The Development of a Human Resource Management Information System (HR-MIS) in Nusa Tenggara Timor Province (NTT) - Indonesia

byPardjono Kromoredjo, Joyce Smith and James Darmawan

Background

Prior to the 2001 decentralization, national government personnel records were mainly manual but immaculately maintained. This manual personnel records system covered all the fields required by all sections in the Ministry of Health (MOH) in relation to health personnel, however it was extremely difficult and time consuming to abstract data and answers to queries from the manual system. During the rapid decentralization process, the manual personnel records from the centralized health system were not prop-erly handed over to districts and provinces and the system collapsed. As a result, the central and province levels no longer received complete personnel data updating on a regular basis.

New computerized databases were developed, both by central and local governments that were mainly designed for personnel administration purposes and many irrelevant fields were added at the local levels (SIMKA, ADK, SIM-PEG). However, these did not adequately cover the fields required for qualitative human resources planning, particu-larly in regard to education, training and work history (e.g. details regarding echelon and administrative levels but not on experience or qualifications). Existing databases were MS Excel based and many districts had had limited training in computerization.

The SIMKA (Sistem Informasi Manajemen Kepegawaian = MOH Personnel MIS) was a DOS based system that ran under the dBase III architecture, and was written in Clipper. It seems that this program is a single user applica-tion type. This system was centralistic in nature and was never customized to meet local needs or upgraded. The central SIMKA was initially expected to receive regular data updates from the provinces; however, inadequate funding resulted in a deterioration of the system and loss of cred-ibility of the reports as they were developed using outdated data. The system was also not modified for the decentralized era. Many health officers then resorted to other information collection efforts, and this system seems to have now halted on its own accord.

Since the onset of decentralization, organizational changes in the health sector meant that there were now numer-ous data variable differences that were not accommodated by SIMKA. The NTT Provincial Health Office (PHO) in 2004 commissioned the development of a software to overcome these shortcomings, called ADK (Aplikasi Data Kepegawaian = Application for Personnel Data). This ap-plication was a modification of SIMKA and was used for personnel administration only. ADK is still in use in the NTT PHO as a single user application. ADK has not ful-filled the requirements for HRD Planning as delineated by

Case study HR-MIS

the Minister of Health Decree No. 81/ 2004 on “Guideline Planning for Health Human Resources in Province, Dis-trict/Hospital Levels”.

The central government through the Ministry of Internal Affairs took the initiative to implement a HR System, namely SIMPEG (Sistem Informasi Manajemen Pega-wai Departemen Dalam Negeri = Personnel Information Management Systems). In NTT, SIMPEG is hosted by the Personnel Bureau at the NTT Governor’s Office. The SIM-PEG form for collecting human resource (HR) basic data is not far different from SIMKA. Its description of occupa-tion, education, and training are more generic compared to SIMKA, as SIMPEG is intended for use in more generic settings and SIMKA is health sector specific.

SIMKA and SIMPEG are more or less the same, and could be perceived as a proof of unnecessary duplication. The Ministry of Internal Affairs SIMPEG is more general in na-ture, while Ministry of Health SIMKA specifically answers questions on the distribution of health workers. ADK is more simple and specific for the collection of information of health personnel. SIMKA and SIMPEG could have been merged together or at least there could be code sharing between the two systems. SIMKA and ADK are not able to produce the information necessary for the planning and distribution of health human resources (HHRD) as well as for the Planning of Health Human Resources in Province, District/Hospital Levels (MOH Decree 81/2004).

The lack of an effective and comprehensive HR Information system resulted in inadequate data being available which would contribute to more effective district, provincial and national workforce planning resulting on a reliance to the ratio method as the only available methodology.

Assessing the Situation

In 2006 in cooperation with GTZ, the EPOS implemented Human Resources Development in the Health Sector Project, collaborating with the WHO National HR Officer undertook a survey of the data fields of the different HR databases in relation to the comprehensive HR data fields contained in the former manual personnel records from Central level. The study looked at SIMKA, SIMPEG, LT-2 (SP2TP), ADK and one Professional association. Profes-sional associations also register members (registration is not compulsory although essential to get a license) but the data fields they maintain are not complete. The findings revealed a number of incomplete HR databases that served only the needs of either a particular section of health services or an individual professional association, but did not meet the needs of all. The findings (annex 1) indicate significant gaps in the data fields of all the databases that are required for both posting based on qualifications and experience as well as for education and training planning.

Development of a strategy based on the find-ings of the Situational Analysis.

The lack of an effective HR Information System was impacting negatively on HR Planning at all levels. It was agreed that there was an urgent need for a database that contained ALL the essential HR fields that covers the needs of ALL sections and actors.

The options were:1. Develop a new parallel Database for HR OR2. Add in the missing fields.

The second option was chosen as preference. The addition of the missing fields would empower existing district and provincial HR personnel to meet the HR information needs of all stakeholders and actors without overburdening these personnel. The first option would have created unneces-sary extra work and only increase confusion in an already confused situation.

Case study HR-MIS

It was then agreed that Option 2 would be introduced to 5 District Health Offices (DHO), (Sumba Barat, Sumba Timur, Timor Tengah Selatan (TTS), Kupang district, and Kupang City, Province Health Training Centre (Bapelkes) and the PHO in NTT Province.

Implementing the Strategy

Step 1. Development of a data collection form This form would capture ALL the essential information needed by all the different HR databases systems as well as for HR Development, based on the original fields in the original manual personnel records. This merely entailed including the missing fields to ensure that all the fields required to generate reports for SIMPEG, SIMKA, SP2TP, ADK etc could be generated in addition to generating any reports required for qualitative and quantitative HR plan-ning.

Step 1.2. Reduction of duplicate information from the combined data collection form, reducing the form from approximately 10 pages to 4 pages of the essential data fields needed. This process took approximately 6 months of repeated discussions and reviews.

Step 1.3. Field testing of the data collection forms at the NTT PHO and TTS district to identify where difficulties were encountered in filling the forms.

Step 1.4. Development of a guide for filling the data col-lection forms, which addressed the areas of difficulty or misunderstanding encountered during the field testing of the forms.

Step 1.5. Finalization of the data collection forms The forms were finalized based on the results of the field testing. (Annex 2).

Step 1.6. Orientation of staff in the five DHOs, PHO and Bapelkes to support and supervise the completion of filling the data entry forms by personnel in all health facilities. (This is a very important step to ensure appropriate comple-tion of the data collection forms - if this step is omitted it can result in the collection of incomplete data).Step 1.7. Commencement of collection of HR Data from

Health workers in the designated districts. Five to eight staff were selected and trained in each DHO on the correct way of filling in the personnel record forms completely, then they were sent out to all the health centres and DHO work units to guide the staff in filling in and then collecting the completed forms.

Step 2. Development of the Software.Software development including selection of the software programme. was based on the number of health workers in the province and on capturing the data for civil servants only. This was because there is a very small private sector in NTT Province consisting mostly of civil servants under-taking dual practice. The use of health facility codes was incorporated.

Step 2.1. Appointment of an Independent Consultant to oversee the selection of the IT firm that would develop the software and provide guidance during the database devel-opment phase. This step proved invaluable to provide the necessary expertise to oversee the work of the IT company, thus assisting the project to effectively monitor the progress of the development and implementation of the database

Step 2.2. Tendering out of the development of the HR database. The companies that tendered made presentations to the project staff and the Independent IT consultant. Presentations were assessed utilizing a previously agreed criteria and scoring system.

Step 2.3. Selection of the IT company to develop the data-base. This was based on the the agreed criteria and scoring system.

Step 2.4. Development of Database and choice of software. The database was developed in MS Access which is com-patible with many larger programmes. The Province and districts in NTT did not have any current HR databases other than the existing spreadsheet based systems. Access was considered suitable for the number of health work-ers in the provinces and districts which would be included in the database. Additionally, the three key HR fields that are required in the Health Information System (HMIS) can be easily exported to a computerized HMIS once it is developed. Details of the data fields required were provided

Case study HR-MIS

to the software developers together with the details of the reports to be generated based on the requirements of all the different stakeholders and actors. There was intensive com-munication between the IT independent consultant, the developer and the HRD Project during this step.

Step 2.5. Testing of the Database. Once the software was developed it went through rigorous scrutiny and testing by the Independent IT consultant in consultation with the HRD Project team

Step 3. Training in Implementation of the DatabaseThis step was the most important to ensure that the per-sonnel managing the HR database were COMPETENT in computerization and use of the software. Training was provided, with subsequent follow up in the workplace. A mentoring and follow-up system was provided over a 6 month period, to provide adequate supportive supervision to ensure that the staff trained will be competent and confi-dent in using the HR database effectively.

Step 3.1. Provision of hardware, software and relevant training. New computer hardware was provided for the 5 DHOs, PHO and Bapelkes. Training was provided for key staff that would be responsible for the maintenance of the HR Database. The training included the installation of the software, the use of Access and its applications, trouble-shooting, data entry and generation of reports. This training was conducted by the software developers. Step 3.2. Commencement of the data entry. The trained personnel returned to their respective places of work with their new computers which contained the appropriately installed software and database. They immediately com-menced entering the data from the collected completed personnel data forms.

Step 3.3. Mentoring. The Trainer undertook follow up visits to each site where the database were located to ensure that the trainees were functioning well and to address any problems they encountered. Direct communication was established through both telephone and e-mail between the 5 DHOs which were piloting the database, the HRD Project Long Term Expert and the Trainer regarding their

implementation of the database to address errors, bugs, and to provide trouble shooting support. The software was im-mediately updated to reflect the improvements made, and immediately distributed to the participating work units

Step 3.4. Safeguarding the Database. Ensuring single purpose usage of the computer for the HR-MIS is the most effective method for prevention of virus infections. A system of passwords and designating persons who are permitted to login are instituted to maintain the security of the data.

Step 3.5. Workshop on the evaluation of HRMIS imple-mentation. In the workshop the five pilot DHOs presented their experience in the implementation of HRMIS in front of decision makers and stakeholders from both the Prov-ince and District levels. In general, the five pilot districts obtained necessary reports more quickly and in a much more complete manner from the application than manually. Based on the workshop inputs from the participants, the HRMIS software was updated again.

Step 4. Extending the use of the HR-MIS

The HR-MIS now has been extended to 5 district hospitals. The 5 districts with a functioning HR database will present the HR-MIS to the remaining districts in NTT Province. The districts currently implementing the HR-MIS have the competence to train other districts to use the software and manage the database.

A study tour of staff from PHO and DHOs from NTB Province visited -TTS district to observe the HR-MIS in action. They were so impressed with the database and its use in workforce planning that they requested that it be immediately implemented in all the districts in NTB. The software developer worked with the NTB province and dis-tricts to adapt the software to the NTB situation. A special software is being used to interface with HR-MIS and other databases proliferating in NTB. The HR-MIS manager in TTS District in NTT assisted the software developer to train the districts in NTB to implement the HR-MIS.

Case study HR-MIS

Outcomes

• Clear understanding of databases and their use. The PHO and the five districts have demonstrated a clear understand-ing of the importance of an effective HR database and how, if continually updated, it can assist them in their work, saving time and effort whilst permitting them to work with accurate HR data.

• More effective Workforce Planning. The HR-MIS is an es-sential workforce planning tool which is linked to Provincial and District workforce planning (Dewdney Method) and Workload Indicators of Staffing Need (WISN). The HR-MIS allows the province and districts to generate reports quickly to provide evidence on health worker deployment, distribution and training, thus contributing to more effec-tive workforce planning and management.

• Local capacity to train on use and maintenance of HR-MIS. The staff in the five districts have the capacity to train other staff in other districts and hospitals to implement and manage the HR-MIS using the existing software. This has been demonstrated in their work already to support motiva-tion and training of DHOs in NTB.

Case study HR-MIS