Due to underinvestment in public health during the Dutch colonial period, military takeover of health infrastructure during the Japanese occupation coupled with general malnutrition, and disruptions by the military actions during the Revolution, the Indonesian public health sector in 1949 had failed to become what had been envisioned by nationalist leaders.
Leimena viewed public health as a necessity in the reconstruction of Indonesia and in socioeconomic development, and during his time as health minister he put significant efforts into preventive healthcare and hygiene in rural Indonesia.
This was directly in contrast to the pre-independence Dutch health policy, which focused on healthcare in urban areas.

In 1950, the municipal government of Bandung initiated a project based on missionary hospital networks, whereas an urban central hospital would be supported by a number of smaller clinics in surrounding villages.
The hospital and the clinics would be run under a singular system, directed by a head physician at the regency (subprovincial) level.
This program, dubbed the "Bandung Plan", received strong support from Leimena, and was strongly inspired by Leimena's experience at the Imanuel Hospital.
Bandung Plan (or its later renaming, "Leimena Plan") was initially slated to be launched across Indonesia in 1954, but encountered administrative bottlenecks and financial constraints.
Another important factor with the implementation was a lack of doctors – the growing requirements dictated by a significant expansion of healthcare services encountered a declining number of doctors due to European doctors leaving Indonesia and many local doctors leaving their practice after their revolutionary careers in military or politics.
Despite the aforementioned issues, the Bandung Plan became the basis of the Puskesmas system established in the late 1960s.

Three laws related to healthcare, presented to the government by Leimena's ministry, were passed in June 1951.
These laws required new doctors and dentists to work for the government for three years before being allowed to open a practice, permitted the government to ban new private practices in certain areas (aimed at urban centers), and authorized the government to requisition private doctor services during times of crisis.
Leimena in 1952 also announced that medical practice was designated specifically for qualified doctors, hence excluding auxiliary medical personnel from opening their own practices.
He also formed the Public Food Board (Lembaga Makanan Rakyat), which advised the general public on nutrition.

Under a fellowship from the World Health Organization, Leimena travelled to Europe in 1953, where he observed the healthcare systems of Norway, the United Kingdom (NHS), and Yugoslavia.
He further went to Egypt, India and Singapore, where he also attended lectures and discussions in addition to observing existing health services.
The Norwegian system, whereas nutrition and working conditions, especially left an impression for Leimena.
Leimena had concerns regarding foreign aid being used to influence Indonesian foreign policy and politics through terms and conditions, and called for unconditional aid for health services from developed countries.
Leimena's first tenure as health minister came to an end on 30 July 1953, though he still served another few months as Health Minister under the Burhanuddin Harahap Cabinet.

During the last months of the Harahap cabinet, Leimena was dispatched to Geneva to negotiate regarding the West Irian issue.
While the delegation managed to secure Dutch recognition of the dissolution of the Netherlands-Indonesian Union, and gained some concessions on bilateral financial and economic agreements, domestic political pressure resulted in most of the delegation being called home.
Leimena, who stayed in Geneva, apparently intended to resign and reportedly said that he felt like "a fisherman who has caught something and is told to throw it back into the water".
After the Harahap Cabinet's collapse, Ali Sastroamidjojo intentionally excluded all ministers
Due to underinvestment in public health during the Dutch colonial period, military takeover of health infrastructure during the Japanese occupation coupled with general malnutrition, and disruptions by the military actions during the Revolution, the Indonesian public health sector in 1949 had failed to become what had been envisioned by nationalist leaders. Leimena viewed public health as a necessity in the reconstruction of Indonesia and in socioeconomic development, and during his time as health minister he put significant efforts into preventive healthcare and hygiene in rural Indonesia. This was directly in contrast to the pre-independence Dutch health policy, which focused on healthcare in urban areas.
In 1950, the municipal government of Bandung initiated a project based on missionary hospital networks, whereas an urban central hospital would be supported by a number of smaller clinics in surrounding villages. The hospital and the clinics would be run under a singular system, directed by a head physician at the regency (subprovincial) level. This program, dubbed the "Bandung Plan", received strong support from Leimena, and was strongly inspired by Leimena's experience at the Imanuel Hospital. Bandung Plan (or its later renaming, "Leimena Plan") was initially slated to be launched across Indonesia in 1954, but encountered administrative bottlenecks and financial constraints. Another important factor with the implementation was a lack of doctors – the growing requirements dictated by a significant expansion of healthcare services encountered a declining number of doctors due to European doctors leaving Indonesia and many local doctors leaving their practice after their revolutionary careers in military or politics. Despite the aforementioned issues, the Bandung Plan became the basis of the Puskesmas system established in the late 1960s.
Three laws related to healthcare, presented to the government by Leimena's ministry, were passed in June 1951. These laws required new doctors and dentists to work for the government for three years before being allowed to open a practice, permitted the government to ban new private practices in certain areas (aimed at urban centers), and authorized the government to requisition private doctor services during times of crisis. Leimena in 1952 also announced that medical practice was designated specifically for qualified doctors, hence excluding auxiliary medical personnel from opening their own practices. He also formed the Public Food Board (Lembaga Makanan Rakyat), which advised the general public on nutrition.
Under a fellowship from the World Health Organization, Leimena travelled to Europe in 1953, where he observed the healthcare systems of Norway, the United Kingdom (NHS), and Yugoslavia. He further went to Egypt, India and Singapore, where he also attended lectures and discussions in addition to observing existing health services. The Norwegian system, whereas nutrition and working conditions, especially left an impression for Leimena. Leimena had concerns regarding foreign aid being used to influence Indonesian foreign policy and politics through terms and conditions, and called for unconditional aid for health services from developed countries. Leimena's first tenure as health minister came to an end on 30 July 1953, though he still served another few months as Health Minister under the Burhanuddin Harahap Cabinet.
During the last months of the Harahap cabinet, Leimena was dispatched to Geneva to negotiate regarding the West Irian issue. While the delegation managed to secure Dutch recognition of the dissolution of the Netherlands-Indonesian Union, and gained some concessions on bilateral financial and economic agreements, domestic political pressure resulted in most of the delegation being called home. Leimena, who stayed in Geneva, apparently intended to resign and reportedly said that he felt like "a fisherman who has caught something and is told to throw it back into the water". After the Harahap Cabinet's collapse, Ali Sastroamidjojo intentionally excluded all ministers 
Johannes Leimena