Final Mid-term Evaluation Report on UNEP/GEF project GF/4010-07-01 (4960) Bus Rapid Transit and Pedestrian Improvements in Jakarta Typical TransJakarta Halte Evaluation Team David Antell, Transport Expert and Lead Consultant Owen Podger, Institutional Expert Evaluation Office August 2010 Page i Acknowledgments The evaluation team conducted many interviews, attended meetings, and met many employees of the busway. The main interviewees are recorded in Annex 8, but the names of many supporting staff and employees are not given. To all those who provided inputs to us in an atmosphere of genuine cooperation, we extend our sincere gratitude. Without them all it would have been impossible to present this report based on rich and detailed information. Page ii Contents Acronyms v 1 Executive Summary 1 1.1 The Project ......................................................................................................................................... 1 1.2 The Mid-term Evaluation .................................................................................................................... 1 1.3 Assessment ......................................................................................................................................... 1 1.4 Recommendations .............................................................................................................................. 2 2 Introduction and Background 6 2.1 Introduction ........................................................................................................................................ 6 2.2 Project Background ............................................................................................................................. 6 2.3 Project Design ..................................................................................................................................... 7 2.4 Project Partners .................................................................................................................................. 7 2.5 Project History .................................................................................................................................... 8 3 Scope, Objective and Methods of this Evaluation 9 3.1 Objective and Scope of the MTE ......................................................................................................... 9 3.2 Methods and Limitations .................................................................................................................... 9 4 Project Performance and Impact 10 4.1 Introduction ...................................................................................................................................... 10 4.2 Attainment of Objectives and Planned Results ................................................................................. 10 4.2.1 Overall ............................................................................................................................................... 10 4.2.2 Effectiveness ..................................................................................................................................... 11 4.2.3 Relevance .......................................................................................................................................... 12 4.2.4 Efficiency ........................................................................................................................................... 12 4.3 Sustainability .................................................................................................................................... 13 4.3.1 Financial Sustainability...................................................................................................................... 13 4.3.2 Socio-political Sustainability ............................................................................................................. 15 4.3.3 Institutional and Governance Sustainability ..................................................................................... 16 4.3.4 Environmental Sustainability ............................................................................................................ 18 4.4 Catalytic Role .................................................................................................................................... 18 4.5 Achievement of Outputs and Activities ............................................................................................. 18 4.5.1 Develop BRT Corridors 4-14 (Component 1) .................................................................................... 19 4.5.2 Optimize Fare System for Corridors 1-14 (Component 2) ................................................................ 20 4.5.3 Improve Intersection Performance for BRT (Component 3) ............................................................. 22 4.5.4 Optimize Busway Operation (Component 4) .................................................................................... 23 4.5.5 Improve Public Information on BRT & Public Transport (Component 5).......................................... 35 4.5.6 Rationalize Non-BRT Bus Routes (Component 6) ............................................................................. 37 4.5.7 Evaluate and Implement Transport Demand Management Measures to Reduce Private Motor Vehicle Use (Component 7) .......................................................................................................... 38 4.5.8 Improve Pedestrian and NMT Facilities in Centre and Along Corridors (Component 8) .................. 39 4.5.9 Dissemination and Outreach to Other Cities (Component 9) ........................................................... 40 4.6 Monitoring and Evaluation ............................................................................................................... 41 4.7 Processes that affected Attainment of Project Results ..................................................................... 43 4.7.1 Preparation and Readiness ............................................................................................................... 43 4.7.2 Country Ownership / Drivenness ...................................................................................................... 43 4.7.3 Stakeholder Participation and Public Awareness ............................................................................. 44 4.7.4 Financial Planning ............................................................................................................................. 44 4.7.5 UNEP Supervision and Backstopping ................................................................................................ 45 4.7.6 Co-financing and Project Outcomes & Sustainability ....................................................................... 45 4.7.7 Delays and Project Outcomes & Sustainability ................................................................................. 46 5 Conclusions 46 5.1 Overall Rating ................................................................................................................................... 46 5.2 General Conclusions ......................................................................................................................... 49 Page iii 6 Lessons to be Learned 52 7 Recommendations 53 7.1 Project Extension .............................................................................................................................. 53 7.2 Key recommendations for the immediate future .............................................................................. 53 7.3 Recommendations on each evaluation parameter ........................................................................... 53 Annexes 59 Annex 1 TERMS OF REFERENCE 60 Annex 2 Original Project Logical Framework 78 Annex 3 Progress Against KPIs from 2009 PIR with Brief Comment on Suitability of Each KPI 82 Annex 4 Co-financing and Leveraged Resources, as Provided by DGEF Fund Management Officer 86 Annex 5 2009 Co-financing Data, as Supplied by ITDP Jakarta 87 Annex 6 Project Expenditure Summary, as Provided by UNEP 88 Annex 7 ITDP Project Milestones with Evaluator’s Comments 90 Annex 8 Interviewees 91 Annex 9 List of Documents Reviewed 93 Annex 10 Expertise of Evaluation Team – Brief CVs 97 Annex 11 Risk Factor Table 99 Annex 12 Best Value Principles and Key Success Factors for Change Management 106 Annex 13 Example of Vehicle Operational Plan of Jakarta BRT 108 Annex 14 Minutes of Steering Committee Meeting held on 24 June 2010 109 Page iv Acronyms BLU Badan Pelayanan Umum, public service entity BRT Bus Rapid Transport BUMD Badan Usaha Milik Dearah, regional government company CEO Chief Executive Officer CNG Compressed Natural Gas CSR Corporate Social Responsibility DGEF Division of GEF Coordination (in UNEP) DisHub Dinas Perhubungan, DKI transportation agency DisPU Dinas Pekerjaan Umum, DKI public works agency DKI Daerah Khusus Ibukota, special capital region, referring either to Jakarta or to its provincial government DPRD Dewan Perwakilan Rakyat Daerah, regional parliament, referring to the DKI parliament FY Financial Year GEF Global Environment Facility GHG Greenhouse Gas(es) GoI Government of Indonesia Halte Bus Stop ITDP Institute for Transportation and Development Policy Kemenhub Kementrian Perhubungan, Ministry of Transportation KPI Key Performance Indicator M&E Monitoring and Evaluation MoF Ministry of Finance MoHA Ministry of Home Affairs MSS Minimum