2
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PROJECT DOCUMENT
Creating Jobs: Capacity Building for Local Resource-
based Road Works in Selected Districts in NAD
UNDP/ILO Project INS/51/071 – Phase III
Capacity Building for the Management of Road Assets at
District Level in Aceh
September 2011 to August 2012
TABLE OF CONTENTS
1. Situation Analysis .............................................................................................................................. 5 2. Strategy .............................................................................................................................................. 5 3. Output and Activities ......................................................................................................................... 7
3.1. Output 1 – Technical and managerial capacity of district governments in undertaking road
works is satisfactory .............................................................................................................................. 7 3.2. Output 2 – Techniques, standard, systems and strategies for road maintenance and LRB
methods developed and operationalized
areas 9 3.3. Output 3 – Community participation in rural road development, rehabilitation and
maintenance strengthened ................................................................................................................... 11 4. Work Plan ........................................................................................................................................ 12 5. Assumptions and Risks .................................................................................................................... 12 6. Institutional Framework and Management Arrangements ............................................................... 14 7. Monitoring, Evaluation and Audit ................................................................................................... 14 8. Budget .............................................................................................................................................. 16
Annex 1: Work Plan ............................................................................................................................ 17 Annex 2: Staffing Plan from September 2011 to August 2012 .......................................................... 18 Annex 3: Logical Framework ............................................................................................................. 19 Annex 4: Budget ................................................................................................................................. 22
Table 1: Main Activities to Achieve Output 1 .......................................................................................... 8 Table 2: Main Activities to Achieve Output 2 ........................................................................................ 10 Table 3: Main Activities to Achieve Output 3 ........................................................................................ 12 Table 4: Risks, Risk Assessment and Mitigation Measures ................................................................... 13 Table 5 & 6 : Changes in proposed budget by output ............................................................................. 16
Figure 1: Institutional Set-Up ................................................................................................................. 14
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1. Situation Analysis
Following extensive consultations with district, provincial and national stakeholders, including the Project
Board, a comprehensive Exit Strategy for the UNDP/ILO Project “Creating Jobs: Capacity Building for
Local Resource-based Approach in Road Works in Selected District in NAD and Nias” was prepared for
the Aceh cluster of the Project (Pidie and Bireuen District). Initial activities under this exit strategy have
been implemented in accordance with the approved extension for the period October 2010 to June 20111.
The current project builds on, and reflects, the outline of the proposal that was already incorporated in an
annex of the approved October 2010 – June 2011 extension. It also reflects the request from the
government of Aceh and local governments of Pidie and Bireuen for the Project to implement additional
road rehabilitation infrastructure works to improve the connectivity to support local economic
development.
The project seeks to ensure that the LRB approaches that have been successfully demonstrated over the
last five years will be sustained and that the lessons learned will be mainstreamed – not only in Aceh
Province but also in other parts of Indonesia – and incorporated in the Government’s infrastructure
investment strategies and programmes, including the Labour-Intensive Infrastructure Programme of the
Ministry of Manpower and Transmigration. The Employment-Intensive methods used by the previous
project have proven to be very successful and have created large numbers of employment opportunities
for the local population, thereby contributing to local economic development and the alleviation of
poverty.
The project aims to ensure the sustainability of the investments made in developing employment-
intensive approaches and in operationalizing assets built under the previous two phases of the project. The
main emphasis of the current project is to build capacities for road asset management at district level – in
particular in Pidie and Bireuen districts where the majority of the investments have been made – and on
up-scaling and mainstreaming the successfully demonstrated employment-intensive approaches. Another
main element of the current project is the rehabilitation of rural and district roads to improve accessibility
and connectivity to support local economic development initiatives of the local governments.
Infrastructure development, especially road development, is one of the seven priorities of the Government
of Aceh for the period 2007-2012.
2. Strategy
An important element of the project is the development of models and tools that can be replicated in the
whole of Aceh and other parts of Indonesia. Considering the importance of the district parliaments in
decision-making processes regarding the allocation and approval of investments and investment
strategies, the project not only aims at building capacities among concerned executive institutions but also
seeks to build capacities among the district-level legislative bodies.
Realizing the importance of information dissemination as a key advocacy tool in obtaining wide and
national-level recognition of the successfully demonstrated approaches, the project includes various
advocacy and information dissemination activities at various levels.
The project reflects the priorities of the National and Provincial Government, including those of the
Ministry of Manpower and Transmigration and BAPPENAS, and the Governments of Pidie and Bireuen
district, and it is closely aligned with the Government of Indonesia’s Action Plan for the Continuation of
Reconstruction of Aceh and Nias 2010-2012. The project addresses key elements of this Action Plan,
i.e.:
1 Request for an Extension of the Closing Date until June 30, 2011, Jakarta, dated 9th August, 2010.
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Developing operational tools and capacities at local government level that are required for effective
asset management/maintenance and operational functionality of district and rural road assets;
Developing sound investment strategies and approaches that maximize the effectiveness of using the
limited available funds in districts’ road infrastructure budgets to (i) enhance the value of district road
assets, (ii) create employment, and (iii) promote local economic development and the recovery of
rural livelihoods;
Mainstreaming and expanding the successfully demonstrated employment-intensive and
environmentally friendly local resource-based (LRB) approaches and technologies. This includes an
expansion to other sectors that reflect district Government priorities2 and provide good opportunities
for the application of LRB approaches;
Providing support to the Government regarding the transfer of district road assets;
Capacity building regarding the establishment and operationalization of effective, community-based
road maintenance systems;
Assistance in establishing an effective management information system for roads at district level,
including the development of functional linkages to existing information systems at provincial and
national level, such as the Bappenas-endorsed SIMBADA information system.
Considering the importance of the district and village roads in the road network of Aceh for local
economic development, and the current capacity constraints related to the management of these roads (in
terms of the availability of human resource capacities, management information systems, investment
strategies, maintenance arrangements, etc.), the exit strategy will focus on the management of the road
assets for which the district governments are responsible.
The basic exit strategy, which was financed from the accrued interest of previous Phase I and Phase II
Project funds (US$ 357,000), was implemented from October 2010 to June 2011. Its main focus was on
establishing a basic framework at district level (Pidie and Bireuen district) for capacity building in road
asset management. Activities covered included:
An assessment of available capacities and tools for planning, budgeting and implementing road
management activities;
Initial design activities of a basic management information system (including an attribute database
and GIS);
The design and implementation of basic training regarding the operation of the database systems and
the preparation of maps;
The preparation of a framework for planning investments in road maintenance at district level;
Facilitation support to the local government regarding the transfer of the assets developed by the
project to the government;
The development of proposals for expanding and mainstreaming successfully demonstrated local
resource based implementation approaches;
Various advocacy activities involving the concerned executive and legislative district bodies.
The implementation of the comprehensive exit strategy under the current Phase III project builds on the
achievements of the basic exit strategy that was implemented during the previous phases. It will focus on
technical advisory services and implementation support in implementing comprehensive staff capacity
development plans and plans for the development and operationalization of required models, systems and
tools that have been prepared to this effect.
The Project will provide technical advisory services and support in promoting and developing the
necessary policy and regulatory framework for sustainability, including support to districts in developing
local regulations (i.e. Qanun) that are required to provide an enabling regulatory environment for
investments in the maintenance of the district road network and for community-based road maintenance.
2 The local Governments of Pidie and Bireuen have indicated their strong interest in the expansion of the LRB approaches to
inland fisheries development and water- and soil conservation activities.
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Lessons learned and best practices of the project will be documented and knowledge management and
policy dialogue and advocacy activities will be undertaken within the framework of the project. These
activities are aimed at ensuring that the outputs and products produced (e.g. models, tools and guidelines)
are incorporated within the government’s framework and strategy for the delivery of rural infrastructure
investments in the road sector.
Funding for the implementation of physical works in the rural roads sector and in other selected priority
non-roads sectors (e.g. fisheries development, irrigation, water-and soil conservation) is also included in
the project. Of the US$800,000 budget for physical works, US$ 535,000 (two-third) will be allocated for
the road sector and the remaining US$ 265,000 will be used for the non-road sector.
Given that the previous phases of the project involved providing substantial training to the local
governments regarding the implementation of rural road rehabilitation works, the Public Works agency is
expected to play a lead role in the delivery of the investments in the roads sector. The project TA team
will play a supporting and advisory role in the process. This arrangement will enable the project to assess
the effectiveness of the capacity building that has been provided on LRB road rehabilitation over the last
4 years of the project. Limited funding will also be provided to demonstrate the appropriateness and
effectiveness of the application of LRB construction methods in non-road rural infrastructure investments.
Wherever feasible and relevant, complementarities with the MDF-funded Economic Development
Financing Facility (EDFF) project and the MDF-funded AGTP project will be established to ensure
synergies and optimum utilization of resources. As such, activities envisaged under the comprehensive
exit strategy will be closely aligned with Government needs and priorities as expressed in the
Government’s mid-term and long-term development plans and specific sector plans.
3. Output and Activities
The two main outputs of the project relate to (1) Building capacities for road asset management at district
level, (B) Up-scaling and mainstreaming Local Resource-Based (LRB) approaches; and (C) ensuring
community participation in rural road development, rehabilitation and maintenance. Further details on
these outputs and their related activities are provided below. The cost of implementing these outputs is
estimated at US$ 2.1 million.
The Governments of Pidie and Bireuen districts and the Provincial Government of Aceh Province have
stated their commitment to support the implementation of the project. The local Governments of Pidie
and Bireuen districts in particular have confirmed their intention of allocating local Government funds for
the future maintenance and management of the road assets that have been created by the Project.
In addition, the Governments of Pidie and Bireuen have indicated their commitment to contribute to the
allocation of resources required for the establishment and operation of management information systems
that are needed for the planning and management of investments in the district and rural road network.
Output 1 – Technical and managerial capacity of district governments in undertaking road works is satisfactory.
Table 1 presents an overview of the proposed activities related to Output 1 of the project. The table also
summarizes the status of the activities undertaken during phases I and II (from March 2006 to September
2010) and those implemented within the context of the basic exit strategy during the extension of phase II
(from October 2010 to June 2011).
Activities under output 1 mainly focus on strengthening Public Works’ and Bappeda’s technical and
managerial skills and capacities at district level – in particular in Pidie and Bireuen district – regarding the
planning, budgeting, programming and monitoring of investments in district road maintenance and
8
management. In this phase supporting operational tools and procedures will be further developed and
tested, and technically support will be provided to ensure their application.
At the provincial level the ADB-funded ETESP project has already developed for Bappeda
comprehensive tools for the identification and costing of maintenance requirements of the provincial and
national road network. Bappeda has indicated that technical advisory services are still required to support
the preparation of proposals for road maintenance. To address these needs, a limited amount of technical
assistance to Bappeda and Public Works at provincial level will be provided on an ad hoc basis.
Table 1: Main Activities to Achieve Output 1
Output 1:
Act Description Phase
Progress UNDP/ILO
Project as of June 2011
Activities from July 2011 to
August 2012 1.1 Engage and coordinate with key stakeholders I & II Continue Continue
Undertake training needs assessment and provide
technical construction training
I & II Completed -
Make road inventories and select project roads I & II Completed -
Design and prepare contract documentation and award
contracts for road works
I & II Completed -
Undertake tendering and award contracts for road works I & II Completed -
Rehabilitate project roads and undertake construction
supervision
I & II Completed -
Maintain project roads and undertake supervision I & II Completed -
Prepare two other districts for trial implementation II Completed -
TA on infrastructure construction techniques and
planning to district Public Works and other local and
international organizations in Nias
II Completed -
1.2 Strengthen institutional and technical capacities that are
required for the preparation of the annual road
investment and maintenance budget and plans of
Bappeda and Public Works in Pidie and Bireuen district
Exit
strategy
(current
Phase
III)
Technical and institutional
assessment done and
recommendations for
improvement prepared
Basic training provided on
DB, GIS and MS Office
Comprehensive training
plan and budget prepared
Implement comprehensive
capacity building plan,
including implementation
support for preparation of plans
and budgets
Develop in-house training
capacity
Implement the institutional
development plan
Prepare comprehensive training
modules/models
1.3 Increase awareness about the importance of including
maintenance budgets for roads infrastructure among
legislative and executive bodies and strengthen their
capacities in preparing and analyzing road investment
strategies
Exit
strategy
(current
Phase
III)
Strong support secured
from local parliaments and
executive bodies for the
project activities
Continued advocacy and
building capacities among
legislative and executive bodies
regarding the preparation and
review of investment strategies
1.4 Implement limited pilots to demonstrate the feasibility
of applying LRB approaches in selected local
Government priority sectors
Exit
strategy
(current
Phase
III)
Preliminary identification
of locations and sectors
done
Finalize scheme selection
Design, cost and implement
demonstration schemes
Document and disseminate
results
1.5 Rehabilitate selected roads applying LRB techniques
and a local government led approach. This will also help
to assess the extent of capacity development during
phases I and II of the project.
Initial identification of
some rural access roads
that connect economic
productive areas to district
road heads
Prioritization and selection
Design and cost-estimation
Tendering and contract award
Implementation of works
Supervision and quality control
To foster institutional sustainability, support to develop in-house training capacities within district Public
Works and Bappeda offices will be provided as required. The district Public Works and Bappeda offices
will respectively assign dedicated focal persons to work closely with the Project’s technical assistance
team to facilitate the transfer of knowledge and available training facilities to Public Works and Bappeda.
Activities under the current project focus on building capacities and systems that will enable a more
efficient and effective allocation and utilization of available resources for maintenance, and hence
9
positively affect the sustainability of past investments. Close coordination with key stakeholders from the
legislative and executive bodies will be maintained during the implementation of these activities. The
technical assistance team will assist in facilitating the coordination between the various stakeholders and
will provide technical inputs and advisory services in the coordination process. Coordination will take
place horizontally and vertically.
The envisaged rehabilitation of a limited number of road - using LRB methods - aims at demonstrating
the effectiveness of the capacity building activities that have been undertaken during phases I and II. The
concerned district government agencies will have a leading role in the delivery of these investments, with
a supporting and advisory role by the project TA. Limited numbers of field pilots will also be
implemented in selected non-road sectors (e.g. soil and water conservation, irrigation, flood protection
and inland fisheries) to demonstrate the feasibility of up-scaling LRB approaches to those sectors. In
consultation with the district level stakeholders priority areas for the implementation of such
demonstration schemes have already been identified (inland fisheries and water- and soil conservation).
At district and provincial level key stakeholders that will be involved in the coordination process include
DBMCK, Bappeda, the local government and other relevant actors and projects involved in building
capacities for infrastructure planning and programming and the legislative bodies. The key function of the
coordination will be to ensure an efficient and effective implementation of the envisaged activities under
output 1, taking into account existing capacities, skills, (development) priorities and capacity building
plans.
Upon the completion of the project, the following key results are expected under output 1:
1. Additional 10-20 kms of roads are constructed to specified quality/standards and in time, using LRB
approaches and technologies
2. Operational staff capacities in place in Pidie and Bireuen district for the preparation of comprehensive
proposals and budgets for the maintenance of the district road network3;
3. District road maintenance plans and budgets for 2013 prepared using the developed operational tools,
staff capacities and investment strategies and master plans;
4. Demonstrated capacity of concerned district government agencies in the delivery of investments in
the rural roads sector, using LRB approaches
5. Demonstrated feasibility and appropriateness of applying LRB approaches in selected non-road
sectors
Output 2 – Techniques, standard, systems and strategies for road maintenance and LRB methods developed and operationalized.
Table 2 presents an overview of the activities related to Output 2. The table also summarizes the status of
the activities undertaken during phases I and II (from March 2006 to September 2010) and those
implemented within the context of the basic exit strategy during the extension of phase II (from October
2010 to June 2011).
The development and application of effective systems, procedures and tools required for the planning,
budgeting, resource allocation and programming of investments in the district road network is a key
activity under output 2. Technical support will also be provided – as required – for the development of the
necessary supporting local regulations. Another important activity is the development of model road
maintenance master plans for Pidie and Bireuen district.
These master plans will provide practitioners and decision makers at the district level with a framework
that will guide infrastructure investment decisions. The intention is that the developed road development
and maintenance planning and budgeting tools and road master plans will serve as a model that can be
replicated in other districts in Aceh.
3 Including a core group of DBMCK and Bappeda trainers in Pidie and Bireuen specialized in planning, budgeting and
programming infrastructure investments – with a special emphasis on road investments.
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Table 2: Main Activities to Achieve Output 2
Output 2:
Act Description Phase
Progress UNDP/ILO
Project as of June 2011
Activities from July 2011 to
August 2012 Undertake pavement studies I & II Completed -
Review and refine manuals and guidelines I & II Completed -
Review and refine standards specifications I & II Completed -
Refine tendering and procurement procedures I & II Completed -
Promote the use of the local resource-based approach I & II Completed -
Review areas for support to provincial and district
Public Works’ capacity to deliver an in-house
training program (NAD only)
II Completed -
Develop a training program, including training
curriculum and materials, with provincial and district
Public Works (NAD only) on various aspects of
planning, implementing and managing LRB
construction works
II Completed -
2.1 Assist provincial and/or district Public Works in
training delivery
II Continue Continue
Provide coaching support to Public Works officials in
site supervision
II Completed -
Review training program implemented by district
Public works in NAD
II Completed -
Submit policy recommendations with regards to
training recognition by provincial and/or district
Public Works (NAD only)
II Completed -
Budget planning support to local governments II Completed -
2.2 Prepare and apply operational tools for identifying,
prioritizing, budgeting, planning and managing
budget investments required for the maintenance of
roads at district (Pidie and Bireuen) level.
Exit
Strategy
(current
phase
III)
Basic DB and GIS
modules/applications
prepared
Testing modules/applications
Further development of modules and
applications
Comprehensive staff training
Additional data collection and data
updating
Implementation support
Link to SIMBADA
Documentation of results
2.3 Prepare 5-year district road master plans for Pidie and
Bireuen
Exit
Strategy
(current
Phase
III)
Basic framework for road
master plan developed
Completion of road master plan
Technical support in implementation
of road master plan
2.4 Develop and demonstrate a model and procedures for
community-based routine maintenance of
district/village roads – on the back of government
investments
Exit
Strategy
(current
Phase
III)
Basic model for
community-based
maintenance developed
Finalization of model
Development of required legislations
and guidelines and manuals
Testing, implementation of model
Documentation of findings and
lessons learned
2.5 Prepare strategy papers and technical guidelines for
expanding the successfully demonstrated LRB
approaches and technologies in other sectors4 that can
also be used for MOMT’s employment-intensive
infrastructure programme
Exit
Strategy
(current
Phase
III)
Preparation of strategy papers and
draft guidelines
Review of guidelines with
stakeholders
Finalization of guidelines
Advocacy regarding application of
guidelines
Institutionalization of guidelines
2.6 Documentation, wide-scale dissemination and
advocacy of achievements, best practices and lessons
learned – including strategy papers.
Exit
Strategy
(current
Workshops at district and
provincial level
District-level hearings
Development of strategy papers
Workshops at district, provincial and
national level
4 Including a post-crisis recovery programming module based on LRB-RR experiences, and incorporation of it into the National
Rehabilitation and Reconstruction Guidelines (RRG)
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Phase
III)
with parliament
Distribution of technical
guidelines
Documentation of lessons learned
and best practices and dissemination
of findings
Hearings and advocacy activities at
district, provincial and national level
Technical advisory services regarding the selection of delivery methods for rural infrastructure
investments for road maintenance, vis-à-vis the Government’s development objectives5, will also be
provided. In the delivery of investments in infrastructure, various delivery methods can be considered,
including implementation modalities using force account, private contracting or community-based
contracting. Activities that aim at mainstreaming the community-based routine maintenance approach for
district roads will be included. This model can also be tested at provincial and village roads. The technical
assistance will be delivered on the back of government investments.
Technical assistance and coaching support will be provided in the implementation of training activities on
the application of LRB approaches and work methods in selected sectors. Target groups will be Public
works engineers, supervisors from the district level, and PNPM facilitators. MOMT staff involved in the
implementation of MOMT’s employment-intensive infrastructure programme will also be targeted for
this training. The technical assistance will build on the already completed capacity building activities.
Various advocacy and knowledge management activities will be implemented at different levels. Close
horizontal and vertical coordination will be maintained with the key stakeholders. These include Public
Works, the Ministry of Manpower and Transmigration, Bappenas and Bappeda, PNPM and community-
level stakeholders. Where appropriate, activities will also be closely coordinated with other relevant
projects and initiatives.
The expected key results under output 2 are:
1. A tested and operationalized system – including operational tools – for the planning, budgeting and
programming of road investments for Pidie and Bireuen district;
2. Five-year road management master plan for Pidie and Bireuen district;
3. A tested model for community-based routine maintenance for district roads;
4. Investment strategies and operational and technical guidelines for the delivery of rural infrastructure
investments in various sectors using LRB approaches;
5. Documented and disseminated information about lessons learned and best practices related to the
application of LRB approaches in the planning and delivery of rural infrastructure/road investments;
3.1. Output 3 – Community participation in rural road development, rehabilitation and maintenance strengthened
Table 3 presents an overview of the activities related to Output 3. The main emphasis of the activities for
output 3 is on the development of a strategy for resource mobilization and the planning and budgeting of
investments for rural village and access roads.
A key constraint relates to low priority given to the maintenance of rural village and access roads despite
their economic importance in the district road access network for the local population. A lack of
awareness and insufficient realization of the detrimental effects of a lack of maintenance of these roads
among key policy and decision makers is a main constraint which results in the inadequate allocation of
funds for the maintenance of these roads.
5 Targeted employment generation, local economic development and poverty alleviation
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Other issues in this respect relate to the apparent confusion regarding the responsibility for the
maintenance of these roads which constitute approximately 40-45% of the road network of a district.
The Project will address the above mentioned issues and constraints by undertaking advocacy and
awareness raising activities with concerned legislative and executive bodies and – based on consultations
with these stakeholders – develop an investment strategy and investment plan for the management of the
village and access roads in the districts’ road network
Table 3: Main Activities to Achieve Output 3
Output 3: Community participation in rural road development, rehabilitation and maintenance strengthened
Act Description Phase
Progress UNDP/ILO
Project as of June 2011
Activities from July 2011 to
August 2012 3.1 Engage the local communities in planning and
implementation of investments in village-level
infrastructure
I Continue Continue
Develop and test formats and routines for
maintenance reporting
I Completed -
Test maintenance reporting I Completed -
Deliver construction skills training program for
women and men in selected districts (50% women)
II Completed -
With PNPM, train PNPM infrastructure personnel on
supervision and train community supervisor in
construction supervision
II Completed -
3.2 Develop a strategy and investment plan for the
planning and budgeting of investments for the
maintenance of village and access roads at district
level
Exit
Strategy
(current
Phase III)
Assessment of current
constraints completed
Develop a strategy and
investment plan for planning
and budgeting investments in
rural village and access roads
Advocate the application of the
strategy and the investment
plan
The expected key results under output 3 are:
1. Approximately 35,000 work-days of short-term employment generated, of which 30% will be for
women.
2. Strategy and investment plan for the maintenance of village roads prepared and endorsed by Bappeda
and Public Works at district level
4. Work Plan
Annex 1 presents the work plan of the project. The annex also shows the allocation of budgetary
resources for the different outputs.
The staffing plan is presented in Annex 2. Apart from the investments in physical works, the provision of
technical assistance for capacity building on planning, budgeting and programming of road maintenance
and management investments (including for developing database and GIS systems, and up-scaling and
mainstreaming the application of LRB approaches), is a key component of the project. This is reflected in
the composition of the staff inputs.
5. Assumptions and Risks
The same assumptions for phase II of the UNDP/ILO Project, and which were contained in the Project
Appraisal Document (PAD) remain valid for this phase. Extensive consultations will be held with the
stakeholders during the development of prioritization and planning models for the allocation of resources
for road maintenance and it is therefore not expected that major conflicting interests will affect the
application of recommended strategies, approaches or plans.
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Table 4 provides a comparison of the risk assessment between the previous phase (Phase II) and current
phase (Phase III) of the project, as well the mitigation measures.
Table 4: Risks, Risk Assessment and Mitigation Measures
Identified Risks Phase I and II Assessment of the
Risk
Mitigation Actions for Current
Phase
Previous
Phases
Current
Phase
1 Possible lack of interest in getting training. Medium Low Experiences during the
implementation of training activities
demonstrated the interest in the
training activities. It will be ensured
that training is needs-based.
2 Potential for non-adherence to procedures
– in particular for contracting works to
small contractors
Not
assessed
Low The implementation of field schemes,
including contracting, will be closely
supervised and will follow procedures
that have already been well
established during phases I and II and
that have proven to be effective and
transparent
3 Conflicting interests between stakeholders
at local level regarding the transparent
selection of road works and contractors
Not
assessed
Low The selection of schemes will be done
in close consultation with
stakeholders, following agreed
selection procedures, and will be
based on consensus
4 Lack of maintenance - a high risk that not
all roads rehabilitated will be duly
maintained due to funding and capacity
constraints.
High Medium Planning models will improve
allocation of resources to cover
maintenance needs but this process is
a gradual one. Advocacy activities are
already showing increased realization
of the need for maintaining road
assets and these activities will be
continued
5 No or little interest from small contractors
to undertake road works under the project
Low No risk Experiences during phases I and II
indicate that this is not a risk
6 Security and conflict in Aceh –this is an
external risk. The risk is rated low as the
peace agreement is being implemented
without any upheavals.
Low Low Continuation of the implementation of
the peace agreement by the
Government
7 Gender equality – there is a risk that
women will not be employed and engaged
to the extent possible, due to the traditional
setting.
Medium Low The approach of the Project to
promote the employment and
engagement of women has been fairly
successful.
8 Potential for corruption during
implementation - demands for informal fee
payments by government and contract staff
and community leaders are possible
High Low to
medium
Use of transparent and agreed models
for planning, budgeting and
programming maintenance works to
reduce the chances of ‘corruption’ in
selection
9 Lack of political willingness to undertake
transparent selection of road works and
contractors
Medium Low Planning models will be developed in
close consultation with political
decision makers to reduce this risk
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6. Institutional Framework and Management Arrangements
Figure 1 presents a schematic overview of the institutional framework and organization chart of the
current Phase III project. In essence the institutional framework for the current Phase III project is the
same as that of the previous phase. The framework is maintained because it has proved to be very
effective in the provision of both the strategic direction and managerial oversight required by the project
team in the implementation of the project. The organizational chart below reflects the exclusion of the
districts in Nias given that the Phase III project focuses only two districts in Aceh, i.e. Pidie and Bireuen.
Figure 1: Institutional Set-Up
7. Monitoring, Evaluation and Audit
The current Project will apply the same monitoring, reporting, evaluation and audit arrangements that
have been in place for the previous phases. UNDP, utilizing its expertise in planning and governance, will
assume a strong role in involving government offices in project monitoring and facilitating the work of
the Steering Committee. UNDP will also ensure an independent final evaluation of the Project.
Horizontal and vertical coordination of activities with line ministries, Bappenas/Bappeda, MoMT and
PNPM at the national, provincial and district level will be strengthened and much emphasis will also be
given to the role of the Project Steering Committee/Project Board in providing policy advisory support to
the Project to ensure alignment of interventions with Government’s priorities and plans.
Project Management Unit
ILO Banda Aceh
National Project Board
Senior Beneficiaries BAPPENAS (Vice Chair)
Aceh Provincial Government (BAPPEDA & Public Works), Pidie
and Bireuen District Governments (Public Works & BAPPEDA)
Executive Ministry of Manpower and Transmigration (Chair-NPD)
Senior Supplier UNDP, ILO
Project Assurance UNDP Jakarta Office
UNDP
ILO TEAM Pidie
ILO TEAM Bireuen
District Advisory Committee Pidie and Bireuen
Local Government,
BAPPEDA, Public Works, DISNAKER, PNPM
Project Support ILO Jakarta Office
Monitoring and Evaluation UNDP
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While ILO will continue to implement the Project, a particular set of activities for monitoring and
evaluation will be under the direct responsibility of UNDP. This arrangement will enable UNDP to ensure
its provision of project assurance to and oversight of the overall project implementation. UNDP will
concentrate activities largely on monitoring and evaluation of the project outputs/outcome by its Jakarta
Office, and generate a final independent evaluation conducted by an independent consultant.
The logical framework for the Phase III Project is presented in Annex 3. The current logical framework
appears as a modified version of the Phase II project while incorporating specific changes.
Project quality assurance will be performed by the Crisis Prevention and Recovery Unit (CPRU) of the
UNDP Country Office in Jakarta. The Unit will ensure, through the use of UNDP’s regular monitoring
and evaluation tools, that the project is being monitored and evaluated in accordance with the MDFANS
Operations Manual.
Monitoring and evaluation documentation will be used as a basis for the submission of periodic reports to
the MDFANS.
UNDP “supervision” missions will be conducted every four months and will involve the Project Board.
UNDP Jakarta, acting in its capacity as the Partner Agency, will organize and participate in the
supervision and monitoring missions with staff from the Crisis Prevention and Recovery Unit
participating and ensuring that the missions fulfill the Partner Agency role.
In compliance with requirements of the MDFANS Operation Manual, the Partner Agency will submit
Semi Annual and Annual Reports to the MDFANS Secretariat to be forwarded to the MDFANS donors.
UNDP will also share quarterly reports of the Project with the MDFANS Secretariat. All data relevant to
the MDFANS Logical Framework as detailed in the Monitoring Arrangements column of the Framework
are stated in each Quarterly Report submitted by the Partner Agency to the Secretariat.
Project implementation is the responsibility of ILO; it is the Implementing Agency for the Project.
Utilizing the outreach facilities of the UNDP Field Programme Office in Banda Aceh, UNDP also
provides decentralized coordination, and liaison support. It should be noted however, that as Partner
Agency, UNDP’s main responsibility is that of monitoring and evaluation of the Project outputs/outcome.
The current project will observe Government Regulation 10 of 2011 (PP 10/2011) on the administration
and reporting of projects/programs funded by foreign direct grants. In light of the PP 10, the ministry
acting as the national partner of the project is required to produce regular progress reports to the
Government’s leading ministry in grants monitoring, i.e. Bappenas. This regular progress report will be
prepared by UNDP/ILO and consulted with the Ministry of Manpower and Transmigration before the
ministry submits the report to Bappenas. The progress report will include both substantive and financial
information. Based on the information from the progress report, the Ministry will include in its LKPP
(Laporan Keuangan Pemerintah Pusat – Central Government Financial Report) a reference on the
contribution received from the UNDP/ILO project, although the project is directly implemented by
UNDP and ILO with a direct oversight from the ministry.
16
8. Budget
Annex 4 presents the detail budget of the project. Table 5 presents a summary of the budget and the
respective allocations.
Table 5: Total Budget Allocation (in US$)
Description
Allocated Budget for
period 1 July 2011 to
31 August 2012
(US$)
(5)
Physical works 800,000
Staff and consultants 628,183
Travel, M&E and backstopping 246,675
Training, advocacy, knowledge management 175,000
Equipment 73,000
Operations and Sundries 54,609
Contingencies and Support Costs 122,533
Total 2,100,000
Within the budget line Travel, M&E and backstopping - US$ 37,500 has been allocated for the final
evaluation and US$ 47,500 for PSC monitoring visits and meetings. The budget line ‘Training, advocacy
and knowledge management’ includes US$ 100,000 for national level advocacy and knowledge
management activities, which will be executed by UNDP. For UNDP support staff and travel US$ 42,000
has been allocated under the budget line Staff and Consultants. The remaining budget will be executed
directly by ILO.
Table 6 presents the current project budget allocation per output. As outputs 1 and 2 aim at enhancing
road management capacities and mainstreaming demonstrated LRB approaches and technologies
(including investments in physical works), these outputs will absorb a larger share of the budget.
Table 6: Budget Detail by Output
Description
Budget for Period 1
July 2011 to 31
August 2012
Staff costs and operations 435,904
Output 1 1,058,735
Output 2 446,376
Output 3 36,452
Project Sup. Cost & Cont. 122,533
Total 2,100,000
17
Annex 1: Work Plan Techniques, standard, systems and strategies for road maintenance and for the application of local resources based method in rural roads sector are in place in project operational areas
No. Key Outputs/Activities
Resp.
Party
Budget
allocation
2011 2012
S O N D J F M A M J J A
Office operations, travel, backstopping, M&E and Board meetings
Staff operations, coordination and office management ILO
Staff and travel UNDP
Technical backstopping ILO On a regular basis
Project monitoring, mid-term (MT) and final (F) evaluation UNDP MT F
Project steering committee, monitoring missions UNDP
Completion of Project equipment transfer ILO
Sub-total ILO 308,905
Sub-total UNDP 127,000
Sub-total office ops, travel, backstopping, M&E, Board meetings 435,905
Output 1: Technical and managerial capacity of district government in undertaking road works is satisfactory
TA and training to Bappeda and PW in preparing road maintenance plans & budgets ILO
Implement comprehensive staff development plan ILO
Develop and test capacity development plan for planning maintenance at village level ILO
Demonstrate feasibility of expanding LRB approach other sectors ILO
Sub-total Output 1 1,058,735
Output 2: Techniques, standard, systems and strategies for road maintenance and LRB methods developed and operationalized.
Develop and apply tools, systems and capacities for planning & budgeting for district
road management ILO
Prepare model 5-year detailed district road maintenance plan ILO
Mainstream LRB model and expand to other sectors, including local level advocacy and knowledge management activities6 ILO
National level advocacy and knowledge management activities to mainstream the LRB
approaches, models and technologies UNDP
Sub-total Output 2 ILO 346,376
Sub-total Output 2 UNDP 100,000
Sub-total Output 2 446,376
Output 3: Community participation in rural road development, rehabilitation and maintenance strengthened
Develop strategy and investment model for management of village road infrastructure ILO
Sub-total Output 3 36,451
Total 1,975,833
Programme support costs and contingencies 122,533
Grand total 2,100,000
6 Including the Labour-Intensive Infrastructure Programme of the Ministry of Manpower and Transmigration
18
Annex 2: Staffing Plan from September 2011 to August 2012
Staff Category
Work
Months
2011 2012 Sep Oct Nov Dec Jan Feb Mar Apr May Jun Jul Aug
International ILO 16.6
Staff and Consultants 13
Technical
Backstopping
3.6
National ILO 147
Project Coordinator 12
District Engineer 1 12
District Engineer 2 12
Mobile Construction
Trainer (2)
20
Admin/Finance
Assistant
12
DB Officer 12
GIS Officer 8
Driver (3) 35
Consultants 6
Admin, Finance, Progr
Backstop.
18
National UNDP 12
Support Personnel 12
TOTAL 175.6
19
Annex 3: Logical Framework
Target Group: District government, small-scale local contractors, local communities.
Specific for Phase III: District Government and Government decision makers involved in budgeting and planning investments in rural
roads infrastructure
Project title: Creating Jobs: Capacity Building for Local Resource-based Road Works in Selected Districts in NAD and
Nias – Phase III: Capacity Building and Sustainable Strategy for the Management of Road Assets at District Level in Aceh
Current Project Duration:
July 2011-August 2012
Project Structure
Indicator Means of Verification (MoV) Assumptions
Phase II July 2011-August 2012 Phase II July 2011-
August 2012 Phase II
July 2011-
August 2012
DEVELOPMENT
OBJECTIVE
To restore the rural
livelihoods and
communities of disaster
affected populations in
NAD and Nias
Number of communities with access to maintained
roads as a result of the project’s road rehabilitation and
maintenance
Government statistics
Project records
Political stability
remains – likely
IMMEDIATE
OBJECTIVE
District governments and
small scale contractors in
project areas adopt and
undertake local resource-
based road works thereby
providing access to socio-
economic centers and
creating job opportunities
for rural people
90% of project roads (169 kms) constructed to
specified quality and standard.
75% of contracts completed within time and budget.
District governments in project areas have modalities
in place for continuing issuing local resource-based
road contracts.
Contractors use local resource-based approach in their
road works.
Annual budgets for 2009 in all target districts show
that 70% of investments have been covered with
adequate maintenance budget.
Annual budgets for 2012 show that 80% of
investments have been covered with adequate
maintenance budget.
Additional 10-20 kms
of roads and selected
non-road schemes are
constructed to specified
quality/standards and in
time, using LRB
approaches and
technologies
Adequate maintenance
budget allocated in
investment plan for
2013 for maintenance
of core district roads
Monthly Progress reports
Project completion report
Contract completion
documents
District governments’ annual
budgets
Final evaluation Security and peace
in NAD – likely
Provincial and
district governments
designate staffs to
work closely with
the project - likely
Government
programme and
budget data is
accessible - likely
OUTPUT 1
Technical and managerial
capacity of district
At least 25 kms of road rehabilitation, financed by
local government budget and other organizations,
adopts the project’s work approach in bidding process,
planning, and quantity assessment methods.
Adequate road
maintenance investment
plans prepared
Report on training undertaken
and issue of certificates
Monthly Progress reports
Project completion report
Annual budget of
PW
Final evaluation
Provincial and
district governments
designate staffs to
work closely with
20
Project Structure
Indicator Means of Verification (MoV) Assumptions
Phase II July 2011-August 2012 Phase II July 2011-
August 2012 Phase II
July 2011-
August 2012
governments in
undertaking road works is
satisfactory.
Number of contractors receiving more than one
contract award.
Decrease in the percentage of non-responsive bid
prepared by contractors.
At least 10 PW and BAPPEDA officials at the
provincial and district levels in Pidie and Bireuen
actively engaged in development of procedures in
preparing road maintenance plans
Contract completion
documents
Tender evaluation reports
Project records and Quarterly
reports.
District government annual
budget for 2009 and 2010.
the project - likely
OUTPUT 2
Techniques, standard,
systems and strategies for
road maintenance and
LRB methods developed
and operationalized.
District PW in Aceh allocate budget for staff training
in 2009 and 2010. And district PW or infrastructure
programmes by non-government entities allocate adopt
project’s training approach for further training of
district PW and small scale contractors.
Provincial and district PW in Aceh adopt project’s
training materials and implements a training
programme on LRB to district PW.
Number of district/ provincial PW officials that are
able to serve as trainers.
District PW uses the revised specifications and
standards in at least 10% and 20% of its rehabilitation
budget in 2009 and 2010.
At least 70% of contractors’ road supervisors and
district PW officials participating in the project
training received certificates of competencies from the
project.
Number of contractors/ Ministry of PW officials
trained.
An operational framework at provincial level and for
Pidie and Bireuen district for road maintenance
planning and budgeting adopted by district public
works.
A strategy for mainstreaming LRB investment
approaches for infrastructure development in Aceh
province endorsed by the Project Board and tested
Operational capacities
and tools available at
district level for
planning, programming
and budgeting for road
asset management
Manuals
Standard specifications
Project reports
Final evaluation
Inspection of
available systems
and (master-)
plans
Government
programme and
budget data is
accessible - likely
OUTPUT 3
Community participation
Aceh: 260,000 worker days generated, 30% performed
by women.
Nias: 170,000 worker days, 30% by women.
Strategy and investment
plan for the
maintenance of village
Project gender audit report
Project training records
Community’s satisfaction
Inspect
maintenance
plans
Continued
collaboration with
KDP – likely
21
Project Structure
Indicator Means of Verification (MoV) Assumptions
Phase II July 2011-August 2012 Phase II July 2011-
August 2012 Phase II
July 2011-
August 2012
in rural road
development,
rehabilitation and
maintenance strengthened
Women’s road groups are organized in selected
communities where Phase II road rehabilitation takes
place in Bireuen and Pidie.
At least 50 community road supervisors are trained.
Aceh and Nias: At least 70% of communities in the
targeted areas are satisfied with project’s selected and
rehabilitated roads.
Km length of village roads received routine
maintenance during the project period.
roads prepared and
endorsed by Bappeda
and Public Works at
district level
About 35,000 work-
days of short-term
employment generated,
of which 30% for
women
survey done at project
completion date. When it is
not feasible to survey
community satisfaction,
satisfaction assessment will
be carried out with district
Public Works and
BAPPEDA.
Project reports
Final evaluation
Inspect capacity
development
plans
Planned activities
with KDP can be
delivered on
scheduled – likely
22
Annex 4: Budget
Description
Budget
Estimate July
2011 to Aug
2012
Responsible
Party
(1) Physical Works 800,000 ILO
(2) Staff and Consultants 586,183 ILO
(3) Travel and Backstopping 161,675 ILO
(4) Training 75,000 ILO
(5) Equipment 73,000 ILO
(6) Operations and Sundries 54,609 ILO
(7) Program Support Costs (5% of (1) to (6)) and contingencies 122,533 ILO
(8) Policy Advocacy and Development 50,000 UNDP
(9) Knowledge Sharing 50,000 UNDP
(10) PSC Monitoring Visits & Meetings 47,500 UNDP
(11) Final Independent Evaluation 37,500 UNDP
(12) Support Personnel and Travel 42,000 UNDP
Grand Total ILO + UNDP 2,100,000