministry of Education and CultureMOF : Ministry of FinanceNGO Non-Government OrganizationNSAID : Non-Steroid Anti-Inflammatory DrugsNTC : National Training CenterOED : Operations Evaluation DepartmentPCR Project Completion ReportPLKB : Family Planning Field WorkerPPKBD : Family Planning Field SupervisorRC Research CenterREPELITA : Five-Year Development PlanSAR : Staff Appraisal ReportSW : Staff WeeksTA : Technical AssistanceUNFPA : United Nations Fund for Population ActivitiesUPT Transmigration resetlement UnitsUPPK Provincial Population Education Implementing UnitUSAID United States Agency for International DevelopmentVCDC Village Contraceptive Distribution CenterWHO World Health Organization

FOR OMCJAL USE ONLYTHE WORLD MNK

Washkt D.C. 20433U.SA

Op.mln Eveiuon

September 14,1993

MEONUM TO THE EXTE DIRECTORS THE PRESIDET

SUBECT: Project Completion Report on IndonesiaFoAh Pouation Proec£tLoan 2S29-IND)

Attached is the Project Completion Report on Indonesia - FourthPopulation Project (Loan 2529-IND) prepared by the East Asia and Pacific RegionalOffice. Part II of the report was prepared by the Borrower. The report provides asatisfactory assessment of project achievements.

The project was to assist two key agencies in family planning in Indonesia-the Natural Family Pianning Board and the Minitry of Population and Enviromuent.Specific components included field operations, staff development, information, educationand communication, development of capabilities for research and policy planning, andinstitution building and training for third parties (universities and NGOs).

On the whole, the project outcome can be considered satisfactory, althoughinstitutional development objectives in research and polcy planimng were only partlyrealized. Overall sustainability of project achievements appears likely.

Since the first two population projects in Indonesia were audited and theentire sectoral portfolio has been reviewed in the 1991 OED study on the Bank'spopulation activities, a performance audit of this project is not intended.

Attachment

IThi docment has a rested d sistbution and may be used by recipients only In the pedormance of their officialdudes. No contenb may not otherwise be dislosed without Uorld Bank autorzation.

VOR OFFMCIL USl ONLY

PROJECT COMPLETION REPORT

INDONIM

FoUT PoPunTION PROJECT(TON2S29-4ND)

TEAx 01 CONT8T

Page No

PREFACE . .... 4 .................................. i

PROJECr EVALUATION SUMNiARY ........................ ii

PART L PROJECr RVIEWV FROM MDA PERVSP E ...... 1

Projeoc Identity ......... , ...................... IProjectBacdound 1Project Objectivs and Dr scrip.on 2Projectdgn and Cgizan dOr.on 4Project Imp.e.entatin 5MajorProject Results 9Projec Sustainaiity 11Bank Performance 13Borrower Performance 14Lessons Lmed . .14Project Relationships .. 16Consulting Serices .. 16Project Documentation and Data . .16

PART UL PROJECr REVIEW FROM BORROWER'S PERSPECTIVE 17

Introducdon .. 17Proed Description .. 17ProjectResults .. 20Project Benefits and Performance ......................... 28Bank's Performance ................. 31Government's Performance .............................. 31

PART IL STATISTICAL NFORMATION

3.1 Rlated Bank Loans .333.2 ProjectTimetable .363.3 Loan Disbursements .373.4 Project bnplementation .............................. 383.5 Project Costs and Financng .423.6 Studies .443.7 Compliance with Covenants .473.8 Use of Bak Resources .48

MAP - IBRD 18666R (PPA)

This document has a restticted distribution and may be used by recipients only in the performanceof their official duties. Its contents maY not otherwise be discosed without World Bank authorization.

PROJECr COMPLEllON REPORT

INDONESIA

FOURTH POPULATION PROJECT(In 2529-ND)

PREFACE

Thi is a Proect Completion Report (PCR) for the Fourth PopulationPr,oiect in Indonesia which was financed by an IBRD Loan 2529-INI) appmved in 1985for U1S$46 million equivalent. The Loan Agreement was amended in 1986 and againin 1987 end the loan amount reduced to US$35.1 million equivalent. The ban closingdate of March 31, 1991 was extended for one year, until March 31. 1992, althoughdisbursements for two categories were allowed until December 31, 1992. Approamately93, percent of the amended loan amount was disbursed up to that date.

The Preface, Evaluation Summary and Parts I and Im of this PCR wereprepared by the Population and Human Resources Division, Country Department III,Bast Asia and Pacific Region. Ti PCR was prepared in accordance with theGidelines issues in June, 1989 and it is based on data provided by 001, a review ofWorld Bank records, interviews with Bank staff involved with the project, a Bankcountry sector study, and an OED report on population projects in eight countriesincluding the experience in Indonesia It also incorporates findings of a Bank missionthat visited Indonesia in April, 1992. Part II of the PCR was prepared by the Borrower.

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PROJECI COMPIMIEON REPORT

INDONESA

FOURTH POPULATION PROJECr(LOAN 2529-IND)

EVALUATION SUMMARY

Introducto

i High fertlity and rapid population growth were identified in ndonesia mthe early 1970's as serious constraints to economic development. At that time, thegovernment adopted a policy of fertility reduction and initiated a family planningprogram, strongly supported at the highest level of government, which soon became oneof the most successful and innovative in the world. During the 1980s, Indonesiaexperienced rapid fertility decline, from a total fertility rate of 10 in the early 1970s, to3.4 in 1988. This decline was brought about by socioeconomic changes, but perhaps assignficant was the use of contraception.

Project Objechtes, Content and Desigp

i, The project was intended to firther strengthen the National FamilyPlanning Board (BKKBN) to pursue GOI's famfly planning and fertlity reducdon goalsand assist the Ministry of Population and Environment (KLH) in fulfilling its policy andcoordinating role. The project contnribted to a major program expansion and it alsosupported innovative approaches to reach transmigration areas and districts in the OuterIslands IL To achieve these objectives, the project was to finance, in BKKBN, fieldoperations development, staff development, information, education and communication(EC), population education, service delivery development in transmnigration areas, andinstitutional capacity building for research. In KM, the project was to supportformulation and follow up of a population plan of action, institution building forpopulation study centers in unijersities and training for NGOs. Fnancing was to beprovided for buildings for BKKBNT district offices to complete the national n',twork,equipment, vehicles and materials, local and foreign fellowships, local staff training, andtechnical assistance.

iii. The project was appraised in 1984, the fourth in a series of Bankpopulation projects respectively approved in 1972, 1977 and 1980, all of them integralparts of the national family planning program; the project was identified and appraisedin the context of an agreed GOI-Bank-other donors strategy for expanding familyplanning services and enhancing institutional capacity for policy development andresearch.

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ImplementaIon Experience

iv. With some exceptions, tfie project was implemented in accordance with theplan agreed at appraisal and negotations. The Loan became effective in November,1985 and closed on March 31, 1992 after a one-year extension. Additionally, in orderto enable completion of studies by several fellows, the Bank authorized continuation ofreimbursements for consultant services, local and overseas fellowships and local training(Categories 3 and 4 of Schedule 1 of the Loan Agreement) until December 31, 1992.During the first two years of the proJect there were two cancellations of the Loanamount - $8.4 million in June, 1985 and $2.5 million in April, 1987 - because ofcurrency devaluation, and downsizing of some buildings due to new 001 regulations.By December 31, 1992 the amended loan of $35.1 million had been disbursed in theamount of $ 32.5 million. Overall, project implementation was satisfactory.Construction of 81 (from 84 planned) district offices was compled in September 1988,the national training center building was finished in 1989, and expansion of the latterto include an international training program in 1991. Further, the project achieved itsobjectives through developmental program activities coordinated by BKKBN, whichconsisted of: improving and expanding the national IEC program in order to reachseveral target audiences, by setting up mobile units and producing T.V. flms and radioprograms; developing manpower through 156 overseas and local fellowships and in-service training, including midwives training; establishing population education as aregular program of the Ministry of Education and Culture; and conducting innovativeapproaches to provide family planning, health and nutrition services in newlytransmigrated territories. Imnlementation of KLH's part of the project consisted incompletion of overseas graduate studies by 93 faculty members from population studycenters at universities and of 60 master level graduates from two national universities.Additionally, cosisultants to KLH prepared several reports for use in preparation ofREPELITA V. Overall project management and implementation were satisfactory.There were, however, a few specific problems which are discussed under Results,below.

Results

v. The project objectives of further strengthening BKKBN to pursue GOI'sfamily planning and fertility reduction goals were generally achieved. The projectinputs, together with program assistance from other donors -particularly UNFPA andUSAID - and GOI flnancing were essential to the expansion and increased intensity ofthe fanily planning program in Indonesia during the 1980's. It also enabled innovationson how to provide services in remote and isolated areas of the country. The offices andtraining center built through this project are, according to OED, of excellent quality,not an inconsequential achievement for a program that must change social mores andattract its clientele. Even more important than financial and physical inputs from theBank, this project enabled the continuation of Bank dialogue with the Government andother donors, that rendered positive benefits. The objective of sub stantial strengtheningof BKKBN research capability was, however, only partially attained (remainingconstraints regarding research are being addressed in considerable detail by the recentFifth Population Project). KLH accomplished modest but perceivable achievements indevelopment of population study centers in universities through graduate training of its

faculty. Regarding institution building for population policy development, results fellshort of initial objectives, but there were several accomplishments. KLH local andforeign consultants produced technical papers- if not a fully consolidated plan of action- which were used in preparation of the national 5-year plans between 1985 and 1989.Training of NGOs in population topics was financed by GOI and took place during thefirst two years of the project. And fmally, overseas fellowship; under KLH wereadministered effe;tively by two contractors under arrangements additional to the originalproject design, made during imnplementation with Bank concurrence. Utilization oftechnical assistance by BKKBN was adequate in all service components, but lesssuccessful regarding building up of in-house research. The contributions of the localconsultants hired by BKKBN under the project were visible and generally satisfactory.KLH employment of individual consultants resulted in several reports that were usefulfor guiding preparation of national population plans.

Lessons Learned

vi. The generally successful implementation of this project was in large parta consequence of the high government comnuitment to the project objectives. Thefollowing are major lessons learned from this project, for future applications:

(a) Institution building components need to pay special attention to the designof technical assistance, as well as to the assessment of the staffcomplement and capacity of the organization being developed; omissionsin this respect led to poor results regarding KLH development as a policyinstitution and BKKBN research capacity building.

(b) Formal oordination between the implementing agencies (BKKBN andKLH) would have facilitated resolution of common problems and shouldhave been addressed during project preparation and appraisal.

(c) When projects involve two or more agencies -- as was the case of thisproject and of earlier population projects which included BKKBN and theMinistry of Health-- the design has to take great care in inspiring a similarsense of project ownershiD in all participating agencies.

(d) Several pitfalls in project implementation could have been avoided withadditional preparatorv work. Major adjustments in project costs (from$94.4 million to $44.8 million) could have been avoided through carefulpreparation of the construction and technical assistance components.

(e) Moderately higher use of consultants in supervision missions during themiddle years of the project could have benefited the project, particularlyin overseeing training, studies, the innovative component in transmigrationareas and research and institution building.

PROJECr COMPLETION REPORT

INDONESIA

FOURTH POPUIATION PROJECT(LOAN 2529-IND)

PART k- Projet Review and Bans Perspetive

Prject Identily

Project Name :Fourth Population ProjectCredit No. :2529-INDCredit Amount :US$46 mfllion (amended to US$35.1 million)RVP Unit :East Asia and PacificCountty :IndonesiaSector :Population and Human ResourcesSubsector :Population

Background

1.1 High ferity and rapid population growth were identtfied in Indonesia inthe early 1970's as serious constraints to economic development. At that time, thegovernment adopted a policy of fertflity reduction through campaigns of publiceducation on the advantages of a small fimily and provision of fmily planning services.Indonesia's family planning program, strongly supported at the highest level ofgovernment, soon became one of the most successful and innovative in the world.Although fertlity did not begin to decline until the late 1970s, once the total fertilityrate dropped below 5, it declined rapidly during the 1980's, to 3.4 in 1988; similarly, thecrude birth rate declined to 28 per thousand, from 43 in 1970. It was also during the1980's that Indonesia experienced most of the expansion in contraceptive use, from lessthan 10 percent in the 1960's, to 48-50 perent. Although socioeconomic factors suchas the trend toward later marriage and the higher proportion of educated women musthave contnbuted markedly to fertility decline, the use of modern contraceptives wasundoubtedly a significant factor in the decline.

1.2 The Bank and other donors supported GOI population policies and thefamily Plannig program from its inception. The fast four Bank population projectswere approved in 1972, 1977, 1980 and 1985. These projects assisted the nationalfamily planning prgram, which responded to strategies developed by GOI every five

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years as part of the national economic development plan (REPELITA). In each planperiod, the Bank, as well as the other donors supporting 001's population program,worked closely with the National Family Planning Board (BKKBN) - the coordinatingagency - in developing their respective areas of assistance. The first Bank project in1972 assisted in the establishment of a clinic based family planning program In sixprovinces in Java and Bali. The second project, in 1977 helped extend the program toten additional provinces as well as establish contraceptive distribution centers in Javaand Bali during the second REPELITA (1974-79). IBRD's Third Population Projectcontributed to adding the remaining provinces to the program. These first threeprojects also provided the physical infrastructure and other program resources todevelop BKKBN into a strong coordinating agency for family planning services andprovided assistance to the Ministry of Health (Depkes) for family planning services.The Fourth Population Project was designed in the mid-1980's, when the programrequired a major expansion within the most densely populated provinces - Java andBali - where the program had been active from the beginning, but where new targetpopulations, such as the less educated and the small communities had to be reached.Moreover, innovative approaches were also needed to reach newly settledtransmigration areas and extend the program to districts in Outer Islands IUI. TheFourth Population Project was implemented by two agencies, BKKBN and the Ministryof Population and Environment (KLH), a ministry created in 1984 to formulate policiesfor both sectors.

Project Objectives and Description

1.3 f)bectives. The project was intended to further strengthen BKKBN topursue GOI's family planning and fertility reduction goals and assist the Ministry ofPopulation and Environment (KLH) in performing its policy and coordinating role. Thespecific obgectives regarding BKKBN comprised completing BKKBN's decentralizedfield infrastructure in the districts and Outer Islands II, improving field communicationsand mobility, expanding and developing staff, strengthening EEC activities, expandingpopulation education through training teachers and supervisors, establishing integratedfamily planning, health and nutrition services in transmigration settlement units in Sprovinces and developing BKKBN's capacity to manage and coordinate research. Thespecific objectives in relation to KLH included the development of a population plan ofaction for Indonesia, strengthening population study centers in uriversities throughgraduate overseas fellowships for faculty members, and training and providing materialsto NGOs to carry out population activities.

11 The Outer Islands II include the following provinces: Riau, Jambi, Maluku, Bengkulu, EastKalimantan, Cental Klimantan, Central Sulawesi, Southeast Sulawasi, East Nusa Tenggara, EastTimor, and Iriat Jaya.

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1.4 Et DescjipiQn. The project, planned to be implemented during thfive years between September, 1985 and 1990, had the following components:

(a) Part A -BKKB:

(i) field Operations Development. In order to complete BKKBN'sinfrastructure, the project included financing of construction of 84BKKBN district offices, communication equipment, motorcycles andbicycles and 2 person-years of technical assistance;

(ii) Staff Develoment. To expand and improve the quality of BKKBNstaff and the agency's training capacity there would be constructionof a national training center in Jakarta and purchase of equipment,vehicles, training materials, 16.5 person-years of technical assistanceand 153.5 person-years of fellowships.

(iii) XpfbMation. Education and Communication MIEC). BKKBN's IECactivities were to be strengthened through producing anddissenmnating audiovisual and printed materials, and providingtraining, 5 person-years of technical assistance, equipment andvehicles for 87 mobile information units (MIUs), and IECequipment for the headquarters and for 27 provincial offices;

(iv) Polation Edugation. An expansion was designed through trainingof school principals, supervisors and teachers, as well as out-ofschool teachers, supervisors and facilitators, and the provision ofequipment, training materials, and monitoring and evaluation;

(v) Service Delivery in Transmigration Areas. This component wasintended to test approaches for offering integrated family planning,health and nutrition services in transmigration settlement units withabout 1.8 million people (out of 3.3 million living in transmigrationareas), with BKKBN as the coordinating agency; the projectprovided financing for equipment, motorcycles and bicycles,materials, 5.8 person-years of technical assistance, training andbaseline surveys; and

(vi) Research. Strengthening BKKBN's capacity to coordinate, manageand undertake research through provision of additional office space(in the new Training Center), funds for studies, 6 person-years oftechnical assistance and 15 person-years of overseas graduate levelOillowships and local short-term training for 6 professional staff.

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(b) PaE B -- Ministry Of Populatin and EnvrMent (KLH

(i) Indonesia Ponulation Pjn of Actioan. Assisting KLH to develop along-term population plan of action for Indonesia to be used In ftepreparation of five-year development plans for the periods 1989-94and 1994-99; the project provided 27 person-years of technicalassistance for this purpose;

(ii)- ftmlai2n %1lly QlD. Strengthening population study centersin 10 universities through provision of 120 person-years of overseasgraduate studies and funds for population research; and

(iii) Support for Non-Governmental Organizations (NGOs).Strengthening NGOs to undertake population activities by givingthem training and mate'ials in population related subjects.

Project Design and Organization

1.5 Selection of Imolementin& Aeencies. The selection of implementingagencies - BKKBN and KLH - responded to organizational and program reuirementsat the time of appraisal. BXCKBN, as the coordinating agency with long experience andsubstantive implementing capacity, was responsible for the largest project component,that continued to build on the experience and accomplishments of the furst three Bankfinanced projects. On the other hand, KLH, was a new ministry assigned with theresponsibility of formulating population policies, and needed both technical assistanceand capacity building to undertake its designated tasks. The project also served thepurpose of testing the appropriateness of this organizational approach to policydevelopment. The deviation with respect to the first three population projects, whichincluded Depkes as the second implernenting agency, also responded to the broadeningof Bank policy in the early 1980's in supporting health and nutrition projects throughdirect assistance to Depkes. This new Bank strategy indirectly addressed anotherproblem confronted by earlier population projects relating to a weak sense of ownershipfor Depkes components and insufficient coordination between the implementingagencies. However, these problems of project sharing, ownership and coordinationwere also challenges facing the fourth project , which, as described underimplementation and results, were not satisfactorily met.

1.6 Project Design and Comnonents. The design of Part A of the project(BKKBN's component) was well prepared and responsive to the institutional andsectoral needs. The level of preparation was adequate to ensure smoothimplementation, and several components like the service delivery for transmigrationareas and IEC have been expanded and intensified through the national program andthrough the Fifth Population Project. As for the KLH component, the projectpreparation did not pay enough attention to institution building in the new ministry and

Its implications in terms of staffing and functions. In deciding to support KLHstrengthening, the project should have included specific safeguards regarding measuresfor institution building, including organizational requirements for staff appointments andtheir development, in addition to provision of technical assistance. In fact, projectpreparation should have addressed a more basic premise of whether KLH was theappropriate agency for population policy development and subsequently it should havedefined requirements for building its capacity for this role. Most of the shortcomingsof this component were a consequence of this flaw in project design.

1.7 Coordination. Inter-agency coordination has been repeatedly identified inpopulation and other projects as a problematic area that should be addressed at appraisaland incorporated in project design. In this project, however, no inter-agencycoordinating mechanisms were pre-agreed. Two separate steering committees weresupposed to be established, one fcr part A and one for Part B, each respectivelypresided by the BKKBN Chairman and by the Assistant Minister for Population.However, the different level of leadership of each group precluded joint meetings.Coordinating arrangements would have nceded to take into account the level of the. staffrepresenting agencies at meetings, main areas of coordination and frequency.

1.8 Design of Technical Assistance. Project design included a large amountof technical assistance for several components, with incomplete definition of objectives,types of consultants and expected outcomes and utilization. For instance, developmentof a population plan of action to guide Indonesia's population program and policies inthe decade and beyond relied eftirely on the appointment of consultants (216 person-months) with no mention of how this massive input of technical assistance would bemanaged. Similarly, the outcomes and objectives of BKKBN's study on analysis offmancial resources, as well as the technical assistance allocated to improving researchin BKKBN were not clearly defined in advance.

Project Implementation

1.9 With some exceptions, the project was conducted in accordance with theplan presented in the Staff Appraisal Report (SAR). The Loan became effective inNovember, 1985 and closed on March 31, 1992 after one-year extension. Additionally,in order to enable completion of studies by several fellows, the Bank authorizedcontinuation of reimbursements of expenditures on consultant services, local andoverseas fellowships and local training (Categories 3 and 4 of Schedule 1 of the LoanAgreement) until December 31, 1992. During the first two years of the project therewere two cancellations of the Loan amount -- $8.4 million in June, 1985 and $2.5million in April, 1987 -- because of currency devaluation and downsizing of somebuildings due to new GOI regulations. By December 31, 1992 the amended loan of

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$35.1 million had been almost fully disbursed, in the amount of $ 32.5 million2l (seePart III Table 3.3). Overall, project implementation was satisfactory.

1.10 a ad ComMUnizion am. Faced with the needto increase the diffusion of knowledge about family planning to diverse and scatteredpopulation groups, BKKBN followed recommendations of a UNFPA fuianced swdy anddesigned an I1C strategy of strengthening provincial and district audiovisualdevelopment units, replacing and increasing mobile units and using mass media inirunovative ways. The loan financed the production of 56 one-hour television episodesby TV stations In Jakarta, on the topic of family planning, which were completed inMarch, 1988. Subsequently, in February, 1989, the production of 61 masters and5,410 video versions was completed and finally, in March, 1989, 20 master films and1,515 copies of 16 mm films were produced. The production of 6 master tapes and33,000 audio copies was completed in March, 1989; they were distributed andbroadcast by local radio stations all over the country. GO purchased (and equippedwith loan proceeds) 87 vehicles for the mobile information units (MIUs) and distributedthem in the Java and Bali provinces. The impact of the IEC program was assessed bya UNFPA financed study in 1990 which found that the program had widespread effecton the level of individual, family and community interest and knowledge of the familyplanning program.

1.11 Maowe deve under the BKKBN Part of the project consisted offellowships and local training for staff, as well as training of teachers and supervisors,for conducting population education in the school system. The project supportedoverseas fellowships for graduate studies by BKKBN staff from the central level andthe provinces, to develop the next generation of technical staff and managers. Of atotal of 50 participants, 21 completed Masters degree programs in 1989 and 29completed Masters and Ph.D.s in 1990, in the USA and Australia. The in-countrytraining benefited 106 participants who completed graduate studies in severaluniversities in Jakarta, Central Java and Bali. The total number of BKKBN staff whounderwent graduate studies - 156 national and overseas fellowships - far exceeded theoriginal estimate of 87 fellowships. GOI, in concurrence with the Bank, decided thatsince financing was available from savings in other categories, it was important to meetthe increased needs for training among the program staff.

1.12 Regarding Population Education, training was conducted for schoolsupervisors, inspectors and teachers of public and private schools. This component alsosupported radio programs to inform parents about population education in schools; theproject financed as well attendance of Ministry of Education staff responsible forpopulation education to several international, natio! al and provincial seminars and

2/ All figures rlating to disbursement are preliminary since the closing date was December 31,1992 for two categories and disbursements are allowed for 4 additional months.

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meetings. Printing and production of materials, including supplementary books forprimary and secondary schools, as well as teachers guides, were also funded.

1.13 Innovative Approaches in Transmlgration Ares. This component requireda major effort at coordination of several agencies in S provinces -Riau, Janbi,Benkulu, South Sumatra, and 'West Kalimantan -- to provide integrated services inhealth, family planning and community development activities. The project supportedthe developmental activities which led to the establishment of village contraceptivedistribution centers operated by newly hired family planning field workers (financed byGO(), in 595 transmigration resettlement units where previously only sporadic,campaign or 'safari' type activities by BKKBN had been possible. BKKBN wasassigned by the Ministry of Transmigration as the coordinating agency for this programwhich was satisfactorily completed and currently serves as a model for extension ofservices to other remote areas.

1.14 The project also financed 1,782 fellowships for a one-year midwiferyProgram in several provincial nursing and midwifery schools, under a new programestablished by GOI in 1990. This project activity was in addition to original trainingestimates, but it was agreed upon by the Bank because it was congruent with projectobjectives and with a major midwifery component in the Fifth Population Project, andfunds were available toward the last stage of the project from savings in KLHcomponents. BKKBN, in coordination with the Ministry of Health, granted fellowshipsto selected family planning field workers to become midwives. Their training wascompleted in 1992.

1.15 KLH and Population Study Center Devetopment. In all, 93 facultymembers from population study centers obtained Masters and Ph.D. degrees inAustralia and USA in several fields including human resources, population andenvironment, mobility, regional development, demography, family planning and aging.Of 41 participants in the Australian program, 35 obtained a Masters degree, and dteea Ph.D. degree; only three failed to obtain any degree. Of 42 participants in the USAprogran, 34 obtained a masters degree, 6 a Ph.D degree, and two followed a non-degree program. Some of the Ph.D. participants will complete their studies in July,1993 under special arrangements with Florida State University (FSU).

Procumn

1.16 Construction. Land acquisition and preparation of building designs forBKKBN offices and a national training center were completed during 1986 and 1987.Construction of 81 (from 84 planned) district offices was completed in September 1988;three buildings were cancelled due to difficulties in finding appropriate locations, whichmade it more practical in a few cases to consolidate pairs of district offices into one.The renovation of existing offices was completed during the period 1990-91. Theconstruction of the National Training Center was completed in 1989 and additionalconstruction to develop the International Training Center was completed in 1991. A

manual for implementation of construction in provinces and use of constructionmanagement consultants facilitated timely completion. The quality of constructionworks was very good.

1.17 Concerning equipment, most of it was procured as originally plamned.There were, however, some changes in the type of equipment as a result of the rapidlychanging technology in computers and conmnunications. The BKKBN, in agreementwith the Bank, procured computers and modems instead of teleprinters for theirprovincial offices, to complete the inter-provincial communication system. Citizen bandradio equipment planned under the project for district and sub-district level supervisorswas not procured because the particular frequency recommended by a study done onthe subject was not cleared by the Ministry of Information.

1.18 Procurement of vehicles was to be financed with GOI funds and not loanfunds due to GOI's reluctance to use International Competitive Bidding (ICB). Bicyclesand motorcycles were purchased instead with UNFPA assistance and with GOI funds.GO's plan called for the purchase of 87 IEC mobile units and 170 minibuses for thenational and provincial training centers. GOI purchased (and equipped with loanproceeds) the 87 vehicles for the mobile information units and distributed them in theJava and Bali provinces. However, only 11 minibuses were purchased in 1986-87 anddistributed in Outer Islands II, but no funds were available in subsequent years from thenational budget to purchase the remaining vehicles. This led to shortage oftransportation for the family planning program, currently being addressed by the on-going Fifth Population Project, in which GOI has agreed to use ICB.

1.19 Part of the savings from the mentioned cancellations of procurement andfrom downsizing of regional offices was applied to purchasing 26,775 doses ofNORPLANT' (a contraceptive implant) purchased directly from the single worldsupplier. These arrived in Jakarta in January 1991 and were dispensed through healthcenters, midwives and voluntary agencies. At project completion, 70 percent of thedoses had been inserted. An amendment to the loan agreement was approved by theBank in 1990 to enable this purchase. Other materials procured through this projectincluded 12,000 IEC kits for use by field workers in providing family planningeducation and motivation to the public, and guidelines, books and materials for trainingand for population education.

Project mana2ement

1.20 BKKBN's project management was effective during most of the projectimplementation period, although there were some lags in good performance in 1990 dueto staff changes. A Project Coordinator was designated to monitor the implementationof construction and software, which was conducted by the respective BKKBNDivisions. The coordination office also prepared periodic reports for the Bank.Additionally, provincial BKKBN Chairmen were designated as provincial coordinators

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responsible for periodic reporting of project performance, to Jakarta Headquarters. Forcivil works, responding to construction delays and problems In earlier projects, BKKBNdeveloped a manual of procedures for preparation and evaluation of bids and forconstruction implementation and reporing. Further, construction supervisionconsultants financed by the project were selected and appointed, and performedsatisfactorily.

1.21 KLH's project management was assigned to the Assistant Minister forPopulation at KLH. However, due to his many other functions and responsibilities,day-to-day project management was neglected. Toward the last two years ofthe projectperiod, in a variation from project design, two measures were adopted in projectmanagement that were pivotal to adequate project completion: a project administratorwas appointed for day-to-day administrative work and for periodic reporting to theBank, and contractors were appointed in USA and Australia to administer recruitment,placing and monitoring the academic work of fellows in the respective countries.

Major Project Results

1.22 QLraBLResults. The project objectives of further strengthening BKKBNto pursue GOI's family planning and fertility reduction goals were generally achieved.The project design was not directed towards reaching specific goals of fertility reductionbut rather to enhance the capacity of the family planning movement in achieving itsgoals. Hence, no direct links can be made between fertility reduction and projectinputs. Nevertheless, the impact of the Bank's inputs, togetier with program assistancefrom other donors -particularly UNFPA and USAID - and GOI financing wereessential to the expansion and increased intensity of the family planning program inIndonesia. This conclusion is supported in an OED study J/, covering Bank assistanceto Indonesia in the last 20 years, that concluded that the Bank inputs to the programlended support that was of great importance in legitimization of the program,particularly in its formative years. The OED report further states that the concentrationin Bank population projects in Indonesia in provision of buildings and equipment,represented an appropriate division of labor among donors at a time when other donorscould provide financing for program activities. This situation, however, changed in thelate 1980's as a consequence, the Fifth Population Project includes more software thanearlier projects and does not finance any civil works. Even more important than thefinancial and physical inputs from the Bank, this project enabled a continued dialogueand relationship between Bank, GOI and other donors that rendered positive benefits.

3/ Population and the World Bank: A Review of Activities and Imnacts from Eight Case Studies,October 22, 1991, OED Report # 10021.

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Dailed Results

1.23 BKKBN's field operations and staff development and well as IEC andpopulation education components were implemented nationwide. BKKBN's afdevelopment component led to visible improvements in the quality of staff, both atcentral level and in the provinces. Further, the National Training Center in Jakarta builtthrough this project is being fully utilized for traiing of BKKBN staff of other agenciesin family planning, as well as for housing the research centers and the InternationalFamily Planning Program. The latter receives trainees from various countries of Asiaand the world. (01, UNFPA, USAID as well as tuition fees, are supporting therecurrent costs of this program.

1.24 In support to field operatiu-is, the project financed construction of the lastgroup of buildings needed for the program, down to the Regency level. Buildings arebeing fully utilized for the intended purposes. In reference to pulation educat, theproject completed the institutionalizadon of this program in the Ministry of Educationand Culture.

1.25 The objective of substandal strengthening of BKKBN rearch capacity wasonly partially achieved. During the project period, however, there were someindicadons of prngress; indeed, the three research centers in BKKBN continued to makeprogress in conducting many family planning and fertility related studies (see Part III,Table 3.6) and several members of the research centers benefited from fellowships foroverseas graduate studies. Remaining constraints are being addressed in considerabledetail by the Fifth Population Project. In preparing this latter project, several measuresthat could contribute to tangible improvements in research capacity were identified,including: consolidating and reducing the number of several on-going projects, linitingthe number of priority topics, and strengthening management and clarifying roles ofeach center. Careful use of technical assistance for institution building is also beingpursued.

1.26 KLH's Part achieved modest but perceptible gains in development ofpopulation study centers in universities through graduate training of faculty. Regardinginstitution building for population policy dvIoment, results fell short of initialobjectives, but there were several accomplishments. KLH local and foreign consultansproduced technical papers -- if not a fully consolidated plan of action - which wereused in preparation of the national 5-year plans between 1985 and 1989. Training ofNGOs in population topics was financed by GOI and took place during the first twoyears of the project. And finally, overseas fellowships were administered effectivelyby two contractors -- the International Development Program of Australian Universitiesand Colleges Ltd. (IDP) and by Florida State University (FSU) in USA - underarrangements made during project implementation with Bank concurrence.

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Project Sustainability

1.27 The project supported a wide array of activities ranging from constructionand service delivery to staff development and institutional building. The sustainabilityof these activities will vary by component as well as by implementing agency, given thedifferent nature, role and maturity of the two implementing agencies of this project.On the one side, BKKBN stands out as the successful coordinating body that has beenresponsive to the sectoral needs and its changing demands, while on the other, the roleand functions of KLH and its future development are still evolving. At project closing,and after listing achievements and shortfalls, it is appropriate to ask how will some ofthese results progress in the future and the implications of sustainability issues Inorganizational roles and Bank's involvement.

1.28 One of the main project goals was the expansion of BKKBN's progam tothe provinces in the Outer Islands II and selected transnigration areas as well as theintensification of services in Java, Bali and provinces in Outer Ilands 141. Most ofthese activities were successful and are currently part of the family planning program.According to a Bank sector report, BKKBN's budget doubled during the project period.This increase in the family planning program budget in difficult budgetary times futherstresses the strong government support and commiment to the program, and byimplication, to sustaining the efforts Initiated under this Bank financed project.

1.29 The project also invested in a large civil works componen for buildingcontraceptive warehouses and upgrading of office space for BKKBN. These investmentwere undertaken at a time when the program was supporting the expansion of privateprovision of family planning services through the 'Blue Circle' campaignE/. Althoughthe family planning program is fully supportive of the 'self-reliance' movement throughprivatization and cost-recovery, the demands on the program to achieve Its goals arestill enormous. Hence, the need for government coordination and free provision forfamily planning services, especially for the poor will be crucial for a substantia periodof time. As for the infrastructure evolved from this and earlier Bank populationprojects, it will continue to provide the basis for international, as well as Bank fumilyplanning assistance for some time to come. According to the OED report quoted inpara 1.20 the buildings constructed with Bank funds are of excellent quality; the reportfurther stresses that these are not inconsequential achievements, particularly for a newprogram that must change social mores and acquire new clientele.

g/ Provinces in Outer Islands I include: Aceh, North Sumatra, South Sumatra, West Sumatra,Lampung, West Kalimtan, South Kalimiantan, South Sulawasi, North Sularwasi, and West NusaTenggara.

I/ Although the sector report estimates that by the end of the centy, more than 50 percent ofcontraceptive services will be dispensed by private service providers; in view of the estimatedincrease in prevalence to over 70 percent (compared to the current 48 percet), the neetd forgovemment coordination and services will continue.

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1.30 BKKBN's part of the project included a population education program inthe school system, that was intended to complete developmental efforts stated by earlierEank supported projects. At the conclusion of the Fourth Population Project, BKKBN,working in close cooperation with the Ministry of Education and Culture, finalizedcurricula and supplementary text books for population education In the primary andsecondary levels; after these accomplishments, the program became an integral part ofthe education system. A spin-off of the population education component is an out-of-school youth program for educating the successive generations of Indonesians on theproblems of rapid population growth and high fertility. The youth program is beingimplemented under BKKBN's coordination by its field workers and by variouscommunity organizations and NGOs, with funding from the Bank supported FifthPopulation Project, as well as from UNFPA and GOI.

1.31 In addition to the accomplishments of individual components as indicationsof the likely continuity of the initiative taken through this project, overall projectsustainability is to a large extent ensured by the high level of institutional maturitydeveloped by BKKBN during the 1980's, through genuine national efforts, as well asthrough good utilization of assistance from the Bank and other donors. BKKBN isfurther evolving from being the national coordinating agency for the family planningprogram, to a wider role of promotor of private sector efforts, with the final objectiveof transforming the program into a national movement in which individuals and familieswould take responsibility for reproductive behavior. This evolution has implicationsfor the type of family planning assistance required in Indonesia from the Bank and otherdonors. It has already been taken into account in the design of the Fifth PopulationProject, which constitutes a broad assistance, carefully coordinated with that of otherinternational donors, to the overall program, thus demonstrating a high degree ofconfidence in the capacity of the implementing agency. Sector loans addressing thepolicy and functional changes that will be necessary to enhance the family planningmovement might be a proper progression for Bank population and family planningassistance to Indonesia.

1.32 KLH's part of the project fell short of developing strong mechanisms forcapacity building and sustainability of KLI's policy development capacity, although theproject served a useful function of testing this new approach and demonstrated thedifficulties involved in institution building. At the closing of the project, the questionregarding tie need to develop capacity for population policy in KLH may be relevant.The experience with population policy formulation reveals a process that is much morecomplex than is implied in a decision to create and develop of a new body for thispurpose. Population policy decisions in Indonesia take place at Presidential level andin that process, the Minister of Population and Environment, BKKBN's Chairman, aswell as other high level officials, play an important role. Increased capacity inIndonesian universities and other organizations to undertake population and familyplanning related research and studies, that could provide the appropriate background forGOI policy decisions is an appropriate, albeit partial, solution. The population studycenters, which could contribute in this respect, remain in need of further technical

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assistance to become fully functional research institutions in the provinces. Faultyreturning to their respective universities after completing their studies would needsupport - perhaps through an arrangement with foreign institutions like "twinning"to conduct research. Consequently, a step in the right direction would be for futureBank higher education projects in Indonesia to complete the task initiated in this project,by including population study center components addressing issues of research qualityand utilization. Current approaches to formulation of population policy need to be keptunder review. UNFPA is now the source of support for KLH development, theirexperience will be valuable in deciding any future assistance in this area.

Bank Performance

1.33 The Bank project staff provided appropriate support and advice throughoutimplementation, through supervision missions (often conducted in conjunction withsector and preparation missions) which selectively included consultants specializing incertain key components (e.g., IEC, training, research). On a continuing basis, Bankstaff followed up through frequent written communication, which became particularlyfrequent after availability of direct electronic mail. The Bank's resident mission alsoassisted in this endeavor through project monitoring and supervision. There were 12supervision missions, and the total time spent in supervision of this project totalled131.2 staff weeks. There was some overlapping of project supervision and sector workduring 1988/89; and this both benefited and somehow recented project review by theBank. On the one hand, the joint missions for supervision and sector work enrichedthe level of dialogue and the government's interest in these missions; further, theanalysis done for the sector work helped to shape up some of the activities of theproject, make better use of the research component and utilize lessons learned. On theotier hand, the drastic drop in supervision resources by the Bank limited the directsupport that could have been provided to the project. Indeed, the time devoted tosupervision dropped to less than half in comparison with the initial years (from 27.6staff weeks (SWs) in 1986, to 11.2 and 7.5 SWs in 1989 and 1990 respectively).

1.34 Of particular importance for project success was the flexibility exerted byBank staff in working out alternative modalities for implementation dictated by changedcircumstances or technology. Examples of successful adoption as of new approachesinclude the selection and recruitment by KLH, of contractors to administer overseasfellowships, a change in the Loan Agreement to enable the purchase of contraceptiveswhen a major donor cut back its assistance, and redistribution of loan proceeds fromunused funds for technical assistance, to additional local and foreign fellowships todevelop staff capacity in BKKBN and at population study centers in universities, as wellas to train village midwives. These changes did not, however, represent any drasticmodification in project design, and kept in mind fulfillment of project objectives. TheLoan Agreement was amended as appropriate to enable the major changes, such aspurchase of contraceptives and additional training of local staff.

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Borrower Peromance

1.35 GOI complied with all major covenants in the Loan Agreement. The onlynotable exceptions in an otherwise satisfactory Borrower performance were failures toacquire vehicles needed for BKKBN's family planning program with GOI funds, asagreed at negotiations, and to provide counterpart staff in KLH to organize consultants'work and administer strengthening of population study centers. The flrst omission ledto further deterioration of the transportation fleet in all provinces and hamperedsupervision of field activities and training; BKKBN's vehicle complement is currentlyin very poor shape, although It is expected to be restored through the Fifth PopulationProject approved in 1991. The lack of technical staff in KLH impeded full utilizationof consultants and a systematic build up of the population study centers.

Lessons Learned

1.36 For future projects, the following lessons learned from the implementationof this project could be useful:

(a) Adeq of Preparatory Work: Several pitfalls in project implementationcould have been avoided with additional preparatory work. Majoradjustments in project costs (from $94.4 million to $44.8 million) couldhave been avoided through careful preparation of the construction andtechnical assistance components. Although part of this cost reduction wasdue to currency devaluation after loan approval, another part was due todecreases in the size of buildings and in the amount of technical assistanceto make it proportionate to the agencies' absorptive capacity. Two lessonsmay be derived from this experience: (i) when construction componentsare part of a social sector project, they should be properly prepared,although they may be less glamorous than software components inaddressing sector issues; indeed, buildings are often essential for thedelivery of programs and, in Bank financed projects, they represent majoritems for contracts and disbursements; and (ii) technical assistance needsto be carefully planned in accordance with the receiving agencies'requirements.

(b) Institution Building: Project preparation should determine precisely thecapacity of implementing agencies and design the appropriate inputs thatfit with the absorptive capacity of the organization and assess the needs interms of staffing and functions for further capacity building. In the caseof KLH, identification and appraisal failed to assess proper institutionbuilding approaches, and included only an inordinate amount of technicalassistance, with little or no definition of its composition, management andapplications.

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(c) Complexiq of rlec )Design: When projects involve two or moreagencies -- as was the case of this project and of earlier populationprojects which included BKKBN and the Ministry of Health- the designhas to take great care in inspiring a similar sense of project ownership inanl participating agencies; also, coordinating arrangements need to take Intoaccount the level of the staff representing agencies at meetings, and mainareas and frequency of coordination. A possible alternative lesson learnedcould be that preference should be given to agency specific projects.inhealth and family planning, with appropriate complementarity, but separateownership. The designation of a high level coordinating committee in therecently approved Fifth Population Project (1991), chaired by Echelon Istaff from BAPPENAS, to coordinate a BKKBN/Ministry of Health projectwill test further the multi-agency project design.

(d) Inter-agency Coordination: The project design should incorporate adequatemechanisms for inter-agency coordination at appropriate level of staff. Inthis project this issue was neglected, although formal coordination betweenBKKBN and KLH would have facilitated resolution of common problems,as for instance, monitoring of overseas fellowships, which was a majorissue for both parts. While the BKKBN steering group met several timesto resolve project issues, the second group never functioned as such. Onlyinformal communications between BKKBN and KLH took place, with theexception of two or three occasions in which KLH was represented atBKKBN project meetings during Bank missions, at the request of Bankstaff.

(e) Studies in the Prolect: When major studies are included in projects - e.g.KLH's population plan of action, BKKBN analysis of financial resourcerequirements -- Bank staff should identify consultants with strong capacityto carry out the task and agree with the borrower on terms of referenceand needed arrangements and resources. Also, there should be an earlyconsensus on the role of counterparts from the national agencies and on theutilization of the studies. Last but not least, the relevance of the studiesfor the agencies and the country should be accepted and understood by theborrower. In the case of KLH's plan of action, it became clear duringsupervision that G01 did not believe it needed such a plan because therewere other means in Indonesia to ensure compliance with nationaldevelopment plans; on the other hand, BKKBN's financial allocation studywas very much needed, but the study conducted fell short of providing theneeded answers. Bank supervision missions, as mentioned under (f), wereinsufficiently staffed to review the ongoing work. Eventually, Bank sectorwork completed this task.

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(t) Resoumc fo -Bak Sueisi: Moderately higher use of consultants insupervision missions during the middle years of the project could havebenefited the project, particularly in overseeing training, studies, theinnovative component in transnilgrat1on areas and research and instittionbuilding. An appropriate mix of expertise in Bank supervision missionsoften makes a big difference in the quality of project execudon.

Project Relationships

1.37 The relationships between GOI and the Bank during Implementation of thisproject were fully satisfactory, with reasonable continuity of Bank staff responsible forproject supervision. Relationships with other donor agencies working in population -mainly UNFPA and USAID - were of a cooperative nature, thus facilitatingcomplementarily of assistance.

Consulting Services

1.38 Technical assistance (TA) had been estimated at $11.9 million at appraisal(300 man-months of foreign and 545 man-months of local TA). However, theseestimates were reduced to $6.2 million after the second loan cancellation in 1987 - $1.8 million for BKKBN and $4.4 million for KLH. Utilization of TA by BKKBN wasadequate in all service components, but less successful regarding utilization ofconsultants in developing in-house research. The contributions of the local consultantshired by BKKBN under the project were visible and generally satisfactory. BKKBNsubmitted to the Bank annual reports of the consultants' work. KLI employment ofindividual consultants resulted in several reports that were useful for guiding preparationof population plans. As explained in para 23, the contracts with IDP in Australia andFSU in USA were essential for implementing the fellowship program for populationstudy centers' faculty; the performance of both contractors was fully satisfactory.

Project Documentation and Data

1.39 The SAR, supervision and consultants' reports, and additional materialscontained in the project files provided adequate information for this project completionreport. A GOI report provided detailed quantitative information on projectimplementation at the central level and in the provinces, as well as a description of thesequence of implementation. In addition, a sector report entitled Indonesia: FamilyPlanning Perspectives in the 1990's (World Bank Country Study # ISBN 0-8213-1595-1, April 25, 1990), and an OED report on Population and the World Bank: A Reviewof Activities and Impacts from Eight Case Studies, October 22, 1991, OED Report #10021, provided very helpful in-depth views of the broader context in which this projectwas implemented.

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PART II. PROJECT REVIEW AND BORROWER'S PERSPECTIVES

Introduction

2.1 The present section was prepared by BKKBN, In agreement with KLH, tosummarize GOI's perspectives of the project. A team of local consultants assistedBKKBN in developing this report that was finalized in January, 1993. In preparing forthis report, BKKBN staff met with the World Bank supervision mission in April19926/. The Bank team provided the GOI staff with the guidelines for the projectcompletion report and discussed with the team the main issues and timetable for theproduction of this report. The results reported in this section were provided by the GOIteam before Parts I and III were finalized, hence, it does not comment on the contentsof the two other sections of the report.

2.2 'Tis report is organized in five sections. First, a brief description of theproject is presented; second, a summary of main project results is discussed; third,highlights of project benefits and overall performance are summarized; and finally,assessments of the government's and the Bank's performance are presented.

Project Description

2.3 The Fourth Population Project was designed to assist the GOI instrengthening its family planning services and carry out its population policydevelopment and planning. The project consisted of two parts A and B executed byBKKBN and KLH respectively. The components and main activities for each part aredescribed below.

at A: Strengthening BKKBN

2.4 Field Operations Development. The objective of this component was toincrease the overall efficiency of BKKBN field operations and activities throughout thecountry. The main activities to achieve the above objectives included:

fI The Bank team consisted of: Ms. Susan Stout, mission leader, Health Specialist (EA3PH) andMs. Fadia Saadah, Population Specialist (ASTPH); the team from BKKBMN consisted of the projectsecretatiat for the Fifth Population Project including: Dr. Sumengun Sotomo, Dr. Utoko and Mr.Bemadi.

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(a) construction, furnishing and equipping of BKKBN offices andwarehouses in 84 district offices;

(b) acquisition of equipment and vehicles by BKKBN to increase theoverall efficiency of its field operations throughout the country;

(c) acquisition of telex facilities in Jakarta and 27 provinces to enhancecommunication between BKKBN headquarters in Jakarta and its provincialoffices;

(d) acquisition of 2,100 portable citizen band (CB) radios for use byBKKBN field supervisors to strengthen the communication in the field andto conduct a feasibility study to define the need and appropriatespecification of the CB radios;

(e) provision of 6,460 motorcycles for service delivery and programsupervision activities by fieldworkers and about 47,600 bicycles for otherfamily planning fieldworkers and volunteers at the village level.

2.5 Staff Development. This component was concerned with increasing thenumber of qualified trainers and personnel management staff at BKKBN and withconstructing a training and researcb center. In addition, the component was designedto support three types of activities to improve the quality of training at nationaA,provincial, and district levels. These were: a) comprehensive assessment of BKKBNsexisting training programs and development of revised curricula and new trainngmaterials, b) training of BKKBN training and personnel management staff; and c)supervision and monitoring of BKKBN provincial and district level training centers andactivities.

2.6 Information. Education and Communication WEG). The aim to increasethe capability of BKKBN's provincial units to reproduce IEC materials in large amountsin line with the decentralized implementaton of the IEC program: This componentincluded provisions for 5 man-years of local technical assistance, printing equipment,and materials. The component was also designed to build the capacity of BKKBN'sdistrict level offices to produce low cost, simple EEC materials designed for localaudiences through the provision of appropriate audio visual and exhibition equipment.Moreover, to provide IEC services at the village level, the component includedprovisions of funds for 87 MIUs. The IEC component also included training forparamedics in motivation techniques at district levels as well as distrIbuting EEC kits forhealth personnel. The purpose was to reach specific groups of non-acceptors and tointensify its IEC activities through the health system, using health center paramedicalpersonnel.

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2.7 Population Education. This Project component included utining 8,000school education supervisors at provincial, district and sub-district levels; 7,000principals of public and private schools, orientation of 85,000 supervisors, tutors andfacilitator in the out-of-school learning center. In addition, the project included findsfor introducing population education in 10 IKIPs and 21 university faculty teacherseducation (FKIPs) throughout the country and for training approximately 800 teachereducators; provision of funds production of supplementary books, instructor'shandbooks, training manuals, teaching kits, other visuals aids, library boob; andcarrying out monitoring and evaluation activities.

2.8 Services Delivery in Transmigratien reams. The objective of thiscomponent was to ensure that family planning services were provided to thetransmigrants and to improve active participation of eligible couples in family planningby improving their motivation to use effective contraceptive methods. Ihe mainactivities to achieve the above objectives were:

(a) establishments of village contraceptive distribution centers (VCDCs) intransmigration resettlement units (UPTs) in the provinces of Riau, Jainbi,Bengkulu, South Sumatra, and West Kalimantan;

(b) carrying out local baseline surveys to collect data on health, familyplanning and nutrition status in UPTs;

(c) training of family planning/health center staff, family planning field-workers, village volunteers and community leaders in integrated servicedelivery for the UPTs; and

(d) acquisition of materials and supplies for family planning fieldworkers,operational manuals, IEC materials and uniforms, 600 bicycles for fainilyplanning fieldworkers and about 90 motorcycles for BKKBN sub-district-level supervisors, nutrition program inputs including weighing scales,home economics demonstration class materials and feeding supplements forchildren under five years old.

2.9 Research. This component for BKKBN included provision of funds forfinancing individual research projects, local and overseas training for the professionalstaff, local and foreign technical assistance services, and appropriate office facilities.The individual research included reviews and studies, technical assistance consisted of254 man-month of foreign and 48 man-month of local technical assistance services; andtraining included 6 short-term local and 9 graduate-level overseas training fellowships.

2.10 Part B : KLH Capacity. The component was designed to assist KLII informulating population policy for the five-year development plans for the country. To

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achieve this general objective, provisions for technical assistance, development ofpopulation study centers and support for non-government organizations were identifiedas essentials. In particular, the KLH capacity building component included:

(a) provision of technical assistance for the development of a populationplan of action for Indonesia to be used in the preparation of theIndonesian's five-year development plans for 1989-94 and 1994-1999;

(b) overseas graduate-level training of about 80 university graduates inpopulation and related subjects;

(c) support to Non-Governmental Organizations (NGOs) including trainingin population-related subjects for members of NGOs and provision ofrelated training materials, and strengthening of NGOs capabilities to carryout population activities.

Project Results

Part A: Strengthening BKKBN

Field Operations Development

2.11 Construction and Equipping of Offices and Warehouses. Construction ofBKKBN's offices and warehouses started in the FY 1986. Acquisition of land andpreparation of civil works were completed in 1986 and 1987. The construction ofoffices and warelhouses, provision of equipment and furniture in 81 districts werecompleted in 1988. The construction of four offices and warehouses in centralKalimantan was canceled because of difficulties in reaching the locations. An additionaldistrict office and warehouse was constructed in Batam Island since it was consideredas an industrial development area. BKKBN also proposed office renovations in 8 cities.The offices renovation were completed in 1990/91. An evaluation of offices andwarehouses utilization was conducted in 1992. The respondents were heads of BKKBNoffices in 81 districts where construction took place (response rate was 75%). Of thetotal respondents, 91.2 percent reported that the offices are useful for supporting fieldoperation at the districts level. The offices maintenance are available from routinebudget (88.6%), development budget (9.8%) and other sources. Concerning thewarehouses, 80.3 percent of the total respondents reported that they are being used forstoring family planning equipment. The maintenance of the warehouses is providedthrough routine budget.

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2.12 Acquisition of Telex Facilities. BKKBN substituted the procurement ofteleprinter with computer and modems, because the accessibility of electroniccommunication through computers using both radio waves and telephones lines. As apart of this system, procurement of 27 computers was completed in 1989. BKKBNdistributed the computers to 22 provincial offices and 5 municipalities in Jakarta.

2.13 Citizen Band Radio Communications. A feasibility study to obtaininformation on the need for citizen band radio (CB) communication for district and sub-distict level field supervisors was completed in 1986. The results recommended thatBKKBN procure CB radios with particular frequency. However, the procurementdepended upon the operational permits from the Ministry of Information. During theproject period the permission to use the required frequency was not granted. Hence,the procurement of the radios was canceled.

2.14 Acauision of Vehicles. Since international competitive bidding (ICB)producers could not be used to procure the vehicles, this Item was to be financed byGOI. However, due to lack of funds, the procurement of motorcycles and bicycles wascanceled and only part of the vehicles were procured with UNFPA funds.

2.15 Contcpives ; KKBN requested use of project funds for purchasingNORPLANT Contraceptives. The Bank agreed with the request and provided the fundsfor procurement of 26,775 NORPLANT that were completed in 1991.

&af Develqment.

2.16 Construction of National Training (NTC) and Research Centers (RC). 'Teconstruction of the national training center and the resrach centers was completed by1989. In addition, the plans for the training center were expanded to include aninternational training center and the additional work was completed in 1991. Theobjective of this intemational training center was to provide training for staff from othercountries in the area of family planning using the Indonesian experience.

2.17 Assessment of BKKBN Trainine Program. An assessment of BKKBN'straining program was conducted using USAID funds. BKKBN also completedgraduate-level overseas training and in-country graduate level training for BKKBNtrainers and management staff. A total of 50 participants completed their studies invarious subjects including sociology, demography, public administration, public health,statistics, population, and family planning. In addition, a total of 106 participantscompleted S2 or SI degrees. The component also support training in statistics anddemography for provincial BKKBN staff that was conducted in Jakarta (total of 230participants).

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2.18 Midwives Training. In line of the family planning strategy, the projectalso provided midwives training for 907 family planng feiedworkers (PLXBs) from10provirws. The purposes of the training was to increase the capability of PLKBs inproviding integrated family planning and matemal and child health services. A total of875 persoi1 completed their training by December 1992 and were deployed in severalvillages. The experience with this sub-component pointed to a gap between themidwives assignment in the villages and their training curriculum, especially in practicaltraining. In addition, the new graduates complained of lack of transportation facilitiesin the villages and lack of medical kit for provision of health services.

2.19 Supervision and Monitoring, The supervision and monitoring activitieswere conducted by the BKKBN's Deputies, Chiefs of and staff to improve theoperational capability of the provincial training centers.

2.20 Aquisition of Minibuses. The provision of 170 minibuses for national,provincial and district training centers was not all completed. BKKBN procured only11 minibuses during FY 1986/87 and distributed then to the Outer Island II, under localshopping procedures. A number of 159 minibuses could not be purchased under thisproject due to lack of GOI financing.

2.21 Acquisition of Training Materiall. The provision of training materials forJakarta Training Center and Provincial Training Centers was canceled under this projectsince the required training materials were provided through other sources.

2.22 Acquisition of Technical Assistance, Concerning the technical assistance,BKKBN revised the need for foreign consultants under the project in the training fieldfrom 123 to 24 man-months because USAID provided the foreign consultants. Oneforeign consultant was hired for a period of 12 months and 3 local consultants werehired for a total duration of 30 months.

Information. Education and Communication (MC)

2.23 Acquisition of Printing Equipment and Supolies. The completion of IECactivities was consistent with the plans. Procurement of printing equipment, audiovisualdevelopment units and supplies for 27 provinces were completed during March, 1990.The provision of printing equipments and supplies such as guidelines, books, manuals,modules, poster leaflets was mostly completed between 1987 and 1990.

2.24 AcQUisition Audiovisual and Exhibition Equipment. The procurement ofaudiovisual equipment for districts and municipalities was delayed in the biddingprocess and evaluation because of changes in Government regulations. Theprocurement was completed in March, 1989. The equipment included photo cameras,film projectors, tape recorders, and overhead projectors which were distributed to 300

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districts and municipalities. Of the 61 heads of BKKBN's districts, 67.8 percnt hadused the equipment. Those who did not use the equipment reported that were due tothe problems of electricity (26.1%), lack of accessories (21.7%), damage (8.7%), andother reasons. Maintenances costs for these equipment are provided through thedevelopment budget (98.4%).

2.25 AcquisItion of Mobil lInformation Units (MIUs). The procuremet ofMobile Information Units was completed in 1989 and their equipment was in place by1990. Vehicles were finance by the GOI funding and the equipment for the MIUs werefinanced by the Bank. The MIUs were fully equipped and distributed to Java and Baliprovinces. Most of the heads of BKKBN's districts reported that the MIUs were usefulfor supporting IEC activities.

2.26 Acquisition of JEC Kits, The procurement of 12,000 teaching kits wascompleted in 1987 and 1989 and were distributed to the districts. Of 61 head ofBKKBN's district offices, 90 percent reported that IEC kits supported the operationalprogram activities.

2.27 TV Series. Audio. Video, and Films. The production of 56 one-hour TVepisodes for family planning was completed in 1988 by several local television stationsin Jakarta. They were also broadcasted by provincial TV stations and viewed by thepublic for 2 years. The production of 6 masters and 33,000 audio copies wascompleted in 1989. They were distributed to districts and broadcasted by local publicradio stations. The production of 61 masters and 5,410 video copies, 20 audio mastersand 1,515 copies of 16 mm films were completed in 1989. The procurement of theseIEC materials was processed through local competitive bidding (LCB) procedures.

E=PlaEion Education,

2.28 TrMining School Principals and Supervisors. During the project period, theMinistry of Education and Culture (MOEC) conducted various tranibng includingactivities for MOEC staff, provincial staff, school supervisors, school inspectors, andteachers of the public and private schools. The main results of this component aresummarized below.

(a) MOEC Staff Training: The training was conducted in Jakarta in twobatches. The purpose of the training was to increase knowledge andawareness, and to provide better understanding of participants on thepopulation and environment education. The first training was attended by53 participants, and the second training was attended by 54 participantsrepresenting all units of the MOEC.

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(b) Provincial StffTraining The training for supervisors of Junior SecondarySchools and Senior Seconday Schools was conducted in 4 batches. Thenumber of participants in the successive training sessions was 92, 46, 97,and 43 participants respectively. The raining produced populationeducation curricula, supervision instruments, completion of -the provincialpopulation education implementation units (UPPK) job analysis, andmanagement of UPPK, and UPPK reports.

(c) Spervisor Training: The training for supervisors of Junior SecondarySchools and Senior Secondary Schools were conducted in 4 batches. Thenumber of participants in the successive training sessions were 92, 46, 97,and 43 participants respectively. The ( utcome of the training was similarto that of the provincial staff training (no. (b)).

(d) Inspector Training: Training was conducted in 4 batches. The purposesof the training were to provide participants with an understanding ofgovernment policy, strategy, and operational activities of population andenvironment education; to learn its subject, methodology, and operationalactivities; and to develop integrated teaching models and supervision andmonitoring instuments. The participants consisted of inspectors of Pre-Schools and Primary Schools, principals and teachers of Primary Schoolsin the country. The first training was attended by 350 participants, thesecond by 475 participants, the third by 200 participants, and the fourthby 285 participants. The participants also developed integrated teachingmodels for elementary school education, and problems for pre and posttest on population and environment education.

(e) Teacher Training: The training for teacher of Junior Secondary Schoolsand Senior Secondary Schools was conducted in S batches between 1987and 1990. The purpose of the training was to develop skills in populationand environment education to the participants, so that they could trainteachers at schools. The first training session was attended by 2,800participants, the second by 2,000 participants, the third by 1,029participants, the last two by 1,600 participants. The training also providedtraining modules that consisted of guide books for population andenviromnent education, and they could learn the subject and method ofpopulation and environment education.

(f) Self Traini: In addition to the above training activities, self training-methods were used to transfer skills and knowledge to teachers of primaryschools, junior secondary schools, and senior secondary schools in theprovinces that were not included in the formal training. Written materialsfrom the MOEC were sent to the coordinators in the provinces and

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distributed to the paticipants. These included basic concept of populationprogram, relationships among population Increase and economy,environment, social, cultural, and its methodology for conductingpopulation education. 800 paicipants completed the training during 1987,consisting of 312 primary School's teachers, 181 Junior School's teachers,and 180 Senior Secondary School's teachers. The "out of school" trainingactivities were also conducted through radio broadcasting, seminar,coordinating meeting, and writing competitions.

(g) Radio Broadcasting: The purpose of this activity was to disseminateinformation on population education and to provide better understanding,awareness, knowledge, and attitude of the public economy, politics andwelfare. The target was the general public, with special focus on theyouth.

(h) Seminars and Meetings: Various national and international seminar andmeetings had been attended by the MOEC staff who were responsible forconducting population education activities in the country.

2.29 Printing and Distribution of Materials. Printing and production ofPopulation Education and Environment books and supplementary books for primaryschools and secondary schools were completed within 5 years. A total number of211,080 books for primary schools, 96,540 for junior secondary schools, and 86,880books for senior secondary schools were completed and distributed to 11 provinces.A total of 395,000 supplements for primary schools, 160,000 supplements for juniorsecondary schools, and 148,200 supplements for senior secondary schools werecompleted and distributed to 11 provinces. In addition, 507,200 guides books were alsodistributed to the provinces.

2.30 Monitoring and Evaluation. Monitoring and evaluation activities werecompleted by the project component staff in accordance with the workplan issued bythe MOEC's letter of decree. These included monitoring of the training activities inschools and out of school education in the provinces and districts.

Services Delivery in Transmigration Areas.

2.31 Establishments of VCDCs in UPTs. The village contraceptive distributionunits (VCDCs) were established in 595 UPTs. The activities in these units includedstaff recruitment, initial training in family planning, and refresher training in integratedfamily planning and health services. Some 595 PLKBs were recruited from 5 provincesin 1985. They were trained at the Provincial Training Center in the field ofmanagement for UPTs and equipped with motorcycles for PLKBs and bicycles forPPLKBs. During the period of FY 1987/88, the activities for this component focused

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on prep&ration and institutionalization of UPTs. These included training of trainers forPPKBDs, clinical staff, paranedics, and PPKBDs. Te training of trainers wasattended by 316 participants representing the office of district level from BKKBN,health center and Department of Transmigration district and sub-district staff. Thereporting and recording training was attnded by 168 clinic staff from 5 tansrigaionareas. The participants of the PPKBD training were UPT leaders and family planingmotivators, representing 10 participants per UPTs.

2.32 Baseline Survey on Family Plannin, and Health. The survey wasconducted to collect baseline data on family planning, nutrition status in UPTs, andincome generating activities. In addition, analysis of the survey results and reviewmeetings to discuss this implication were conducted.

2.33 Traning Staff. Fieldworrs. and Cmmunt Leaders The activities inthis sub-component included training for fieldworkers in integrated family planning andhealth, formation of income generating groups, formulation of refresher course trainingcurriculum for integrated program, training for integrated progran, trial of therecording and reporting system in 10 UPTs in five provinces and evaluation of thetransmigration program. The evaluation of family planning services in transmigrationareas was conducted in FY 1990/91. The results indicated hat an intersectoralapproach moved better in program implementation; while family planning services hadhigh coverage, the use of capital and equipment for income generating activities wasnot effective. Several other problems were identified including poor reporting system,low participation due to limited guidance, unequal ratio of worker to size of UPT,Insufficient guidance, and insufficient female workers in the services for inserting IUDs.

2.34 Acauisition of materials. supp)ies and vehicl. The component providedtaining materials for family planning workers, IEC equipment and materials, as wellas nutritional and progran inputs for integrated service delivery program. As forvehicles that were originally planned for this component, the procurement of 600bicycles and 90 motorcycles was canceled.

Reseac

2.35 Operation of Research Centers, During the project period, the threeresearch centers within BKKBN completed several reviews and research projects. TheCenter for Family Planning Policy Development completed reviews on incentivesystems in family planning program; the integration of family planning progrm intoother sectors, family planning services for fisherman, review of the logistic systems inthe field, and development of activities to increase age at marriage. The Center forFamily Planning Studies completed 4 studies including those on evaluation of familyplanning service delivery in the urban areas, prevalence rate and the influencing factors,

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the continuation rate and its determinants, and population dynamic and contraceptiveprevalence rates. The Biomedical and Human Reproduction Research Center completedseveral research including the effect of IUD on serum ferritin, the effect of non-steroidanti-inflammatory drugs (NSAI!) at the beginning of menstruation on the use of IUDs,the health status of pill acceptors, effect of steroid contraceptives on metabolism,effectiveness of various personnel inserting IUDs, long term effect of contraceptive useon reproductive organs and a study on safety and efficiency of progesteronecontraceptives.

2.36 Staff Training., BKKBN provided overseas graduate-level training for 9professional staff from the Research Centers in FY 1989/90 at several universities inUSA. In addition, 4 persons received overseas short-training for a period of 6 weeks.BKKBN also recruited 3 foreign consultants and 4 local consultants for helping theimplementation of the research program for the 3 research centers.

Part B : KLH Capacity.

2.37 Delopment of Population Plan of Action. KLH with the assistance offoreign and local experts developed a Population Plan of Action (PPA) which was usedfor the preparation of the REPELITA IV and V. The PPA covered ten points thenationwide organizational framework for population planning, legal framework forpopulation related matters; improvement of the quality of the population data collection;strengthening the capability of national and regional population centers; establishmentof population research program; identification of a research agenda; provision ofpopulation models related to environment, social, economic determination andconsequences; description of population policy and programs; implementation andmonitoring these policy and programs; and education of general public about thepopulation and its importance to the country. In addition, international workshops wereconducted to provide more information and inputs for develophig the PPA. The firstwas the 'Workshop on Integration of Population, Development, and Environment in theContext of Sustainable Development". The objective was to provide substantiveassistance in developing appropriate conceptual frameworks for relating population,development and environment factors in the context of sustainable development. TMeworkshop was held from June 29-30, 1990 in Lausanne, Switzerland, and a follow upwas conducted in Jakarta In August 1990. The participants were the KLH staff,domestic and foreign consultants for KLH, and appointed experts. The second was"Workshop on the Population Quality and Quality of Life". The objectives were tobring together a suitable range of expertise from the USA as a basis for reviewingexisting knowledge and experience, and to provide a forum for the furither explorationof appropriate conceptual frameworks and suitable measures for addressing the rangeof issues inherent in strategic planning for population quality and quality of life. Theworkshop was carried out from October 3-5, 1990 at the University of Michigan in AnnArbor.

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2.38 Graduate-level Traing. Graduate-level training and overseas training wasimplemented at several universities in Indonesia, Australia, and USA.

(a) Domestic Training A total of 60 participants from various universities,and institutes were admitted for master degree program in the field ofpopulation program at the Program Study for Population and Manpower,Post graduate program, University of Indonesia, Jakarta and Center forPopulation, University of Gajah Mada, Yogyakarta. The first group wasfinished in August 1992, and the second group will be done in September1993.

(b) Overseas training: A number of 93 participants from various universitiesand institutes were admitted for master degree and doctoral degreeprograms at the Australian Universities and American Universities. Iheyhave been in the field of human resources and population environment,population mobility, organization, and regional development, demographyof the family planning and aging. inplementation of the study programin Australia was carried out through the International DevelopmentProgram of Australian Universities and Colleges Ltd. (IDP). Of the 38participants, 35 received master degrees, 3 received Ph.D degrees, and 3dropped out. The completion date will be February 1993. Implementationof the study program in the USA was conducted by the Florida StateUniversity. Of the 42 participants, 34 obtained master degrees, 6 obtainedPh.Ds, and 2 enrolled in non-degree program at the Florida StateUniversity. Tbe last completion date of the Ph.D participans will be July1993.

2.39 Supirpt o rNGQs The main activities of this component were trainingcourses for NGOs in the field of management and population. A total of 195participants from various NGOs had completed the management and population trainingcourses in 1986-89. Another batch of 105 participants completed their training in 1990,and 25 more participants completed in 1991.

Project Benefits and Performance

2.40 The physical targets of the project were generally achieved. A total of 87percent for the planned activities and 82.7 percent of performance indicators werecompleted. Hence, the objectives of the project to strengthen BKKBN and assist KLHwere completed.

2.41 Proiect Benefits. The project has provided significant benefits including:

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(a) Strengthening BKKBN organization and management at the central,provincial and district offices. The central BKKBN office providedgraduate overseas training and In-country training for the Deputy's staffand Research Centers personnel. Some of the BKKBN's staff have beentrained in the field of management, demography, statistics publicadministration, family planning and population. As a result, BKKBN hasmore qualified staff at various bureaus and centers. The internationaltraining center has provided regular international and national training infamily planning. Many coutries from Asia, Africa, and Middle East havevisited and participated in the training program developed by theInternational Training Program. The district and provincial participantshave also visited and participated in the training developed by the center.At the province and district levels, BKKBN has permanent offices andwarehouses which support the family planning program implementation forthe local community. In addition, BKKBN offices at the provincial anddistrict levels are better equipped for providing IEC for family planningservices. They could produce IEC materials in accordance with localneeds, since they have their own equipment and local materials.

(b) BKKBN and KLH have successfully expanded the family planningprogram through the educational system in the country. KLH, at theheadquarters, provinces, and districts has strongly committed itself toconducting population education and environment program. Most of thedecision makers of the KLH at the central, province, and district officeshave been trained in population educational. The schools principals,supervisors, inspectors, and school teachers have also been trained inpopulation education. In addition, books, guides, posters, leaflets andother IEC materials were produced and distributed to the schools in thecountry. Out of school population education was developed and expandedto all provinces.

(c) BKKBN in collaboration with the Ministry of transmigration hasestablished UPTs and VCDCs in the transmigration areas which wereneglected at the previous years. A model for integrated family planningand health services in the transmigration areas has been developed andimplemented in 5 provinces. Further development and application of theservices model were applied in the otier provinces.

(d) The capacity of KLH has improved as reflected by the increase in thenumber of government organizations in the provinces and districts werecommitted to population and environment problems. More professionalstaff at the central office and provinces have been trained in varioussubjects of population and environment. These included demography,

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public administration, population mobility, regional development, statistics,public health, family planning, human resources and populationdevelopment. The population plan of action was developed and used forthe national guidance in the population development In REPELIA IV andV. The capability of the Population Study Centers at Universities in theprovinces was improved, since they have professional staff who weretraid in various subjects of population and environment. They haveconducted various training and studies which support the population andenvironmental program. Moreover, KLH has provided training for non-governmental otganizations, so they could actively involve in thepopulation and environment. A network of communication among thegovernment organization, private organization including non governmentorganization in population and environment have been available throughoutthe country.

(e) The project indirectly contributed to increasing family planning acceptanceand reducing fertility by improving the effectiveness of the family planningprogram organization and management. Construction of district offices,warehouses, training center, and research center, provision better staffcapability, acquisition of IEC equipment and materials, provision oftransportation for supervisor and fleldworkers would improve theorganization and management capability of the family planning program.Furthermore, these would also improve field operation, which results inincreasing the coverage and improving the quality of family planning andhealth services delivery. Since the project was considered only one of themany factors affecting and contributing to the reduction of fertility, it isimpossible to measure the impact of the project in terms of fertilityreduction.

2.42 Proiect Performance. The project performance has been generallysatisfactory because most activities and project performance indicators were completed.Some activities were canceled because of several reasons. These included a lack ofpermission for the provision of citizen radio band communications, which was canceled.The provision of telex facilities was canceled because of adjustment to the existingelectronic communications network supported by the USAID. The acquisition ofvehicles such as minibuses for training centers, motorcycles and bicycles forfieldworkers were canceled because of difficulties in providing GOI budget. Provisionof training materials for training centers was canceled because of other budgetcontribution. The provision of technical adjustment of the project needs. Moreover,a total loan amount was amended from US$46 million to US$ 35 million as of July1987, partly because of the government financial devaluation. Most of projectperformance indicators were achieved, except those activities were canceled. Severalindicators were not totally completed. These included the construction of offices and

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warehouses because of difficulties in reaching the 4 districts locations. Short-termtraining by BKKBN was lower than the targets; this might be due to inaccuracy ofplanning data and poor recording and reporting. Similar trends were also found in theother components such as provision of technical assistance, provision of JEC materialssuch as books, leaflet, and posters.

Bank's Performance

2.43 The Bank's assistance to the project provided support to BKKBN instrengthening the family planning program and to KLH in carrying out the populationpolicy development and planning. The project provided significant benefits instrengthening the organization and management of family planning services at thecentral, provincial, and district levels. In addition, the population strategy has beenwidely applied in the national development plans. The project formulation, in thiscontext, is considered appropriate and justified according to the national developmentpolicy RPEL1TA IV and V.

2.44 The project implementation witnessed constructive discussions and dialoguebetween Bank staff and BKKBN which provided several benefits for the agency.Project Implementation was monitored regularly by the Bank, drawing attention topotential difficulties and eliciting appropriate action from government agencies such asKLH and MOEC. Moreover, the importance of adequate budgetary allocations whichremained the significant problem throughout the project was stressed by Bank missionsduring supervision.

2.45 The Bank's supervision efforts were relatively adequate. A total of 141/missions were carried out during a seven years of project implementation. The numberof participants in these mission varied from 2 to 6, including Bank consultants. Themissions involved too many persons, however, the participants were technically strongand there was good staff continuity between missions. Several aide-memiores were notcompleted on time that delayed follow-up action. Suggestions made by the bank duringsupervision missions resulted in better rnrovision of local budget for projectimplementation.

Government's Performance

2/ The total number of missions includes 12 supervision missions and 2 missions thattool place between board presentation and effectiveness.

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2.46 The main government's institutions involved in the project planning andImplementation were BAPPENAS, Ministry of Finance (MOF), and BKKBNJ/.BAPPENAS reviewed BKKBN's annual project plans and provided approval forgovernment's budget allocations and counterparts from the development budget (DIPs).The Directorate General for Budget Administration (DGBA), MOF, reviewed theannual budget plans and its counterparts and provided approvals. Followigi theapproval of the budget, BKKBN completed project activities. The discussions onbudget between BKKBN, BAPPENAS and MOP were carried out without any problemsand were completed by March of each year. BKKBN completed most of its plannedactivities (87%). Annual disbursement accounts were processed by MOF. The delayin the disbursement was mainly due to incomplete statements of expenditures submittedto the DGBA. The reported delay in disbursement at the closing date of the loan is 8.2percent given the partial extension till December 1992. In conclusion, the government'sperformance was satisfactory.

U/ 001's report did not report on KLH's performance in this section.

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PART mProject Profile at Completion

3.1 Related Bank Loans

Loan/Credit Title Purpose Year of StatusApproval

PopulationPopulation I To a) assist GO in the March, CompletedCr. 300-IND establishment of clinic based 1972 September,

family planning program in 6 1981provinces of Java and Bali;b) strengthen BKKBN'scoordination capacity; and c)improve family planninginformation and motivationservices.

Population II To a) extend family planing June, CompletedLn. 1472-IND program to ten additional 1977 March,

provinces in Outer Island I; b) 1984establish contraceptivedistribution centers in Java andBali; and c) expand andstrengthen population educationand motivation activities.

Population III To a) expand family planning June, CompletedLn. 1869-IND program to the remaining 1980 September,

provinces; b) assist GOI 1984decentralize management offamily planning programn; and c)strengthen maternal and childhealth services.

Population V To a) expand family planning April, OngoingLn. 3298-IND service delivery to hard-to-reach 1991

population groups; b) enhanceacceptance of long-actingcontraceptives; c) supportBKKBN's IEC, staffdevelopment, research and MISactivities; d) promote safemotherhood through training anddeployment of village midwivessafe motherhood IEC campaigns.

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3.1 Related Bank Loans (cont'd)

Loan/Credit Title Purpose Year of StatusApproval

Health ANutrition

To enhance GOI capacity to March, CompletedFirst Nutrition formulate and execute nutrition 1977 March,Development programs, operatiorns, research, 1982Project manpower training, monitoringCr. 1373-IND and evaluation by strengthening

and expanding the existingnucleus of personnel institution.

Provincial Health To improve effectiveness of February, CompletedLn. 2235-IND health care services; reduce 1983 September

incidence of malaria in 3 , 1989provinces; improve quality and4dlization of health servicesthrough improvements in healthctnters, referral and outreachsystems and manpowerdevelopment.

Second Health To a) help expand the output and April, Ongoing(Manpower improve the quality of Depkes 1985Development) paramdecial manpower; and b) toLn. 2636-IND help expand the capacity and

improve the quality of Depkes in-service education and training.

Second Increase the effectiveness and November CompletedConununity efficiency of GOI's nutrition and , 1985 June, 1992Health & community health programsNutrition through a) strengtheningLn. 2636-IND coordination and management of

community health programs; b)further development of nutritionalsurveillance; and c)strengtheningnutrition manpower development.

Third Health To assist GOI improve the June, 1989 Ongoingproject delivery of health services andLn. 3042-IND raise health status in 2 provinces

through better and moredecentralized health sectorplanning, budgeting andmanagement.

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3.1 Related Bank Loans (cont'd)

LoanlCredit Title Purpose Year of StatusApproval

Third Conmnunity To a) eance programs for child December, ApprovedHealth & Nutrition survival, safe motherhood and 1992 by BoardProject nutrition in 5 provinces; b) buildLn. 3550-IND provincial capacity to plan,

monitor and evaluate healthplans; and c) strengtien centralDepkes to provide technicalsupport to the province.

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3.2 Project Timetable

Item Date Planned Date Revised Date Actual

Identification(Executive Project March 20, 1984Sumnuny)

Preparation March/April, March/April,1984 1984

Appraisal Mission July, 1984 August 27-September 14,1984

Loan Negotiations February, 1985 Marcd 25-29,1985

Board Approval April, 1985 May 7, 1985

Loan Signature July, 1985 July 18, 1985

Loan Effectiveness November 1, November 1, 19851985

Loan Closing March 31, 1991 March 31, 1992 March 31, 1992

Project Completion December 31, December 31, December 31,1991 1992 1992

.37-

3.3 Loae Disbursements

Cumulafive Es*mated and Actual Disbursements(US$ mllion)

l' ~ ~ ~ ~ ____ ____ - _____ - - -____ - = - *

FY 1985 1986 1987 1988 1989 1990 1991 1992

Appraisal Estimate . 1.5 8.2 21.1 38.5 46.0 -

Revised at 0.7 2.4 13.7 25.4 . 33.0 35.1-. - - - S

Actual bL - 0.7 2.4 13.7 24.5 29.8 31.8 32.5

TL Ihe Loan was revised twice on July 9, 1987 and April 16, 1987 whereby the totaLoan amount was reduced by US$ 10.9 million.

bf Ihe figures for 1992 are preliminary and include crude estimates of projectdisbursement during the 4 months grace period.

Figure 3.1 Cumulative Estimated, Revised and Actual Disbursements(Million US$)

so~~~~~~~r

.1 2.34 1 2 3 4 4 2 3,4 1 2 3 41 2 34 1 2 3 4 1 2 34I 1986 1 1987. 1988 .99 *-1990 I I 99 I 1992 ,

Quarter /Year:-ppraisal Revisecl Actual

3.4 Project Implementation

Component Apprasl M(an Actul (PC)ti

PART A: BKKBN

1. Field Operations Deveopwme 1. Constion and equipping offices ad warouses in 84 1. Consrton was complekd in St dists and addiof icediscs and in Jakaa renovation was underta in a ckis.

2. Acquisition of telx facilies for 27 prones ad akarta. 2. The proc_rm of telex machines was cancled and replacedwith 27 computs for 22 provinces and S fr Jakart.

3. Fasibility Study for CB radios and provision of 21.000 radios. 3. Feasibility study was omptd and results favored the use ofCitze Rn radios with specifi frqun. 001 epoa of therequitd frequeacy could n be obtaied in ti40 ad subsequentlythe procurment was canelted.

4. Procurent of 6,460 motorcycles and 47,600 bicycles. 4. The procuremen was canceled.

S. Th component also procrd 26,775 uis of NORPLANT________________ ____________________________ contraceptivstat weore oinitillyplannedfor theproect.

2. Saff Development 1. Construction and equipping training and rsearch cater with a 1. ContrctIon of the ftriing and r_esah wa compltedtotl area of 9,600 in. and oxpanW to includo the intratona ingenter with a

total area of 33,490 ms.

2. Assessmet of the training progam and curriculum materiels. 2. The assmet was ompletd but wit USAID s e.

3. Graduate leve trainig for 46 parcips for in-country 3. The planned 41 ovseas fedlowsbips wre completetd d thefellowsips ad for 41 particpat for oversas fellwships in-oury fllowships waer Increased to a totl of 106

fellowshps

4. Supervision sad monoring for tining ceners in 27 provinc. 4. Resources wae utled for supavison of monitoring in tho 27provinces.

S. Procurement of 170 minibuses. 5. Only 11 minbuses we pronred.

6. Provision of training materWis for training ceanrs in Ja and 6. Canceled from the project sinco resources from anoher soucprovinces. wa used.

7. 123 man-months of thnicld aisnce wre planned at 7. Only 12 ma-months of tehniea assiaancewr used o.________________________ appraisal and later revised to a total of 24 man-months. ._ .

3. lnlormatio, Edcaton, and 1. Proc¢rment of printing ep bme for media developme unks 1. The proueme was completd and coned of:Canuusuicatlou (IE(~ for 21 province and adio vsa and ehibition quipm for 1,200 AVA waits for dis offices

distict offces. 297 AVA sets for povinc427.923 guidebooks1SAM4OOMD"10.800 leaetsW99000 cards

In addition, 20 mtn-months of local technical as_ace Wmprovidod.

2. Procureme of 87 MlUs to improvo JEC aaivis at the village 2. The 87 MWs wem procred and distributed to de fidd.level.

3. Procurement of 12,000 IEC kIts for famiy planning workers 3. The IEC kits wa procrd and distibuted to the dislrktand health center staff. ofrfies.

4. Production of 56 TV series; 6 audio masers and 33.000 copies; 4. A total of: 56 TV seies. 6 audio mears, 33.000 audio Oopies.20 fidms (16 mm) and 1.515 copies. 20 films and 1,515 rlm copies ware procured ad employed in the

__________________________ JEC campaig.

4. Population Educadon 1. Training of: 1. The completd aining acvities in these cagories wre.a. 15,000 school supevso at provinci, 4istrict a. A total of 14,847 participants form sehooland sub-district levels and principals of public and supevo and principalsprivat schools;

b. 85.000 superviso, tutors, aclitator of out of b. A total of 36.35S particis formschools Rtining; and spervisors, tutors and faciiaor. and

c. 830 patcians from teacher tring intit. c. A ttal of 860 partipns received tasingEstimated nuamber of participants at prais= 10 from tacher trig insties.KPs, 20 FKIPs and 800 pariipan.

2. Prtin and distribuion of training matetIls 2. The printing and didsibuti w compl_ted. A total of690.700 books ad 1.240.900supleam ae tditibtd.

3. Monitoring and evaluation 3. To monitorin sad evaluatio actvs are rpot to be 09______ _ completed. No daa is availble

0

S. Sec Delivery in 1. Establishment of VCDCs in 670 UPls in S pwovi (Riau, 1. VCDCs were establised in 595 UPrs ia the S povinc.Traasmigradotl Areas Jambi, engkculu, S. Sumatr, and W. Kaliantan).

2. Conduct a baseie survey. 2. The suvey was conducted in 198788 nd ae tpt was

3. Training for DKKBN staff, fleidwodcers and commaniy leaden 3. The training was conducted. The number of partipats byin th 5 provines. ypo of training was reotd as:

PLKR training- 595 pasicipanPPKBD training- 316 paticpasPaamedics trainins. 168 pacipatsCommunity leaden &motivator taining- 5950pacpas

4. Devdopment of training maerias. 4. Training meals wee deveoped ad ditbtedS. Acquisition of materials. S. Mater procued and di4bed. 6. Procurement of 600 bicycles and 90 motorcyles. 6. Procurement caeled due to proe nt procds and lack

of finds from 001.

7. Posyand and Nutritonal progam inputs and weighing scale. 7. Materids (inlduding medicines contraceptives, IEC maria,NORPLANTS) war procured.

6. Research 1. 16 reviews and studies by BlUBN's Research Cters. ?. The 16 reviews and studies we completed. (for more details '"'b1e3.6).

2. Local and ovrseas trainig. A otal of 10 shortterm and 9 2. The taning was conducted. A tota of 4 shorter mad 9long-tem felowships wore planed. longtam fellowships w completed.

1. A total of 48 mm of local technical assistance and 12 mm of 3. Techncl assistc was provided, but all rsoures for thisforeign technical asss woe planned for this co_mp it. activity wre lized. The tota cnial ascewas rported

as 35 mm of locel and 12 mm of foreign technicd asIstne.

o

| I- i.-

iS l ji b

UI is I{

.. 10 1.1

v 30 v 38ea -TV-

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3.5 Project Cost and Financdng

a. Project Costs (US$ Milons)

ExpnditureCateo Apprasal Revised hAlt

S% Foreign TO Total TOt

CiviWorks________________________ 28 23.2 IS.9 IS.6

Equlpmentl Materials/Vehicles 70 37.4 16.5 11.3g

Technical Assistance. Fellowshipsand Training 28 30.3 18.5 16.0

Land6 3.5 3.S 1.9

Total 44 94.4 54.4 44.8bL

L Th. differnce could be due to the cancellation of procurement of vehiles.

k_ Total project cost is based on USS equivalence of reported annual project cost in Rupiah by 001.

- 43 -

b. Project Financing

Source Percent of Planned Loan Revised ActualDisbursement Agreement (USS '"000)

IBRD ExpenditueCategory

Civil Works 100% 22,000 14,631 14,021

Equipment & 100%, 90%, 10,300 7,647 6,583Materials 65%nL(excluding Part I ofProject kL)Conutant Services 100% 8,400 8,158 7,170& OverseasFeUowships

Local 20% 3,000 4,691w 4,691Trining(excludingPart I of Project)

Unallocated 2,300 -

Total WRI) 46,000 35,127 32,4655i

Total GOI 48,400 19,273 12,305

Total Project 94,400 54,400 44,770&t

at 100% of foreign expenditures, 90% of local expendiwrks (ex-factory) and 65% of local xapendius for oheritems procred locally.

b/ Part I of Project consists of support to non-government organizations (NOOs).

sL The percentageof Bank financing for this category was revised to 100%.

d/ Tbis figure is preliminary since the project stil has a four month gSace period for categories 3 and 4.

gJ Total project cost is based on USS equivalence of reported annual project cost io Rupa by 001.

-44- Page 1 of 3

B ! Itt jit }lj f

1111 11.t1X 1 t

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A.2 Cente for Nabtonnd Famiby Panning

a) Evaluation of family planning To assffte prvision of family planing Completd. Sevai en ad chasges ia methodsservice delhwy in die urban areas. services for the different commnew in an 1986 of sevicc delivey we btrodued. Theudran s4ting. results weem as usod in the design of the

Fifth Population Project.b) Determinants of cotraceptive facors co wit Compld. Th anays ss the progam inprevatence rate. conceptiv prevalncc raes. 1986 etifying ta aQd gaps in th program

sevice deivery system.c) Levels and determinants of To ddamine tde continuatioa raes among Completd, The study assisted tie pogrm in determiningcontraewtive continiation rates. family planning acceptors. 1986 tie offectivatessof the contracePtv services

and the program nees.4) Studios of population dynamics in The study was intally plannem to examine Completed, Th study provided guideinesabout differvat| rlation to family planning program alternativeo scenair, for the program and to 1990 eatives and projtions for tbe familyimplementation. analyze the financial implications of the planing ptogam, but did not achieve its

different alternatives. The sudy fenl sot of onal objetivo in trms of providin athat and analyzed the differet componets financial estimat for posle alatives.of population dynamics: ferility, mortality The fnancial anaysis was later providod byand migration,. tde nks tor report on family planning.

A.3 Biomedikal and Human ReproductionResrach Centerij

a) The effet of IUD on serum ferritin. To study and compare te level of serwm Completed, Study provided information about the blood.erritin among IUD uses and non-users. 1986 loss in reltion to tde use of IUD.

b) The effect of use of non-steroid anti- To compae the effectivenessof Non Steroid Completed. Provided information about th.efdf eeofinflammatory drugs (NSAID) Anti Infl_amaory drugs (NSAID) in 1986 NSAID for rID sid-effet.administered at the beginning of alleviating the side effecs associated withmenstruation on the continuation rato of IUD Ue.IUD.

c) Study on physical hedth of pill Compare some indicator of physical eh Completed. Rport on the physical bth ss of the pillacceptors. betweeo pill uses and tnon-usas. Mme 1987 usrs

indicators included blood pressr, beightI _______________________ and weight. I 0

It Thc studies reported for the Center for Biomedical and Humn Reproduction werc done in collaboraton with WHO.

4) Compare the cff_civenessof IUD To com ad repoet on tie sdeeffiects, Comoe To Mden" do probems Fa tho esp ofWoertion by various provids. faiue aes and compliatim of MID 1988 differt modial pessnnel i I mmtng lUDs.istion by different qtps of prvder

e) Study ont long-m effects of To assess the rdatve risk ndt ocarece of ComWpktd, Add to the scieoc ovideno about the *'Ofcontracetive use on reproductive mal cie g fao ily planig 1990 walinanowsassocited with,co aceptiOrNI. acctors and no _cceptor

f) Study on safety and effiacy of To compoa to ssey, efica and Comploted To rport on the acceptancel vel of doprogestone comped to other accAn of peterononly 1990 iffesn l typesW ad thiri doWects.otceives. contacetives arnd combind oral

B. Other studis Bv BKKBNa) Fasility study for Ci;n Band To provide aswers about the need and Completed, Study coducted and resus idwad tdeRadios. speciriaions of CB radios r_quested by the 1989 usefulness of CB radios with a specifi

family planing pro°rm. f1equancy.b) asline survey for transmigration To provide information about ot populaton Compkted, Study usw completed and results wre uwd aareas. profip e to address their family plaoning 1988 the design of the transmigration program.

oeods..__ _ -_ _ ,___ __ _.__.__,__ _=_ _=___ ,_ ne ds _ _. s - ,i___ _ _ _ _ _ _ __ __,_ _ _ __ _ _ _ _ _

5c

3.7 Status of covenant

Sectin Deadlineotyp of Covent) Descripton of Covenan for Compliae Statu

Loa: a) Etablish two Steering Committee Groups for 03 1/88 CompliodArtc 6.01, No. 1(1) Parts A and B of project;

b) Assign qualified staff in adequate numbers tomanage and supervise cvi works being cariedunder the project.

Aticle 6.01, No.2 (12) Acquire land and all rights for consWuction of OB311/8 CompliedBKKBN offices and warehouses under theproject.

Schedule S, para 10 (M2) KLH plan for overseas graduate level trainig in 04/0i/88 Complied inpopulation education. 11/86

Schodue 5, para 4(a) (Ml) Study on acquisition of Citizen Band radios. 08/17/0 Study comple,archa caneiled

Scedule S, para S (M2) Tmining assessment by BKKBN. 04/01M88 CompliedSchedule S, para 7 (4Ml) IEC stratgy for BKKBN. 04/01/88 Complied

Schedul 5, pam 8 (Ml) Population Education Pan of Action. 04/01/88 Compt by11/1986

Schedule S, pam 9(a) (Mt) Program of reseach for BKKBN. 04/01188 Compltd by

Schedule 5, para 9 (b) (M l) Report on contraceptive users and continaion 08/09/89 Compliedrates (due every 2 years).

Schedule S, para 9 (c) (T5) Fmancial anaysis of BKKBN, mudium and long- 08/09/89 Compliedterm requirments.

Schedul S, pam 9(d) (TS) Long term famiby planning strate. 0630/88 CompliedCovenants codes:I Create/Revisc/Updateorganizations; improve management and MIS; agreements bawen or with agencies.Ml =Supervision of implementation./ M2 =Adequate training program.T2-Construction standards. / TS =Ensure 0 & M plan and funding.

-48 -

3.8 Missions and Bank Resources

a. Use of Bank Resources

Stage of Project Cycie Planned Finsa

Through Appraisal NA 39

Appraisal Through Board NA 103Presentation

Board Presentation NA NATlrough Effectiveness

Supervision NA 131

PCR NA 3

Total NA 276

Source: MIS, 12/17/92

- 49 -

b. Missions

Month/Year Duration of Number of SpecializationsMission' Persons Represented

Through 5/ 1983 10 1 NAAppraisal

7/ 1983 7 5 E, P. H, A, C

1/ 1984 18 2 NA

4/ 1984 21 5 NA

Appraisal 9/ 1984 21 6 NA

Appraisal 5 1984 NA 1 AlTroughEffectiveness

_ 7/ 1985 10 4 NA

Supervision 12/ 1985 21 6 NA

9/ 1986 10 4 NA

5/ 1987 14 2 P, H

6/ 1987 20 1 P, A

8/ 1987 22 5 P, H

2/ 1988 20 1 P

7/ 1988 27 7 P, E

3/ 1989 9 2 P

3/ 1990 21 3 P, A

8. 1990 25 2 P, A

6/ 1991 22 4 P, H

PCR 4/ 1992 19 3 P, H, A=Population Specialist H=Health Specialist

A=Architect C=Communication SpecialistE=Economist

I The data on exact number of days for Population IV supervision and in the fieldwas mostly missing. Ihis number reflects the duration of the mission in total.

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