Indonesian Road Management Systems

A History of Indonesian Road Management Systems

Commencing from the early 1980s, a
number of management systems have been
developed in Indonesia to assist government in the planning, design and implementation of road improvement and maintenance works.
While many documents have been produced describing the components of different Road Management Systems (RMSs)
until the IRMS project (1997-2001) there
had been no published work that had provided an overview of all the systems, their
components, their areas of application and
inter-action between them.
This paper, originally produced during
the IRMSs and now updated for the PPBP,
attempts to address this deficiency. It is
hoped that it will be of assistance to government officers, funding agencies and
consultants engaged in roadworks planning
and implementation.

Road Management Systems

A management system comprises a series
of processes which assist managers in their
business. In the case of a highway agency
that is the improvement and preservation of
the road infrastructure. Many of these
processes may be manual but increasingly
nowadays they are assisted by the use of
computerised data storage and processing.
A RMS consists of a number of building
blocks, some essential, some optional.
Typically the core processes in a RMS are:
collection of information of data on the
infrastructure and the traffic using it;
storage and primary processing of that
data;
planning and programming of future
roadworks;
design and contract preparation
implementation and progress monitoring

as the Indonesian Integrated Road Management System (IIRMS)

Inter-urban Bridge Management System
(IBMS)
Kabupaten Road Management System
(KRMS)
Urban Road Management System
(URMS)
In terms of the road classification contained in the Road Law, the four most important RMSs relate to road system and
status as shown in the matrix below.
Road

Road System

Status

Primary

National

IIRMS

Provincial

IBMS

Kabupaten

KRMS

Secondary
URMS

Kotamadya

Beginning in 1997 under the IRMSs

project, efforts have been made to provide
more integration between systems in recognition of the need for agencies like Bappenas to allocate funding across the entire
roads sub-sector. This has resulted in the
Strategic Expenditure Planning Module
(SEPM) which uses compatible planning
outputs from individual RMSs
and gives an optimal use of total
budgets for different road types,
works programmes and geographic regions.
The following sections describe the various systems under
the class rather than status of
road; the term kabupaten road
is not synonymous with rural
road as many urban roads have
kabupaten status.

panied by the introduction of data collection procedures for road inventory, visual
condition, roughness and traffic volume.
In 1987/88 the TAPL Network Screening
Module was developed and applied to produce a national prioritised roadworks programme. This module used a more rigorous economic model than RMMS and utilised exogenous analyses made with the
Highway Design and Maintenance Standards Model (HDM-III).
In parallel with the development of planning and programming systems for interurban roads, a Road Design System (RDS)
was introduced. This was a fast-track process that aimed to reduce the long delay
between project identification and implementation. Originally run on a programmable calculator, the RDS was then developed as a Symphony spreadsheet and subsequently an Excel spreadsheet.
In 1991/92 a new Network Screening
Sub-Module was introduced together with a
Programming Module and a version of
RDS that integrated the planning, programming and design processes by using a
common database. At this point the IRMS,
as it had now become known, still lacked
the circularity essential in a management
Data
Collection

IRMS
Database

Network
Analysis
Module

Budget

SEPM
Programming
Module

Inter-urban Roads
The development of RMSs in Indonesia
has been closely related to funding sources,
notably the World Bank. Loans in the past
have been for different types of road urban, inter-urban, rural and RMS development has consequently been targeted at
these road types and separate systems have
grown to suit their characteristics. Thus
four major systems have developed:
Inter-urban Road Management System
(IRMS) This was revamped into a predominately Windows-based system under the IRMSs project and is now known

History
The first system aimed at providing
network-wide
programmes of roadworks was the
Road Maintenance Management
System (RMMS) introduced on
a pilot basis in 1984 and used
nationally in 1987. This comprised a database in xBase format, and an analysis module
written in Fortran. The development of RMMS was accom-1-

Data
Collection

Construction
Monitoring

Ongoing
Projects

Road
Design
System

KPE
Database

Construction
Implementation
Module

Annual
Programmes

Bid
Documents

Indonesian Road Management Systems

system viz the monitoring and reporting of
ongoing works.
The Current IIRMS
A number of incremental improvements
have been made to the IRMS since 1992
though the basic structure of the system
remains unchanged.
The system now
draws on other systems such as the Strategic Expenditure Planning Module (SEPM)
and Kotak Pos Elektronik (KPE) as part of
the inter-related processes of planning,
programming, design and implementation.
Routine Data Collection
Core data required by IIRMS is provided
by a number of surveys, normally performed annually:
Road Network Inventory (RNI)
Road Condition Survey (RCS)
Roughness
Traffic Volume
Although attempts have been made to collect network-wide data on pavement
strength by means of Benkelman beam
surveys, this has been less than reliable.
Falling Weight Deflectometer (FWD)
measurements made for a large part of the
network during 2000/2001 and have filled
this obvious gap in the database. This data
formed part of an automated data collection
contract (ARMS) which also provided better information on road location, geometry,
land-use and a set of video logs.
Other essential data used by IIRMS includes:
unit construction costs
vehicle operating cost indices (VOCs)
vehicle damage factors (VDFs)
traffic growth rates
The unit costs and traffic growth rates are
updated on an ad hoc basis. The updating
however is not normally done at a detailed
level but typically a nominal percentage
increase is applied across the board. The
updating of VOCs has been performed
following international standards, in 1997,
1999 (IRMSs) and again in 2003 (EIRTP
CTC). The VDFs were last updated in 1997
(IRMSs) using the results of the Central
Weighbridge project (CWU 1992).
Central Database
Some of the IRMS data is still stored in
xBase format but the majority of the primary data now resides in an SQL database.
The Sistem Masukan Data (SMD) provides
a user-friendly facility to input data with

checks on validity while primary processing of the data provides data files for use by
other system components.
Planning and Programming
The 1992 NSSM was enhanced (IRMSs)
with the inclusion of a road deterioration
model based on HDM-4 and Indonesian
research. The road user cost model has also
been extensively modified to utilise the
research incorporated into the Indonesian
Highway Capacity Manual (IHCM). This
process is now called the Network Analysis
Module (NAM) and performs two functions; providing input to sectoral strategic
expenditure planning and the annual programming of works for national and provincial roads.
The NAM operates on a series of representative links as well on real sublinks as
previously. At programming stage, the
treatments and priorities that have been
prepared using representative links are
referenced back to the real network and
short sections aggregated to form practical
treatment lengths which are then assigned
to a multi-year programme.
The (still DOS-based) Budgeting Module
draws on IIRMS and other data sources to
produce a number of report formats needed
each year for Satuan-3 and the DIP.
Design
In 1996 the RDS was converted from
Symphony to Excel with some enhancements to the design models. In 2000 further improvements were made to its functionality but the process remains as a
spreadsheet application and has no direct
access to the IIRMS database.
Following pre-bid design, an update of
the projects viability is required and this is
provided by the (still DOS-based) Economic Review Module (ERM) which was
originally developed in 1992 and was updated with the same road deterioration and
road user costs models as the NAM.
Implementation
When a contract is awarded, key data
was entered into the Kotak Post Elektronik
(KPE) and monthly reports on physical and
financial progress are supplied by project
managers. The Construction Implementation Module developed under the IRMSs
was designed to use the data collected by
the KPE to report on a link or section basis
and also provide data on ongoing projects
for use in the planning and programming
processes. During the latter stages of the
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IRMSs project the KPE was abandoned by

the government and development of a new
system, SIPP, was commenced. At this
time there is no link between then SIPP and
the CIM. However basic implementation
data can be entered directly into the IIRMS
and utilised for the planning and programming exercises.

Inter-urban Bridges
History
The Bridge Management System (BMS)
was developed between 1987 and 1993 and
targeted at bridges on national and provincial roads. During this period the database
was populated with most (longer than 6 m)
bridges and crossings for interurban roads.
In 1999 it was enhanced to output treatment
strategies for input to SEPM.
The Current IBMS
Although the BMS could be applied to
rural or urban roads this has not been done
and it is now known as the Inter-urban
Bridge Management system and is a sister
to IIRMS, the two systems sharing data on
network definition and traffic.
As with the IIRMS, the IBMS has processes for data collection and storage, planning, programming, design and monitoring.
Inspections
The heart of the IBMS is the system of
bridge inspections of which there are four
types:
Inventory Inspections, which register the
bridge in the database and define administrative, geometric, material and general
condition data;
Detailed Inspections, carried out at a
maximum of 5 year intervals, which rate
the condition of all bridge elements;
Routine Inspections, performed annually
to check on routine maintenance needs;
Special Inspections, which result from
detailed inspections which have identified needs for major works.
Planning and Programming
The Planning and Programming Modules
of IBMS use deterioration models for different bridge elements (abutments, piers,
deck etc.) and, where appropriate, road user
costs to determine the most economic programme of bridgeworks. The condition of
a bridge and individual elements are characterised by the Condition Mark (CM) with
a scale of 0 to 5. Works are categorised as:

Indonesian Road Management Systems

Policy
Framework

Inspections

Emergency
Actions

IBMS
Database

IRMS
Database

Planning
and
Programming

Investigation
and
Design

Materials

Replacement

Rehabilitation

Maintenance

Monitoring

routine maintenance (CM < 2)

rehabilitation of an element (CM 2 4)
replacement of an element (CM > 4)
replacement of a bridge (CM > 4)
bridge widening
construction of a new bridge (replacing
wet crossing or ferry)
Investigation and Design
IBMS is not a structural design tool and
design of major bridgeworks is carried out
using traditional methods. IBMS provides
standardised procedures for design and
specifications.
Monitoring
Ongoing bridgeworks are monitored and
this data entered into the IBMS database.
The system also includes procedures for the
management of bridge materials storage
yards and the allocation of steel trusses and
other items supplied by the client under
construction contracts.

Rural Roads
History
Management systems for rural roads
started to develop in the mid 1980s, mainly
as standardised manual procedures for data
collection, programming and design.
Computerised aids were introduced gradually using spreadsheets to facilitate the
production of look-up tables and a central
database for road inventory, condition and
implementation monitoring. At local level,
planning procedures for rural roadworks are

still largely a manual process defined in the SK77 document. The

use of computer systems is mainly
limited to:
annual production of cost and
benefit look-up tables
strategic expenditure planning
implementation monitoring

database is considered to have sufficient

reliability.
Design
Design of rural roads is not computeraided but a standard set of procedures is
applied for geometric and pavement design.

Implementation
Data Collection and Storage
Monitoring of improvement and mainteSurveys for rural roads are
nance works is assisted by the Kabupaten
somewhat simpler than for interRoad Monitoring System (KRMS).
urban roads and are an entirely
manual process. Inventory data
includes length, width
and surface type while
condition rating is on a
KRMS
scale from good to very
Database
bad. Full surveys are
carried out on a fiveyear cycle with driveover annual surveys for
Updated
RBMX
KREEM
Costs
maintenance planning
purposes.

Cost
Planning and Programming
Look-up
Tables
The core of the planning process is the Kabupaten Roads Economic
Evaluation
Model
(KREEM) which produces data
for investment planning at central level and benefit look-up
tables for use at local level.
KREEM is supported by the
KRMS database and the RBMX model
which estimates unit construction and
maintenance costs from inputs of manpower, equipment and materials.
The prediction models in KREEM have
been tailored to the characteristics of rural
roads in Indonesia. This includes the widespread use of penetration macadam surfac-

Benefit
Look-up
Tables

SK77
Procedures

Access Constraint
Many rural roads are little more than tracks or footpaths, passable only to nonmotorised traffic. In such cases, KREEM estimates the potential traffic based on the
population in the catchment area, the length of the link and distance to the nearest market. In the without project case, non-motorised traffic is defined in terms of pedestrians, bicycles and animal drawn vehicles. If the road is improved to motorised standard
KREEM estimates the reduction in transport cost when traffic diverts from nonmotorised to motorised modes.
ings, a great variety of non-motorised traffic and access constraints (see box).
Although KREEM has the ability to perform direct analysis of real rather than representative road links and this facility may
be implemented at regional level when the
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Indonesian Road Management Systems

Urban Roads
History
Urban roads were the most recent target
of RMS development in Indonesia. Apart
from attempts to produce maintenance
management systems for Jakarta, urban
roads were largely ignored by central planners until 1995 when the development of
the Urban Road Management System
commenced.
A comprehensive database structure for
URMS has been defined together with a
broad strategy for phased future development of a system that will encompass all
aspects of urban road management including spatial and transport planning. As of
2002 at the completion of the Beta Testing
of URMS project, the only parts of URMS
that have been implemented are processes
related to pavement preservation management. A rollout of the URMS to a number
of cities is presently underway using APBN
funding.
Data Collection and Storage
A great many urban roads are already
included in the IIRMS and KRMS databases. With the gradual extension of
URMS and its associated data collection
and storage, care is needed to avoid overlaps when carrying out sectoral expenditure
planning.
URMS data surveys include network

URMS Database
IRMS
Database

Primary
Roads

Secondary
Roads

Identified

Kotamadya

Kotamadya

Not
Identified

Kabupaten

Kabupaten

definition, inventory, visual condition,

roughness and pavement strength for all
roads. Traffic surveys are made at selected
locations and traffic volumes assigned to
other links based on road function and land
use patterns.
Planning and Programming
The URMS Planning Module uses
adapted HDM-III models for pavement
deterioration and road user effects to predict time streams of costs and benefits for
routine, periodic and betterment works, the
latter precluding widening. A prioritisation
procedure is then applied to produce a five
year roadworks plan.

This process is refined in the Programming Module whose main aim is to produce an annual programme for the following year.

HDM-4 will replace the economic analysis

modules currently used for planning and
programming of preservation works; its
role in the foreseeable future will be for
evaluation of road development works.

Future Developments
The planned future phases in the development of URMS are:
applications designed to manage the
planning, programming and budgeting of
capacity enhancement schemes and new
urban road development (corridor based
management);
applications designed to manage the full
urban road network taking into account
modal choice and urban transport plans
(full urban area based management);
interface facilities between URMS and
other computer applications with regard
to the management of use of the urban
road network such as traffic control systems.

Feasibility Studies
History
The management systems described
above have a limited amount of data available to them and are primarily intended to
plan, programme, design and implement
network preservation works.
Network
expansion (new roads) and major capacity
improvements
(dualling)
are beyond the scope of
these systems and for a
major project a feasibility
study and preliminary engineering are needed.
Feasibility studies are,
perhaps,
the oldest form of
KRMS
Database
roadworks planning practised in Indonesia. The
Genmerri model was extensively used for this purpose through the
1970s and 80s. Several other models have
also been applied to estimate benefits from
major road improvements.
HDM-4
The HDM-III model, or its
guiding principles, have been used
for some years both in RMSs and
in feasibility studies. In early
2000 its successor, HDM-4, was
released and Indonesia is included
in a global programme of training
and dissemination of this new
software. It is not expected that
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RIDPD
The Road Investment and Development
Projects Database (RIDPD) was developed
in the mid 1990s as a repository for key
information from feasibility studies for
major road projects. Previously such data
were contained in printed reports which
were mislaid leading to duplication of effort and inability to consider development
projects alongside preservation works. The
development of the Strategic Expenditure
Planning Model (SEPM) emphasised the
importance of RIDPD and, in a reduced
form, it has been incorporated into SEPM.
It is considered that the RIDPD is no longer
functioning and does not appear to be supported by government.

Indonesian Road Management Systems

SEPM Philosophy
SEPM is not in itself an economic analysis tool. It uses the outputs from other systems, in a standardised format, and then
further manipulates this data (cash flows of
agency and road user costs for different
investment strategies) to find the optimal
split of a total roads budget between road
class, status, region and works programme.

IRMS
IRMS
Database

Planning
Module

IBMS
Database

Planning
Module

IBMS

Strategies
Inter-urban
Roads

KRMS
Database

Planning
Module

URMS
Database

Planning
Module

URMS

Strategy 1

INPV4/IC4

INPV2/IC2

INPV1/IC1

Budgets
Medium Term
Investment
Programmes

Strategies
Rural
Roads

Monitoring
Statistics

Key
Performance
Indicators

Strategies
Urban
Roads

Feasibility
Studies
CAPEX
NETEX

Strategy Files
SEPM imports strategy files produced by
each RMS containing the following information:
30 year stream of agency costs
30 year stream of road user costs
30 year stream of exogenous benefits (if
any)
10 year stream of works programme
codes

INPV3/IC3

Strategy 4

Strategy 2

In addition to direct road

Efficiency Frontier
user benefits, SEPM can
apply factors, derived from
macro level planning, to
IC1
represent indirect benefits
from improved road transport efficiency. Factors for
indirect benefits have been
determined, on a regional
Agency Cost
basis (IRMSs 2000), using
constraints.
an input-output model which estimates the
effect on other sectors of the economy (inSEPM Outputs
dustry, agriculture etc.) of changing road
SEPM produces a large range of graphic
transport costs.
and tabular output showing the results of an
analysis in terms of budget distribution and
Analysis and Optimisation
performance indices for the network which
Parameters that can be varied for a strateinclude:
gic analysis are:

Strategies
Inter-urban
Bridges

While designed for use at central level of

government, SEPM is readily adaptable for
use at regional level and has already been
employed within the IIRMS to optimise
works programmes for national and provincial roads.

Strategy 3

Indirect Benefits

SEPM
KRMS

tion of NPV. This process uses the efficiency frontier approach with an iterative
procedure to allow for multi-year budget

INPV1

History
The development of management systems for inter-urban and rural roads allowed budgets to be allocated within a particular sphere, but the lack of compatibility
between the planning modules did not allow expenditure for the whole roads subsector to be equitably divided. Between
1997 and 2000 the Strategic Expenditure
Planning Module (SEPM) was developed
to meet the needs of central planning in this
regard.

10 year streams of performance indicators

Net Present Value

Strategic Expenditure Planning

the economic discount rate

inflation and financial interest rates
ratio between financial and economic
prices
demand elasticity
for generated and
suppressed traffic
For each strategy,
the Net Present Value
is calculated relative
to a notional do
minimum case. Optimisation is then
performed using an
algorithm with the
objective
function
being the maximisa-5-

pavement condition (roughness)

average vehicle speed
road user cost index
bridge condition mark
It will also calculate economic indicators
(NPV, EIRR) for an entire investment programme.

Indonesian Road Management Systems

Information Systems
General
The systems described above are mainly
concerned with data acquisition, storage
and analysis. Without a method of presenting this data to the people engaged in
highway management the systems are valueless. Two modules have been developed
with the express purpose of data presentation; the first using a spatial format (GIS),
the other more traditional tables and graphs.
While both modules have initially been
created to provide information on interurban roads and bridges they are readily
adaptable to rural and urban roads.
Enhanced Highway Information Module
EHIM is a GIS based reporting system
showing the Indonesian road network. It
integrates maps, links and bridges and connects map objects with live data to allow
display of pertinent database information
for the selected road link or bridge.
It provides standard GIS features such as
zooming, panning, layer and road network
control with the ability to perform thematic
mapping with both pre-defined and user
defined themes.
Query facilities allow a user to define
their own criteria and display matching
objects. The latest version allows display
of video data for the nominated links.

Statistical Analysis Module

It is the practice of most highway agencies to periodically publish statistics about
the road network lengths and type of
roads, condition, traffic etc. This had been
a semi-manual process in Indonesia until
the creation of the SAM. Currently applied
to national and provincial roads, SAM will
produce a range of statistical reports.

SAM can also compare data on a historical basis e.g. the roughness of a road link
given by surveys in different years. Data
can be presented as tables and/or graphs.
The data for the SAM should be updated at
the end of each year prior to the input of
data for from the new round of surveys.

Time Series Analysis

The time series module
allows graphical display of the
different years of data for a
particular data item. The data
is stored at a kmpost level of
detail and the user can select
from a number of different
items:

roughness

surface type

SNC

Carriageway width

AADT

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Indonesian Road Management Systems

Future Developments

Bibliography
After more than 15 years of development, road management
in Indonesia has made significant progress. But this is not a
technology which can stand still and there are many areas in
which the systems can be improved. The most important of
these are:
further integration of systems, especially databases (see box);
adaptation for use at regional levels of government with associated training of regional level staff;
increased networking capabilities, including use of the internet with interchange of information between regional and central levels of government;
upgrading from 16 bit programming languages to avoid obsolescence under the next generation of operating systems.
The operational structure and parameters of the relevant client
organisations needs to continually adapt to fully utilise the
benefits of the systems that have been developed. Creation of
dedicated groups to manage, maintain and operate the systems
and as a support centre for the various user groups within the
organisation should be considered. Outsourcing of much of
the grunt work of data collection, validation and even programme preparation could be considered.

The road management systems described above are documented in a large number of technical reports, working papers
and user guides. A selection of documents relating to current
systems are listed below.

IRMS
(N.D. Lea et al 1997 2001)
IRMS Overview
Network Analysis Module Technical Manual
The IRMS Programming Module
Road Design System Ver. 4 Books 1 - 4
IRMS Economic Review Module Technical Manual
Construction Implementation Module Technical Manual
Construction Implementation Module User Manual

IBMS
(SMEC Kinhill JV 1989 1993)
IBMS Planning and Programming Module
IBMS General Procedures Manual
IBMS Management Information Systems Manual
(N.D. Lea et al 1997 2000)
IBMS Strategy development

Location Referencing
A road is defined using a location referencing system.
Currently all RMSs use a combination of province and link
codes with KRMS and URMS additionally using a kabupaten/city code. Link codes give no indication of the location of a road within a province, kabupaten or city and it is
impossible to identify duplication or roads in different
databases. For example a kabupaten road might be identified as link 11.03.034 in the KRMS database and then
reclassified as a provincial road when it will be identified
as link 01.101 in the IRMS database. If the link is not deleted from the KRMS database there will be a duplication
of the road with maybe consequent over-allocation of funding and distortion of network statistics.
With the availability of the Global Positioning System
and the use of Geographic Information Systems it is relatively easy to give a segment of road a unique spatial identity. The development of a Universal Location Referencing
System (ULRS) based on spatial identification is long
overdue and should be phased in for all road databases.
Existing identities need not be lost they will become data
attributes to the new identities.
The establishment of a ULRS is a pre-requisite for further
integration of road databases with the ultimate aim of a
single database for all roads in Indonesia

KRMS
(Hoff & Overgaard et al 1990 2000)
KREEM User Guide
KREEM Overview and Illustration of Applications
Kabupaten Road User Cost Model
KREEM Pavement Deterioration Models

(N.D. Lea et al 1997 2001)

KREEM Adaptation to Medium Term Expenditure Planning

URMS
(N.D. Leas et al 2000 to 2001)
URMS Final Report

SEPM
(N.D. Lea et al 1997 2000)
The Strategic Expenditure Planning Module Technical Manual
Application of SEPM to Medium Term Expenditure Planning
for the Roads Sector

INFORMATION SYSTEMS
(N.D. Lea et al 1997 2000)
EHIM Technical Manual
EHIM User Manual
Statistical Analysis Module Technical Manual

Indonesian Road Management Systems

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