FINAL REPORT

RAPID EVALUATION OF GOVERNMENT OF INDONESIA’S

COMMUNITY-BASED POVERTY PROGRAMS:

WSLIC-2 AND PAMSIMAS

October 2007

LP3ES Lembaga Penelitian, Pendidikan dan Penerangan Ekonomi dan Sosial Institute for Social and Economic Research, Education and Information

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CONTENT

Content ........................................................................................... i

List of Table ...........................................................................................iii

List of Picture ..........................................................................................iv

Annex ........................................................................................... v

Acronym ...........................................................................................vi

A. Data Sheet WSLIC-2 ..........................................................................................vii

B. Data Sheet PAMSIMAS .........................................................................................viii

Executive Summary ...........................................................................................ix

CHAPTER I. Introduction ........................................................................................... 1

CHAPTER II. Methodology of Evaluation Study ............................................................. 2

A. Approach of Evaluation ............................................................................. 2

B. Scope of Evaluation ............................................................................... 3

C. Location of Evaluation ............................................................................... 3

CHAPTER III. Concept of the Program WSLIC-2 and PAMSIMAS .................................. 4

A. Concept of the Program ............................................................................ 4

a. WSLIC-2 ............................................................................... 4

1) Goal of Achievement ........................................................ 4

2) Select the Location /Poverty Targeting .................................... 4

3) Cost Effectiveness, Structure and Cash Flows ....................... 5

4) Community Organization ........................................................ 6

5) Capacity Building of Human Resources ................................. 7

6) Degree of Satisfaction of the Program .................................... 8

7) Program Continuation ........................................................ 8

b. PAMSIMAS ..............................................................................10

1) Goal of Achievement ......................................................10

2) Select the Location/Poverty Targeting ..................................11

3) Cost Effectiveness, Structure, and Cash Flows ...................12

4) Community Organization .....................................................14

5) Capacity Building of Human Resources ...............................14

6) Degree of Satisfaction of the Program..................................15

7) Program Continuation .....................................................15

B. Responses to the Concept of the Program ...........................................16

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Chapter IV. Result and Analysis of Program Evaluation ............................................18

A. WSLIC-2 program ..............................................................................18

1) Achievement of objectives ......................................................18

2) Select the Location/Poverty Targeting............................................21

3) Cost Effectiveness, Structure, and Cash Flows .............................21

4) Community Organization ......................................................23

5) Capacity Building of Human Resources ........................................23

6) Degree of Satisfaction of the Program...........................................24

7) Program Continuation .....................................................25

B. PAMSIMAS .........................................................................................31

CHAPTER V. Summary, Lesson Learned, and Recommendation ............................... 33

A. Summary .............................................................................33

B. Lesson Learned .............................................................................34

C. Recommendation ..............................................................................37

Annex

Reference

3

LIST OF TABLE

No of Table DESCRIPTION Page

2.1 Location of Evaluation

3

3.1 Criteria for Desa Selection 4

3.2 Local Condition of Evaluation before WSLIC-2

5

3.3 Criteria for Project Location of PAMSIMAS Program 11

3.4 Criteria for Desa/Kelurahan as a Targeted of

PAMSIMAS projects

11

3.5 Composition and level of RKM’s cash disbursement 13

4.1 General view of Evaluated Desa 18

4.2 Improvement in Facility for the Water sanitation 20

4.3 Condition of Evaluated Location after WSLIC-2 21

4.4 Efficiency in payment

4

LISTS OF PICTURES

NO OF PICTURES

DESCRIPTION PAGE

2.1 Flow Chart of Evaluation Approach 2

2.2 Focus Group Discussion Activity 2

3.1 Flow Chart of Flow of Fund to the Community

6

3.2 Factors in Continuity of Facility for Water sanitation 10

3.3 Mechanism in Fund Disbursement at Kabupaten Level 13

4.1 Picture of KU facility and Piping System at North Aikmel 27

4.2 Model of Invoice that has been applied in Desa Pangean 29

4.3 Efficiency in Billing 30

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ANNEX

Annex 1. Lists of Informant Annex 2. Lists of Reviewed Document and Reference Annex 3. Guidelines for Interview and Focus Group Discussion Annex 4. Observation Guidelines Annex 5. General View of Selected Location

A. Desa Sidobogem

B. Desa Pangean

C. Desa Aikmal Utara

D. Desa Kembang Kuning

E. Desa Lagan Gadang Mudik

F. Desa Rawang

Annex 6. Checklists of Documents Annex 7. Readiness of PAMSIMAS Program Annex 8. Lists of Field Survey Pictures

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ACRONYM

AB/S Air Bersih / Sanitasi AMPL Air Minum dan Penyehatan Lingkungan BAB Buang Air Besar Bides Bidan Desa BUMD Badan Usaha Milik Desa CBO Community Based Organization CF Community Facilitator CLTS Community Led Total Sanitation CMAC Central Management Advisory Consultant CPMU Central Project Management Unit DPMU District Project Management Unit FGD Focus Group Discussion GIP Galvanized Iron Pipe HIPPAMS Himpuman Penduduk Pemakai Air Minum dan Sanitasi IPA Instalasi Pengolahan Air ISPA Infeksi Saluran Pernafasan Atas JAGA Jamban Keluarga KK Kepala Keluarga KU Kran Umum LSM Lembaga Swadaya Masyarakat MCK Mandi Cuci Kakus MDG Millenium Development Goal MI Madrasah Ibtidaiyah MPA Methodology for Participatory Assessment O&P Operasi dan Pemeliharaan PAB Penyediaan Air Bersih PAMSIMAS Program Penyediaan Air Minum dan Sanitasi BerbasisMasyarakat PHAST Participatory Hygiene And Sanitation Transformation PHBS Perilaku Hidup Bersih dan Sehat PHS Perilaku Hidup Sehat PMAC Provincial Management Advisorrry Consultant PNPM Program Nasional Pemberdayaan Masyarakat Polindes Poliklinik Desa Potdes Potensi Desa PPMU Provincial Project Management Unit Pustu Puskesmas Pembantu PVC Poly Vinyl Chloride RKM Rencana Kerja Masyarakat SAB Sarana Air Bersih SDM Sumber Daya Manusia SGL Sumur Gali SK Surat Keputusan SODIS Solar Distilation SPAL Sistem Pengaliran Air Limbah SR Sambungan Rumah TDS Total Dissolved Solid TFM Tim Fasilitator Masyarakat TKK Tim Kerja Kabupaten

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TKM Tim Kerja Masyarakat TNGR Taman Nasional Gunung Rinjani TNKS Taman Nasional Kerinci Seblat UKS Unit Kesehatan Sekolah UPM Unit Pengaduan Masyarakat UPS Unit Pengelola Sarana WSLIC-2 Second Water and Sanitation for Low Income Communities WSS Water Supply and Sanitation

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A. Data Sheet of WSLIC-2

1.

Name of Program

: Water Sanitation Low Income Community Project (WSLIC-2)

2.

Ministry/Department :

Executing Agency : Ministry of Health – Republic of Indonesia Implementing Agency : Ministry of Health, Department of Domestic Affair, Department of

Public Work, and Ministry of Education 3.

Contact Person

Name : Imam Syahbandi SKM, MKes Position : Head of CPMU Address : Jl Percetakan Negara 29 Jakarta Telephone number : 021-42876816 E-mail : 4.

Period of Program:

Starting date (effective loan) : 16 November 2000 Closing date : 20 Juni 2009 5.

Sectors/Theme : Healthy drinking water and sanitation related to the Improvement in Healthy Lifestyle

6.

Funding:

• Loan from World Bank (IDA Credit)

: USD 77.400.000

• Grant (AusAID) : USD 6.500.000 • Compliment (GOI and Region) : USD 12.200.000 • Contribution from Community : USD 10.600.000 • Total : USD 106.700.000 7.

Location of Project :

Total and Names of Province : 8 province as listed bellows: 1. Sumatera Selatan 3. Nusa Tenggara Barat 5. Jawa Barat 7. Sulawesi Selatan 2. Sumatera Barat 4. Jawa Timur 6. Bangka Belitung 8. Sulawesi Barat Total and Names of Kabupaten : 36 kabupaten as listed bellows: 1. Musi Banyuasin 10. Dompu 19. Blitar 28. Sumenep 2. Muara Enim 11. Sumbawa 20. Malang 29. Bone 3. Lahat 12. Lombok Timur 21. Lumajang 30. Mamuju 4. Banyuasin 13. Lombok Tengah 22. Bojonegoro 31. Ciamis 5. Pasaman 14. Lombok Barat 23. Kediri 32. Cirebon 6. Solok 15. Mojokerto 24. Tuban 33. Bogor 7. Pesisir Selatan 16. Bondowoso 25. Jember 34. Belitung 8. Sawahlunto/Sijunjung 17. Lamongan 26. Pamekasan 35. Polewali/Mandar 9. Bima 18. Ponorogo 27. Sampang 36. Mamasa Total Desa : 2.461 desa

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8.

Objectives of the Program: To improve the health status, productivity, and quality of life of poor community in under-served rural areas by: providing safe, adequate, cost-effective, easily accessible water supply and sanitation services. Improving health, hygiene behaviors, developing sustainability, and effectiveness through community development.

9.

Briefs of WSLIC-2 Program Target of the WSLIC-2 Program is the community that doesn’t have access to the water and sanitation especially for the low income with criteria as listed bellows:

- Desa with high poverty index - High rate in morbidity for water borne diseases - Low in access number to water and sanitation

Other consideration in selecting Desa are: - Availability of water resources - No similar project - Willingness community to contribute

Components in this projects are: - Increase Community and Local Institution Capacity - Increase in Healthy Lifestyle and Community Health Services - Development and Maintenance the Facility for Water and Sanitation - Project Management

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B. Data Sheet of PAMSIMAS 1. Name of

Program : Program Penyediaan Air Minum dan Sanitasi Berbasis Masyarakat

(PAMSIMAS) 2. Ministry/Department : Executing Agency : Department of Public Work Republik Indonesia Implementing Agency : • Component 1a and 1b, Department of Domestic

Affair • Component 2, Ministry of Health • Component 3,4 dan 5, Department of Public Work

3. Contact Person: Name : Ir.Rina Agustin MSc. Position : Head of CPMU Address : Jl Patimura 20 Jakarta Telephone Number : 021 72796588 4. Period of Program : Tahun 2007 – 2012 Starting Date : Sep,2006; Closing Date June, 2013 5. Sectors/Theme : Drinking Water and Sanitation for Improvement in Healthy

Lifestyle 6. Funding: • Loan from World Bank (IDA Credit) : US$ 137,5 juta • Budget of GOI (Government of

Indonesia) :

US$ 52,3 juta

• Budget of Region (Kabupaten/Kota) : US$ 48,9 juta • Contribution from Community : US$ 36,5 juta • Total : US$ 375 juta 7. Location of Projects: 15 provinces as listed bellows: 1. Sumatera Selatan 5. Jawa Barat 9. Sulawesi Tengah 13. Maluku 2. Sumatera Barat 6. Jawa Tengah 10. Sulawesi Selatan 14. Maluku Utara 3. Riau 7. Kalimantan

Selatan 11. Sulawesi Barat 15. Irian Jaya Barat

4. Banten 8. Nusa Tenggara Timur

12. Gorontalo

Total and Names of Kabupaten : 110 Kabupaten (in selection process) Total Desa : 5.000 desa (in selection process) and 1.000 replication

desa 8. Objectives of The Program: Genera

l:

- Increase in access to water and sanitation, healthy lifestyle for poor community in rural and sub urban area by building developing model of facility for drinking water and sanitation that can be adaptable by the community itself

- This program expected to be a model for replication, scaling up, and mainstreaming in other areas in order to achieve the target of Millennium Development Goals.

Specific - Increase the practice of healthy lifestyle in community

- Increase in access of continuous facility for water and sanitation - Increase in local capacity for both local government and community in

order for mainstreaming and scaling up model of PAMSIMAS program

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- Increase effectives and long term sustainability from infrastructure of community based facility for water and sanitation

9. Briefs of PAMSIMAS Program:

Target of PAMSIMAS program are 5000 desa/kelurahan and 1000 replication of

desa/kelurahan for periode of program 5 years from 2007-2011, with criteria selections for desa as listed bellows:

- High poverty index (BPS 2005) - Minimum access to water and basic sanitation - High morbidity for diare and other water borne diseases - No other similar project (water and sanitation) in the last 2 years - Willing to contribute 20% (4% cash and 16% material and human resources)

Basic principles in PAMSIMAS program is community based, partnership, participative, transparency, responsive, quality, sustainability, gender equity, responsibility. In the realization, PAMSIMAS program divide in 5 component, as follows:

1. Component of Community and Organization development 2. Component of Hygiene and Sanitation Practice 3. Component of Public Facility for Water and Sanitation 4. Component of Grant for Desa’s Social and Economic Development 5. Component of Support in Project’s Implementation and Management

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EXECUTIVE SUMMARY

In order to increase the achievements of National Program of Community Empowerment (PNPM), National Development Planning Agency (Bappenas) wants to know about the achievements of some existing community empowerment programs so that experiences and lessons-learned from them can be used for the upcoming PNPM programs. One program that is expected to provide such lessons is the clean water and sanitation program. In this regards, LP3ES was commissioned to evaluate two clean water and sanitation programs, namely: (a) Water Supply and Sanitation for Low Income Communities Project (WSLIC2) implemented by the Ministry of Health, and (b) PAMSIMAS (still in the design phase) to be implemented by the Ministry of Public Works. These programs were selected because they are directly related to community development; their targets reach rural subdistricts and villages; and, in the context of government budget, the programs have large budgets. The evaluation aims to determine the effectiveness of program implementation in achieving their planned objectives; to learn methods to improve the programs; and to find practical lessons to be used for developing other communities and poverty eradication programs. The evaluation used meta-evaluation approach supported with interview with key informants and field visit for rapid appraisal. Focus Group Discussion is conducted as a method of collecting primary data from stakeholders in villages. The discussion focuses on the achievements of the clean water and sanitation programs that cover 1) Result achievement, 2) Selection of target poor areas, 3) Capacity building, 4) Fund Flow and leakages, 5) Program continuity, 6) Community organization, and 7) Satisfaction of the program. The evaluation was done in 6 villages representing different geographical locations in Indonesia (Sumatra, Java, and West Nusa Tenggara) as well as different topographic conditions (coastal, inland, and mountainous areas). PAMSIMAS Program is the continuation of WSLIC-2 Program for clean water and sanitation development for low-income people with little or no access to clean water and sanitation. The difference between the two programs is that WSLIC-2 location is located only in rural areas while PAMSIMAS also covers urban areas. Another difference is that PAMSIMAS has replication areas – locations where the same water and sanitation model has to be replicated using the State Budget/Regional Government Budget funds. PAMSIMAS Program will be implemented in 15 provinces. In effort to strengthen the management body and, accordingly, to guarantee the continuity of existing clean water and sanitation facilities, plans have been made to increase the capacity of Community Working Team (Tim Kerja Masyarakat, TKM) as a Management Body and to ensure that complaint handling mechanism is properly in place. The complaint handling mechanisms hold the principle of secrecy, in stages, participatory transparency, proportional and objective. Based on document review and field visit in 6 locations, the WSLIC-2 program has been able to achieve the planned objectives in providing basic water and sanitation facilities to the village. This outcome was acknowledged by all stakeholders interviewed in this evaluation, starting from beneficiaries, operators, members of District Working Team (Tim Kerja Kabupaten, TKK), NGOs, Community Facilitators (CFs), District Program Management Unit (DPMU) and Province Program Management Unit (PPMU). Although

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WSLIC-2 has encountered several problems during its implementation, efforts have been made to address the problems. WSLIC-2 program achievements were measured with the following parameters: Achievement of results: Document review showed that WSLIC-2 has been able to provide clean water and sanitation facilities at the rural areas. Field visits to 6 areas also confirmed this. Based on interview with stakeholders, FGD with beneficiaries and direct observation, the following achievements have been made by WSLIC-2: (a) Increased water and sanitation facilities at the village; (b) Indication of decline in diseases due to poor water and sanitation/environment facilities, (c) Improvement in people’s behavior of living a clean and healthy life, and (d) Better access to and usage of clean water and sanitation facilities. Before the program, villagers had to get water directly from water sources and had to stand in long queues. Now they only need to turn on the faucets at public water tanks near their houses or even in their houses. Selection of target poor areas: In visited areas, target villages under WSLIC-2 have been correctly selected according to the criteria stated in the program guidelines: majority of their people are poor (low income earners); there were high incidences of water borne diseases; there were clean water potentials that can be easily developed; and there were willingness from the people to take part in all phases of project implementation. In terms of local community participation, people’s participation when converted into money terms for each location seemed to exceed the 16% in-kind participation required by the guidelines. But, unfortunately, no quantitative data is available because data is not well kept from the beginning of project implementation. Also, in most areas, the transfer of facilities to villagers had been conducted some time ago and the management team for clean water and sanitation facilities had changed, resulted in the loss of data. Capacity building: Capacity building was done in the form of trainings. Several months of training was held in each village to increase capacity of human resources. The training covered among others topics such as: 1) Financial management system of clean water and sanitation facilities, 2) Operational and technical trainings for clean water facility maintenance, 3) Techniques of health counseling, 4) Training for “little doctors” (in Rawang Village in Pesisir Selatan District), and 5) Solar distillation (SODIS) training (in East Lombok). The training was acknowledged to have helped improve the quality of human resources in related villages in the form of: improved technical skills in the development of clean water facilities for TKM; improved technical skills for the operation and maintenance of clean water facilities for TKM; improved capacity of managing clean water facilities for TKM; and improved habits of the local people in living a healthy life style. Cost Effectiveness, Funding Structure and Fund Flow: Based on program benefits felt by the local people who received clean water and sanitation services as well as improvement in clean and healthy life habits and the decline in water-borne diseases such as diarrhea, the costs of building clean water and sanitation facilities and related trainings were considered justified. However, the technical audit report of WSLIC-2 (Technical Audit, January 2005) did mention that the village budget allocation was not effective because: (a) The development of clean water facilities using funds in the amount of Rp 200 million per village has not been able to reach 80% of the service target as planned. This applies to all types of system (i.e. non-pipe, gravitation pipeline, and pumping pipeline); and (b) In order to make the facilities cover 80% of the service

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target, it is recommended that the ceiling of funds allocated to each village be raised to Rp 370 million. Even with this ceiling increase, for the pump pipeline system, it can reach only around 70% of the service target. Program sustainability: Field visits in the 6 areas show that: (a) Clean water and sanitation facilities in the six villages are still functional to serve the needs of many users, (b) Clean water and sanitation services have reached more than 80% of the target people WSLIC-2 Program, (c) The visits to the 6 villages found that beneficiaries and the management body of the facilities with their local wisdoms have thought about methods and actions to maintain the continuity of the water and sanitation program. What encouraged the local people to do this is their sense of belonging to WSLIC-2 Program. This is because they felt that they were involved in the planning of the facilities and experienced all phases of the program implementation, from the planning and construction to the operation of the facilities. Their sense of belonging emerged also because they felt that they had invested in the projects in the form of money, labor and materials. Community Organization: In each evaluation location, an O&M organization responsible for the operation of clean water facilities for clean water and sanitation facilities was found. Most people involved in this body were newcomers (not members of the TKM), except those from the technical section. In Lamongan District, people were fully aware of the importance of keeping the management body alive. They do not want it to stop to exist after WSLIC-2 Program ends in 2009. This is evidenced by the formation of HIPPMAS (Association of Drinking Water and Sanitation Users) in each village. Since 2004, the formation of HIPPMAS has been made prerequisite for the third term disbursement of funds. Moreover, at the Lamongan district level, an umbrella organization for all HIPPMAS with a legal status was formed at the district level. This umbrella association coordinates, gives consultations and facilitate exchange of experiences in clean water and sanitation management in rural areas with an aim to increase the performance of the association members. Satisfaction of program: Based on field visits to six villages in three provinces, overall stakeholders at district down to village levels - including village officials and those managing clean water and sanitation facilities – were satisfied with WSLIC-2 Program. This is because the achievements of the program are felt by both village apparatuses and all villagers (poor people, men, and women). WSLIC-2 Program has given so many benefits to villagers: easy access to clean water; villagers become aware of the importance of living a clean and healthy life; time efficiency in getting water - especially for women - so that they also can use more of their time for productive activities like gardening, farming, working in farms; and better access to dump wastes. Villagers feel more satisfied with WSLIC-2 Program than other programs because they directly enjoy facilities developed under WSLIC-2. Also, they were involved in all activities related to the planning and building of the facilities. And now they can easily access clean water and sanitation facilities. Meanwhile, negative impacts of the development of the facilities were not found at the evaluation locations. The local people are satisfied with WSLIC-2 Program because they feel strong sense of belonging towards the activities of developing and maintaining the facilities built under the program. Several recommendations based on the evaluation results are as follows:

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1. Fund allocation for each village should be based on technology and system that will be used for the clean water facilities. Therefore, planning for fund allocation has to be done from district level and should be based on the results of Methodology for Participatory Assesment – Participatory Hygiene and Sanitation Transformation (MPA PHAST). For piping and pumping systems, the allocation should be more than non-piping system to avoid over burdenning community in contributing fund for the facilities.

2. To make it easier for the O&M groups to perform the operational and

maintenance activities of the clean water facilities, clear and simple O&M guidelines need to be made for all types of system (non-piping, gravitational piping, and pumping). These guidelines are very important since not all members of the O&M groups came from TKM who had received technical trainings during the construction of the facilities. Also, simple guideline for in-house installation is needed to enable women to perform minor maintenance. Post-project technical trainings for O&M groups need to be conducted to ensure that O&M personnel are able to maintain the clean water facilities that have been built in their villages.

3. In order to ensure functional O&M groups and sustainability of the water and

sanitation facilities, an O&M groups association with legal status at the district or sub-district level such as in the Lamongan case could be considered. Having legal association will not only ensure the continuity of the O&M groups, but also give stronger status to the groups in collecting fees as well as enable them to obtain credit or to have legal agreement with other parties (such as pump/pipe distributors to ensure warranty or to get best prices for spare-parts).

4. A comprehensive impact evaluation is needed to determine the impact of

WSLIC-2 program towards the change of behavior in health and cleanliness and the improvement of public health, as well as impact on economic development and poverty reduction.

5. One of positive impact of the WSLIC-2 program is that women now have more

spare time since they do not have to go far to fetch water anymore. However, in many villages, this spare time has not yet been used by women for productive activities. It would be very useful if a component of income generating activities is incorporated into the upcoming PAMSIMAS program. Such model has been done in the past by several rural water and sanitation/infrastructure programs such as RWSS (Rural Water Supply and Sanitation) at Central Lombok, MCRMP (development program for fishermen and/or coastal region communities in 15 provinces), and OTA-3/IWACO program in West Java.

CHAPTER I INTRODUCTION

As widely known, the Indonesian government is now implementing its poverty eradication programs under National Program of Community Empowerment (PNMN). In order make the program turn out good results, National Development Planning Agency (Bappenas) wants to know how far existing community empowerment projects are effective. Experiences and the lessons learned from the projects, from planning to the continuity of the projects, can provide input for the implementation of PNPM Program. At least 14 community empowerment projects are carried out by 10 ministries (technical ministries). They include clean water and sanitation programs. There are two categories of clean water and sanitation programs namely a) Water Supply and Sanitation for Low Income Communities Project (WSLIC-2) that is implemented by the Ministry of Health. And b) PAMSIMAS (still in the designing phase) that will be implemented by the Ministry of Public Works. These programs were selected because a) They are directly related to community development, b) The program and their targets reach sub districts and villages, and c) In the context of government budget, the programs require big funding. In this connection, LP3ES was asked by National Development Planning Agency (Bappenas) – with technical support from the World Bank – to make evaluation on the clean water and sanitation projects. The independent evaluation aims to a) appraise the effectiveness of the implementation of the projects in reaching their targets that were stated by their respective programs, and b) Learn methods of improving the programs and practical lessons for other community development and poverty alleviation programs. They are expected to provide useful input and accurate information for the Indonesian government to manage and direct community resources for similar programs in the future.

CHAPTER II METHODOLOGY OF EVALUATION STUDY

A. Evaluation Approach In accordance with the aims of the evaluation, 3 approaches will be adopted namely (1) Document Review and Analysis, (2) Interview with Key Informants; and (3) Field Visits for Rapid Appraisal. Shortly, the approaches to be used described as follows:

Focus Group Discussion is one of the methods used to collect primary data from stakeholders in the villages visited.

Picture 2.2. Focus Group Discussion

PREPARATION

Expert Mobilization

- team Evaluation Conformity the perception Of

-

DOCUMENT REVIEW& DATA ANALYSIS

- Document Review: Project Documents. + + Operational Guidelines . + Progress Report (Program and Financial)

+ Complaint Report + +BPKP Audit Report (if an)

Evaluation Report (current)

- Secondary data Analysis (as mentioned)

Of PAMSIMAS and WSLIC2 program -Define the differences between the objectives

- Identifying Data Location of WSLIC 2 With existing secondary data

P. rogram

- - Formulating criteria for the field s vey

ur

- Reporting the Document Review

I. Depth interview with Informants at:

+ Stakeholder at National Level, Province

kabupaten, kecamatan dan desa/kelurahan. + WSLIC2 Project Consultant + Donor Organization + Local NGO + Local Community

II. Focus Group Discussion with: + Key Stakeholders + Local CommunityIII. Inspection for Infrastructure Implementation

I IV. Rapid Appraisals Aspects of WSLIC2:

+ Operational Technic + Institutionalized + Financing + Support from Local Community/Partnership

FIELD SURVEY REPORTING

- Report of Document Review- Report of Field Survey- Report of Final Evaluation

PRESENT to GOI and WorldBank

PRE-DOCUMENT

SELECT THE LOCATIONFOR

FIELD SURVEY

PREPARING ADM DOCUMENT FOR FIELD SURVEY

Output from this Projects:

Report of Document Review

Report of Final Evaluation

GUIDELINES FOR SURVEY & INT’W

FORMULATING INT’W GUIDELINES 1. Depth Interview Guidelines for Informant

+ Stakeholder Pusat, Propinsi, kabupaten, kecamatan dan desa/kelurahan. + WSLIC2 Project Consultant + Fund Organization

+ Local NGO + Local Communit

DISCUSSION & CONFIRM’NWITH BAPPENAS & WORLD BANK y

2. Interview Guidelines and Discussion:

+ Focus Group Discussion with Local Community + Focus Group Discussion with keystakeholders 3. Inspection Guidelines for Infrastructure implementation 4. Guidelines for Rapid Appraisal Implementation al

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B. Scope of Evaluation Starting from the objectives and scope of existing evaluation materials (research question), this evaluation focuses on program achievements of the clean water and sanitation projects. At least 7 aspects of the projects are analyzed:

1. Achievements 2. Selection of poor areas as project targets 3. Increasing of capacity 4. Fund flow and leakage 5. Program continuity 6. Community organization 7. Satisfaction of the programs

C. Evaluation Location WSLIC2 activities cover 8 provinces, 36 districts and 2461 villages in all parts of Indonesia. They are: 1. South Sumatera 3. West Nusa

Tenggara 5. West Java 7. South Sulawesi

2. West Sumatera 4. Jawa Timur 6. Bangka Belitung 8. West Sulawesi Distric 1. Musi Banyuasin 10. Dompu 19. Blitar 28. Sumenep 2. Muara Enim 11. Sumbawa 20. Malang 29. Bone 3. Lahat 12. East Lombok 21. Lumajang 30. Mamuju 4. Banyuasin 13. Central Lombok 22. Bojonegoro 31. Ciamis 5. Pasaman 14. West Lombok 23. Kediri 32. Cirebon 6. Solok 15. Mojokerto 24. Tuban 33. Bogor 7. Pesisir Selatan 16. Bondowoso 25. Jember 34. Belitung 8. Sawahlunto/Sijunjung 17. Lamongan 26. Pamekasan 35. Polewali/Mandar 9. Bima 18. Ponorogo 27. Sampang 36. Mamasa Jumlah Desa : 2.461 desa PAMSIMAS Program covers 15 provinces, 110 districts and 5,000 villages and 1,000 replication villages. The districts and villages to made PAMSIMAS project locations are being selected. Meanwhile, the provinces selected to be the locations of PAMSIMAS projects are: 1.South Sumatera 5. West Java 9. Central Sulawesi 13. Maluku 2. West Sumatera 6. Central Java 10. South Sulawesi 14. North Maluku 3. Riau 7. South Kalimantan 11. West Sulawesi 15. West Irian Jaya 4. Banten 8. East Nusa Tenggara 12. Gorontalo Field visit is one of the evaluation approaches. Field visit aims to get practical lessons about what have been done by the local people after WSLIC2 projects reached their operational phase. Field visits are made in 6 villages in three provinces. The six villages as field visit locations are:

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Table 2.1 Evaluation Location

No Province District Subdistrict Village

1. East Java Lamongan Madura Pangean Sugio Sidobogem

2. West Nusa Tenggara

East Lombok Sikur Kembang Kuning

Aikmel Aikmel Utara

3. West Sumatra Pesisir Selatan Linggo Sari Baganti, Kanagarian Punggasan

Lagan Gadang Mudik

Sutera,Kanagarian Surantih Rawang

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CHAPTER III CONCEPT OF WSLIC-2 AND PAMSIMAS PROGRAMS

In carrying out this study, the study team conducted a review over some documents related to the two programs evaluated. Documents reviewed in general dealt with general guidelines of the programs, monitoring guidelines, progress report, annual report, technical audit report, and monitoring report. In some locations of WSLIC-2 study, the study team also received and then reviewed financial reports and working plans from the local community. This section of Document Review presents a summary of the contents of the documents reviewed – not ably the part of program concepts and reports on the results of technical audit and monitoring. The complete list of the documents reviewed is shown in Supplement 2. A. PROGRAM CONCEPT a. WSLIC-2 1) Achievements WSLIC-2 programs are carried out in 36 districts in 8 provinces (West Nusa Tenggara, East Java, West Java, South Sumatra, West Sumatra, South Sulawesi and Bangka Belitung). WSLIC-2 was carried out from 2000 to 2009. The background of the implementation of WSLIC-2 programs includes: people’s clean water consumption is low, coverage of basic sanitation is still low, and environment-linked diseases like diarrhea and ISPA in the community is still high. Accordingly, WSLIC-2 aims to improve people’s health, increase productivity and the quality of life of low income earners by changing their habits, provide environment-based health services, provide quality clean water and sanitation that are accessible and sustainable, and ensure the effectiveness of the programs by encouraging people’s participation. The components of clean water facilities under WSLIC-2 programs cover non-pipelining system that comprises the protection of water sources (PMA), dug well (SGL), electric pump at dug well (SG-PL), dug well with manual pump (SPT-DL), well with electric pump (SPL) and rain water container (PAH); and pipelining system (PP) that comprises the pipelining of gravitation water source (MAG), pipelining of pump water source (MAP), pipelining of deep well pumping (SD), and pipelining of surface water produced with simple water processing methods. The types of the components of sanitation facilities in WSLIC-2 programs include Community Sanitation (SANIMAS) that covers household toilet (JaGA) and public toilet; Institutional Sanitation that includes school toilet, village office toilet, neighborhood health center toilet, and toilets for other institutions in the village; and Waste Water Dumping Duct (SPAL). Household toilet is provided for the local people using two methods namely revolving toilet (toilet structure is given to financially capable people who then pay for them in installments while the money paid is used to build new toilets for other families, and so this methods continues until all homes in the village get JaGa), and not-revolving toilet (toilet is built for those who do not have it and cannot afford for it).

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2) Location selection/Targeting WSLIC-2 Program covers activities in the clean water and sanitation field, which is meant for low income earners in rural areas with no/less access to clean water and basic sanitation. However, the selection of villages that receive WSLIC-2 programs is not solely based on their poverty level. Several criteria have to be met, with different evaluations, in the selection of villages to receive WSLIC-2 programs.

Table 3.1 Criteria of Selection of Village

NO. CRITERIA COMPONENT VALUE

1. Poverty index 30

2. Coverage of Clean Water Service 30

3. Coverage of Sanitation Service 10

4. Total Village Population 10

5. Cases of Diarreha Deseases 20 In addition, others matters also need to be considered namely the availability of water source potentials, the absence of similar projects, and the capability of the local community to give contribution. 3) Cost Effectiveness, Cost Structure and Fund Flow Sources at CPMU WSLIC-2 said funding sources of WSLIC-2 are as follows:

• World Bank Loan (IDA Credit : USD 77.400.000 = (72,5%)

• Grant (AID) : USD 6.500.000 = (6,1%) • Accompaniment Fund (APBN and

APBD) : USD 12.200.000 = (11,4%)

• Community Contribution : USD 10.600.000 = (9,9%) • Total : USD 106.700.000 = (100%)

Each village will receive Rp 195 million-280 million, depending on the valuation of Community Working Plan. The amount comes from the community (20%: 4% cash and 16% in kind in the form of local materials and labor), accompaniment fund from the central and regional government (8%) and the remaining 72% comprises interest-free soft loan from the World Bank and grants from the Australian government through AusAID. Grant for the village is channeled directly to the local community’s bank account at a local bank/PT. Pos, through Community Working Team (TKM). The first disbursement (25%) will be made after the local community shows the receipt of depositing the 4%-fund at the local bank, which is their in-cash contribution. If their balance at the bank is less than 10%. The program management will make second

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disbursement of 50%, while the remaining 25% will be disbursed if the physical development of the clean water and sanitation project has reached 75%.

Permohonan Pencairan Dana

Oleh TKM

Termin III (25%)Laporan kemajuan

fisik 75%

Termin II (50%)Saldo di rekening

<10%

Termin I (25%)SPPB

Verifikasi PMC

SPP-LS

Kas Daerah

Rekening TKM pada

bank/PT Pos

KPPN

1. SPM/2. SP2D

Ya

Tidak

Ya

Tidak

Keterangan:SPPB: Surat Perjanjian Pemberian BantuanSPPLS:Surat Perintah Pembayaran LangsungTKM : Tim Kerja MasyarakatKPPN: Kantor Pelayanan Perbendaharaan NegaraSPM: SuratPerintah MembayarSP2D: Surat Perintah Pencairan DanaPMC: Process Monitoring Consultan

Picture 3.1. Flow chart of the channelling of fund to the local people

4) Community Organization Based on Implementation Directives at Village Level (Ministry of Health of the Republic of Indonesia: Chapter V. 1-6. December 2003), in managing clean water and sanitation facilities, a special organization needs to be formed to operate and maintain them. The organization could be one that already exists like TKM or a newly formed organization. The form of the organization could differ from those at other facilities as it has to fit the condition of clean water and sanitation facilities built, with its organizational structure at least comprising: Chairman, Technical Section and Administrative Section.

Operational and maintenance organization (O&P) has to have rules of the games in accordance with the local condition. The rules comprise beneficiaries, the amounts of fees that have to be paid, payment time, and operational and maintenance workers. Organization regulations must state punishments for violators. Organization at the village level can be adjusted to the options of clean water facilities selected. Two very important requirements need to be met so as to ensure the effectiveness of the organization namely 1) Very important tasks should done by highly motivated people who are paid to make sure that they do their best to fulfill their tasks, and 2) the organization should be accepted by the local community so that competition and conflicts can be minimized.

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The option of the organization that can be used for WSLIC-2 programs is:

• Water Users Group. This type of organization can be used as an option for clean water facilities of dug wells and manual pumps with several people as users, its personnel comprises chairman and fee collector. Maintenance can be done by themselves (the two can take turn to do it) because it uses very simple technology. Women as users can do simple maintenance work like cleaning the floor that protects the well. The fee collected from the local people is used for operational costs and regular maintenance of the well.

• Water Users Organization. This type of organization is used as an option of clean water facility in the form of pipeline that serves many people. The facility is owned by the community. The facility management comprises chairman, financial administration and technical unit. Women using the facility can do light maintenance work while the technical does not the difficult maintenance work. Fee is used for the operation and maintenance of the facility.

Organization Funding. Funds for the organization come from the local community in the form of fee as agreed on by community members. Fee collecting procedures comprise mechanisms of fee collection and the fee amount paid by water users per month. Decision on fee amounts should be agreed on by community members. O & P costs are based on real costs and salaries from technical workers. Components that should be taken into account: component replacement, facility repair, purchasing of fuel/electricity, procurement of water processing materials (alum, chlorine), honoraria for the facility management, depreciation equipment/facility, and cash reserves. 5). Enhancement of HR Capacity

Based on Operational Directives at District Level (Ministry of Health of the Republic of Indonesia: Chapter V. 1-6. December 2003), capacity building of the community and institutions in WSLIC-2 Program is carried out through training and empowerment. Training program is designed according to the needs identified and analyzed using systematic and participatory methods namely Methodology for Participatory Assessment (MPA), which are combined with observation, interview, review of documents on the tasks of target groups, objectives and phases of activities (planning, implementation and post-construction activities). Capacity building generally aims to enable the community and its institutions to identify and solve problems in the fields of health, clean water and sanitation facilities, in order to improve the rural people’s health, productivity and the quality of their life. Meanwhile, the special objectives are: a. Planning Phase

1) The whole community (women, rich and poor people) becomes aware that they have rights and obligations to take a role in deciding their future and have capabilities to choose and do things for their welfare. This serves as a basis for adopting the approach of “Demand Responsive Approach”.

2) All layers of the community (men, women, rich, poor) can take part in the formation of Community Working Team (TKM) so that it can represent the local people and can be truly trusted by them.

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3) All layers of the community (men, women, rich, poor) can take part in drafting Community Working Plan (RKM) and collect contribution. RKM as a product of the community is expected to be able to be implemented according to people’s expectations and the objectives of WSLIC-2 project.

b. Implementation Phase.

1) Transfer of skills in-situ in the building of clean water and sanitation facilities so that such skills become in-situ.

2) Availability of in-situ skills for the operation and maintenance of facilities (O&P).

3) Experiences and skills in the management and spending of development funds.

4) Experiences and skills in the procurement of materials and services for the development of clean water and sanitation facilities

c. Post-Project Phase

1) The local people have capability and responsibility to manage clean water and sanitation facilities, by themselves or by others.

2) The local people can ensure transparency in administration and financial management including the management of local people’s contribution.

3) The local people can make regular and transparent reports for the whole community.

4) The local people’s attitudes change into ones that hold a clean and healthy life thanks to the assistance of related parties like Community Facilitator Team, Sanitarian, Village Midwife, School Teacher and others.

Several needs for training and the topics generally identified at the community level are a) Demand Responsive Approach/DRA and in-situ training; b) training for workers in rural villages; c) training for village midwives; d) Financial Administration Training; and e) Training on the management and the maintenance of clean water and sanitation facilities. At each phase of implementation -- from planning, implementation and operation & maintaining, monitoring and evaluation – all layers of the community (men, women, rich, poor) must be involved in decision making. Being responsive to the needs of women as water users will increase the continuity of the service and functioning of clean water and sanitation facilities. For this, women should be represented with a decisive position so as to demonstrate equality in decision making in any forums, committees and teams. 6) Satisfaction of Program

The local people will know WSLIC-2 Program because right from the beginning they are involved in the process of planning local community participation, implementation of construction, holding of trainings up to the operation of clean water and sanitation facilities and the development of existing systems, which cover:

• People’s interest in WSLIC-2 Program

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• Formulation of clean water and sanitation problems they are facing in their village

• Appointment of TKM members • Decision of PHBS option, clean water and sanitation facilities • Presentation and Submitting of Community Working Plan (RKM) • Contribution of cash fund • Contribution of labor and local building materials during the implementation

of WSLIC-2 projects • Appointment of members of HIPPAM/HIPPAMS/Management Body • Utilization of clean water and sanitation facilities of WSLIC-2 Program • People’s participation in trainings held to support WSLIC-2 activities

The carrying out of WSLIC-2 activities are based on the need of the local people for drinking water and sanitation facilities, and their health program, by providing ample opportunity to the local people to make choices and use their rights to expressing ideas for the implementation of WSLIC-2 programs. 7) Continuity of Program

The purpose of planning by the people is help them develop their management of clean water and sanitation services in a sustainable way and ensure that they effectively use the facilities for themselves. Continued and effective services of clean water and sanitation is made possible by the existence of facilities that can continue functioning so that users are highly satisfied and are willing to maintain them and the majority of the local people have access to the services. “Technical Directives of Continued Monitoring the Effectiveness of the Utilization of Clean Water and Sanitation Facilities” defines sustainable as follows:

People’s clean water facilities becomes sustainable if their users keep them functioning and fulfill satisfaction levels of many users. Facilities are ‘effectively used’ if they can be easily accessed and used by the majority of the target people (at least 80%) by giving attention to the promotion of healthy and clean life, without excluding/differentiating certain groups. Sustainable sanitation program means keeping individual sanitation facilities (in this case, toilets) well maintained and used effectively, and the construction of new facilities continues until they reach all community members.

Whether or not the local people are successful in maintaining the sustainability of clean water and sanitation facilities depends on: • The level at which all community members – men, women, rich, poor, people from

any age group – have access to the facilities and use them. • The level at which clean water and sanitation facilities meet the needs of all

community members (men, women, rich, poor). • The method by which the burdens and utility of the planning, building and utilization

of clean water and sanitation facilities are distributed to all community members (men, women, rich, poor).

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• The participation level of users that takes into account gender and poverty aspects in the development and management of clean water and sanitation facilities.

• The form of “support from institutions” that facilitates community participation in the development and utilization of clean water and sanitation facilities.

• “Policy support” or policy sector support to the project that facilitates people’s participation (men, women, rich, poor) in the development and utilization of clean water and sanitation facilities.

Attention needs to be given to five factors so as to maintain the sustainability of clean water and sanitation facilities built by the local community. The five factors are as follows: 1. Technical Sustainability. Planning made by the local people takes into account

the types of technology that go with the condition of the local people. 2. Financial Sustainability. All community groups (rich, poor, men, women) are

capable to provide funds for the operation, maintenance and reparation in a self-reliant way through regular fees.

3. Institutional Sustainability. Facility management Unit (UPS) formed by the local community must give attention to gender equality and the involvement of poor people in the management of the facilities.

4. Social Sustainability. All community groups (rich, poor, men, women) take part in deciding and planning their needs based on demand responsive approach (DRA).

5. Environmental Sustainability. The utilization and maintenance of drinking water and healthy environmental development (AMPL) take into account environmental aspects of the facilities and the environmental aspects of surrounding areas.

Kelembagaan

TeknisLingkungan

Sosial

Finansial

KESINAMBUNGAN

Picture 3.2. Factors in the continuity of clean water and sanitation facilities

b. PAMSIMAS 1) Achievements PAMSIMAS Program will be soon implemented in 1109 districts in 15 provinces (South Sumatra, West Sumatra, Riau, Banten, West Java, Central Java, South Kalimantan, East Nusa Tenggara, Central Sulawesi, South Sulawesi, West Sulawesi, Gorontalo, Maluku, North Maluku, and Irian Jaya Barat). In general, PAMSIMAS Program aims to enhance people’s access to drinking water and sanitation services that are meant for rural and suburban poor people; develop the value and habit of living a healthy life by

27

preparing drinking water and sanitation facilities that are community-based and sustainable and that can be adopted by the local community. This program will serve as a model for replication, scaling up and mainstreaming in other areas in efforts to meet the MDG target. The General Guidelines for PAMSIMAS Implementation state that the program comprises 5 (five) main components and several sub-components namely: 1. Component 1 Community Empowerment and Local Institution Development;

Sub Component 1.1 Realization of Community Driven Development (DDD) Process at the community level

Sub component 1.2 Development of mechanisms and capacity of provincial, district/city and sub district institutions for improving the quality of program management.

Sub Component 1.3 Development of mechanisms and capacity of provincial, district/city and sub district institutions for clean water development

2. Component 2 Improvement of Health and Hygienic Attitudes and Sanitation

Service; Sub Component 2.1 Number of Sanitation Programs Sub Component 2.2 Program of Sanitation and Hygiene Marketing Sub Component 2.3 Program of Hygiene and Sanitation School Sub Component 2.4 Strengthening of local sanitation and hygiene unit 3. Component 3 Provision of Drinking Water and Public Sanitation Facilities 4. Component 4 Grant for Local Social and Economic Development Sub Component 4.1 Incentive Grant for Village Sub Component 4.2 Incentive Grant for District 5. Component 5 Support for Project Materialization and Management Sub Component 5.1 CMAC for CPMU

Sub Component 5.2 PMAC for PPMU and DPMU Sub Component 5.3 Independent Appraisal of Project

2) Selection of Location/Poverty Targeting PASIMAS Program is the continuation of WSLIC-2 Program that carries out activities in the field of clean water and sanitation that are meant for low income earners with no/limited access to clean water and basic sanitation. WSLIC-2 differs from PAMSIMAS in that the farmer’s project locations are in rural areas while the latter’s projects also covers suburban areas. Another difference between them is that PAMSIMAS Program has replication locations namely same models are applied in other different locations using APBN/APBD funds. PAMSIMAS Program targets 5,000 villages for a 5-year period, from 2007 to 2011. In addition, the district governments and local communities have increased program targets by 1,000 villages.

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On average, grants allocated to each village amount to Rp 275 million, of which 70% comes from APBN, 10% from APBD and 20% from the local community. After PAMSIMAS Program is socialized, TKK selects eligible villages from among the whole area of the district in order to decide which villages will e involved in PAMSIMAS projects, using following criteria:

Table 3.2. Criteria of PAMSIMAS Project Location

No CRITERIA OF LOCATION SOURCE DATA

1 High index of village poverty BPS 2005

2 Village with limitged access to drinking water (crical water supply) Potdes, PU, Dinkes

3 Village with limited access to sanitation Potdes, PU, Dinkes

4 Village with high prevalence in diarrhea disease in relation to water supply Dinkes/Puskesmas

5 Village that has not received similar project (drinking water & sanitation) in the past 2 years Bappeda, PU, Dinkes

The data needed is the one deriving from the district level (secondary data). If such data is not available, TKK should form a team that is tasked to visit villages and appraise their real condition. The selection of villages that meet the criteria stated in Table 3.3. turned out a long list of villages eligible to be PAMSIMAS locations. Based on the list, TKK put the villages in ranks by giving them scores so as to determine which villages will be given priority to be invited to meetings that will socialize PAMSIMAS projects at the district level. The method of deciding scores for the villages eligible to be PAMSIMAS project locations is as follows:

Table 3.3. Criteria of Village to Be PAMSIMAS Project Target

No CRITERIA OF LOCATION

1 Community contribution in the form of: - In natura (local materials, labor, and others) as much as 16%Cash fund as

much as 4% of total cost of project 2 Capability of the local people to:

- Finance operation and maintenance - Pay/collect fees

3 High index of poverty in village

4 Village with limitged access to dringking water 5 Village with limited access to sanitation facilities 6 Village with prevalence of disease (diarrhea) related to water 7 Village that has not recieved similar project (drinking water & sanitation) in the

past 2 years Based on the selection through criteria 1 and 2, eligible villages can be selected to attend socialization meetings, which takes into account the total number of villages

29

targeted to receive PAMSIMAS projects. For this, two main things are taken into considerations: 1. The ranks of villages in the List of Eligible Project Locations, which show the

priority of villages eligible to receive projects. 2. Village location, which provides that the locations to be selected should be in same

district or in adjoining districts, which supports the effectiveness and efficiency of the community facilitation process.

3) Cost Effectiveness, Cost Structure and Fund Flow Sources at CPMU PAMSIMAS said the fund sources for PAMSIMAS programs are as follows: PAMSIMAS Funding Program: * Estimated funds needed : US$ 375 million (100%) * Source of loans : US$ 137.5 million (50%) * Government source : US$ 137.46 million (50%) Deriving from: The Local Community : US$ 36.5 million (13%) Central Government : US$ 52.3 million (18.9%) District/City Government : US$ 48.9 million (17.8%)

Contribution from the District/City in the form of program replication in other villages and 10% from physical and operational funds of Satker and DPMU.

The mechanism of fund disbursement from the national level down to the district level can be described as follows: The method of channeling PAMSIMAS funds to the local community is relatively similar to the one used in the WSLIC-2 program so that it is expected that the funds channeled can be effectively used by the local community. Cost effectiveness is directed through work-based budgeting namely: • Performance-based budgeting is made while taking into account the relationship

between funding and output and expected results including efficiency in achievement making and output.

• Making performance-based budget requires performance indicators, cost standards and performance appraisal for each program and type of activity.

• The level of planned output and the cost of each output unit serve as a basis for budget allocation and estimated progress of the program concerned.

Efforts have been made to maintain the continuity of PAMSIMAS Program including the increasing of the capacity of the management body, the selection of technology according to the community’s plan and the involvement of all layers of the community (rich, poor, men, women). But, learning from the experiences of WSLIC-2, and in order to maintain the sustainability of the clean water and sanitation facilities built of the local community, attention needs to be given to financial, technical and environmental factors. Physical activities of PAMSIMAS Program will be carried out in different conditions of Indonesia’s climate, heights of land, geology, agriculture, and ecological areas that vary. Also, some areas are facing drought and accordingly in dire need of drinking water,

30

like natural disaster prone areas. Some areas are possibly located in critical zones that will possibly face environmental damages, physically and biotic ally. PAMSIMAS Program uses Indonesia’s Procedures of Environmental Analysis, which is general accepted/approved by the World Bank. Safeguarding evaluation for the development of a new system is conducted with following methods: • AMDAL (Assessment of Environmental Impact) is meant to prevent and control

as early as possible negative impacts caused in the periods of preparation and implementation and after the project starts operation. In accordance with the directives of the World Bank’s Operational Policies on Environmental Assessment (O.P. 4.01), government regulations and decisions related to environmental management for any projects financed by the public require an AMDAL study before any project carried out. AMDAL is required for large projects to be carried out in marine conservation and swampy areas, water absorption areas near lakes, mangrove forest areas, coastal areas, protected forest areas, and cultural preservation areas.

• UKL-UPL is not required for PAMSIMAS sub-projects that are community-based and are relatively small. The development of drinking water projects that turn out 100-500 liters of water/second or drinking water systems for an area of 250-1500 hectares requires UKL-UPL, which is not separate from technical, economic, social, institutional and financial analysis that is required for sub-projects.

• UKL-UPL is required for subprojects proposed to be carried out in and around sensitive locations like protected areas and water catchments zones.

• Technical guiltiness for environmental management are applied to activities of the development of rural infrastructure and facilities, notably drinking water supply and rural grants of Component 4 of PAMSIMAS.

Monitoring and Evaluation contains tools in the form of Sustainability Database. Sustainable Monitoring Database will be made based on the community’s evaluation and contains information about: • Performance/function of the development of the system of clean water and

sanitation Facilities and Infrastructure. • Effectiveness of the using of systems by poor and rich people. • Quality of the management system of clean water supply • Availability of operational and maintenance funds • Gender equality and rich/poor status in the process of planning, implementing,

operating and maintaining of drinking water and sanitation system and intervention in community empowerment.

• Planning development and community-based implementation The management of Monitoring System and Internal Reporting is the responsibility of CPMU for the application of PAMSIMAS monitoring system at village. District/city, provincial and national levels. This monitoring system will help villages and districts/cities to design water and sanitation project plans and monitor the operation of such projects and the changes of people’s hygienic lifestyle, which will make it possible for other related parties to monitor the progress of project development. In general, the monitoring system covers the processes of data collection and utilization at the village level.

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Learning from the process of forming community organization in WSLIC-2 Program, PAMSIMAS Program accommodates the needs of the facility management organization so that the formation of the management body is included in RKM II. However, the program does not regulate how the organization will continue existing in the community, can address future needs and increase the capacity of its personnel and the legal basis of the organization. The direction contained in PAMSIMAS Program that TKM will serve as a Management Body is a positive thing because, based on the observation of what happen in WSALIC-2, the management body whose personnel are not from TKM eventually will not get trainings because it is formed after the facilities are handed over to the village. With the existence of the mechanism of handling complaints in a proactive way at the village level up to the national level, it is expected that any dissatisfaction of PAMSIMAS Program in any categories can be settled. This mechanism does not regulate to whom and what institution will the Community Complaint Unit (UPM) belong, which otherwise will make clear the independency of the unit in handling complaints from community members. Data about people’s satisfaction of the program will be collected when program evaluation is made, in accordance with existing directives. Meanwhile, since directives on the mechanisms of complaint handling already exist, satisfaction of the program will be even more significant.

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Chart 3.3. Mechanism of Fund Disbursement at District Level The composition and the phases of fund raising in Community’s Working Plan are as follows:

Table 3.4. Composition and Phases of RKM Fund Disbursement

RKM Phase of

Fund Disburseme

nt

Community Contribution (%) Channeling of Grant (%) Total Fund

of Project (%) Cash Natura APBD APBN

I 1 4 16 10 20 50 2 - - - 30 30

II 1 - - - 20 20

Asset Transfer 4 16 10 70 100

TOTAL 4 16 10 70 100

WORLD BANK ADraft OF

Application for Fund Withdrawal is Supported with: Dana Didukung : - Consolidation IFR

d

Special

Accou

Replenishment

NA

TIO

ON

APermohonan Penarikan

DPMU

PRO

PIN

SI

KA

BU

PAT

EN

/KO

TA

PPMU

Dana Didukung

Peraturan

BANK ACCOUNT TKM/Pihak

keIII

Dirjen

BANK INDONESIA

Director General of Ministry Treasurey CPMU

-IFR konsolidasi Prop -Fotocopy SP2D dan

d k

KPPN SP2

Kasatker PAMSIMAS

SPM-LS UP/TUP

SPP-LS

IFR Sub ComUP/T p.

PPK PAMSIMAS

- Invoice - Bukti Pendukun g

COMMUNITY

33

Basic natura contribution as much as 16% is made in Phase 1 with the assumption that the contribution must be declared ready for use in Phses 1, 2 and 3. . 4) Community Organization In line with the concepts and approaches of the Program that place the local community as the owner and implementer of development programs in the village or in several villages, a community organization called Community Working Team (TKM) needs to be formed. It comprises community members selected from the village/villages concerned in a democratic way while taking into account gender balance in the implementation of the Program. The formation of TKM and the selection of its personnel will be made during the process of community empowerment that is called MPA/PHAST process that will be facilitated by Community Facilitating Team (TFM). Another community organization formed in relation to PAMSIMAS is the Management Body, which comprises village government representatives (other than the village head), representatives of the village community members who are water and sanitation facility users, and representatives of the local community. The management body is formed based on consultation and with the facilitation of Community Facilitators, and the body is ratified b y the village head and district head. In general, the tasks of the management body is: a) carry out the operation and maintenance of drinking water and sanitation systems in the funding of utilization, maintenance and development activities, b) put together fund raising plans related to the operation and maintenance with funds coming from the local people and from other sources, and c) report operation and maintenance activities and funding from the village government. 5) Capacity Enhancement The enhancement of the capacity of the community that receive PAMSIMAS programs will be made in two phases as stated in RKJM I and RKM II in the form of training to be held by TFM, district consultants and other parties when needed. Planning for the phase of drinking water facility construction for rural areas or sanitation facilities for suburban areas must be in accordance with the needs of TKM and the local people, so that they will be able and have skills to carry out activities as stated in RKM I. Subject matters of training for the community in relation to RKM I activities include: c. Provision of goods and services for construction work d. Construction of drinking water/sanitation facilities e. Book-keeping and management of project finances f. Community empowerment/gender balance g. Community-Led Total Sanitation (CLTS) The training places an emphasis on the enhancement of the knowledge of the local people about matters related to the planning of facility construction. Meanwhile, the skills of the local people will be enhanced at the time facility construction starts through on the job training in which TFM facilitates and also train people so that they will be able to build clean water and sanitation facilities for themselves on their own. Another effort of increasing the capacity of the local people can be made by TFM providing continuous facilitation during the course of project implementation.

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The next training, which is the implementation of RKM II, is the training on the attitudes of a healthy life (PHS) and training on the strengthening of the management body. PHS training is a training for school teachers, healthcare workers, and healthcare units in TKM. The training is held by TFM with the assistance of resource persons and other related parties, which aims to increase the knowledge and skills of teachers, healthcare workers, and healthcare units in relation to activities of improving PHS. Capacity enhancement for TKM as a Management Body is badly needed for guaranteeing the continuity of projects. For this, TKM and individuals or related parties, from within and outside of the village, need to be involved in training for the strengthening of the management Body. 6) Satisfaction of Program In order to make PAMISAM Program satisfactory to the local people, the principles of the approaches adopted for the implementation of PAMSIMAS Program are as follows: a. Community-based. The whole planning process of PAMSIMAS like the selection

of the need for water and the carrying out of activities involves people’s participation, including women. This manifests the fulfillment of people’s need for drinking water and sanitation facilities, and so it is expected that the local people will maintain and manage them.

b. Partnership, between the regional government and the local community in carrying out PASMISMAS, and the local government takes the role as facilitator.

c. Participatory, which means the local people take an active part in all PAMSIMAS activities, from planning to the implementation, controlling and utilization of projects.

d. Transparency. PAMSIMAS activities are carried out together with the local people, and all data/information about related activities can be accessed through the media by the local people and stakeholders.

e. Responsive to Needs. Implementation of PAMSDIMAS Program is based on the need of the local people for drinking water and sanitation facilities and healthcare programs, by giving ample opportunity to people to make choice and exercise their right to express their views in PAMSIMAS processes.

f. Quality Correctness, which means quality development. All facilities built must fulfill planned designs and technical standards, using quality materials.

g. Sustainability/Continuity of facilities. Facilities built can provide clean water in a continuous way with acceptable quality (from the aspect of users and the government) and meet quantitative domestic needs and the needs of the community as a whole and also maintain the facilities so that they will keep functioning.

h. Siding with the poor, which means activities in PAMSIMAS processes and its projects benefit poor people.

i. Gender equality, which means PAMSIMAS Program give equal opportunities to women and men for taking part in the planning, implementation and maintenance/management of PAMSIMAS programs in the community.

j. Accountable. Implementation of the program should be accountable in that it meets the planned target, is completed on schedule, meets the cost target and the quality target.

In anticipation of people’s dissatisfaction of the program, complaints handling mechanisms are prepared. The handling of people’s complaints, which is developed,

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basically uses proactive approaches, which calls for the formation of units for handling people’s complaints about PAMHIMAS at different levels: a. At the village level (UPM-TKM) b. At the district level (UPM-DPMU) c. At the provincial level (UPM-PPMU) d. At the national level (UPM-CPMU) The principles of complaint handling are secret, in phases, transparent, participatory, proportional and objective. 7) Program Continuity One special aim of PAMSIMAS Program is increase long-term effectiveness and continuity of community-based drinking water and sanitation facilities. Efforts made for this include capacity enhancement for TKM as a Management Body that aims to guarantee the continuity of projects. For this, TFM and related individuals or institutions from within the village need to be involved in the strengthening of the Management Body. B. RESPONSE TO PROGRAM CONCEPT WSLIC-2 and PAMSIMAS programs use relatively similar approaches that cover transparency, accountability, participation, continuity and acceptability. Meanwhile, program approaches generally cover empowerment, siding with the poor, decentralization, partnership, capacity enhancement, integration and continuity. The principles and approaches formulated tend to be normative because they still cannot be fully materialized. Example, capacity enhancement is limited to TKM and does not yet touch many common people. This approach is very important and is in accordance with the shifting of development paradigm that is centralistic to decentralist paradigm by community empowerment. This is meant to make the community more self-reliant in solving problems and also in increasing their bargaining position to the level of other parties. However, in practice, the approach has not optimally pushed forward the process of community empowerment in a substantial way that leads to social transformation. Facts in the field indicate that empowerment means more as a form of community participation in supporting the success of the facilities built. Meanwhile, the management at the community level is functioning quite effectively. This can be seen through the transparency in the budgeting through the system of Community Working Plan (RKM) and the clear division of work and authority between people receiving the program, book-keeping that provides information about the receiving and using of funds, and the meetings of community members to discuss the development of their activities. In principle, WSLIC-2 Program has promoted a learning process for the community in several matters like openness, responsibility and participation in receiving and managing activities. In the selection of the location and the targeting of poor people, the criteria used to select villages as locations for PAMSIMAS programs are quite good in that the selection used among others indices of high rural poverty from Central Bureau of Statistics that contained 2005 data. Further, the indices will be supported with the results of MPA

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PHAST that are felt to be more realistic because the welfare of rural people will be determined by themselves as a result of village consultation meetings. It is unlike the requirements in the selection of poor areas as targets in WSLIC-2 Program that takes into considerations water supply potentials. So PAMSIMAS Program has tried to address the needs of poor villages that fulfill the criteria to be target areas that do not have water source potentials. In addition, PAMSIMAS also tries to address people’s need for clean water and sanitation in suburban areas. This is because the areas are poor indeed, have so little water sources and sanitation, and have high prevalence of diseases due to water shortage, not only in rural villages but also in crowded urban areas. In order to increase the capacity of the local community, PAMSIMAS Program contains a plan of holding trainings in two phases through RKM I and RKM II. The phase I training will focus on the community and TKM so as to make them capable and have skills to carry out activities stated in RKM I. Meanwhile, phase II training will e held to support the continuity of clean water and sanitation facilities. The phase II training comprises PHS training and training for enhancing the capacity of TKM as a management body. This move is sparked by the learning of the condition found in WSLIC-2 Program namely trainings were held in all the villages at the same time and then no training was held later for TKM and others who managed PAB. The Monitoring and Evaluation of PAMSIMAS contains a plan of creating Database for Capacity Enhancement. This data will record training activities that are financed by the PAMSIMAS project, and the types of those benefiting trainings in rural villages, and institutional trainings for district workers and other parties. C. ANALYSIS OF WSLIC-2 PROGRAM DOCUMENTS One part of the evaluation of WSLIC-2 Program is conduct analysis of program documents that covers: program concepts (guidelines, manuals and others), progress report and financial report of the program, and report on financial audit and survey results/evaluation conducted by other agencies/institutions. Analysis of program concepts have been described in the other part of this report, while analysis of the other reports and documents gives more stress to their compatibility with field findings. Several important points of the results of the document analysis are as follows: 1. Based on the Operational Directives for the Village Level (Ministry of Health of the

Republic of Indonesia: Chapter V.1-6. December 2003), efforts of building the capacity of the local community and institutions in WSLIC-2 Program was made through training and empowerment activities. Training programs were made in accordance with identified needs and were analyzed with systematic participatory methods namely Mythology for Participatory Assessment (MPA).

2. “Technical Guidelines for Monitoring the Continuity and Effectiveness of the Utilization of Clean Water and Sanitation Facilities” defines continuity as follows: Clean water facilities for the local community are sustainable if their users keep them functioning and fulfilling the satisfaction level of many users. The facilities are effectively used if they can be accessed easily and are utilized by the majority of the target people (at least 80%) while taking into account the promotion of health

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3. Technical Audit, January 2005 had findings included: Concerning the development of clean water facilities using Rp 200 million, it was concluded that it was not effective because on average it did not reach 80% of the service target. This dealt with 3 system groups (non-pipeline, gravitational pipeline, and pumping pipeline). In order to make the facilities reach at least 80% of the service target, it was recommended that funding ceilings for each village be raised to Rp375 million. But, if pumping pipeline system was used, even with the raise in funding ceilings, the pumping pipeline system could reach only around 70% of the service target. Several problems related to facilities based on financial and technical factors were as follows: Financial Factors: Continuity of the facilities were related to financial factors, in this case, the monthly fee. In several areas, this matter was considered by the Management Agency for Clean Water and Sanitation Facilities. Technical Factors: The sustainability of facilities were related to technical problems found on the ground like a) Those managing the facilities had limited technical skills and spare parts were not always available at the pumping and genset units , which often hindered the sustainability of the facilities; b) At the pumping system, power supply was not enough as compared with the pump capacity, which could disrupt the power system or cause fire; c) There was a bridge of 25 meters of pipeline without supporting poles, and pipes could break any time in such a condition.

4. Final Report on the Outcome of Monitoring Study of WSLIC-2 Project (December 2005) concluded that at least 6 (six) variables were found that could impact the continuity of WSLIC-2. The variables are:

a. Water and sanitation facilities that are effectively sustainable The effectiveness variable in this report shows that WSLIC-2 water facilities

has high level sustainability. The biggest contribution is given by the sub variables of system quality and effective functioning, while the financial and management variables are slightly above the sustainability line with total score of 58 from the maximum score of 400. Sanitation facilities will continue to be sustainable judging from the 2 sub variables of effective sustainability with total score of 168 (61%) of the maximum score of 200. Score of the sub variable of system quality is 80 of the maximum score of 100, and the effectiveness of their utilization has a score of 88 of the maximum score of 100.

b. Effective utilization of water and sanitation facilities

Water facilities built in WSLIC-2 Project are effectively used. This can be seen through the three sub-variables namely the actual access, people’s habits and their health whose score reached 248 (83%) of the maximum score of 300. The biggest score in the sub-variables is habits (94) and the actual access (82 of the maximum score of 100). Meanwhile, people’s health behaviors is above the sustainability line, namely the score of 72 of the maximum score of 100. Regarding facilities, the local people utilize them effectively with a score of 248 of the maximum score of 300.

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c. Response to the Community Needs Community feels that the construction of facility for clean water has fulfilling their aspirations for both genders and also beneficial to all level of community (poor and wealthy). As showed, its achieve 171 from 200 maximum score, while WSLIC-2 just achieve below the continuity level in 55 score for the construction of sanitation facility.

d. Equivalency in Management

The achievement of this point are slightly above the continuity level which is 168 score (56%) from 300 total score. Therefore, the project result that related with the equivalency in management are low and at risk to be under the continuity level. The big contribution for the targeted score are given by two sub variables, as equivalency in task, gender equity, and sub variable in the fairness of decision making function which are still takes places below the continuity level (49 score for 100 maximum score)

e. Community participations through empowerment

From the result of evaluation showed that community participations placed above the continuity level with targeted score is 250 (63%0 from the maximum score 400. Though, this numbers still at risk to be placed below the continuity level.

f. Support from Organization for Women and Poverty

Support from the organization and regulations give more access for women and lower income community so they can participate in the process and utilize the project results, including decision making, and institutionally with score 160 (80%) from maximum score is 200.

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CHAPTER IV RESULTS AND ANALYSIS OF PROGRAM EVALUATION

A. WSLIC-2 PROGRAM

Evaluation results and field findings in six locations (villages) illustrate the condition of each of the villages that cover their location, welfare composition, the year they were built, clean water systems, water resources, monitoring and evaluation, and the number of toilets built. The general description of the villages evaluated is presented by following table:

Table 4.1 General Picture of Evaluated Regions

WSLIC-2

Western Region: West Sumatra: Province Central Area: East Java Eastern Region: NTB Province

Pesisir Selatan District Lamongan District East Lombok District Ds. LGM Ds. Rawang Ds. Sidobogem Ds. Pangean Ds. Kembang

Kuning Ds. Aikmel Utara

Location Condition Plain 10 m above sealevel

Beach 5-20 m asl Plain 40 m asl Plain 6 m asl Mountains 800-83 asl

Mountains 3, 726 m asl

Composition of Welfare

Rich : 10% Average: 30% Poor : 60%

Rich : 7,5% Average : 14,6% Poor : 77,9%

Rich : 10,7% Average 39.7%Poor: 49.8%

Rich :11,0% Average:46,% Poor:43,%

Rich : 6% Average : 17% Poor : 77%

Rich : 6% Average : 23% Poor : 71%

Construction Year 2002 2005 2004 2005 2002 2002

Clean Water System Off site Pipeline

On site Dug Well gali

Off site PIpeline

Off site Pipeline

Off site Pipeline

Off site Pipeline

Water Source Surface Water Source

Water of Swallow Water

Deep Ground Water

Surface Water Spring r Spring r

Management Without Without Without IPA Aithout Twithout

M/E Without Without Pump Pump Without Without

Contginuity Benefit

Fee

Cintinue, develop Continue

Continue ,

NO Fee

Continue, develop Continue

Continue,

develop Continue

Continue

Less smooth

Contin ue,

Continue

Toilets built by WSLIC-2

Public Toliet: 3 units Household Toliet: 100 units

Household Toilet: 51 units

Household Toilet: 109 units

Household Toliet: 15 units t School Toilet: 3 units Public Toilet: 1 unit

Jhousehold Toilet: 13 units School Toilet: 2 units Public Toilet: 1 unit

1) Achievements

Based on field findings and the documents reviewed, it is concluded that WSLIC-2 programs have reached the objectives planned. They are felt at all layers of stakeholders, ranging from people benefiting them to the infrastructure management, TKK members, NGOs, CF, DPMU and PPMU. It is undeniable that in the process of reaching the achievements, all parties encountered problems that eventually could be settled.

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Judging from the goal of WSLIC-2 namely improve the local community’s health among others through the introduction of PHBS, the program seems to be quite successful in the community. Some parties measured the success using different methods: • Compatibility between the goal and project results. The majority of resource

persons simplified the goal of WSLIC-2 to be the provision of clean water and sanitation facilities. With this goal, WSLIC-2 Program has really fulfilled the need of rural villagers for clean water and sanitation.

Example, before WSLIC-2 was introduced, Sidobogem villagers (especially those

with no drilled well at their home) were forced to stand in long lines for many hours at drilled wells on village borders and the water they got was of poor quality. Pangean villagers, who were economically capable, had to buy water from water sellers who took it from reservoirs near their homes or from River Bengawan Solo. Similarly, Kembang Kuning and Aikmel Utara villagers, although there are many water reservoirs in their area, they had to walk and take water from quite a distance, where the water reservoirs are located. This was explained by the head of East Lombok’s DPMU:

“In order to fulfill their need for clean water, Aikmel Utara villagers take water from river banks, which are located no les than 1,500 meters from their villages. People have to go through steep slopes to reach the water fountains. Similarly, Kembang Kuning villagers get clean water from water fountains, which is channeled through pipelines that use simple gravitational system, and from river banks that are located 500-1000 meters from the village, notably Barang Panas/Gawah Buak hamlet. ( head of Lombok Timur DPMU).

After WSLIC-2 Program was implemented in the villages, the local people have easy access to clean water. Even, in Sidobogem and Pangean villages, almost all villagers have received clean water services in the form of pipelines to their homes (SR). That is why public facets provided for the villages as stated in RKM was not utilized because villagers have faucets at their homes and their neighbors who do not have them can also get water from them.

The program of revolving toilet construction is less successful because revolving funds for building toilets were stuck at those who first received the funds. This was mainly because those receiving revolving funds for building toilets were not disciplined to pay installments as initially agreed. That was also because they did not have money to pay installments, and those managing the funds felt reluctant to ask villagers to pay installments. Villagers were also reluctant to seek revolving funds because they did not want to make new debts while their income did not increase. But, because villagers have become more aware of PHBS and because clean water is available to them, they tried to build household toilets on their own.

The revolving fund program was stopped in 2004-2005 and was then replaced with the program of Community-Led Total Sanitation (CLTS). The program does not provide physical facilities to villagers but teach them about PHBS, which makes people feel their need for toilets and then will try to fulfill it.

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• Availability of clean water and sanitation. Clean water facilities built under

WSLIC Program and starting functioning 5 years ago are still operating and are fully utilized by the local people (example, in Aikmel Utara and Kembang Kuning villages received WSLIC-2 TA in 2002). In several areas, facilities built even exceeded what had been originally planned. Example, the case of Sidobogem Village. From the aspect of area coverage, the village has met the target of the program because of the total 236 homes, 173 have access to clean water. Because there was an oversupply, the HIPPMAS management decided to build pipelines to people’s homes (SR) in the neighboring village (Maindu Village in Kedungpiring Subdistrict). However, there are areas with inadequate clean water and sanitation facilities. Example, household toilets to be managed with revolving system in Pangean Village in Madura Subdistrict was built only in phase I of the program. The realization of revolving fund in phase II did not go smoothly because those receiving the funds could not repay them, due to their poor economic condition. The same thing also happened in Kembang Kuning and Aikmel Utara villages. The building of household toilets using revolving funds did not go smoothly. This was why local villagers built 40 new toilets with their own money. So the village now has a total of 53 toilets (13 units were built by WSLIC-2 project). Meanwhile, in Kembang Kuning, there are only 15 additional household toilets, which are part of the total 30 units built in the village. The 30 units are far too less as compared with the village’s total population. Understandably, some villagers still defecate in proper places like rice fields, rivers and gardens. They normally do it when they are working in their fields or gardens.

The coverage of clean water and sanitation services does not equally increase in the 6 villages visited. The highest coverage was found in Sidobogem while the lowest was found in Lagan Gadang Mudi. As for sanitation coverage, the highest increase was found in Pangean while the lowest was in Aikmel Utara. Following table shows complete data analysis of the rise in clean water and sanitation services:

Table 4.2. Increase in Clean Water and Sanitation Facilities

Village

Clean Water Service Sanitation Service

Coverage before

WSLIC-2 (%)

Coverage After

WSLIC-2 (%)

Coverage Increase (%)

Coverage before

WSLIC-2 (%)

Coverage After

WSLIC-2 (%)

Coverage Increase (%)

Pangean 25,24 100,00 296,20 25,85 100,00 286,85

Sidobogem 21,00 100,00 376,19 37,00 87,60 136,76

Kembang Kuning

20,50 94,75 362,20 15,50 17,94 15,74

Aikmel Utara 10,38 72,19 595,47 12,47 13,10 5,05

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Lagan Agam Mudik

33,47 82,00 145,00 19,83 76,00 283,26

Rawang 35,56 93,00 161,53 21,83 44,40 103,39

• Decline of diseases due to an increase in clean water and sanitation

facilities/improved environment. Interviews with the local people, village officials and village polyclinic (polindes) officials provided information that there was a decline in diseases due to the fulfillment of people’s need for clean water and sanitation. But, the information was not based on accurate data because polindes and village healthcare center workers have never collected detailed data about it. However, information coming from villagers attending FGD confirmed the reported decline in diarrhea in their village. Example, FGD in Kembang Kuning turned out information that diarrhea patients had dropped drastically over the past four years. Also in Pangean Village, one elementary school teacher said the number of students not coming to school due to illness was relatively small.

• Improvement in people’s attitudes regarding clean and healthy life. The improvement of people’s attitudes about clean and healthy life (PHBS) is not only influenced by the availability of clean water facilities and the easy access to sanitation, but was also determined by the participation of teachers, health officials, village officials and NGOs in socializing the proper habits of living a clean and healthy life and the level of people’s education. The success of promoting PHBS education to the community has encouraged the local people to build household toilets with their own money. This happened in Sidobogem and Pangean villages. Although activities of revolving toilet program were not going smoothly in the two villages, almost all homes in the areas have toilets. Even, in the communities of Sidobogem and Pangean people have begun to feel ashamed to defecate in improper places, and they now have felt accustomed to wash their hands with soap before eating and clean themselves with soap after defecating. The same ting also happened in Kembang Kuning and Aikmel Utara as explained by the DPMU head:

“There is change in the local people’s behavior of taking a bath in river

(unhealthy water). After WSLIC Program was implemented in their village, they no longer take a bath in river because its water is dirty, which, according to them, can cause and spread diseases.”

His views are supported by the local people and village heads from Kembang Kuning and Aikmel Utara in FGD:

“People’s habits of drinking unboiled water are declining. Obviously, before WSLIC-2 Program was implemented in the villages, area people preferred raw water to the boiled one. They said unboiled water provided a special taste. Although the toilet building program was less successful under WSLIC-2 Program, people’s habits of defecating in open air have declined over the past 4 years; this is the impact of WSLIC-2 Program. As many as 315 toilets have been built in Kembang Kuning Village so far.”

• Easy access to clean water and sanitation facilites. Almost all villagers who

benefit WSLIC-2 Program admit that clean water facilities have provided themn

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with easy access to clean water. In the past, villagers had to walk quite a distance to get water and had to stand in long lines at water selling sites. Now, with the WSLIC-2 program, they just set on publicly owned faucets or the faucets at their homes. Public faucets are now located only around 200 meters from their homes at the most.

2) Selection of Location/Poverty Targeting Based on field findings and the documents reviewed, the villages selected to be the targets of WSLIC-2 Program were the right areas since the majority of their people were poor (low income earners), high epidemics caused by unhealthy water from their environment, potentials of clean water that can be easily developed, the willingness of villagers to take part in any project phases. The question however is what to do with poor villages with no potentials of clean water. With the availability of water source potentials being a requirement, it was found that the program areas visited were not always the poorest areas. But, from the aspect of water resource potentials in general, the villages have very big potentials for the installment of gravitation pipelines, pumped and dug wells.

Table 4.3. Condition of Evaluation Location Before and After WSLIC-2

Village Existing Clean Water and

Sanitation Facility % Poor People *) % Indicator of

PHBS **) ) Coverage of AB/S

Before After Before After Before After Before After

Pangean Lake, river and buy from seller. Few have toilet, defecate in bush

Pipeline of Pumping (SR, KU)

44 44 85 - 25/26 100/100

Sidobogem Old wells and their water is brackish, quite far away water source and wuite long queues

Deep well and pumping pipeline (SR, KU)

50 50 55 - 21/37 100/88

Kembang Kuning

River, absorbed water, rain water. 1-1.5 km away. Very rare toilets, some defecate in garden/ricedfield.

Gravitation pipeline (Public Tank)

77 77 85 55 20/15 95/18

Aikmel Utara

River, absorbed water, 1-1.5 km away, very rare toilets, some defecate in garden/rice field.

Perpipaan gravitasi (Bak umum)

71 71 87 59 10/12 72/13

Lagan Gadang Mudik

River is 850 meters from village and SGL (but not all are of good quality) and buy from sellers

Gravitation pipeline – surface water/KU. Local people develop into SR by

60 60 80 - 33/20 82/76

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Village Existing Clean Water and Sanitation Facility

% Poor People *) % Indicator of PHBS **) )

Coverage of AB/S

themselves

Rawang River and SGL (but not all are of good quality)

SGL 78 78 87 - 35/22 93/44

Notes: PHBS Indicator (loosen the bowel at the inappropriate place, ,drinking unboiled water, trash disposal at inappropriate place, hand washing after finish from the toilet. Data processing with sources from: secondary data (RKM, MPA/PHAST), result from depth interview and FGD with local community who get the benefit from the program. *) There is no changes in data of poverty statistic after the implementation of WSLIC-2 **)Not all the villages implementing PHBS research after the implementation of WSLIC-2 Data from many sources; secondary data (RKM, MPA/PHAST), result from depth interview and FGD with local community who get the benefit from the program. 3) Cost Effectiveness, Cost Structure and Fund Flow

Although existing guidelines regulate that the allocation of funds to each village should go its own RKM, the information got from field visits said that funds allocated for villages were distributed to target villages in equal amounts, and not taking into account the unique condition of each village. Example, in Lamongan District, all target villages received Rp 280 million each without taking into account the unique condition of each village so that RKM that had been produced by the local people had to follow the ceiling amounts of funds decided by the district government. As a result, in Pangean Village where raw water comes from River Bengawan Solo so that water process installations are needed, local villagers had to cover the Rp 60 million deficit for the building of water processing infrastructure. For the time being, the deficit is covered by the local village and several officials of HIPPAMS. The Rp 60 million deficit is covered in installments with money from water using households (SR) and water retribution fees. Meanwhile, other villages visited received Rp 200-240 million each. the local community can have access to it and also can know about the budgeting system and its implementation. It is believed that in the process of building AB/S facilities, the local people’s participation (in kind 16%) -- when converted into fund for each location of community participation -- exceeds 16%. Unfortunately, written data about each village is not available. This is because data is not well filed; there was relatively a big time lapse between project completion and project handing over; and there was change in the personnel of the facility management and others. The spending of funds is quite transparent at the village level, and also there is transparency in how they are spent, who are confided to manage the finances, and when the money is spent through TKM accounts. Funds for WSLIC-2 have been used according to planned purposes (spending papers are in accordance with the components of the work planned, and the scope of work follow existing designs). The spending and using of WSLIC-2 funds are closely monitored by the local people so that they cannot be manipulated. Budget planning system in the village for WSLIC-2 Program is very open so that anybody from

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Referring to the achievements felt by the local people who receive clean water and sanitation services, and the improvement of the local people’s attitudes of a clean and healthy life and the decline in diarrhea cases, the amounts used for clean water supply and sanitation as well as trainings for increasing the local people’s capacity are quite comparable. The budget plan drafted by TKM, the setting of the unit price of materials and salaries is still within the tolerant boundaries of the market prices. However, in setting the prices, TKM did not make prediction of price hike. As a result, in Pangenan Village, the costs of WLIC-2 activities rose due to inflation. But, based on the report of technical audit (WSLIC-2 WSS, Technical Audit, January 2006), there are findings on cost effectiveness as follows: 1. Clean Water Facility Development with funds of around Rp 200 million: It is

concluded that the project is not effective because it does not cover 80% of the total service target. This happens with the 3 system groups (nonipeline, gravitation pipeline, and pumping pipeline).

2. In order to make the facilities reach at least 80% of the total service target, it is recommended that the ceiling fund for each village be raised to Rp 375 million. But, if pumping system is used, although with raised ceiling, the pumping pipeline system can cover only around 70% of the total service target.

4) Community Organization

In each evaluation location an O&P organization has been formed and is tasked with operating clean wear facilities in the village. The majority of its personnel are newcomers (not from TKM), except the technical section, whose personnel in each location are mostly from TKM. The organization has a weak legal basis so that it still cannot develop cooperation with other parties). People’s awareness of maintaining the continuity of the management organization is very strong in Lamongan District. They are so aware of the importance of continuing the management of clean water and sanitation facilities, and they do not want that the organization will disappear when WSLIC_2 Program ends in 2009. Accordingly, the facility management formed an organization called HIPPAMS (Association of Drinking Water and Sanitation Users) in each village. Even in 2004, the formation of HIPPAMS was prerequisite for the third disbursement of funds. In turn, HIPPAMS formed Association HIPPMAS “Banyu Urip” that has been registered with a notary certificate issued by a Lamongan-based notary office. Association HIPPMAS is an organization of HIPPMAS in rural areas that coordinates, make consultations and exchange of experiences in the management of clean water and sanitation facilities in rural areas so that they function smoothly and are professionally managed. The association aims to increase professionalism of its members in the management of clean water and sanitation facilities in rural areas through coordination, consultation, empowerment and exchange of experiences in order to improve their performance to same levels. 5) Increasing of Capacity Trainings in WSLIC-2 Program are conducted in two forms namely classical training and field training (practice). Based on field findings and the documents revieweed, it was

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concluded that training processes are quite participatory because the subject matters use participatory methods and instructors always encourage feedback from participants so that the training atmosphere is comfortable. The types of trainings held in each village that receives WSLIC-2 Program, which aim to increase the capacity of local human resources, include 1) financial management system, 2) technical and operational training and clean water facility maintenance, 3) techniques of health consultations, 4) Patterns of healthy life for the local people and teachers, 5) training on kid doctors (in Rewang and Pesisir Selatan villages), 6) Training on Solar Distillation (SODIS) (in East Lombok). Aside from training, increasing the local people’s understanding of WSLIC-2 Program is also made through the creation of health promotion media in the form of leaflet, brochure, banners and promotional boards. Training participants in each location/village comprise men and women. In interviews with the management and members of HIPPMAS and former members of TKM from Pangean Village who attended trainings, they admitted that the training on the increasing of human resources capacity turned out results as follws : a) Improvement of TKM’s technical skills in the building of clean water facilities b) Increase in TKM’s technical and operational capabilities in managing and

maintaining clean water facilities c) Improvement in TKM’s capabilities of managing clean water facilites d) Improvement in the local people’s behavior of healthy life. With the increase in those capabilities, the Clean Water Management Body (PAB) which is also a member of TKM in general can carry out organization administration and can solve technical, operational and maintenance problems with clean water facilities. Meanwhile, regarding the increasing of capabilities, based on the results of FGD in Pangean and Sodobogem villages, there is information about several shortcomings with the carrying out of trainings namely: 1) The type of technical trainings has not been able to address the needs in each

location, because training subject matters are the same, while in fact technical specifications in the field differ.

2) Less time allocated for technical trainings while the subject matters presented are ample.

3) Trainings are given only to TKM, and not to the clean water management (PAB). And not all members of TKM are members of PAB.

Aside from the problems related to trainings, another problem faced by PAB is the difficulty of finding new cadres for PAB due to unattractive incentives and each evaluation location does not have any plan of increasing human resources capabilities. Ways of settling problems in the increasing of capabilities include: • One effort made is the formation of Asosiasi HIPPMAS that aims to improve

professionalism of its members in the management of drinking water and sanitation facilities in rural villages through coordination, consultation, empowerment and exchange of experiences and information with an aim to improve the performance of association members so that they have same performance levels.

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• Facilitate cooperation between PAB management and third parties for procuring spare parts of clean water facilities at lower prices and with on-time delivery. Monthly regular meetings of PAM management at the village level.

6) Satisfaction of Program During the visits to 6 villages in three provinces, it was found that, in general, stakeholders in the districts down to the villages, the management of clean water and sanitation facilities and the local people who benefit clean water and sanitation services are found satisfied with WSLIC-2 Program in their villages. Their satisfaction is due to the achievements felt by village officials and all layers of the local people (rich, poor, men, women). WSLIC-2 Program have given a lot of benefits to people who utilize clean water and sanitation facilities in rural areas. The benefits include easy access to water supply; knowledge of clean and healthy life; defecate in proper places (toilets); time efficiency in water taking so that villagers can use more of their time to carry out productive activities like farming, agriculture, farm laboring; and easier waste dumping. The local people feel more satisfied with WSLIC-2 than other programs because WSLIC-2 projects directly benefit the local people. On the other hand, the local people are involved in activities in their villages including the building of clean waster and sanitation facilities. Meanwhile, the building and utilization of the infrastructure do not have negative impacts at all. People’s satisfaction with WSLIC-2 projects is mainly caused by the fact that they know quite well, and also feel that they own the activities that are carried out in WSLIC-2 Program. People know about WSLIC-2 Program through different activities like the socialization of the program at the village and hamlet levels, counseling’s about PHBS in the community and at schools, the production of brochures, information boards, leaflets about WSLIC-2 Program that are given to target people for free. Unfortunately, during the implementation of WSLIC programs, the local people are not clear about the mechanisms of lodging their complaints about the programs. When TKM faces obstacles in solving problems faced by them, it communicates with facilitators who come to their village or they visit DPMU to ask it about everything that they need. If the local people submit complaints to TKM, it directly informally submits them to village officials or its members. After clean water facilities start operation, complaints from the people are informally and directly lodged to HIPPAM/HIPPAMS/Management Body. There is no special mechanism that regulates the method of submitting complaints. People can directly lodge their complaints to the technical unit, treasurer, or the chairman of HIPPAM/HIPPAMS/Management Body, and even directly to the village head. But, generally, people very rarely lodge complaints because they (men, women) take an active part in any processes and activities related to WSLIC projects in their villages. In general, after the clean water facilities start operation, people lodge complaints only when clean water supply is disrupted because water pipelines are cleaned. And such complaints can be settled after people are given adequate explanation. In fact, complaints exactly come from people from other hamlets who do not receive WSLIC-2 assistance programs. 7) Continuity of Program In general, the villages visited in the evaluation program have reached the condition of continued program of clean water and sanitation facilities due to following considerations (based on interviews and FGD that are compared with RKM):

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- Clean water and sanitation facilities in six villages still function normally (variation

of project year 2000, 2004 and 2005) and satisfy many users. - Coverage of clean water and sanitation services reaches more than 80% of the

program target community. People in the six villages evaluated have made efforts to maintain the function and utility of clean water and sanitation facilities. However, in Pangean Village, the building of Water Processing Installation (IPA) has high walls that make it difficult for its workers to operate, maintain and repair it. The local people who benefit WSLIC-2 Program and the management of WSLIC-2 projects in rural villages, with their local wisdom, have thought about the methods and measures of maintaining the continuity of WSLIC-2 Program by forming Association HIPPMAS, collecting water service fees, preserve and protect water sources. The reason behind the local people doing those things is their sense of belonging to WSLIC-2 Program. They were involved in the planning of WSLIC-2 projects and experienced any phases of project implementation, from planning to constructing and operating. Their sense of belonging emerged also because the local people invested their money, energy and materials for the projects. Sources at the district and provincial offices see that the emergence of people’s sense of belonging makes WSLIC-2 Program differ from other programs that are more based on the local community. However, the technical audit (WSLIC-2 WSS, Technical Audit, Januari 2005) reveals several financial and technical problems related to the continuity of clean water and sanitation facilities as follows: - Financial Factor: The issue of the continuity of facilities is related to financial

factors, in this case, the monthly fees. In some places, this is seriously thought about by The Body of Clean Water and Sanitation Management.

- Technical Factor: The issue of the continuity of facilities is related to technical factors encountered in the field like: • Low technical capabilities of the management and inadequate spare part

stocks in the pumping unit or the generator unit often hinder the continuity of facilities.

• With the pumping system, less supply of electricity for pumps can disrupt electricity system or cause it burning.

• There is a 25-meter bridge for pipelines with no supporting pillars, which causes worries that the pipelines can break.

Some of above mentioned problems have been settled like the provision of technical assistance for improving technical capbilities of those managing clean water and sanitation facilities, while concerning the plan of giving help by supplying spare parts like in the case in Lamongan, the district government facilitated cooperatives to develop direct cooperation with entrepreneurs. Meanwhile, “Final Report on the Outcome of Monitoring Study of WSLIC-2 Project” states that in 30 villages, the effective continuity of WSLIC-2 facilities -- measured through 4 variables (quality of system, effectiveness of function, effectiveness of cost and effectiveness of management) – is above the continuity line. Admittedly, the continuity position of some villages is at a critical level. This is due to financial problems caused by customers who fail to pay, the amounts of fees are not enough, fees not in accordance with the function of the services provided, and the timeliness of fee

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payment. In detail, efforts that have been, and will be, made by the local community to maintain the continuity of WSLIC-2 Program are related to 5 (five) decisive factors as follows: 1. Technical factor System of raw water taking. Regarding clean water system with raw water supplied with pumping method, attention needs to be given to the continuity of electricity supply for the pump. Electricity supply totally comes from PLN. If power blackout occurs, the upper part system of the reservoir still can supply water for the local people for up to 2 hours. Although so far blackout has never last more than two hours, thus no complaints have been lodged about the continuity of water supply, consideration needs to be given to alternatives of power supply in case blackout occurs with PLN for quite a long time. For pumping systems that are complicated like submersible systems, the water supply management needs to think about the methods of guaranteeing the continuity of the functioning of the pumps, especially when workers from the technical unit are not fully skilled in the operation of the pumps. In Sidobogem Village, the water supply management made an agreement with local pump selling shops for a guarantee in the maintenance and repair of pumps. Matters not yet given attention by the local people in relation to intake pipeline system are the maintenance of PVC transmission pipes and PVC accessory pipes. Some parts of PVC pipes are found under the sun and were not perfectly planted on the ground, and also there is no flexible joint for controlling pump tremors. This condition will accelerate damages at pipes and their accessories. System of Clean Water Management. Villages that take water from water sources or deep wells and it needs not be processed will not face problems related to the continuity of IPA (Water Processing Installation). But villages that rely on surface water as raw material will have to always maintain the continuity of their IPA. System of Distribution Pipeline Network. Field visits provide a general description that the facility management gives less attention to the technical problems of distribution pipeline network. In 2 villages in NTB, for example, people complained about water not smoothly flowing in dry season while in fact water sources still flow big volumes of water and the location of houses is quite much lower than the surface of water at water tanks. Initially, water supply design was made in the form of public faucet (KU) with the local villagers agreeing to pay monthly fees of Rp 1000. But, as times goes by, and the public water taps now being located near homes have encouraged villagers to flow water to their homes (SR). What they did was install hoses from KU to their houses. Many even broke the walls of water tanks in the process. This clearly has an impact on the capacity of water distribution pipelines.

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Picture 5.1 The Penede village head who is also an elementary school teachers in North Aikmel is setting on a faucet at a Public Water Tank. This picture shows many hoses have been stuck to faucets that are not set off. The right picture shows water freely flows through a pipe from a water tank to an unasphalted public road so that the road is always muddy and many hoses are installed at random on the water tank. Distribution pipelines are installed while taking into account standard rules of water flowing. Disruption at pipelines that was originally designed for KU and now have been changed into SR while not taking into account hydraulic principles will disrupt water flow in pipelines. As a result, the local people experienced water not smoothly flowing to KU and SR in the dry season. Similar problems are also found in 2 villages in Lamongan District and in Lagan Gadang Mudik in Pesisir Selatan District although they the condition is less serious so that villagers in the farthest end of the village did not lodge complaints about declining water flow. Pipelines have to be kept clean and free from sedimentation that may have accumulated when water flows from water sources to customers. Not all disribution pipelines in the village are equipped with blowing out accessories. It is worried that sedimentation (deep well water that has high lime contents or high iron contents and surface water with high TDS) will reduce the diameter of pipes. The diameter of pipes will constrict and even clogging may occur in the pipes. Quality of Raw Water and Processed Water. In order to know the quality of raw water and processed water through IPA laboratory tests were made. Quality tests were made by the district office of health affairs. But, results of the tests have not been socialized to the local people and the management of clean water facilities. The management only received recommendations that WSLIC-2 water could be used because it is clean. 2. Financial Factor RKM that was drafted by the local people contains plans of raising funds from WSLIC-2 water receivers, and the funds will be used for the operation, maintenance and repair of water infrastructure. The funds are collected in the form of clean water fee and fee amounts are decided based on consultations among villagers. In WSLIC-2 villages that use pipeline system technology, customer fee system has functioned with fee amounts varying in accordance wtih agreement among villagers.

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Most villages set relatively small amounts of customer fees. Example, Aikmel Utara and Kembang Kuning villages in NTB set water customer fees at Rp 1000 per month per household. But, it is a little different from the case in two villages in Lamongan District. In the RKM of the two villages, the local people agreed on, even planned, the amounts of fees in the next 15 years. The reinvestment plan shows the high spirit of the management of water supply management to preserve clean water facilities that are vital for their livelihood. In Lagan Gadang Mudik, customer fees are relatively small namely Rp 200/M3/month plus Rp 5000 for the installment payment of the installation of pipelines to homes (SR). For the near future, the Body of Clean Water Facility Management has planned to hold meetings of Association HIPPAMS to discuss the idea of raising water tariffs. Meanwhile, in Rawang Village, funds are collected incidentally from water users namely when water facilities need reparation. In Pangean Village, the system of water fee administration is quite good. Payment receipts are integrated with the meter recording system for customers. By putting in the number of water meter for customers, people can directly know the amounts of money that water users must pay. Following is an example of water payment receipts in Pangean.

Figure 4.2. Samples of User’s Fees Receipts at Pangean Village

In all village that are the locations of evaluation, it is found that water fees still have to collected from house to house, or water users bring the money to the neighborhood head (RT). They are not aware of their responsibility going to fee collectors and pay. But, in Sidobogem and Pangean villages, almost 100% of water fees are collected although some water users pay after the agreed dateline. Normally, arrears of water fees are paid during harvest times or at the end of the month. The PAB management has

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never given punishment to water users who are late to pay because they feel reluctant to remind people who are actually their neighbors.

Table 4.3. Efficiency in Fee Collection

No. Village Location Fee Amount Method of Fee Collection

Efficiency in Fee Collection

1. Sidobogem Rp 1.000/M3 + electricity cost Rp 2,000/month

Collected Most users pay rgularly

2. Pangean Rp. 1,000/M3 + electricity cost Rp 3000/month

Collected and surrendered to the management

Most users pay regularly

3. Aikmel Utara Rp 1.000/household/month

Collected Most users pay regularly

4. Kembang Kuning Rp 1,000/household/month

Collected Most users pay regularly

5. Lagam Gadang Mudik Rp. 200/M3/month + electricity cost Rp. 5000/month/SR

Collected Most users pay regularly

6. Rawang - - According to needs

3. Institutional Factor Clean water management organization in the villages still exists and is responsible for the operation of clean water facilities in the areas. People’s awareness of maintaining the continuity of the water infrastructure is very strong in villages where clean water supply structures use gravitation and pumping pipeline systems. In several locations, people are fully aware of the importance of the continuity of water in structure management, and they do not want the organization to disappear when WSLIC-2 Program ends in 2009. Example, in Lamongan District, there is HIPPMAS organization and Association HIPPMAS “Banyu Urip” in each village, which are registered with notary certificates which state that the organizations are based in Lamongan. Formal legality for mass organizations is important because it is related to their development and their cooperation with other parties like applying credits to financial institutions and the development of their human resources in cooperation with Vocational Training Center (BLK).

4. Social Factor The planning and decision of the needs of WSLIC_2 Program in the villages visited involved all community components – men, women, rich and poor people – through village consultation meetings. The involvement of all layers of the community continues until the phase of construction, post-construction, operation and maintenance. The involvement of women in WSLIC-2 Program is generally quite good notably in the planning and construction phases. Example, in the c0nsuruction of clean water and sanitation facilities in Aimal Utara, women were involved in the form of carrying materials according to their ability, serving as members of the organization that maintains water and sanitation facilities. This happens in Rawang Village in Pesisir Selatan District. However, attention needs to be given to the availability of guidelines/pocket books that deal with facility maintenance with simple technology, which can help women to carry out simple work of maintenance and reparation. 5. Environment Factor

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Environment preservation, for water and sanitation facilities and the surrounding environment, is part of WSLIC-2 Program. Efforts of maintaining existing facilities – water catchments structures and pipelines – highly depend on their designs. Design problems that hinder operational and maintenance activities can threaten the continuity of clean water facilities. Example, deep wells in Sidobogem Village were made based on designs that make it quite difficult to carry out maintenance and reparation work. The house of deep pumping wells is closely covered with brick board and they are located in the middle of gardens so that it will be difficult for technicians to fix broken down submersible pumps. Electric panel is in a wooden structure that is quite high so that it is quite difficult to read electricity meter and do reparation work. Another example is found in Pangean Village. The intake pipe that penetrates River Bengawan Solo is not protected with any structure so that very possibly the pipe will be troubled by garbage’s and wastes carried by the river water or it is scrapped by river water flow. In addition, the IPA structure makes it difficult for workers to do operational and maintenance work. IPA is not completed with ladders or doors that make it easy for people to check the condition of water and the processes that occur in IPA. Factors of the surrounding environment that impact the continuity of the system is the availability of water sources. When water sources decline or deplete or when water quality drops, the shoal system of clean water in the village is also disrupted. Indeed, in WSLIC-2 Program, people are obliged to preserve water sources especially those coming from fountains and deep wells by carrying out reforestation in water catchments areas. However, it is not explained in detail what plants are suitable and can grow in certain areas with characteristics of accommodating water underground. This is why, when people carry out reforestation, they do not give attention at all to the selection of the types of plants. Regrinding nib after catchments areas mainly aims to maintain water balance underground. As a matter of fact, several types of plants are not suitable for that purpose due to their characteristics of intensively absorbing water and because they have high evaporanspiration. They include teak, casuarina and pinus. These plants do not accommodate water underground and, on the contrary, they absorb ground water and evaporate it. B. PAMSIMAS PROGRAM

Latest development

When this report was drafted, PAMSIMAS Program had accomplished its activities of preparing a program that covers:

a. Formation of Central Steering Team that is the Steering Team for Drinking Water and Environment Health Development (AMPL) that was formed with Decision Letter (SK) of Bappenas Head No. Kep. 314/M.PPN/10/2006.

b. Formation of Central Implementing Team (CPMU) c. Drafting of Implementation Directives of PAMSIMAS that refers to the

improvement of Technical Directives of WSLIC-2. d. Provision of Facilitation Consultant at the national level.

Meanwhile, the formation of Steering Team in the Province and District/City, the formation of Implementing Team in the Province and District/City (PPMU and DPMU)

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and the provision of facilitation consultants in the province and district/city is in the process. This is because only 111 districts/cities have submitted letters that state their interest and agreement to carry out village replication. The important aspect (factor) of WSLIC that is utilized/continued for the development of PAMSIMAS is the involvement of the local people right from the implementation of MPA PHAST, Planning, Materialization of Construction Work up to the Operation and Maintenance of the System. The local people including men, women, older and younger people were involved, mainly in MPA and PHAST. Although they were not directly involved in the Operation and Maintenance of the System, they took part in the selection of the personnel who managed the facilities. They were even involved in the decision of retribution and tariffs. Even, in one district, meetings were not held if the number of male and female participants was below the number required by the Operational Directives.

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CHAPTER V CONCLUSION, LESSON LEARNED AND RECOMMENDATION

A. Conclusion Based on the results of the evaluation of WSLIC-2 Program that was conducted through secondary data analysis, interviews, field observation and FGD in the 6 locations visited, it is concluded that on the whole WSLIC-2 Program is felt to have achieved the objectives initially stated and can facilitate the majority of poor people in evaluation locations to access clean water and sanitation, so that the costs of fulfilling their need for clean water decline. The program also has influenced and encouraged the local people to develop behaviors of living a clean and healthy life, which is evidenced among others by the decline in the number of villagers defecating in random places, people washing their hands before eating and drinking boiled water. The success in the PHBS education has been able to encouraged the local community to build household toilets (JaGa) with their own money. Although the revolving toilet program has not proceeded smoothly, almost all houses in the village now has JaGa. The success in PHBS education is also related to the increase in the coverage of clean water and sanitation services. In general, stakeholders in the district down to the village including village apparatuses, the management of clean water and sanitation facilities, and the local people who benefit them, are satisfied with WSLIC-2 Program. This is because the achievements of the program are concretely felt by village officials and people from all layers of the village community (rich, poor, men, women). WSLIC-2 Program has given lots of benefits to rural people: access to water, people knowing behaviors of living a clean and healthy life; people defecating at toilets, time efficiency in taking water so that villagers can use more of their time to do productive work (like greening, farming and laboring), more easily dumping wastes. Villagers feel more satisfied with WSLIC-2 compared with other programs because people can directly feel the benefits of WSLIC-2 Program. On the other hand, the local people are involved in any development processes in their village including the development of WSLIC-2 projects. They can have very easy access to clean water and sanitation. Meanwhile, the negative impact of the building of clean water and sanitation facilities cannot be found at all. The local people are very satisfied with WSLIC-2 mainly because they feel that activities related to the implementation of WSLIC-2 Program belong to them. B. Lesson Learned From the results of the evaluation of the implementation of WSLIC-2 Program, people can obtain some best practices that could be adopted for programs under National Program of Community Empowerment (PNPM) namely: 1. Selection of Poor Areas. Several poor villages cannot get clean water and

sanitation projects under WSLIC-2 Program because they do not fulfill all the required criteria like no water sources are found in the areas that can be developed. However, this has been revised in the concept of PAMSIMAS, which no longer requires the availability of water sources and instead stresses the willingness of the local people to give contribution and the willingness of the district/city government to replicate WSLIC-2 programs in other villages.

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2. Ceiling of assistance fund for each village/location. Under WSLIC Program, the ceiling amounts of funds for villages in one district are the same while in fact the villages differ in their needs in accordance with the characteristics of their geographical condition. This funding approach is very much top-down. This is because the drafting of RLM at the district level did not use data from MPA PHAST. As a matter of fact, the data can be made a base line for drafting budget plans.

3. Organization of Clean Water Facility Management. There is no formal legal basis for organization of clean water facility management. For future development of the organization’s activities, its existence needs to be supported with Village Government Regulation, which is then developed into BUMD (district-owned enterprise) with notary certification (SK Notaris). This legal and formal status is important in relation to the development of groups and cooperation with other parties, for example for applying for applying credits to financial institutions and for developing cooperation with Vocational Training Center (BKL) for improving its human resources.

4. Gender Equality. Women are involved in WSLIC-2 activities from the planning to the construction, operation and maintenance of WSLIC-2 projects. However, O&P guidelines need to be issued that will make it possible for women to play a role in the maintenance of clean water and sanitation facilities.

5. Operation and Maintenance of Clean Water Facility. As regards clean water facilities, reservoirs need to be developed because they give benefits like: i) reduce water pressure so that the instrumentation and accessories of pipelines become more durable (water meter, water tap and others); ii) when power blackout occurs any time and water pumps stop functioning, water is still there in reservoirs; and iii) as reservoirs during the times of the maintenance/reparation of clean water facilities (cleaning of reservoirs, reparation of pumps and others).

In addition, there needs to be practical guidelines (pocket book) for the

maintenance of clean water facilities that directly reach household pipelines so that, aside from maintaining the durability of clean water facilities, the guidelines also reduce the burdens of technicians. Example, when iron pipes are found rust they can be immediately serviced so as to prevent their condition from deteriorating and accordingly requires big amounts of money for reparation or replacement.

6. Water Conservation and Environment Preservation. In order to ensure that

water resources will always be there underground, vegetation conservation needs to be carried out around them that includes plants that can keep water like productive plants (kluwih, sukun, nagka and others) or other s like banyan trees, bamboo, lo panggang and others.

At the district level, the District Office of Forestry should be included in TKK

(District Coordination Team). This is important to ensure clear coordination and implementation by related district government, which aim to preserve water catchments areas that serve as the local community’s clean water sources. Normally, water catchments areas are locate don mountain slopes, forestry areas, protected forest areas and others, and accordingly there needs to be concrete cooperation with the District Office of Forestry by including it into TKK.

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7. Program Continuity: In order to ensure the continuity of WSLIC-2 Program, things that have been and/or will have to be done area:

Formation of Association of Clean Water Management with a legal entity status. Example, the case in Lamongan District. Association is an organization that needs to be taken into account for facilitating cooperation with third parties in order to have easy access to spare parts and develop cooperation with other parties that benefits each other. The association also can help its members to solve their problems related to clean water installation that they manage. The formation of the association was initially facilitated by the district government and later it developed self-reliance. Selection of the Team of Clean Water and Sanitation Management. The selection of members of the community’s working team for clean water management is an important component for the continuity of WSLIC-2 Program. Selection is made democratically so as to avoid institutional problems and in the process criteria of candidates must be formulated in accordance with the types of their work before TKM members are selected. Training. Concerning project components, training on institutional empowerment for clean water management is a component of program continuation that is very important and accordingly should be carried out. Concerning the training, three things should be given attention namely a) The type of technical trainings should be able to address the needs of each location because technical specifications in the field differ, b) Time for training on technical matters needs to be increase because the subjects matters presented are many, c) Training should also be held for PAB because not all members of TKM are members of PAB. Selection of Technology Type. In order to support the continuation of WSLIC-2 Program, selection of technology should follow the local capacity and resources in the location. Selection of unsuitable and expensive technology will cause dependency. Example, in the selection of the types of pipes. Pipes installed in open air should be made of metal because PVC pipes damage easily if they are exposed to solar rays. PVC pipes are suitable for underground installations. Clear Status of Land. Most plots of land on which water pumps and reservoirs are built under ESLIC-2 Program are privately owned. For this, right from the beginning, the status of land ownership must be made clear. This is meant to avoid different people claiming that the plots of land belong to them in the future. Such cases can disrupt the continuity of WSLIC-2 Project.

8. Community participation. With the process so far developed by WSLIC-2

projects, the local people feel that they will be able to manage similar projects brought to their areas in the future. This is why the local people should be involved right from the initial phases of project planning up to project management. In addition, the waster and sanitation facilities built can be well maintained, and even can be further developed in several places.

C. Recommendation

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Based on the evaluation of WESLIC-2 Project implementation, recommendations are formulated as follows: 1. The ceiling amounts of funds going to each village needs to follow the technology

and the system that will be used, based on local geographical condition and the needs of the village concerned. For this, the planning of fund allocation should have been made at the district level and should be based the outcome of Methodology for Participatory Assessment – Participatory Hygiene and Sanitation Transformation (MPA PHAST). Especially for the pipelining and pumping system that is relatively more costly, the ceiling amounts of funds need to be increased so that implementation of the project will not be too burdensome to the local community.

2. In order to make it easier for management to operate and maintain clean water facilities after they are constructed, operational and maintenance guidelines should be created for any types of technology (non-pipeline, gravitational pipeline and pumping pipeline). This is important considering that technical workers at the Management Body/HIPPAMS could be not from TKM who had followed technical trainings.

3. In order to increase the technical capabilities of the Management Agency/HIPPAMS for the continuity of the function and utility of clean water facilities that have been built, trainings need to be conducted for those managing clean water and sanitation facilities after WSLIC-2 Project is completed.

4. In order to determine the impacts of WESLIC-2 Program to the changing of the local people’s behaviors of living a clean and healthy life and the improvement of the local people’s health, an evaluation needs to be made on PHBS and its impacts on local economic development and poverty reduction.

5. One positive impact of WSLIC-2 Program is more spare time felt by women especially when compared with what happened in the past when they went to quite far water reservoirs several times in a day to get water. At this time, water reservoirs are located near their homes so that women have more spare time. It would be very useful that in future programs of EWSLIC or PAMSIMAS productive economic activities (income generating activities) will be developed, especially for women to fill their spare time. Such activities were once developed through similar projects namely RWSS (Rural Water Supply and Sanitation) in Central Lombok, MCRMP (project for the development of coastal communities/fishermen in 15 provinces) and OTA-33/IWACO Project in West Java.